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Introduction, Background & Conference Highlights

Contents:

Introduction

The Rehabilitation Engineering Research Center for Wireless Technologies hosted the Wireless Emergency Communications State of the Technology Conference in Atlanta, Georgia from September 21-23, 2009.   Conference events were brought to life by extensive flooding the day preceding events and a Presidential Disaster Declaration that followed, enabling participants to realize the critical contributions made by emergency managers, particularly to those often at highest risk: people with disabilities.  A full slate of renowned practitioners and scholars convened an exceptional set of presentations that have been captured in the following proceedings.  For emergency managers, consumers, industry and advocates, et al interested in learning more about new technologies, accessibility, innovative projects, practical research and policy issues, the conference proceedings offer insights into the state of emergency communications in the U.S. and abroad.  Following is a brief introduction, background and conference highlights, describing some of the presentations that can be found in more detail within the proceedings.

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Impetus

The Wireless RERC is a five-year program initially funded from 2001 through 2006. During the initial five years, a State of Technology conference was held in 2004 discussing mobile wireless communications for people with disabilities. One of the results presented in the proceedings report emphasized that “maintaining emergency communications between public safety entities and communities most vulnerable during emergencies was critical.” As a result, the second cycle introduced the Wireless Emergency Communications (WEC) project. The project objective was to develop and field test technologies to deliver targeted alerts and warnings to wireless devices in accessible formats. The Wireless Emergency Communications State of Technology (SoT) Conference therefore focused on facilitating communications among researchers and developers, public safety and emergency management, the wireless industry, policymakers and disability advocates. The research and development activities of the WEC team, Panel of Experts and these SOT conference outcomes will generate recommendations for the FCC concerning the most feasible approach to ensure equal access to alerts and warnings by people with disabilities, and technical recommendations to the wireless industry.

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Regulatory Backdrop

In August 2004, the Federal Communications Commission released a Notice of Proposed Rulemaking (NPRM) to review the Emergency Alert System (EAS). The FCC recognized the importance of creating a sound emergency communications system and requested comments from the public on how this could be accomplished. The Wireless RERC responded with feedback on the numerous ways wireless technologies could help people with disabilities in emergency situations. Discussions included insights into developing technology for people with limited visual and auditory abilities. For example, providing only auditory alerts prevents individuals who are deaf or hard-of-hearing from receiving the warnings. However, transmitting emergency message text by sending small amounts of digital information through the radio broadcast digital system (RBDS) allows users to view the message on a screen. Research performed by the Wireless RERC and survey results noted that members of the Deaf community were often early adopters of 2-way text pagers, such as the Sidekick and Blackberry.

Several recommendations made by the Wireless RERC about the potential of digital wireless technologies to assist people with disabilities during an emergency appeared in the FCC's 1st Report and Order and Further Notice of Proposed Rulemaking, which stated: "we amend the FCC rules to ensure that persons with disabilities have access to public warnings." On point the Wireless RERC commented that all wireless device users would benefit from a multi-modal approach to providing accessible, wireless emergency alerts communication.  Through other Wireless RERC filings on the subject, comments also highlighted the potential uses of wireless technologies in providing public warnings and alerts to people with disabilities in a timely manner.

The 2005 hurricane season added urgency to the issue of emergency communications, prompting conferences and studies by several government agencies and interest groups, with staff of the Wireless RERC contributing input to many of these events.  The RERC on Telecommunication Access sponsored the State of Science Conference on Accessible Emergency Notification and Communication that produced research and public policy recommendations geared toward accessibility issues.  Columbia University sponsored the Consensus Conference on Considerations in Emergency Preparedness.  Proceedings from these conferences as well as other reports emphasized the importance of incorporating the needs of people with disabilities in the development of emergency preparedness initiatives to ensure access to emergency communications for all.

Due, in part, to the steady rise in cell phone penetration in the U.S. (some 84% of the total population [CTIA, 2008]) the FCC has been working on an initiative in mobile wireless phone alerting. Mandated by Congressional statute (109th U.S. Congress, 2006) the FCC established the Commercial Mobile Service Alert Advisory Committee (CMSAAC) to develop technical standards and protocols to enable commercial mobile service (CMS) providers to send emergency alerts to their customers. After a year of deliberation the CMSAAC submitted their recommendations to the FCC who subsequently initiated a rulemaking in the matter. Based on public comments from industry, government and advocacy stakeholders, and on the technical requirements and protocols recommended by CMSAAC the FCC adopted technology neutral rules governing CMS providers who elect to transmit alerts to their subscribers (FCC, 2008).

Through multiple rulemakings and requests for comments, it is clear that the FCC remains concerned with issues of accessible emergency communications.  Many parties are addressing challenges associated with the technical delivery of accessible alerts, as well as the regulatory framework in which they do (and will) operate within.  Outreach and awareness are vital to successful utilization.  The SoT conference was an education and dissemination effort to bring together potential beneficiaries of accessible wireless alerting technologies, products and methodologies to facilitate the reach of any proposed national wireless alerting system whether it is EAS, CMAS or some hybrid of the two designs.  The papers presented at the conference and herein offer a multitude of perspectives, potential and actual solutions, recommendations and best practices spanning the continuum of emergency access by people with disabilities, from alerting in mass, to individual calls for emergency assistance, from communicating in the field to accessible egress.  The common thread among all the papers and presenters is the need to assure the safety of people with disabilities in times of emergency through accessible technologies.

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Conference Highlights

David Furth, Deputy Bureau Chief, Public Safety and Homeland Security Bureau of the FCC  was the opening keynote speaker for the ocnference.  He touched on many of communications technologies currently available, as well as those in the pipeline, that have the potential to offer greater accessibility of emergency commuinciations to people with disabilities. Issues addressed were broadband, CMAS, EAS, voice over Internet protocol, and 911; but the crux of his remarks lie in his assertion that stakeholders need "to harness the technological prowess of the U.S. to preserve and protect the lives, property, and public safety of ALL citizens."

Presidential Executive Order 13347, first signed under President George W. Bush, is in the process of being updated by the Obama Administration.  Marcie Roth, senior disability advisor to FEMA, who sat on the Mapping the Landscape panel, indicated that the EO is expected to be re-issued soon.  For those not yet familiar with the EO, it sets out an expectation that emergency managers will "increase the rate of participation of people with disabilities in emergency planning, preparedness, response and recovery drills and exercises."  The EO establishes the firm notion that emergency management should occur not only for but with people with disabilities and disability organizations (a pdf of the EO can be found at http://www.fema.gov/pdf/nims/nims_executive_order_13347.pdf).  Roth is also developing a database of those interested in disability and emergency management issues.  Her contact email is marcie.roth@dhs.gov.

Claudia Gordon, who is with the Department of Homeland Security Office of Civil Rights and Civil Liberties (CRCL), spoke on the Turning the Corner:  Regulatory and Policy Directions panel.  Gordon's office oversees Executive Order 13347 and also assists with compliance surrounding Section 504 of the Rehabilitation Act.   Gordon recommended several key items that could be added to emergency managers' libraries.  In 2008, DHS issued a unique assessment of Hurricane Ike evacuees identifying recovery needs for special needs populations (available at http://www.disabilitypreparedness.gov/pdf/ike_snp.pdf.)  Such assessments can be useful in forecasting and anticipating needs for those with disabilities in particular.  A FEMA Higher Education project conducted with the Public Entity Risk Institute produced The Paradigm Shift in Planning for Special Needs Populations which emphasizes a functional approach to disability concerns (an overview can be found at http://www.disabilitypreparedness.gov/paradigm.htm.).  Relevant to this conference, the functional approach in this document describes those with communication needs as "individuals who have limitations that interfere with the receipt of and response to information may need that information provided in ways they can understand and use, and from authorities they trust. They may not be able to hear verbal announcements, see directional signage, or understand how to get assistance because of hearing, vision, speech, cognitive, or intellectual limitations, and/or limited English proficiency."  Finally, the Post Katrina Emergency Management Reform Act produced A Reference Guide:  Accommodating Individuals with Disabilities in Disasters in 2007 (http://www.fema.gov/oer/reference/index.shtm).

Toward the goal of increased effectiveness in emergency management with and for people with disabilities, a number of resources have recently been issued.   The Federal Highway Administration published a free primer titled Evacuating Populations with Special Needs now available at its website http://ops.fhwa.dot.gov/publications/fhwahop09022/index.htm.   The primer includes content on congregate care facilities, communication, transportation, fleet management, animals and pets, and re-entry.  Useful checklists and other materials are available in the primer as well.

Most recently, the National Council on Disability produced a significant state-of-the-knowledge review of literature and promising practices titled Effective Emergency Management:  making improvements for communities and people with disabilities (2009).  Pat Pound presented the report on the Mapping the Landscape panel, and furnished all attendees with a flash drive containing the document.  Pound described the document as user-friendly in that it is searchable, organized by phases (mitigation, preparedness, response and recovery) and contains sections outlining promising practices, policy issues and research needs. The document also includes chapters that introduce emergency managers and disability organizations to each other and advocate for their mutual collaboration.   The NCD review builds on EO 13347 by encouraging emergency managers "build strong relationships with area disability organizations, advocates and others" and that "people with disabilities must be invited to the emergency planning table."  Specific to this conference, NCD urged that emergency managers "design warning messages so that they incorporate instructions for people with disabilities on how to take protective action for the impending hazard."  Emergency managers can add the volume to their desktops by downloading the pdf at http://www.ncd.gov/newsroom/publications/2009/pdf/NCD_EmergencyManagement.pdf.

Advocacy organizations also participated in the conference, visibly demonstrating The Wireless Center's commitment to the ideas espoused by FEMA, DHS and NCD.  Jennifer Simpson spoke on behalf of the Coalition of Organizations for Accessible Technology and the American Association of People with Disabilities. These advocacy organizations offer free membership and advocate for accessibility in new technologies and websites.  They encourage real time texting for E-9-1-1 and accessible emergency information on television.  Social media were explored as additional sources including use of Facebook, Twitter, blogging and various list serves.  In short, the message from the advocacy community was to diversify messaging in order to enhance accessibility.  The organization can be further explored at www.coataccess.org.

Others concurred that social media need to be considered.   A keynote address by W.  David Stephenson discussed the pros and cons of networked disaster management.  As Stephenson noted, emergent behavior is often necessary in a disaster and that the public can become a "true partner in response not a passive recipient."  Social media represent emergent tools that are becoming more robust sources of information.  Officials should monitor digital media in emergencies but are advised to conduct "digital triage" to discern relevance.  Assigning an "Incident Internet Officer" in the EOC was suggested during the question and answer period.   Erroneous information can be planted by terrorists, which happened during the Mumbai attack.  However, by carefully evaluating information digital sources can be used.  Stephenson said that although we cannot control the flow of information, we can use it such as by looking at the number and location of tweets as an indicator of a problem. Similarly, social media can be used to urge neighbors to look out for each other, particularly for those with special needs.

Research emerged as a useful but also a critical need during the conference.   Richard Ray from the California Public Utilities Cimmission said that people with disabilities were not aware of alert systems or had not registered for them prior to the San Diego firestorm - consequently they did not get the alert.   The lesson learned was that those issuing alerts need to have both technological and non-technological options.  Wireless options were discussed as preferable as they foster independence meaning that people do not have to wait at home to get messages.  Because people with disabilities live, work and socialize away from homes, alerts need to be mobile.  Concern was raised, however, about the cost of such communications for a disability community where many live at reduced incomes.  Additional issues included limited or not text websites, limited wireless with adjustable font sizes, limited text to voice features, and delayed short message services.

Jim Mueller, Wireless RERC, led The WEC Experience panel of researchers and participants in describing their efforts to test wireless emergency alerting systems with end users.  The methodology incorporated the intent of EO 13347 and other federal guidance by empowering those with disabilities to be part of efforts to empirically verify usability.  Researchers conducted 12 field trials and 2 focus groups that yielded both quantitative and qualitative data.  Specific problems that were cited included issues with American Sign Language signs and how they translate from National Weather Service messaging.

Researchers also found that use of technologies are likely to vary in different phases and contexts.  Professor King-Wa FU from Hong Kong University conducted research after the Sichuan (People's Republic of China) earthquake last year.  The area includes the highest prevalence of people with disabilities in China with considerable obstacles:  social discrimination, poverty, limited employment opportunities, underdeveloped social security systems and a significant rural/urban disparity that many in the conference could relate to.   In a carefully crafted study, he discovered that television and newspaper use decreased in the months following the earthquake and that mobile phone use increased. His insights revealed that social networks among cell users proved invaluable to providing information and support among people with disabilities.  John Lamb, from Ability Magazine in the United Kingdom, addressed similar concerns.  Under the 2004 Civil Contingencies Act and guidelines published by the UK on vulnerable populations, it was discovered that 18% of the population had a disability.  Text alerts have been designed for the H1N1 virus in "Easyread" English that emphasizes limited use of symbols and one concept per sentence.

The Centers for Disease Control showcased SNAPS, a new tool that provides a snapshot of variables to consider for public health emergencies.  The goal of SNAPS is to help insure that diverse audiences receive critical public health messages that are accessible, understandable and timely.  SNAPS is a user-friendly website that yields demographic information for your area and can be accessed at emergency.cdc.gov/snaps/.  The CDC also encouraged use of their website at http://www.cdc.gov/ncbddd/dh/http://www.cdc.gov/ncbddd/dh/.

During the conference, Twitter streams and Tick-it channels were established by emergency management participants and highlights of several presentations were ‘broadcast’ to audiences interested but unable to attend the gathering. Interestingly, breaking news that Microsoft plans a Q1 launch of its hyperlocal social networking/emergency contact application Vine was published for the first time during the SOT conference – on Twitter and Tick-it simultaneously.

This conference has made a difference by bringing together leading experts, advocates and practitioners to interact on issues of accessible wireless communications.  Conference organizers carefully crafted panels that included policymakers, researchers, disability organizations and emergency managers in a synergistic effort that produced momentum.  That momentum, to enhance communications for people with disabilities, has the potential to thrust forward the field of accessible emergency communications in a manner that is more fully available to all people.  Although the future of emergency communications is not yet perfect, progress is being made.  Nonetheless, it remains clear that additional work is needed on accessible wireless communications including both practical application and empirical research. Issues associated with cost, interpretation and translation, use of social media, delays with short messaging service, text size, interoperability and voice transfer remain as significant challenges.

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References

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