Emergency An Emergency Alert System Best Practices Guide – Version 1.0 Alert System The EAS Best Practices Guide was created in partnership with EAS Participants to support incremental improvements by providing basic guidelines for EAS operation and maintenance. The Emergency Alert System (EAS) is a under all conditions the President can EXECUTIVE public alert and warning system that communicate with the American people.” leverages the communications assets of SUMMARY EAS Participants including terrestrial As part of larger efforts to strengthen the broadcasters, cable television systems, nation’s preparedness and resiliency, wireless cable systems, satellite digital FEMA and the Federal Communications Contents audio radio service (SDARS) providers, Commission (FCC) announced that they direct broadcast satellite (DBS) services will conduct the first nationwide test of Intent and Purpose and wireline video service providers to the Emergency Alert System on Why an EAS Best Practices allow the President of the United States November 9, 2011. Similar to the way Guide? the capability to address the American local emergency alert system tests are public during a national emergency. This conducted, the Nationwide EAS Test will Description of the EAS system must be available under all involve television stations (including A brief EAS history and digital television, cable, satellite audio description conditions. The system is also used by State and local authorities to deliver and television services) and broadcast Originating EAS Messages important emergency information, such radio stations across the U.S. and several Guidelines for originating as AMBER alerts. The National Weather U.S. territories. effective alerts Service (NWS) regularly uses the system to disseminate emergency weather alerts The EAS has never been tested on a EAS Plans and advisories. national level, and conducting this test is Best Practices for planning an opportunity to assess the system’s and monitoring In 2006, Executive Order 13407 (E.O. capabilities at all levels. The Test plays a 13407), established that it “is the policy of key role in determining if the public is Installation and Configuration the United States to have an effective, able to receive timely and critical “Back to Basics” ideas for reliable, integrated, flexible, and emergency information as part of a larger installation and operation comprehensive system to alert and warn effort to assess national preparedness for all hazards. Sample Diagrams the American people in situations of war, Sample diagrams for terrorist attack, natural disaster, or other FEMA operates and maintains the reference hazards to public safety and well-being (public alert and warning system), taking national-level EAS; conducts tests and appropriate account of the functions, exercises, and ensures the national-level capabilities, and needs of the private EAS keeps pace with emerging technologies. [email protected] sector and of all levels of government in www.fema.gov/emergency/ipaws our Federal system, and to ensure that An Emergency Alert System Best Practices Guide – Version 1.0 Intent and Purpose Emergency Alert System Intent and Purpose FEMA understands that improving the EAS at all A series of meetings, conferences, workshops, levels will take time. FEMA, the FCC and NOAA’s webinars, virtual roundtables, and websites have vision for improving the EAS is incremental. been supporting open and frank discussion on Although the Test will use an Emergency Action improving this important alert and warning tool. Notification (EAN) code and will not include EAS Many practical ideas have been exchanged as origination by State, County, territorial or tribal many communities begin to revisit the EAS. authorities, it is important that we also make improvements at other levels. This first version of the EAS Best Practices Guide is designed to assist EAS message originators, disseminators, and other participants with the basics of operating and managing the EAS. This Guide can also be leveraged to provide a framework for training personnel on the use and operation of the EAS at all levels of origination and distribution. The success of the EAS is dependent upon strong partnerships between EAS originators and alert disseminators. It is also important that Federal agencies work closely in cooperation with State, A number of EAS tests and exercises have been local, territorial, and tribal governments. This is conducted to better inform the process of the approach FEMA, the FCC and NOAA has taken effectively testing the EAS and to identify areas for to revive the EAS dialogue and seek improvements. improvement. In the near future, the Common Alerting Protocol (CAP) will be added to the EAS FEMA is working with the FCC and NOAA to to support more effective transport and communicate, educate, and inform EAS distribution of alert messages. It is important that participants, emergency management agencies and the EAS is ready to support these improvements. organizations, and the public of the importance of the EAS, and the need to improve the system. Efforts are underway to promote partnerships with the EAS community continue an ongoing The Guide will be frequently dialogue and promote activities that support updated to reflect lessons incremental improvements to the system. learned from ongoing EAS tests and exercises, as well as reflect This EAS Best Practices guide seeks to document continued dialogue and EAS challenges, ideas, and technical solutions to engagement with EAS support a better understanding and more effective Participants. Due to the cooperative nature of this use of the EAS. The Guide will be frequently document, we strongly urge the updated to reflect lessons learned from EAS Community to offer their ongoing EAS tests and exercises, as well as observations and solutions to reflect continued dialogue and engagement enhance the Guide with diverse with EAS Participants. perspectives. 2 An Emergency Alert System Best Practices Guide – Version 1.0 Brief Description and History of the EAS Emergency Alert System A Brief History The Emergency Alert System (EAS) leverages the Primary Entry Points are broadcast stations capabilities of participating analog and digital located throughout the country with a direct radio, television, cable, satellite, and wireline connection to FEMA and resilient transmission providers working in concert to distribute alert and capabilities. These stations provide the initial warning messages to the public. The alert broadcast of a Presidential EAS message. FEMA is messages can be originated by emergency increasing the number of PEP facilities to provide management authorities at all levels of government direct coverage to at least 90% of the American to warn the public of imminent emergencies. public. The EAS was created in 1994. It is the latest in a Even in today’s world of seamless technology and series of alert and warning systems that began with portable communications devices, the Government the Control of Electromagnetic Radiation maintains a system of radio stations to support (CONELRAD) program, established by President public alert and warning (A&W). In addition to the Harry Truman in 1951. The CONELRAD was PEP System’s primary role to broadcast and relay replaced in 1963 by the Emergency Broadcast the President’s message in a dire emergency, PEP System (EBS), which remained in place until 1994. stations are designed with a much higher-level of The Federal Communications Commission (FCC) resiliency. These “hardened” radio stations created the EAS in 1994 and began enforcing provide the nation with last-resort mass requirements that mandated that all broadcast communications capabilities under all conditions, stations have EAS equipment installed by 1997. In as required by the President of the United States. 2001, cable systems were required to have EAS equipment installed to override all program Broadcast radio receivers are ubiquitous. These channels with a national-level EAS message, also radio receivers can receive one or more of the known as an Emergency Action Notification (EAN). approximately 14,355 full power radio stations broadcasting throughout the country. Over-the-air The Primary Entry Point (PEP) concept first radio broadcasts are one-way, omni-directional surfaced in the mid-1980s. transmissions. In the aftermath of a national, catastrophic event, alerting authorities can leverage operational area capabilities to transmit crucial information to the public through as many methods as possible. However, broadcast radio may be the most effective method since it is possible that terrestrial Internet Protocol (IP) networks and other pathways could be inoperable, especially at “last-mile” delivery to the public. Prolonged power outages are expected in most catastrophic scenarios, negatively affecting IP networks and other communications. The national EAS program provides the nation with an unparalleled, survivable communications network, available under the direst conditions. 3 An Emergency Alert System Best Practices Guide – Version 1.0 Originating EAS Messages Emergency Alert System Originating EAS Messages Best Practices The EAS can be a valuable and tool to disseminate information to the public in emergency situations. This tool provides emergency managers direct access to radio and television broadcasters, cable, and wireline operators, and other media. Cooperation is essential between alerting authorities and originators and EAS Participants to ensure this tool is used