Improving End-To-End Tsunami Warning for Risk Reduction on 's West Coast

Peter Anderson Simon Fraser University

Prepared By: Simon Fraser University 8888 University Drive Burnaby, B.C. V5A 1S6 Associate Professor and Director, Telematics Research Lab, School of Communication Contractor's Document Number: Project Report (Tasks 6 and 7) Version 1.2 PWGSC Contract Number: W7714-145880 DRDC Project Number: CSSP-2013-TI-1033 Technical Authority: Philip Dawe, Portfolio Manager, DRDC – Centre for Security Science

Disclaimer: The scientific or technical validity of this Contract Report is entirely the responsibility of the Contractor and the contents do not necessarily have the approval or endorsement of the Department of National Defence of Canada.

Contract Report DRDC-RDDC-2016-C174 March 2016

© Her Majesty the Queen in Right of Canada, as represented by the Minister of National Defence, 2016 © Sa Majesté la Reine (en droit du Canada), telle que représentée par le ministre de la Défense nationale, 2016

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast

Canadian Safety and Security Program Project Number CSSP-2013-TI-1033

Project Report (Tasks 6 and 7) For period ending 31 March, 2016

Version 1.2

Record of Amendments

Version Date Description Author Number

1.0 15 March, 2016 Initial version Peter Anderson

1.1 18 March, 2016 Small edits Peter Anderson

1.2 26 March, 2016 Inclusion of additional Peter Anderson participant feedback

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) ii

Document Description

This document provides final reporting for Tasks 6 and 7 of the Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast Project (CSSP 2013-TI-1033) for the period 1 January, 2016 to 31 March, 2016.

Project Organization

Technical Authority Philip Dawe Portfolio Manager – Emergency Management & Disaster Resilience Defense Research and Development Canada, Centre for Security Science 222 Nepean Street, 11th floor Ottawa, K1A 0K2

Province of Representative and Project Champion Ralph Mohrmann Senior Regional Manager and Assistant Director of Operations Emergency Management British Columbia Ministry of Justice 2261 Keating X Road Saanichton, BC V8M 2A5

Research Lead Peter Anderson Associate Professor and Director, Telematics Research Lab School of Communication Simon Fraser University 8888 University Drive Burnaby, B.C. V5A 1S6

Research Team Peter Anderson, Director, Telematics Research Lab, Simon Fraser University Stephen Braham, Director. PolyLAB, School of Communication, Simon Fraser University Olympia Koziatek, Department of Geography, Simon Fraser University Amanda Oldring, School of Communication, Simon Fraser University Amanda Oye, School of Communication, Simon Fraser University Dawn Ursulak, School of Communication, Simon Fraser University Marc d’Aquino, Holistic Emergency Preparedness and Response

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) iii

Table of Contents Record of Amendments ii Document Description iii Project Organization iii Acknowledgements vi List of Tables ix List of Figures ix List of Acronyms x 1.0 Introduction 1 2.0 Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast: Project Summary 2 2.1 Project Objectives and Scope 2 2.2 Study Methodology 2 2.2.1 Phase 1: Task 3 - Comprehensive Review of Existing Coastal Warning and Communication Networks and Last-mile Segments 2 2.2.1.1 Creation of a Notification Matrix and Planning Tool 3 2.2.1.2 Community Surveying 3 2.2.1.3 GIS Data Gathering and Mapping 4 2.2.1.4 Social Media Analysis 5 2.2.1.5 Selected Radio Propagation Mapping 6 2.2.2 Phase 2: Task 4 - Piloting and Evaluating New Techniques and Technologies in Communities 7 2.2.2.1 New Methods for Identification of Additional Coastal Populations-at-risk 7 2.2.2.2 Selection of Project Notification Technology Pilots 8 2.2.2.3 Selection of Communities and Other Participants for Pilot Projects 11 2.2.3 Phase 2: Task 5 - Tsunami Notification Tool Kit 14 2.3 Impact on Stated Project Outcomes 15 2.3.1 Identifying Most Vulnerable Populations, Zones, and Community Capacities 15 2.3.2 Increasing Community-level Risk Awareness and Encouraging Appropriate Preparedness and Mitigation Activities 17 2.3.3 Building Social Capital through Facilitating Connectedness and Community Building 20 2.3.4 Other Engagement 20 2.3.5 Reports and Publications 21 2.4 Relationship to other CSSP Projects 21 2.5 Recommendations For Further Advancing Tsunami Notification 21 3.0 Leveraging Tsunami Notification Practices to Support B.C. All- Notification 22 3.1 Background 22 3.1.1 B.C. Geography 22 3.1.2 Hazards in British Columbia 22 3.1.3 British Columbia Emergency Management Responsibilities 23

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) iv

3.1.4 Comprehensive Emergency Management Plan 23 3.1.5 Local Authority Response 24 3.1.6 Provincial Response 24 3.1.7 The Duty to Notify 25 3.2 B.C. Public Notification Arrangements 25 3.3 Current Notification Challenges 26 3.4 Leveraging Tsunami Notification Arrangements 26 3.4.1 Recommendations 29 3.4.1.1 Background Studies 29 3.4.1.2 Enhancements of Current Provincial Notification Systems 30 3.4.1.3 Education and Training 30 4.0 The Way Forward: Transitioning to a Smart B.C. All-Hazards Notification System 32 4.1 Recommendations 34 4.1.1 Engagement and Collaboration 34 4.1.2 Guidance and Coordination 34

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) v

Acknowledgements

This project was supported through the Canadian Safety and Security Program, a federal program led by Defence Research and Development Canada’s Centre for Security Science, in partnership with CSSP 2013-TI-1033.

Many people contributed their valuable time and information to enable this project to be carried out successfully. We have attempted to acknowledge below those who contributed throughout the duration of the project and apologize for any omissions.

Gordon Kirk, B.C. Ambulance Service Craig McGowan, B.C. Ambulance Service Rod Salem, B.C. Ambulance Service Sol Lancashire, B.C. Hydro Nick Heath, B.C. Marine Trails Network Association Jason Wood, B.C. Ministry of Transportation and Steve Waugh, Bella Coola Dave Rainnie, Canadian Broadcasting Corporation Brian Bain, Canadian Coast Guard - Western Clay Evans, Canadian Coast Guard – Western Mike McCullagh, Canadian Coast Guard – Western Glenn Ormiston, Canadian Coast Guard – Western Susan Pickrell, Canadian Coast Guard - Western Ian Wade, CCG, Canadian Coast Guard - Western Nathan Webb, Canadian Coast Guard - Western Doug Allport, Canadian Public Safety Operations Organization Brent Falkins, DFO, Canadian Hydrographic Services, Institute of Ocean Sciences Denny Sinnott, DFO, Canadian Hydrographic Services, Institute of Ocean Sciences Fred Stephenson, DFO, Canadian Hydrographic Services, Institute of Ocean Sciences Aspa Kotsopoulos, Canadian Radio-television and Telecommunications Commission Peter Ensor, Capital Regional District Cheryl Waugh, Central Coast Regional District Philip Dawe, Centre for Systems Science, Defense Research and Development Canada Sheldon Dickie, Centre for Systems Science, Defense Research and Development Canada Jack Pagotto, Centre for Systems Science, Defense Research and Development Canada Dave Samson, Cermac Canada Dirk de Jager, Chroma Communications Wendy Magnes, Destination British Columbia John Tidbury, District of Port Hardy Karla Robison, District of Ucluelet Mike Webb, E-Comm Andrew Bryan, Emergency Management British Columbia Ian Cunnings, Emergency Management British Columbia Chris Duffy, Emergency Management British Columbia Clare Fletcher, Emergency Management British Columbia Kathryn Forge, Emergency Management British Columbia

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) vi

Michael Higgins, Emergency Management British Columbia Maurie Hurst, Emergency Management British Columbia Ian Lighthouse, Emergency Management British Columbia Michael Knauff, Emergency Management British Columbia Robert Kennedy, Emergency Management British Columbia Kelli Kryzanowski, Emergency Management British Columbia Sue Launder, Emergency Management British Columbia Cameron Lewis, Emergency Management British Columbia Chris Mah, Emergency Management British Columbia Ralph Mohrmann, Emergency Management British Columbia John Oakley, Emergency Management British Columbia Peter Prendergast, Emergency Management British Columbia Pat Quealey, Emergency Management British Columbia Todd Smith, Emergency Management British Columbia Robert White, Emergency Management British Columbia Sonia Woolford, Emergency Management British Columbia Jennifer McLarty, Emergency Management British Columbia, Social Media Unit Ashley Spilak, Emergency Management British Columbia, Social Media Unit Armel Castellan, Environment Canada Michael Gismondi, Environment Canada Fred Voglmaier, Environment Canada Carol Ogborne, GeoBC Joshua Chan, GeoBC Patricia McCourt, Indigenous Affairs and Northern Development Canada Kim Mikkelesen, Industry Canada Melody Meyers, Industry Canada Pawas Verma, Industry Canada Wendy Wu, Industry Canada Major David Proctor, MARPC/Joint Task Force Pacific Monty Cook, NAV Canada Wilf Bangert, Network BC, Office of the Chief Information Officer Chris Hauff, Network BC, Office of the Chief Information Officer James McGrath, Network BC, Office of the Chief Information Officer Howard Randell, Network BC, Office of the Chief Information Officer John Carrick, NOAA National Tsunami Warning Center Paul Haung, NOAA National Tsunami Warning Center Paul Whitmore, NOAA National Tsunami Warning Center Nathan Becker, NOAA Pacific Tsunami Warning Center Stuart Weinstein, NOAA Pacific Tsunami Warning Center Randy Zaleshuck, North Island 911 Garry Rogers, NRCAN, Pacific Geoscience Centre Teron Moore, Ocean Networks Canada Peter Clarkson, Parks Canada Chuck Lok, Port McNeil Cindy Jeromin, Port Metro Vancouver Wayne Hirlehey, Public Safety Canada

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) vii

David Jones, Roadpost, Inc. Greg Fletcher, Regional District of Mount Waddington Gloria Le Gal, Regional District of Mount Waddington Glenn Alsaker, Rogers Wireless Clement Cheung, Rogers Wireless Michelle Alton, RCMP Dennis Crowe, RCMP Debbie Letkemann, RCMP Gregory Goss, Sierra Systems Fraser Hacking, Sierra Systems John Clague, Earth Sciences, Simon Fraser University Nick Hedley, Department of Geography, Simon Fraser University Howie Siemens, Strathcona Regional District and City of Campbell River Layla Guica, Surrey Search and Rescue Luiza Guica, Surrey Search and Rescue Lucas Brown, Communications Jennifer Conner, Telus Mobility Jeff Hortobagyi, Telus Communications Mouti Wali, Telus Mobility Tim Webb, Tofino Robin Neale, Transport Canada Madeline McDonald, Village of Port Alice Mike Atchison, Zeballos Fire Department Doug Brown, Wuikinuxv Nation

We would especially like to thank over 90 communities, regional districts and First Nations for enabling their local authorities to participate in our on-line tsunami notification and Alert Ready test surveys and/or community pilot projects.

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) viii

List of Tables

Table 1. Participating Communities 11 Table 2: Local Plans and Capabilities for all Local Authorities 17

List of Figures

Figure 1: Locations of Sampled @EmergencyInfoBC Twitter Followers 6 Figure 2: Flickr Sourced Kayaking Locations 8 Figure 3: West Coast Trail inReach GPS and Text Message Delivery Timing 12 Figure 4:CCGS Bartlett Iridium Go messaging Test Locations 13 Figure 5. CCGS Bartlett MSAT EmergNet Test Locations 13 Figure 6: Kayaking Locations with Marginal Tsunami Notification Coverage 16

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) ix

List of Acronyms 5G Fifth Generation Mobile Wireless Technologies B.C. British Columbia BCAS B.C. Ambulance Service BCERMS B.C. Emergency Response Management System BCEAS British Columbia Emergency Alerting System CAP CBRNE Chemical, Biological, Radiological, Nuclear and Explosive Events CCG Canadian Coast Guard CEMP Comprehensive Emergency Management Plan CRTC Canadian Radio-television and Telecommunications Commission CSSP Canadian Safety and Security Program EC Environment Canada EMBC Emergency Management British Columbia HSPA High Speed Packet Access GIS Geographical Information System IOT Internet of Things LMD Last Mile Distributor LMR Land-Mobile Radio LTE Long Term Evolution MF Medium Frequency NAADS National Alert Aggregation and Dissemination System NOAA National Oceanic and Atmospheric Administration NPAS National Public Alerting System NRCAN National Resources Canada NTWC National Tsunami Warning Center NWS National Weather Service PTWC Pacific Tsunami Warning Center PECC Provincial Emergency Coordination Centre PENS Provincial Emergency Notification System PERCS Provincial Emergency Radio Communications Service PREOC Provincial Regional Emergency Operations Centre PSBN Public Safety Broadband Network PTWC Pacific Tsunami Warning Center RCMP Royal Canadian Mounted Police RSS Really Simple Syndication or Rich Site Summary SEND Satellite Emergency Notification Device SFU Simon Fraser University SMS Short Message Service VGI Volunteer Geography Information VHF Very High Frequency WPAS Wireless Public Alerting Service

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) x

1.0 Introduction

The purpose of this document is two-fold: 1) to summarize the current project activities and key findings (Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast) and 2) to outline options and present recommendations for a roadmap to advance implementation of a B.C. all-hazards notification system based, in part, on experience and knowledge derived from the current project. The report is divided into four sections: Section 1 (this section) includes an introduction; Section 2 provides a summary of work carried out in this project, its alignment with CSSP outcome goals, and recommendations for advancing tsunami notification; Section 3 contains a series of background profiles of B.C. hazards, local and provincial authority emergency management roles and responsibilities, including emergency notification, as well as a brief description of notification methods; Section 4 discusses how results of this work can be leveraged to support broader B.C. notification efforts and Section 5 makes recommendations for integrating and transitioning current arrangements into a future Smart B.C. All-Hazards Notification System.

Throughout the report, the term “notification” is used often and is intended to encompass the means to alert people that a hazard event has occurred, to warn them about the nature of impending threat, and to provide them with the necessary information and instructions to protect themselves from the event. Often, diverse means and methods of communication may be used for the alert and follow up information dissemination.

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 1

2.0 Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast: Project Summary

This section reviews the work undertaken in this project, underlying methodologies, results, and lessons learned, along with recommendations for further actions. The study took into account findings and action-based recommendations of previous B.C. tsunami notification studies and initiatives carried out over the past decade.

2.1 Project Objectives and Scope

The principle study objectives were to: • bring practitioners and key stakeholder groups together with subject matter experts to share knowledge and build relationships to support long-term development of sustainable, reliable and integrated West Coast Canadian end-to-end public alerting and emergency communication systems and to contribute to strengthening these types of systems elsewhere in Canada; • improve application of these systems, through selected pilot projects, to support remote area tsunami alerting, and • provide clear and action-specific recommendations to advance implementation of an all-hazards alerting system.

The project was composed of two major phases: • Phase 1: (April – December, 2014) Conducting a study to inventory and assess existing coastal warning and communication networks and last-mile segments. • Phase 2: (January, 2015 – March, 2016) Piloting and evaluating new techniques and technologies that can support region-wide and localized needs. This phase included revising and expanding the Simon Fraser University (SFU) “Tsunami Warning Methods Planning Tool Kit”, a planning guide originally published in 2006, and producing recommendations for a roadmap toward an all-hazards notification system for British Columbia, based on experience and knowledge derived from the current project.

2.2 Study Methodology

2.2.1 Phase 1: Task 3 - Comprehensive Review of Existing Coastal Warning and Communication Networks and Last-mile Segments

From the outset, the project set out to address recommendations of previous initiatives and carry out new research by establishing a framework and study methodology that would enable its team to systematically capture and store study data concerning: • tsunami hazard zones; • populations-at-risk; • coastal socio-economic activities; • key notification processes and stakeholders;

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 2

• current and emerging notification methods and their underpinning communication , including coverage; • current notification methods usages, practices and capabilities, and • other area communication methods and supporting technology not currently integrated into existing tsunami notification systems.

The principle data gathering methods employed in this study phase included: semi- structured interviews, site visits and email correspondence with key agencies; Internet and online journal and data base searches for background data and information concerning warnings systems, lessons learned and recommended good practices, coastal populations, socio-economic activities, communications coverage and community tsunami hazard and public information programs; downloading special Twitter data sets to identify followers of @NWS_NTWC and @EmergencyInfoBC (the two key accounts used to disseminate official West Coast tsunami bulletins); participation in the Tsunami Notification Networking Group and Emergency Management British Columbia (EMBC) planning meetings and activities, and interviews with communication service providers and vendors. A number of additional requests were made to selected agencies for specialized data concerning notification processes, methods, supporting infrastructures and locations of facilities and service coverage.

2.2.1.1 Creation of a Notification Matrix and Planning Tool Throughout the collection period, data was reviewed and organized into categories. Categories were then converted to data fields in a set of spreadsheets to establish a framework for systematically recording and organizing study data. Data fields initially included: community and other geographic locations and current tsunami notification zones identified in the British Columbia Tsunami Notification Process Plan; various other jurisdictional boundaries; types of methods used for receiving official external tsunami notifications, as well as methods used to disseminate messages to local populations. These fields were supplemented by adding geo-reference codes and other attribute data to each identified location. This process resulted in the creation of a large geo-coded community notification matrix that could be used not only for data collection purposes, but also to support analysis and inform the selection pilot projects and their participants in Phase 2. Most importantly, the matrix evolved into a practical community, regional and provincial planning tool that can be used to support all-hazards notification planning.

2.2.1.2 Community Surveying Given the limited time frame for Phase 1 initial data collection (April - September 2014), initially it was unclear as to how feasible it would be to collect detailed data for all locations along the B.C. coast, and it was decided that concentrating initially on a coastal sub-region would provide an opportunity to test and validate the matrix. Two northern Vancouver Island regional districts, Mount Waddington Regional District and Strathcona Regional District, agreed to participate by contacting their communities’ emergency management authorities and assisting with filling in the appropriate data fields. As work progressed, it was soon realized that an on-line version could provide a means to quickly expand data collection across the entire coastal region. Coincidentally, the completion deadline for

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 3

Phase 1 was extended to end of December, 2014, making this latest collection method feasible. Consequently, an online questionnaire was created that imbedded the same data collection fields found in the spreadsheet, but was expanded to include additional questions concerning notification preferences and community capacities to receive and locally re- distribute tsunami notifications. With the assistance of EMBC’s regional managers, invitations were sent out to local authority representatives within their regions. These included representatives from incorporated municipalities, regional districts and First Nations. A copy of the survey questionnaire accompanied the invitation to enable participants to view the questions and gather necessary information before going on-line. For those without Internet access, an option to fax the results was provided. The survey produced 84 responses with a sampling of all coastal areas, urban and rural. 41 were from authorities representing incorporated municipalities and regional districts, 29 were from First Nations and 14 were from unincorporated locations. The results were then incorporated into the community matrix spreadsheets. The survey proved to be a very useful tool for community data collection and could provide a template for expanded surveying about emergency notification practices in other B.C. regions. 2.2.1.3 GIS Data Gathering and Mapping A very unique feature of the project was the use of data visualization through GIS mapping. Two types of data were used to support GIS mapping: Original and Derived data. Original data refers to the data that was downloaded from an external source. Derived data refers to data that was created from original data sets or collected through other means (e.g., surveys). Over 100 data sets were collected and/or derived from a number of sources. Principal Original data sources include: Data B.C. (GeoBC), Hectares BC, Geobase, Spectrum Direct and special sets from agencies and service providers, including cellular. Derived data sources include: Census, email and SMS notifications, Twitter, NetworkBC and project surveys.

Two of the most significant sets of Derived data came from the community notification matrix and local authority notification surveys described above. Once the data was placed into tables, spatial joins were administered to identify the latitude and longitude fields for each representative location. This technique worked for over half the locations; the rest were manually entered. The data was then imported into ArcGIS and converted into a vector format file. A spatial join was also processed between the survey data and the census data to identify the population of the B.C. coastal region.

Using this technique, a series of specialized maps was created based on data extracted from the community notification matrix, survey questions and other data sets. Examples of other data sets include geographical features and names, political and census boundaries, tourism locations by activity, land and marine transportation routes, critical infrastructure, public safety services, economic activities, and most importantly, communication and emergency notification systems coverage. Essentially, every effort was made to geocode as

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 4 much collected data as possible in order to produce a comprehensive view of the entire coastal region to support identification of populations-at-risk and analysis of available notification methods. This approach proved to be very useful in later phases of the project, especially in planning, executing and assessing pilot projects. This GIS initiative also helped to create another potentially useful planning tool that could support similar analytical work in other hazard domains and regions of B.C.

2.2.1.4 Social Media Twitter Analysis

The NTWC sends out automated shortened Warning, Advisory, Watch and Information messages on its Twitter account, @NWS_NTWC. EMBC also uses the @EmergencInfoBC Twitter account to alert British Columbians to tsunami threats by amplifying messages and verified information from NTWC and EMBC officials. In our study, we undertook to identify B.C. followers of the U.S. National Tsunami Warning Center and Emergency Management British Columbia Twitter feeds through collecting a sample of 9,999 followers from each of the @NWS_NTWC and @EmergencyInfoBC Twitter sites and analyzing follower profile data. Once the samples were imported, the next step was to search for eligible users and ties located in the Pacific West Coast Region and check and hand-code each B.C. follower for status, language, and location. As might be expected, these results correlate with population densities and communication infrastructure availability. The vast majority of followers are located in the larger centres, most of which are also located in lower tsunami risk zones. The lack of larger numbers of followers in the higher risk and more remote coastal sub-regions also appears to correlate with lack of mobile phone and/or broadband Internet service. In spite of this, interest in social media continues to grow, and as connectivity improves throughout B.C., social media applications will play an increasingly important role in emergency notification. Further, EMBC ‘s @EmergencyInfoBC is the B.C. Government’s official Twitter channel for all provincial-level and large-scale emergency alerts and notifications. As such, our study methodology can be a useful tool for identifying all @EmergencyInfoBC followers and reach of EMBC Twitter messaging across the province. Moreover, as shown in Figure 1, the initial mapping of followers for tsunami notifications helped to support this provincial analysis, since all followers receive tsunami as well as other notifications. Of course, the results are time sensitive and data collection and analysis would need to be carried out more regularly to retain current perspectives. The process could also be made more efficient through additional automation and standardization of data collection and coding.

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 5

Figure 1: Locations of Sampled @EmergencyInfoBC Twitter Followers

2.2.1.5 Selected Radio Propagation Mapping

In order to identify and map coverage availability of existing Coastal radio frequency-based notification systems, two methods were employed: 1) obtaining GIS coverage data directly from system providers and Industry Canada, the radio licensing authority and 2) generating our own maps based upon creating algorithms and program coding to automatically search and filter data from Industry Canada’s Spectrum Direct licensing database and to streamline propagation mapping. Due to its vast diversity, taking into account coastal terrain features is critical to plotting correct line-of-sight coverage to ensure that areas with poor or no service are noted, particularly for notification to transient populations. In our project, we were able to map the key wireless networks that are used for tsunami notification. These include Canadian Coast Guard VHF and MF radio, Environment Canada Weatheradio, mobile cellular service, and over-the-air AM, FM and television services.

As a proof-of-concept, generating our own maps, using data from Industry Canada’s radio licensing database, proved especially useful for identifying hidden communication resources, such as other public agency and private sector radio systems that are not currently incorporated into community and regional notification systems, but could significantly improve reach of warnings to populations-at-risk, especially agency employees and other radio system users. Both methods of radio propagation mapping have

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 6 widespread application in all-hazards notification coverage analysis for any region of B.C.

2.2.2 Phase 2: Task 4 - Piloting and Evaluating New Techniques and Technologies in Communities

2.2.2.1 New Methods for Identification of Additional Coastal Populations-at- risk

While we were able to note locations for many of the settled populations that are potentially-at-risk from tsunamis, we discovered a number of other coastal population groups that are not well documented. These are transient populations that reside temporarily in or are traversing through coastal areas. There are many varieties whose numbers vary according to economic, socio-cultural, seasonal and other factors. Examples include logging, commercial fishing and aquaculture workers, recreational land and marine populations, tourists, etc. and, from our mapping, we have been able to confirm that they travel throughout all of B.C’s sub-regions, including the most remote locations where communication services are marginal at best. Further, our research and consultations with U.S. and Canadian notification authorities, emergency planners and coastal industry officials reveal that many of these populations are not fully integrated into existing tsunami notification arrangements all along the West Coast of North America, as most conventional arrangements focus on more permanent settlements and adjacent areas. Consequently, as time and resources permitted, we continued to research and gather coastal population data, including B.C. Parks and Parks Canada visitor attendance records

Among the more innovative techniques we piloted was the use of a form of crowdsourcing that engages private citizens as sensors of the environment to provide information which is termed “Volunteered Geographic Information” (VGI). With the current use of , other mobile devices and social media, users are constantly uploading pictures, changing statuses, sending messages, etc. These actions also generate metadata files that often include locational data. An example of this VGI application is Flickr, a website that allows users to upload their images from anywhere and include titles, descriptions, date, user name and location in the form of latitude and longitude. An application named Bulkr allows users to search key terms and download large quantities of images with the corresponding metadata. The locational data can be brought into a Geographic Information System, represented as point locations of where images were taken with the time and day of the year.

VGI has some inherent limitations and uncertainties that must be addressed. First, with using citizens as agents of data collecting, they are not required to provide accurate location text descriptions that are essential in the filtering process. Second, GPS accuracy may vary by phone and topography, which may offset the site accuracy of the taken image by several metres or more. Third, data collected may not include a full set of associated locations for specific key words. Despite these limitations, VGI is a useful form of auxiliary data because it provides actual citizen reported locations that can reveal insight into transient population behaviour. VGI data sets are also dynamic in that they are

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 7 continuously updated. From these sets, general patterns can be observed about when and where certain activities occur. For instance, a static campsite point data set published by an established organization often will not be updated regularly. Most likely, it will also not contain specific times of high and low usage, unless further supplemented from other data sets. VGI does not have this limitation because users are not restrained by time and date of when they can take and upload pictures. In the case of campsites, VGI data sets can show a trend of higher and lower camping activity in warm and cool seasons respectively.

As a pilot to better document seasonal transient population trends and associated tsunami notification locations, we searched Flickr to follow and record coastal kayakers. The data was used to supplement existing study sets and to add more temporal dimensions to guide the selection of locations for future pilot projects, as shown in Figure 2. As such, this form of crowdsourcing analysis could be another useful tool for identifying transient populations across a variety of activities, seasons and locations throughout B.C., especially in regions where no attendance records are available.

Figure 2: Flickr Sourced Kayaking Locations

2.2.2.2 Selection of Project Notification Technology Pilots

Based upon analysis of data collected in Phase 1 and feedback from stakeholders, a set of pilots to evaluate new techniques and technologies were identified that, when combined,

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 8 would cater to both fixed and transient populations in urban, rural and remote coastal sub- regions. Special attention was given to assessing their suitability in sub-regions that are poorly served from a communications perspective. The pilots and results are briefly summarized below, but described in detail in the CSSP Task 4 report.

Selected pilots centred on: 1. Testing and assessing suitability of two-way portable and mobile satellite based technologies to alert and communicate with transient populations, especially in coastal sub-regions that lack conventional communication infrastructures; 2. Investigation of expanded usage of MSAT EmergNet satellite two-way radio system to enhance coastal emergency interagency communication interoperability and reliability, and 3. The Alert Ready rollout in British Columbia – assessing implications of NAADS for enhancing tsunami warning and advisory notification, especially in remote coastal sub-regions.

Consultations were undertaken with a broad range of stakeholders to solicit their input, and participation in these activities and pilot projects were initiated in early Summer 2015 as coastal activities picked up and swung into full season. Interested parties included Canadian Coast Guard, Parks Canada, coastal industries, adventure recreational groups, First Nations, local authorities and EMBC.

Two-way Portable and Mobile Satellite-based Notification One of the most significant West Coast notification challenges is communicating effectively with populations on-the-move both on land and water. Our Phase 1 assessment revealed that there is no ubiquitous means of reaching these transient populations. Current coastal mobile notification is limited to over-the-air AM and FM radio broadcast, cellular, Weatheradio and Canadian Coast Guard VHF coverage, all of which remains incomplete along the coast. Even where radio and mobile satellite communication systems are employed, access to and reliability of service can be significantly influenced by line-of- sight coverage issues due to mountainous terrain and other obstructions.

Notwithstanding these challenges, over the past decade a number of mobile satellite systems and services have emerged that could help to expand mobile notification. These include Short Message System (SMS) enabled mobile satellite phones, mobile IP based satellite devices and two-way Satellite Emergency Notification Devices (SENDs). These devices operate on different platforms, employing both low earth and geostationary orbital satellite systems and support various forms of messaging.

After a series of initial tests of six different variations that could be piloted, we decided to focus on the most mobile, accessible and likely affordable systems that a broad range of coastal populations might use and that we could test in as many coastal areas as possible from both land and marine perspectives. Two systems we chose were the two-way Satellite Emergency Notification Devices (SENDs) and Short Message System (SMS) enabled mobile satellite phones. Specific services chosen to exemplify each were the Delorme inReach and Iridium Go services. Each supports its own mobile handsets to provide short messaging

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 9 and GPS tracking, but through different software applications and user features. Both are commercially available and, in particular, the inReach devices are now widely sold through outdoor, sporting and electronics outlets and are increasingly being used to support a wide variety of recreational and outdoor work safe activities.

These devices were tested in a wide variety of locations, and results were mapped to verify how well they performed in different terrains and environments.

MSAT EmergNet MSAT, North America’s longest running geostationary mobile satellite service, offers both a telephone and a two-way voice-radio capability (called dispatch radio). The two-way radio functions much like a terrestrial trunking radio system, and offers talk-groups that can be pre-configured for different groups of agencies. Because the system is satellite-based, other than requiring use of a local DC power source, it can operate without relying on local terrestrial infrastructure and can be used over vast geographic areas. This service proved to be more reliable for acquiring and maintaining a network connection than mobile services that rely upon low earth orbit satellite services, particularly in the mountainous BC coastal region.

In B.C., a special service package configured specifically for emergency preparedness and response agencies has been developed called “EmergNet”. This service package includes two radio talk-groups (general and private one-to-one), as well as voice telephone capability. EMBC has EmergNet terminals installed at its Emergency Coordination Centre and at all of its Provincial Regional Emergency Operations Centres. A number of coastal emergency management, health and public safety agencies, including local authorities also have joined EmergNet. Despite these developments, EmergNet still remains underutilized from an operational perspective and, in consultation with existing subscribers and additional key stakeholders, we chose to undertake some small piloting to encourage expanded usage of MSAT EmergNet to enhance emergency PSTN and coastal emergency interagency communication interoperability, including assessing the feasibility of establishing a special coastal sub-network. These activities were integrated into most of the community and coastal marine pilots.

Alert Ready In early 2015, EMBC began planning a series of Alert Ready pilot tests, with a priority focus on tsunami notification in B.C. coastal areas. To assist in these efforts, our project team began working with EMBC and provided an initial series of broadcast coverage maps, along with other existing communications coverage information from the project’s GIS data base to help identify the potential reach of Alert Ready.

One of our key goals was to use the tests to verify which coastal regions can actually receive alerts via Alert Ready. This validation is important because Alert Ready may serve as one of the first ubiquitous tsunami notification delivery systems for all coastal populations residing at fixed locations, urban or remote.

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 10

2.2.2.3 Selection of Communities and Other Participants for Pilot Projects Taking into account the diversity and range and distribution of notification arrangements that is required for notifying all coastal populations, we attempted to choose a pilot project strategy that would be as inclusive as possible, both in population and location representation, while also taking into account relatively limited timeframes, project resources (staff, equipment and travel), availability of participants and logistical challenges of undertaking projects in more rural and remote project areas.

Further, while all coastal locations possess some degree of tsunami risk, our own analysis indicates that those most at immediate physical risk from tsunamis also appear to be most at risk from a communication capability perspective. These areas include B.C. Tsunami Notification Zones A, B and C and, more specifically, the western areas of Haida Gwaii, (Zone A), Central Coast (Zone B) and Northern and Western coastal regions of Vancouver Island (Zone C). Taking these factors into account, we attempted to: • be culturally and jurisdictionally diverse; • include as broad a coastal area representation as practical; • include a range of emergency authorities; • include communication options for both fixed and transient populations, and • give priority to remote regions with limited access and communication.

A key objective was to use these pilots as a means to sample and to gain more insight to potential methods that can be more fully articulated in the next project phase, revising the tsunami warning ’tool kit’.

Table 1. Participating Communities Community/Region Tsunami Tsunami Remoteness Communication Notification Runup Availability Range Zone(s) Planning Levels (m) Gitga'at Nation (Hartley B 6 Remote Medium Bay) Wuikiunxv Nation B 6 Remote Low Port Alice C 9 Semi-remote Medium Ehattesaht/Chinehkint C 9 Semi-remote Low First Nation Zeballos C 9 Semi-remote Low Ucluelet C 9 Rural High Tseshaht First Nation C 9 Rural High Regional District of Mount C and D 9/4.1 Urban to High to Low Waddington remote Strathcona Regional C and D 9/4.1 Urban to High to Low District remote

In all, local authorities in seven communities and two regional districts participated directly in tests and demonstrations of different combinations of the selected technologies (inReach, Iridium Go and MSAT). Four of these were First Nation communities. Two other

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 11 regional districts did not directly participate in the pilots due to timing. These were Capital Regional District and Central Coast Regional District. However, we did undertake to carry out some initial testing of mobile technologies in those areas. Three agencies with specific emergency response responsibilities also participated in pilots. These were Emergency Management British Columbia, Canadian Coast Guard and Parks Canada.

At the community levels, the selected pilot technologies were used primarily to verify the reliability of communication along evacuation routes and at assembly sites, EOCs and community support facilities, as well as at other strategic locations, such as docks, helicopter landing sites, airstrips, etc. Community participants were given hands-on opportunities to test and compare them with existing arrangements. In a number of communities we were able to combine communications demonstrations, testing and assessments as part of local emergency planning and training activities. To support testing of out-of-area communication, project team members were able to participate in sending and receiving messages with community members. Through these processes we were able to assist in validating or modifying current arrangements, determine communications issues at proposed safe locations and/or even help to find more suitable locations, based, in part, on communications coverage. This ground-truthing proved to be invaluable as well as instructive for participants. In other cases, smaller tests and demos were conducted as initial proofs-of-concept in hopes of stimulating greater collaboration in the near future.

In order to visualize test results, data logs were extracted from the inReach server, that recorded GPS track messages transmitted by the devices and were able to be synchronized and combined with internal logs stored on the devices to produce a comprehensive record of the travel route. Through a special request made to inReach Canada, we were also able to obtain more detailed logs that also included the timestamps of when text and GPS messages from devices were received by the server and when inbound messages were received by devices, allowing for a calculation of messaging timing and delays. Normal was considered to be within 5 minutes, Moderate latency to be between 5 and 10 minutes and High latency greater than ten minutes. By combining and integrating all of these logs and attributes, we were able to plot the data as a series of map overlays and to identify coastal sub-regions and, more specifically, local areas where terrains affect line-of-site visibility with satellites. Figure 2 is an example of messaging along the West Coast Trail. MSAT and Iridium do not provide extensive logging of geocoded tracks, but since all of the pilot technologies were co-located during pilots, the recorded inReach tracks were able to be later synchronized with timestamps from MSAT and Iridium tests in order to produce map overlays and identify areas where geographical obstructions affected satellite communication, as illustrated in Figures 3 and 4.

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 12

Figure 3: West Coast Trail inReach GPS and Text Message Delivery Timing

Figure 4: CCGS Bartlett Iridium Go messaging Figure: 5. CCGS Bartlett MSAT EmergNet Test Test Locations Locations

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 13

In addition to collecting and analyzing associated technical data, we also examined a range of other factors and issues that affect the functionality and usability of the tested systems. Examples include: suitability; complexity of set up, configuration and use of devices; battery power management; documentation; training and ongoing user support; data logging and export for planning, response and recovery operations, and multi-purpose use of technology. The results were incorporated into the tsunami notification tool kit document. Further, this method of engaging communities and agencies in ground-truthing worked well in communities and is very transferable to other regions of B.C. In fact, as a follow up, we have already begun using it in several non-coastal First Nation communities.

Alert Ready We were able to participate in the September, 2015 EMBC Alert Ready test by helping to set up a short on-line feedback survey to solicit confirmation from coastal community emergency authorities about their reception of the alert broadcast. A few days before the test, a notice was sent from EMBC Regional Managers to coastal emergency authorities, informing them of the upcoming test, inviting them to observe the test and then fill out our on-line feedback survey. At 13:58 Hrs on September 16th, the Alert Ready system was tested by issuing a broadcast intrusive alert on radio and TV station and distribution systems throughout B.C. Even though there was limited advance notice about the test, 27 local coastal authorities responded. While the majority of respondents were located in the more urban coastal sub-regions of B.C., of particular note were responses from remote coastal authorities whose communities are located in sub-regions that are in the most underserved from a communication perspective. Although very preliminary at this stage, the data indicates that, barring line-of-site to received signals (terrestrial and/or satellite), even the most remote coastal locations are now within the coverage of the Alert Ready system. We intend to assist EMBC in conducting surveys during future tests to verify reception of messages throughout B.C.

2.2.3 Phase 2: Task 5 - Tsunami Notification Tool Kit

The final outcome of Task 5 was the production of a British Columbia Tsunami Methods Tool Kit for Community Planning. The main purpose of the tool kit is to provide community and other coastal authorities with information about various warning methods and procedures to assist them with planning and developing tsunami warning methods and procedures for their own areas. The document, in part, is based on a previous document produced by the SFU Telematics Research Lab in 2005, with extensive revisions and updates to reflect contemporary notification practices and underpinning infrastructures. A substantial amount of background information was incorporated from previous phases of the project. Several other methods were used to gather additional information. A series of Internet and online journal searches were conducted concerning warnings systems, lessons learned and recommended good practices. Provincial and federal programs were reviewed and information was gathered from other jurisdictions through interviews and other personal contact, a visit to the U.S. National Oceanic and Atmospheric Association’s National Tsunami Warning Center and participation in the U.S. National Tsunami Mitigation

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 14

Program. Additional information was gathered through participation in EMBC, regional and local workshops, planning meetings and exercises (especially Tsunami Notification Networking Group and rural/remote coastal community), and interviews with communication service providers, vendors and other supply organizations. Other information was derived from data collected and analyzed during the conducting of pilot projects and mapping and visualization of compiled coastal data sets. The document also highlights the rapid changes occurring in the Canadian communications environment resulting from the transition from analog to Internet Protocol-based fixed and mobile terrestrial and satellite systems. In particular, one of the most significant paradigm shifts is the rapid movement away from the use of fixed single mode technologies (such as landline telephone and over-the air broadcasting) towards personalized and globally connected mobile communication technologies (such as wireless smart devices) which combine all of the attributes of traditional mass and personalized services with new forms of social communication and networking. Consequently, to remain relevant, tsunami and other emergency notification arrangements now must draw upon and integrate a broad mixture of traditional and contemporary systems to support timely communication with all potentially affected populations (fixed and transient). Many of the tool kit’s sections contain information and strategies that can be applied generically to all-hazards notification, including basics of public warning systems, considerations for effective warning, as well as most of the notification methods examined. 2.3 Impact on Stated Project Outcomes

This project contributed to the CSSP Intermediate Outcome 6: Alert and resilient communities and the following related immediate outcomes: • 6b: Community-based best practices enhance resilience and provide communities with tools to develop and implement resilience roadmaps, and • 6d: New technological capabilities available to the public are implemented and enhance community resilience.

Taking these broad outcome goals into account, the project was geared towards the improvement of tsunami warning to help build strong communities and enable connected practitioners, thus increasing resilience to disasters by: 1. Identifying most vulnerable populations, hazard zones and community capacities; 2. Increasing community-level risk awareness and encouraging appropriate preparedness and mitigation activities, and 3. Building social capital through facilitating connectedness and community building.

2.3.1 Identifying Most Vulnerable Populations, Hazard Zones, and Community Capacities

The project enabled us to carry out a very comprehensive review and documentation of locations of coastal populations-at-risk, as well as gain insight to their characteristics, levels of preparedness and current notification capabilities.

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 15

As discussed above, a wide variety of methodologies was used to collect, record and integrate this data. Through the use of GIS, each data set was converted to a layer that helped to create composite views of the entire coast, as well as specific sub-regions or locations. Both the community matrix and derived GIS data bases enabled the data to be sorted, filtered and visualized by virtually any common field, including geographical, jurisdictional, method of communication available, community attribute, etc.

The correlation of human population location and activity with area geographic features, tsunami hazard warning zones, and communications coverage data helped us to identify and visualize the range of notification options at any given location which, in many cases, can serve as an important determinant of technical warning capacity. Through this process, it was possible to identify regions that are easier to notify than others, and by which methods. Conversely, and perhaps more importantly, through this same process, we are able to conduct gap analyses to identify locations that have the poorest technical coverage or low local uptake. This was particularly important for understanding how transient populations could be or could not be notified through conventional methods (such as Coast Guard Radio, Weatheradio, cellular apps, including SMS, Twitter, etc,), as Figure 5 illustrates for kayakers.

The results also allowed us to identify communities and regions that would be suitable for piloting of yet-to-be adopted conventional and/or new methods, and to use in-field testing to verify our communications coverage projections. The results were shared widely with stakeholders and other interested parties.

Figure 6: Kayaking Locations with Marginal Tsunami Notification Coverage

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 16

Another derived benefit was the identification and mapping of a number of “hidden” resources that can help local and regional emergency managers extend or amplify NTWC and EMBC tsunami warnings. Examples include paging of fire department officials in remote communities through centralized dispatch services, notification of 51 RCMP coastal detachment offices through RCMP’s Operational Communications Centres, and notification of 51 coastal ambulance stations by BC Ambulance Service’s Emergency Response Management System, all three of which disseminate NTWC and EMBC Tsunami Warning, Advisory, Watch and Cancellation messages.

2.3.2 Increasing Community-level Risk Awareness and Encouraging Appropriate Preparedness and Mitigation Activities

Through a survey of 86 coastal communities, we were able to gain some insights about current levels of local tsunami action planning, warning message reception and local dissemination capabilities, as well as education and awareness activities. As Table 2 indicates, local notification and awareness engagement processes remain underdeveloped among the majority of communities surveyed, and more attention needs to be given to assisting communities and their residents for reducing their exposure to tsunamis through increased preparedness and mitigation activities.

Table 2: Local Plans and Capabilities for all Local Authorities Plans and Capabilities Sum % Total

Emergency communications plan 51 61%

Tsunami action plan 44 52%

Means to receive external tsunami notifications and carry out necessary actions on a 24 hour per day basis 44 52%

Means to disseminate local tsunami messages on a 24 hour per day basis 34 40% Tsunami education/awareness program 34 40%

This project contributed to this capacity building in several ways: • Assisting communities and regions with assessing their emergency communication and notification needs and capabilities; • Providing local means to test and validate new notification techniques to assess their appropriateness and reliability, and • Incorporating the results into community emergency notification plans and practices.

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 17

Much of this work was carried out through the pilot projects and, on a number of occasions, especially in First Nations, in conjunction with local emergency planning and training workshops facilitated by Marc d’Aquino (one of the project contributors). The following short narratives describe some of the project outcomes that have led to improved preparedness and mitigation.

Community testing of satellite based two-way voice and text messaging systems. Aboriginal government and other local authorities had an opportunity to test and assess satellite communications equipment and, then, determine their suitability and application. Initially, virtually all participants at the start of these sessions felt somewhat intimidated when they were first given several different devices to try out. But by the end of the sessions, they were excited about the experiences and new knowledge gained. Tests were performed with key personnel from each community, where we logged locations and quality or performance of equipment. These results were shared, and the most significant outcome for the communities was finding out what worked the best based on needs and location viability.

Technology validation. There are many examples of how community testing helped to identify gaps and weaknesses that could negatively impact local warning and response arrangements, as well as reveal and validate new opportunities for filling gaps. One example concerns a community that had just purchased a number of new Weatheradio receivers but, through the testing with us, discovered that the radios were not equipped to receive the correct local broadcast frequency, and were able to change to a different model with the correct configuration, potentially averting a future emergency notification failure, as well as an immediate and unnecessary financial burden.

A second example concerns a community that was finalizing plans to develop a new community tsunami evacuation site. Through conducting communication tests at the site, we were able to determine that it was virtually a complete communications dead zone due to its proximity to a nearby mountain. Fortunately, through additional area testing, a new location was found, which had better communication coverage and was only a short distance from the original proposed site.

A third example concerns the use of piloted technology to initiate and successfully facilitate an unplanned actual emergency response operation. During the piloting of inReach devices along the West Coast Trail, our project members were approached by a group of hikers to assist in a medical emergency. By initiating the pre-configured emergency contact features on the device, our members were able to contact our external project team, the Parks Canada Jasper Operations Centre and Parks Manager, all of who immediately knew the incident location through imbedded geolocation data in the messages. During the ensuing actions our project team members helped to coordinate the information exchange and the Jasper Centre was able to receive additional information about the condition of the injured person, local treatment given and establish a rescue plan with the hikers. Within less than four hours of the original notification, the injured hiker was evacuated by boat.

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 18

Finally, for the Canadian Coast Guard, the tests that took place on the CGGS Bartlett were considered a significant footstep into the future. The mobile satellite two-way messaging technologies used, demonstrated that essential communications can be established even when VHF and cell communications are down or otherwise unavailable. Operationally this allows operations centres (CCG Regional Operations Centre, Joint Rescue Coordination Centre and other EOCs) to know where their response units are without having to contact them and wait for a reply. This greatly improves the Situational Awareness of an incident, providing instant information for planners and commanders.

Incorporating the results into community and agency emergency plans and practices The community visits and pilots resulted in several communities acquiring or planning to acquire new systems. By the end of the pilot project, three communities had purchased MSAT EmergNet systems, and several others are planning to do so in the near future for primary community communication back-up and mobile communication purposes.

For improved two-way text messaging and tracking, one of the participating community’s Emergency Services Department has budgeted for six of the inReach devices to be purchased in 2017. The devices will be allocated to the District's Emergency Management Team and will be incorporated into each manager’s emergency response kits. An example of where the devices may be practicable for the community is during tsunami evacuation events. In the community, there are six designated community safe (high) zones allocated for visitors and residents for their safety during potential tsunami incidents. Each Emergency Manager has been given responsibility for a specific community safe zone based on the neighbourhoods they reside in. These community safe zones have the potential to become isolated during a Cascadia Subduction Zone event. The inReach devices could prove to be critical tools for relaying messages among the Emergency Managers, the local Emergency Operation Centre, and external partners when cell phone and other communication systems are down.

Canadian Coast Guard has proposed new projects to provide some of its surface response units with tablets and satellite two-way messaging devices for a longer duration trial period for communicating with its operations centres during operations. The new trials would to include GPS tracking, email, SMS text, pictures, and satellite voice phone communications.

For Parks Canada, in remote settings such as the West Coast Trail, its ability to communicate directly with hikers during an emergency has been very limited. As a result, emergency responders are typically dealing with very limited information regarding the urgency and location of the incident. This has often resulted in responders putting themselves at greater risk than was later determined to be necessary. Operationally through the pilot project, we were able to confirm with Parks Canada that inReach technology is generally effective along the West Coast Trail. Further issues remain regarding opportunities to repower the devices during the remote multi-day hike, as well as adoption of the devices by all hikers. Parks Canada has expressed interest in continuing this work to enhance its ability to communicate with park users in remote settings.

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 19

2.3.3 Building Social Capital through Facilitating Connectedness and Community Building

Because the project followed a participatory research model, it provided numerous opportunities for collaboration and local interaction to enhance both technical and social connectivity, as well as technology and knowledge transfer.

Some key outcomes were introducing new methodologies for supporting local notification research and planning (community notification matrix tool and GIS mapping) and enabling community and agency participants to learn about new technologies and test and evaluate them within their own local geographical and cultural contexts. The project also helped to increase regional emergency coordination and contact with residents in more remotes areas, particularly First Nations.

From a practical perspective, the communication ground-truthing exercises greatly assisted communities with optimizing the selection of evacuation locations by ensuring communications availability and regional districts confirming "low" and "no contact" areas within their regions, particularly marine locations.

2.3.4 Other Engagement

During the project period, over 16 presentations were given, primarily by Peter Anderson, including: • April 9, 2014 Tsunami Notification Networking Group, Victoria • May 13, 2014 Mount Waddington Regional District, Port McNeil • July 3, 2014 Tsunami Notification Networking Group, Victoria • November 6, 2014 Tsunami Notification Networking Group, Victoria • November 4, 2014 Mid-Island Emergency Managers Meeting (via teleconference) • December 2, 2014 U.S. National Tsunami Warning Center, Palmer, Alaska • January 23, 2015 Cascadia Region Earthquake Workgroup, Victoria • January 28, 2015 CSSP Tsunami Warning Project Review Committee (via teleconference) • February 10, 2015 National Tsunami Hazard Mitigation Program, Portland, Oregon • February 17, 2015 National Public Alerting Summit, Edmonton • February 24, 2015 EMBC Regional Managers Project Briefing (via teleconference) • March 2, 2015 Tsunami Notification Networking Group, Victoria • August 12, 2015 Ehattesaht First Nation and Village of Zeballos • August 14, 2015 Mount Waddington Regional District, Port McNeil • November 9, 2015 Tsunami Notification Networking Group, Victoria • January 22, 2016 Tsunami Notification Networking Group, Victoria (via teleconference)

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 20

The project also contributed to graduate research into the use of Twitter for tsunami notification and the teaching of two SFU senior undergraduate courses concerning the role of communication in mitigating disasters.

2.3.5 Reports and Publications

In addition to this report, four other project reports were prepared:

1. Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast: CSSP-2013-TI-1033 Task 3 Report, Revision 1.2, 12 January, 2015. 2. Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast: CSSP-2013-TI-1033 Task 4.1 Report, 31 March, 2015. 3. Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast: CSSP-2013-TI-1033 Task 4 Full Report, Revision 1.1, 30 November, 2015. 4. British Columbia Tsunami Notification Methods: A Toolkit Community Planning”. Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast: CSSP-2013-TI-1033 Task 5 Report, Revision 1.2, 12 January, 2015.

2.4 Relationship to other CSSP Projects

This project closely aligns with two other CSSP Projects: 1. Field Operational Test Facility For Next-Generation Interoperable Mission-Critical Communications and 2. Wireless Public Alerting Service (WPAS) Development and Demonstration Initiative.

2.5 Recommendations For Further Advancing Tsunami Notification

1. Annually update the community notification matrix through an online survey; 2. GIS mapping. Continue identifying coastal data sources to further support spatial analysis of resources, vulnerability and mitigation; 3. Continue working with organizations to gather information about transient populations, including tourism guides, tour operators, accommodation providers, industry sectors, regional districts, parks managers; 4. Establish a special tsunami awareness and preparedness initiative for maritime and transient populations; 5. Increase awareness through special events such as outdoor recreation shows; 6. Continue working with communities in enhancing emergency planning and response arrangements through local testing and ground-truthing of communication and notification technologies and on-site training, and 7. Improve integration of existing notification techniques at all jurisdictional levels (discussed in more detail in Sections 3 and 4).

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 21

3.0 Leveraging Tsunami Notification Practices to Support B.C. All-Hazards Notification

3.1 Background

3.1.1 B.C. Geography

As of 2011, the population of British Columbia was 4.4 million people. The major population centres are Metro Vancouver (pop. 2.4 million) and the Capital Regional District (pop. 370,000). Other population centres include: Kelowna, Kamloops, Nanaimo, Chilliwack and Prince George.

There are 27 regional districts, 160 municipalities, 198 First Nations bands and six treaty First Nations communities in B.C.

British Columbia is ethnically and culturally diverse. According to the 2001 census, the top ten languages in the province are English, Chinese, Punjabi, German, French, Tagalog, Spanish, Italian, Korean and Dutch. Each year over 40,000 immigrants arrive from around the world.

British Columbia is bordered by: • The Northwest and territories to the north; • Alaska to the northwest; • to the east; • Pacific Ocean to the west, and • Washington State, Idaho and Montana to the south;

British Columbia’s ecology is varied with coastal, mountainous, plateau and desert terrains, as well as extensive river and lake systems. B.C.’s total land and freshwater area is 95 million hectares, occupying about ten per cent of Canada's land surface. British Columbia has nearly 1,000 provincial parks and protected areas, attracting about 20 million visitors each year. 3.1.2 Hazards in British Columbia

The diversity of British Columbia’s climate, geography, settlement and land use patterns and economic activities creates a very diverse provincial hazard profile. Over 50 natural and human-induced hazards have been identified within B.C., and continued urbanization and climate change are expected to directly influence the number, types and severity of disasters faced by individuals, communities and all levels of government in the coming decades. High-risk hazards are detailed as follows:

• Seismic - Earthquakes • Tsunami

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 22

• Volcanic Eruption • • • Drought • Hazardous materials event • Oil Spills • Dam breaches • Pandemics • Terrorism, including Chemical, Biological, Radiological, Nuclear and Explosive Events (CBRNE)

3.1.3 British Columbia Emergency Management Responsibilities

The B.C. Emergency Program Act and its regulations set out the broad responsibilities for emergency management within the province.

Under the authority of the Act, EMBC is designated as the lead coordinating agency in the provincial government for all emergency management activities. EMBC provides executive coordination, strategic planning and multi-agency facilitation, and strives to develop effective working relationships in an increasingly complex emergency management environment.

EMBC works with local governments, First Nations, federal departments, industry, non- government organizations and volunteers to support the emergency management phases of mitigation, prevention, preparedness, response and recovery. Additionally, EMBC engages provincial, national and international partners to enhance collective emergency preparedness.

The Emergency Program Act and the Local Authority Emergency Management Regulation establish the responsibility of B.C. local authorities to develop emergency plans based on the hazards and vulnerabilities in their communities. Local authorities range from small isolated communities with limited resources and very specific risks, to large metropolitan areas with complex risk profiles and extensive resource capabilities to meet response and coordination challenges. Based on hazard, risk and vulnerability assessments, emergency plans need to be developed to a level required to meet community needs and address associated risk profiles.

3.1.4 Comprehensive Emergency Management Plan

The Comprehensive Emergency Management Plan (CEMP) shapes EMBC's emergency planning structure. CEMP’s foundation is based on the B.C. All-Hazard Plan that outlines the provincial concept of operations, as well as the roles and responsibilities that are applicable in all emergencies or disasters. The All-Hazard Plan does not override local authority plans, except where a local authority is under a provincial state of emergency.

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 23

During events that require the activation of the provincial emergency management system, both the local authority plan and the All-Hazard Plan may be activated.

Emergencies vary in scope and intensity, from small, localized incidents with minimal damage, to multi-jurisdictional disasters resulting in extensive devastation and loss of life. For planning purposes, emergencies and disasters are those events that can result in: • Fatalities; • Casualties; • Displaced people; • Interruption of essential public services; • Property damage or loss; • Economic impacts; • Damage to basic infrastructure, and • Significant harm to the environment.

There are “no-notice” and “notice” events. “No-notice” events are rapid onset emergency events such as flash and that occur with little or no warning, and can cause an extreme emergency condition in any area of the province. During a “notice” slower-onset emergency event, prior warning may come from local programs or outside organizations that have access to scientific methods for predicting hazards such as tsunamis, floods, forest fires and severe weather. Where reliable prediction is possible, action can be taken before the onset of an emergency.

3.1.5 Local Authority Response

The Emergency Program Act establishes that a local authority is at all times responsible for the direction and control of the local authority's emergency response. The Local Authority Emergency Management Regulation further requires that every local authority in British Columbia establish an emergency management organization, develop and maintain a current local emergency plan and establish procedures to implement the plan.

During activations, local authorities will initiate actions to save lives and property in support of the incident site command, using jurisdictional resources, as well as resources available through mutual aid/assistance agreements. However, if the situation escalates beyond local capacity, the provincial emergency management structure will be activated.

3.1.6 Provincial Response

At the provincial government level, EMBC provides coordination with provincial ministries and crown corporations in support of local government response. Provincial emergency response assistance is intended to supplement not substitute community resources.

Emergency response and recovery is carried out in accordance with the B.C. Emergency Response Management System (BCERMS). EMBC can activate, on short notice, one or more of its six Provincial Regional Emergency Operations Centres (PREOCs) and/or the

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 24

Provincial Emergency Coordination Centre (PECC) to coordinate provincial response and recovery, monitor emergency events and assist impacted communities in emergency response and recovery. If several ministries are involved in an integrated provincial response, EMBC will coordinate integrated provincial emergency management through the PREOCs and PECC.

3.1.7 The Duty to Notify

The duty to notify is established under the authority of the B.C. Emergency Program Act and its regulations. As indicated earlier, the local authority is “at all times responsible for the direction and control of the local authority’s emergency response”, and, as part of the local emergency plan, must “establish procedures by which those persons who may be harmed or who may suffer loss are notified of an emergency or impending disaster”.

Provincially, according to the Act, the minister may “conduct public information programs relating to emergency preparedness” and must “provide advice and assistance to local authorities in the development of local emergency management organizations and local emergency programs”, and “coordinate or assist in coordinating the government's response to emergencies and disasters”. The Province must also “assist local authorities with response to or recovery from emergencies or disasters that are of such magnitude that the local authorities are incapable of effectively responding or recovering from them.” This assistance may include both amplifying local emergency notifications through its provincial channels (e.g., email, websites and social media), as well as supporting wide area notification that is beyond the capacity of local authorities, such as tsunami warning. 3.2 B.C. Public Notification Arrangements

Across British Columbia, a wide variety of emergency notification systems are used to support all-hazards warning. As discussed above, generally, local authorities are responsible for issuing warnings about hazards that pose risk to populations residing within their jurisdictions, and warnings are particularly important when protective actions are required, such as evacuation or sheltering in place. However, local authorities are not always the originators of initial warnings, especially those that spread beyond any local jurisdiction or require the input and guidance of hazard domain specialists. In many of these situations, other agencies may be delegated responsibility for issuing initial warnings for hazards. Examples are: Environment Canada for extreme weather and air quality; the B.C. River Forecast Centre for flood, and Avalanche Canada for avalanches. Industry also uses a wide variety of other warning systems to reach people at risk around critical facilities such chemical plants and dams.

An even more complex arrangement involves tsunami notification, in which EMBC serves as the official Canadian West Coast receiving point for U.S. National Tsunami Warning Center (NTWC) messages that constitute the triggers for issuing B.C. tsunami warnings. In

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 25 cases where NTWC issues a tsunami Warning, Advisory and Watch, EMBC’s enhanced notification process will be immediately initiated, using social media, Emergency Coordination Centre email, PENS (the Provincial Emergency Notification System, an automated email, text to voice telephone and fax system), the EmergencyInfoBC website and Alert Ready. However, if NTWC issues an earthquake notification that does not result in any tsunami threat, EMBC may not issue a notification to its greater audience or via social media.

EMBC’s initial messaging targets are emergency and public safety authorities, critical infrastructure and service providers and the media, although the public can also be notified via EMBC initiated social media and Alert Ready. And, even though the public may receive NTWC and EMBC tsunami warnings or other information through these channels, local authorities are still required to directly communicate the threat to as many of their affected populations as possible.

3.3 Current Notification Challenges

Establishing an integrated all-hazards B.C. approach to public warning is a complex process in which a number of challenges must be addressed, including the following: • Many of the hazard specific notification arrangements have evolved independently among different organizations and jurisdictions with different mandates and governance structures; • Warnings from different sources often use different terminology to express the same issues of risk and recommended action; • There are very few common standards, protocols, or procedures for developing and issuing warning messages; • There is no centralized coordination or set of common technical standards for all hazard domains; • Few local emergency managers or first responders have effective ways to input information and warnings into many of these systems; • There are different system access arrangements for public engagement (some have voluntary opt-in while others have no opt-out provisions); • Notification systems use different technologies and have different public reach; • Many of the systems are not interoperable, and • Many systems are becoming obsolete or do not take into account rapidly changing public usage patterns.

3.4 Leveraging Tsunami Notification Arrangements

Tsunami notification is a particularly useful model as a contributor to all-hazards notification as it constitutes British Columbia’s most integrated end-to-end system of systems and takes into account a diversity of populations and localities to be served, ranging from heavily populated urban centres to tiny settlements and destination spots located in some of the world’s most rugged and accessibility challenged terrains. No single notification method can reach all populations-at-risk, and authorities are required to

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 26 employ a wide range of legacy and contemporary communication technologies and strategies. The specific methods and technologies used largely depend upon the requirements and capacities of the local communities involved. Regardless of the method, additional critical considerations are consistency in application and messaging, timeliness, as well as ensuring widespread public knowledge of the nature of the risks, methods of notification and expected actions.

Much can be learned from these efforts to provide effective integrated and consistent notification in the coastal region, as similar geo-political features and notification challenges exist in other regions of British Columbia. The choices of methods employed everywhere in the Province are heavily influenced by the physical location and nature of the population (e.g. residents vs. non-residents), available supporting infrastructures, institutional and jurisdictional arrangements, local customs and economic and social activities.

In many B.C. rural and remote regions, communication with populations-at-risk remain challenged because of limited modes of transportation and widely dispersed populations that vary according to seasonal fluctuations and economic circumstances. From an electronic communication perspective, particularly in rural areas, there are widely varying levels of access to services (especially basic landline and cellular telephone, Internet and local broadcasting services) due to higher infrastructure costs, smaller supporting populations and greater distances from larger centres. Even where two-way radio and satellite communication systems are employed, access to and reliability of service can be affected by line-of- sight coverage issues due to mountainous terrain.

In recognizing these challenges, the Province has embarked on several initiatives to bring affordable broadband services to all British Columbians, including: • Connecting British Columbia Agreement to increase access to Internet services in rural and remote areas and expand access to cellular services along unconnected segments of provincial highways; • BC Broadband Satellite Initiative to help make access to satellite-based high-speed Internet more affordable for citizens and small businesses in remote areas that currently, and for the foreseeable future, have no other broadband Internet solutions, and • Pathways to Technology Program led by First Nations organizations with the goal of connecting or enhancing connectivity to all 203 of B.C.'s First Nations communities.

Currently, high-speed Internet services are available to 94% of British Columbian households. British Columbia has a goal of 100% of its residents having access to high- speed Internet services by 2021. These developments will lay the foundations for creating a range of new options for integrating and standardizing emergency notification arrangements supported through Internet Protocol-based fixed and mobile terrestrial and satellite systems. These systems are more addressable, becoming more affordable and widespread in use, including new data exchange schemes, such as the Common Alerting Protocol (CAP), and offer opportunities to better manage, integrate and target warning

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 27 messages simultaneously across a wide variety of fixed and mobile dissemination systems, with exponentially-growing communication capacity.

Nationally, efforts are underway to capitalize on these developments through the establishment of a National Public Alerting System (NPAS). These efforts build on the work of Canadian federal, provincial and territorial governments and the Canadian Radio- television and Telecommunications Commission (CRTC). NPAS embodies an all-channel communications approach to enable alerting authorities to transfer a single alerting electronic information file to a central collection point for public distribution through a variety of established communications media. These digital alert messages may also be redistributed through multiple methods by other Last Mile Distributors (LMDs) and the public. Presently, emergency alerts are being distributed through the use of a single National Aggregation and Dissemination System (NAADS) that is operated by Pelmorex Communications Inc. (). Since the NAAD System became available in 2010, Environment Canada and all 13 provinces/territories have completed user agreements to issue or accept emergency alerts via their Emergency Management Organizations through the NAAD System.

The first national public alert initiative to use NAADS is Alert Ready, which links to Canadian licensed over-the-air transmitters and broadcasting distribution and video-on- demand undertakings to enable authorized emergency organizations to provide warning messages directly to listeners and viewers. As the system expands, it will include the participation of cell phone companies, social media web sites and other Internet and multimedia distributors. On the public safety communications front, new opportunities are emerging to improve interagency emergency notification and situational awareness through a new public safety broadband network initiative. While these changes hold promise for dramatically expanding the reach of public emergency message dissemination across Canada, a number of additional steps need to be taken to integrate these arrangements with existing notification methods, and ensure adoption by the emergency management organizations and the public.

Beginning in 2015, and continuing through 2016, Emergency Management British Columbia (EMBC) has commenced a series of province-wide pilot tests of the British Columbia Emergency Alerting System (BCEAS) component of Alert Ready to enhance tsunami notification in B.C. coastal areas. While tsunami warning is the key initial focus, the envisioned goal is for the BCEAS to eventually encompass all hazards and all regions. Simultaneously, as part of its Strategic Plan, EMBC has embarked on a program to integrate and replace its legacy notification systems, which require manual management of contact information for warning dissemination, with a hosted multi-channel solution. Drawing upon experience from the current project, the following observations and recommendations are offered to further these efforts.

A number of the methods used in tsunami notification warning can serve as foundational elements for an all-hazards system. Among these are the Provincial Emergency Notification System, Alert Ready and social media services such as Twitter and Emergency Info BC website. Presently, these systems are not fully integrated and require manual inputting of

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 28 message information. Further, the intended message recipients and requirements for scaling and geo-targeting have not been fully identified on a province-wide basis.

3.4.1 Recommendations

3.4.1.1 Background Studies 1. Conduct a comprehensive study to identify and analyze what existing hazard event notification systems are available to the public throughout British Columbia, including: o The underpinning technologies; o Coverage; o Interoperability; o Ease of integration with other systems; o How well messaging can be geographically targeted in association with the areas at risk, and o Governance and other institutional arrangements. 2. Using existing tsunami notification methods as potential foundational components for all-hazards notification, conduct a study to assess their province-wide availability and suitability for each form of hazard notification. 3. Extend current mapping of coastal communications coverage to include all of B.C., and include: o AM, FM and TV; o Cable and Satellite TV; o Mobile cellular HSPA and LTE; o Fixed broadband; o Weatheradio beyond immediate coastal areas, and o Other agency radio systems. 4. Identify and document the unique features of underpinning communications networking arrangements. For example, many broadcasting stations use networked rebroadcasting transmitters to extend coverage to adjacent areas or to support regional networking. For Alert Ready purposes, CRTC regulations require all program originating stations and associated rebroadcasting stations to be included when alert messages are issued. However, in British Columbia, these networks can stretch into areas well beyond the impacts of a local hazard event. As such, it is important to understand the potential for overwarning. 5. Carry out on-line surveys with local emergency managers and the public during an Alert Ready provincial test to confirm receipt of messages, effectiveness and functioning of the overall system. 6. Monitor communication trends in B.C. to ensure that all user groups and their communication customs are properly identified and taken into account.

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 29

3.4.1.2 Enhancements of Current Provincial Notification Systems

1. Beginning with PENS and Alert Ready for tsunami warning, develop an automated process for importing NTWC message data (NTWC CAP feeds) into templates that can be easily and quickly edited by EMBC duty managers to address B.C. specific requirements. 2. Develop an automated process using open source tools to export all PENS messages in CAP-CP, RSS, email, Twitter and other standardized formats to improve timeliness, consistency and accuracy in messaging content and notification. 3. Review and incorporate, where appropriate, best practices and experience of other notification providers such as NTWC, Environment Canada and Alberta Emergency Alert. 4. Develop a mobile app for tsunami warning that could serve as a pilot for an all- hazards app, similar to EMBC’s use of @EmergencyinfoBC. 5. Investigate standards and protocols for automated message delivery to and display on networked electronic signs, including a pilot for provincial road signs, as well as automatic updating of the Emergency Info BC and other websites such as DriveBC. 6. Use the proposed PENS enhancements as a pilot to define and conduct proof-of- concept assessments for a hosted all-hazards Provincial hub, based on open standards, and integrated with national NPAS, Multi-agency Situational Awareness System (MASAS), and other third-party emergency applications.

3.4.1.3 Education and Training

1. Through partnerships, establish a provincial framework for improving public warning education and training, including establishing criteria for certification.

To provide for effective use of public warning, every warning authority should have a plan for how, in aiming to benefit the public, it uses notification systems that incorporate existing and emerging notification systems. To prepare an effective plan, an authority first must have a full understanding of the environment in which the authority operates. Every community is different in terms of needs and threats. The current situation will need to be explored, such as anticipated threats, populations at-risk (including locations), capabilities, and authority. Goals and objectives need to be defined, and a plan prepared that includes details of roles and responsibilities.

Especially as Alert Ready and other new services roll out, all users must understand the systems and procedures, which can be accomplished through initial and recurring training and exercises. While the current tsunami notification system cannot serve all notification purposes, many of its underlying principles, which have been outlined in previous project reports, especially Task 3 and Task 5 (Tool Kit), are common and can be incorporated into all-hazard notification practices.

Integrating notification systems into regular operations also has benefits; it builds familiarity with systems, enables better thinking skills, and provides better

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 30

response to emergencies, including responder safety. Use should include operation of the technology, as well as forming messages and determining distribution channels, all of which will build skills.

While users require actual training on alert and notification systems, the public should also be “trained.” Educating the public will increase the likelihood that the public will take actions to protect themselves when an actual event occurs. The current province-wide testing of Alert Ready can serve as a valuable input to this process.

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 31

4.0 The Way Forward: Transitioning to a Smart B.C. All- Hazards Notification System

Section 3.4 outlined provisions for initiating an integrated Provincial all-hazards public notification system by using an enhanced Provincial Emergency Notification System as a foundation for a hosted multi-channel public notification solution. Such an initiative is also in alignment with B.C. residents’ and visitors’ use of modern technology and communication expectations.

The world is rapidly changing as the public and industry move to new and broadband cellular communications technologies. The Public also needs to have access to tools for providing and receiving hazard event information and helping in an emergency, and that are compatible with a modern, mobile, smartphone-dominated world. Internet- enabled mobile technology, especially smartphones and broadband mobile wireless, is particularly critical to public safety because it can provide for rapid targeted alerting and enhanced situational awareness simultaneously through multiple channels and applications.

Mobile and Internet-connected technologies are becoming dominant, leading to the emerging Internet of Things (IoT) of highly connected people, computers and sensors. As demonstrated in our pilot projects, even the most remote B.C. regions can now be connected through IP enabled mobile satellite systems. The result is that legacy technologies, previously used in emergency response and public communication, such as agency Land-Mobile Radio (LMR), landline telephone, facsimile, broadcast radio technologies (many dating back to the 1930’s with little change) are now in an exponential decline in relative capability, availability and relevance to a public that is increasingly connected to and by web-based and social media resources. This decline is rapidly reaching a critical point where a transition of agencies to modern technology is required, while also ensuring that members of the public have the smart tools, including smartphones, cellular communication networks, apps, instant messaging and social media tools that they need to be prepared and safe in emergencies and major disasters. Recognizing this life-critical transition, in addition to initiatives such as NPAS, NAADS, including Alert Ready and Wireless Public Alerting Service, Canada is in the beginning stages of preparing for an advanced broadband cellular communications-based Public Safety Broadband Network (PSBN) and has a unique opportunity to achieve a comprehensive vision for enhancing the safety and security of all Canadians. A similar transition is in process through a range of highly-funded national and international initiatives around the world, including in the US and Europe, and B.C. must not be left behind; careful planning and strong commitment can create a cutting-edge public safety communications system to allow first responders anywhere in the country to communicate with each other, sending and receiving critical voice, video and data to save lives, reduce injuries, and impacts to property and the environment. Broadband fixed and mobile networks can also disseminate vital information (in multiple formats and languages) to the public during emergencies. However, these new processes and tools must interface to the

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 32 public and must be compatible with the rich and ubiquitous communications tools that the public is using. Both Canada and the U.S. have adopted Long Term Evolution (LTE) as the technical standard for 700 MHz wireless PSBN to support “smartphone” technology, with software applications, messaging and voice communications anywhere, anytime. LTE is the same standard adopted for commercial cellular use but, for PSBN, will require higher standards of reliability, resiliency and security. In addition, the commercial communications industry is initiating the transition from 4th Generation technologies such as LTE to new 5th Generation (5G) technologies, and this process must also be addressed by the Emergency Management community while adopting smart technologies.

While many responders and emergency managers have experience in using information and communication technologies in an office environment, extending this to field-level operations can be a new experience and/or be limited to use of available commercial services that have not been designed or scaled for emergency use. Major on-demand critical operations require special in-field interoperability solutions that often differ from day-to-day urban solutions. Further, Canada, and especially British Columbia, also has complex terrains and many areas of low population density for which extension of emerging fixed PSBN systems is impractical. In these areas, PSBN will need to be deployed on an as-needed basis. Deployable systems will also be needed in rural and urban areas that do not have enough PSBN capacity or when major emergencies overwhelm existing capacity. To address these needs, another CSSP supported projected, led by Simon Fraser University’s Telematics Research Lab, has recently established Canada’s first national in- field PSBN wireless testing and validating capability, specifically focused on deployable LTE systems to support disaster response situations where conventional communication infrastructures are damaged or non-existent. This unique and innovative field-based PSBN facility is testing different backhaul techniques connected to emerging broadband systems and contributing to the development of new protocols and strategies to overcome connectivity and interoperability problems. Two core field test locations have already been established in the Metro Vancouver and the Interior regions of British Columbia. Similarly, members of the public and community leaders need to have access to new tools over commercial Internet and smartphone networking, and be aware and comfortable with these tools, before a major emergency or disaster of the scale that can strike in British Columbia occurs such as: earthquakes, tsunamis, landslides, floods, avalanches, and , plus emerging new risks, such as riots, terrorism and major criminal activities. Because the SFU in-field PSBN wireless testing facility uses the same technology base as commercial systems, it can also serve as a proto-typing facility for next-generation emergency notification. In addition to aiding the transition of responder agencies and the public to smart technology-enabled emergency management, awareness and notification systems, it is also important to support the transition of critical B.C. industries to modern appropriate tools, to allow support of infrastructure, business continuity, and for industry support of

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 33 government and responders during major emergencies and disasters. Furthermore, B.C. possesses many businesses that build smart technology tools for emergency management, and many that can enter the market. It is important to have an environment in which these businesses can grow while supporting the saving of lives and the environment in our Province, compatible with the 2016 #BCTECH Strategy.

Consequently, there are important synergies and benefits to be gained from these combined developments.

4.1 Recommendations

4.1.1 Engagement and Collaboration

1. Support the transition to modern, mobile smartphone-enabled emergency communications and operations for agencies, communities and the public, in major emergencies and disasters through partnerships and new initiatives that enable emergency management practitioners to work with technologists, academia, government and industry partners to explore and test options to solve public safety communication and interoperability problems in public alerting, SAR, flood, wildfire, seismic, tsunami and other emergency response. 2. Enhance and expand existing SFU CSSP-funded Public Safety broadband facilities to support extensive urban and long-range rural, remote and community-deployed tests of a wide range of consumer and government smart technologies, on land, on water and in the air, and 3. Support continuous outreach to agencies and communities, through: o Workshops and training; o Community/agency projects; o Community and agency visits and demonstrations for both understanding requirements, and discussing and demonstrating modern smart and mobile emergency management technology, and o Exercises and special events.

4.1.2 Guidance and Coordination

1. In alignment with nationally adopted approaches, establish a Provincial Public Alerting Working Group to build consensus around and acceptance of: o Provincial public alerting principles, guidelines and operating procedures; o Technical protocols and standards; o Procedures and protocols for coordinating warnings that impact multiple jurisdictions; o Common terminology for all-hazard notification; o Standard message protocols and templates; o Pilot projects to test concepts and approaches; o Training and certification standards, and o Education and outreach campaigns.

Improving End-To-End Tsunami Warning for Risk Reduction on Canada's West Coast (CSSP-2013-TI-1033) 34