Radiocommunication for public protection and disaster relief
By Alan R. Jamieson
A major earthquake in South Asia, a devastating tsunami in the Indian Ocean,
flooding and forest fires in Europe, hurricanes in the Americas, drought in Africa
— natural disasters are, unfortunately, a part of life. And if this is not enough,
disasters due to human activities, such as terrorist attacks or industrial accidents,
also happen all too frequently around the world.
Whether natural or man-made, catastrophes
can happen at any time, and with little or no warning. This creates major problems
for public safety agencies set up by governments to provide for public protection
and disaster relief (PPDR). The ability of these agencies to cope with unexpected
disasters and emergencies of any scale is dependent upon the infrastructure and
support that they have in place for their day-to-day operations. Radiocommunication
facilities are a critical component of this infrastructure. The extra stress that
such events place on infrastructure has to be taken into account when planning the
capacity, performance and capabilities of radiocommunication facilities.
The challenge in recent times for ITU, and in particular for its world radiocommunication
conferences (WRC), has been to put in place regulatory provisions, backed by technical
studies, that provide the framework within which the radiocommunication needs
of PPDR agencies can be satisfied. These studies are carried out at ITU’s Radiocommunication
Sector (ITU–R).
An important agreement concerning public protection and disaster relief was reached
at the World Radiocommunication Conference in 2003 (WRC-03) in its Resolution
646. It paves the way for the deployment of new technologies for enhanced applications
involving higher data rates, real-time full motion video and multimedia services
that should facilitate the work of PPDR agencies around the world. In comparison
to the mostly narrow-band solutions used today by these agencies, wide-band applications
are now made possible (with data rates in the range of 384—500 kbit/s), as well
as broadband (1—100 Mbit/s).
Recognizing the need for new systems
Terminology differences between countries and regions in the scope and specific
meaning of PPDR has led to an ITU definition for the purpose of discussing the issue.
ITU–R has defined the term “public protection radiocommunication” as referring to
radiocommunications used by agencies and organizations dealing with the maintenance
of law and order, the protection of life and property and with emergencies. In a
similar manner, the term “disaster relief radiocommunication” refers to radiocommunications
for dealing with serious disruptions to the functioning of society that pose a significant
and widespread threat to human life, health, property or the environment, whether
caused by accident, natural phenomena or human activity, and whether developing
suddenly or as a result of complex, long-term processes.
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Télécoms Sans Frontières
An emergency communications set up by Télécoms Sans Frontières in Indonesia following
the tsunami in December 2004 |
PPDR radiocommunication systems must be designed to meet several broad objectives.
As well as providing vital means of communication in emergencies and disasters
in each country, their other aim is to promote interoperability between cross-border
networks, to make it easier for countries to cooperate in providing effective and
appropriate humanitarian assistance when required. This means that when planning radiocommunication services for public safety agencies and organizations, it is
necessary to take account of advanced services that will require higher data rates,
along with video and multimedia capability, in addition to the voice applications
commonly used now.
These advanced applications include ways to access the types of background information
that may be needed quickly when responding to an emergency. As PPDR operations become
more reliant on electronic databases and data processing, access to accurate and
detailed data by staff in the field, such as police, firefighters and medical emergency
personnel, is critical to improving their effectiveness. This information is typically
held in office-based database systems and includes images, maps and architectural
plans of buildings. The flow of information back from units in the field to operational
control centres is equally important. During an emergency, authorities are required
to make critical decisions that are affected by the quality and timeliness of information
received from the field.
In 2000, the World Radiocommunication Conference (WRC-2000) approved Resolution
645, inviting ITU–R to conduct studies with a view to harmonizing spectrum globally
or regionally for these advanced solutions for public protection and disaster relief.
WRC-2000 also called for studies to determine the technical and operational basis
for global cross-border circulation of radiocommunication equipment in emergencies.
The needs of developing countries for low-cost solutions are also recognized in
Resolution 645.
Forging an agreement
ITU’s global effort to harmonize PPDR communications is well documented in
ITU–R Report M. 2033. The report defines the public protection and disaster
relief objectives and requirements for implementing advanced solutions to meet
the operational needs of PPDR agencies by 2010. It highlights the results of ITU–R’s
studies in the run-up to WRC-03. These results, together with the salient sections
of the Report of the Conference Preparatory Meeting, provided the technical
basis for WRC-03 to discuss PPDR issues. There was widespread interest in this agenda
item, which called on WRC-03 “to consider identification of
globally/regionally harmonized bands, to the extent practicable, for the
implementation of future advanced solutions to meet the needs of public protection agencies, including those dealing
with emergency situations and disaster relief, and to make regulatory provisions,
as necessary, taking into account Resolution 645 (WRC-2000)”.
For many countries, globally harmonized frequency bands for the use of PPDR applications
was seen as a priority because of the potential to offer the benefits of economies
of scale. But many others held the view that such global harmonization was unnecessary,
since the organizational responsibilities for public protection and disaster relief
activities are matters for administrations to determine at the national level. And
a third group of countries argued that new radiocommunication technologies, including
software-defined radios and commercial mobile services such as IMT-2000 networks,
should also be used to meet the needs of PPDR agencies.
A further complication was the fact that PPDR agencies at the time of WRC-03
were largely reliant on traditional voice applications scattered over a wide range
of frequency bands, usually in the VHF and UHF ranges of the spectrum. In view of
the bandwidth requirements for the advanced solutions being contemplated for PPDR,
and without any sign of a uniform approach to the use of frequency bands, it looked
unlikely that a global solution on spectrum harmonization would emerge from the
conference.
Resolution 646 on public protection and disaster relief
Harmonization: While no common global band could be identified
by WRC-03, an important breakthrough was the adoption of Resolution 646, which lists
specific frequency bands and ranges that governments should consider when undertaking
their national planning for PPDR. These bands are listed separately for each of
the three ITU regions: Region 1 (Europe and Africa), Region 2 (the Americas) and
Region 3 (Asia and Australasia).
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Inmarsat |
UNHCR/H. Caux |
UNHCR |
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It is hoped that victims of disasters will be able to benefit from faster and
more effective rescue operations, thanks to the Tampere Convention |
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Resolution 646 strongly recommends that countries
should use the harmonized bands identified for use in each region for public protection
and disaster relief, taking into account national and regional requirements. They
are also requested to encourage PPDR agencies to use relevant ITU–R Recommendations
in planning spectrum use and when implementing technology and systems to assist
in the agencies’ work.
The benefits of spectrum harmonization, even though restricted to a regional
rather than a global level, include increased potential for interoperability in
PPDR activities. It is also expected to create a broader manufacturing base, leading
to economies of scale and cheaper, more readily available equipment. This, in turn,
will give PPDR agencies better access to enhanced system capabilities built on uniform
types of equipment. Ultimately, the winners will be the people whom the agencies
serve at times of disaster.
Cross-border sharing: Resolution 646 also acknowledges the contributions
of national and international humanitarian organizations in providing radiocommunications
after large-scale disasters. Administrations are urged to facilitate cross-border
sharing of radiocommunication equipment that is intended for use in emergencies
and for disaster relief.
Regulatory barriers have often made it difficult for humanitarian organizations
to import and use telecommunication equipment across borders. To help address
this problem, ITU played an active role in drafting the Tampere Convention on
the Provision of Telecommunication Resources for Disaster Mitigation and Relief
Operations, which came into force on 8 January 2005, following its ratification
by 30 countries. It is hoped that victims of disasters will now be able to benefit
from faster and more effective rescue operations, thanks to the convention.
New technologies: Resolution 646 also says that administrations
should encourage PPDR agencies to employ both existing and new technologies and
solutions to satisfy interoperability requirements. This could also include the
use of advanced wireless solutions where appropriate, to provide complementary support
to PPDR activities.
The resolution highlights the example of a joint standardization project between
the European Telecommunication Standards Institute (ETSI) and the United States
Telecommunications Industry Association (TIA), known as Mobility for Emergency
and Safety Applications (MESA). The goal of MESA is to develop advanced mobile
broadband technical specifications that can be used to support the communication
requirements of PPDR agencies. Another platform for coordinating harmonized standards
is the Telecommunications for Disaster Relief (TDR) Partnership Coordination Panel,
established under the auspices of ITU with the participation of governments, international
telecommunication service providers, standards development organizations and disaster
relief agencies.
Finally, Resolution 646 directs comments towards the manufacturers of PPDR systems
and equipment. They are encouraged to take the resolution into account when designing
equipment, and to consider the need for countries to operate within different
parts of identified frequency bands.
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ITU 940049/Actualités suisses
Emergency communications assist fire fighting operations |
Work continues
WRC-03 reached a conclusion on the spectrum requirements for PPDR, and also concluded
that there was no need to place this topic on the agenda of a future conference.
Nevertheless, it did recognize that studies are still needed in some areas and it
requested ITU–R:
- to continue technical studies and make recommendations concerning
technical and operational implementation of advanced solutions to meet the needs
of PPDR applications for national and international operations, taking into account
the capabilities, evolution and any resulting transition requirements of existing
systems, particularly those of many developing countries;
- to conduct further technical studies in support of possible
additional identification of other frequency ranges to meet the particular needs
of certain countries in Region 1, especially in order to meet the radiocommunication needs of public protection and disaster relief agencies.
Since WRC-03, studies have continued within Working Party 8A of ITU–R. These
studies have focused on preparing a recommendation on a narrow-band application
that uses data communication for the protection and tracing of property. A draft
recommendation “Harmonized frequency channel plans for the protection of property
using data communication” was considered by Study Group 8 at its meeting in November
2005. Additional studies in Working Party 8A are expected to result from work now
under way in some countries in Region 1 on requirements for wide-band and broadband PPDR applications.
As well as the studies on PPDR, there are other programmes within ITU–R related
to disaster relief operations. The humanitarian activities of amateur radio and
amateur satellite services are highlighted in Recommendation ITU–R M.1042, which
encourages the development of networks within these services that are capable of
providing communications during disasters and relief operations. Moreover, Working
Party 8D is developing a recommendation on applications in the mobile satellite
service for disaster relief operations, while Study Groups 6 and 7 are working on
systems to be used in support of disaster prediction and detection and for communicating
warnings and alerts.
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Alan R. Jamieson, Managing Director, Added Value Applications Limited, Auckland, New Zealand |
The needs do not diminish
Around the world, the radiocommunication needs of PPDR users are not diminishing;
they are growing at a rapid rate. The longer public safety agencies have to wait
for effective PPDR solutions supporting advanced applications, the longer the current,
ad hoc, uncoordinated and at times uneconomic approach will continue.
Through the decisions reached at WRC-03, ITU–R is working to resolve implementation
issues in support of PPDR users as they discharge their responsibilities for
humanitarian assistance and the restoration of normal life following disasters
of every type.
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NOAA |
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NOAA deploys a buoy in the Pacific as part of its Deep-ocean Assessment
and Reporting of Tsunami (DART) system. Data is transmitted to a control
centre via satellite |
Tsunami warnings via satellite
The massive tsunami that occurred in the Indian Ocean in December
2004 reminded everyone of the importance of warning systems for such natural disasters.
The wave was caused by a huge earthquake off the coast of Sumatra in Indonesia,
which was detected across the world at the Pacific Tsunami Warning Center
in Hawaii. It is operated by an agency of the United States’ government, the National
Oceanic and Atmospheric Administration, more often known simply as NOAA. Within
minutes, NOAA staff had been able to issue a bulletin to say that there was no danger
of a tsunami in the Pacific. How was this done, and why was it not possible to warn
of a tsunami in the Indian Ocean?
David Rydevik |
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The Indian Ocean tsunami strikes Thailand in December 2004 |
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NOAA received data about sea levels in the Pacific from a system of coastal gauges
and ocean buoys which, unfortunately, did not then exist in the Indian Ocean. Each
buoy is the platform for a radio antenna that transmits data via satellite on conditions
at the ocean surface and from sensors on the sea bed. These sensors — which can
be 5000 metres deep — record changes in the weight of water above them, thus indicating
wave heights.
Following the 2004 tsunami, international efforts began to find ways to mitigate
future disasters. As early as January 2005, discussions began in Kobe, Japan, at
the United Nations’ World Conference on Disaster Reduction. It is expected that
a UN-led tsunami warning system will become operational in the Indian Ocean during
2006 — probably based on a network of buoys similar to those in the Pacific. This
still leaves the challenge of how to respond on the coastline when a dangerous wave
is detected at sea. More information systems and infrastructure will be required,
and it is very likely that radiocommunications will be central in that work too.
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