message length & support for legacy networks & …message length & support for legacy...
TRANSCRIPT
Message Length & Support for Legacy Networks & Devices Following the Increase to 360 Characters As noted in our written comments to the Notice of Proposed Rule Making (“NPRM”), NYCEM strongly supports the increase to 360 characters.2 With respect to support for legacy networks and devices, NYCEM recommends the following two options in order of preference:
1. Concatenating the 360-character message into four, time-phased 90-character messages. Adopting such rules would allow users of legacy devices and networks the ability to receive the full message contents without the need to upgrade their devices.
2. Crafting two separate messages (a 90-character message and a 360-character message). NYCEM has the staffing capabilities to support this option and although crafting two separate messages would create slight delay in message release, it would allow for both advanced and legacy users to receive a fully crafted message.
a. While NYCEM recognizes that not all emergency management organizations have similar staffing structures, most organizations are already crafting multiple versions of a message to support different outputs (e.g., press releases, email, SMS, Twitter, etc.). Introducing one additional, brief message should not be overly burdensome or time-consuming.
NYCEM strongly opposes having alert originators craft a single, 360-character message and legacy devices only receiving the first 90 characters. We believe that this could lead to confusion and frustration among the public as key aspects of the emergency message may appear beyond the first 90 characters. NYCEM also opposes the option that legacy devices receive the first 90 characters along with an embedded URL that would link to a website containing the entire message. The presumption is that an individual using a legacy device likely does not have the capability to access the internet on their mobile phone. Instead, they would need to go to another device (e.g., computer, tablet, etc.) and manually enter the URL. Such a requirement would lead to public confusion and frustration. Embedded References NYCEM continues to support inclusion of URLs and telephone numbers in WEA messages. Recognizing limitations of local servers, NYCEM encourages the Commission to allow embedded references without restriction but with education to alert originators of “best practices” related to inclusion of these links (e.g., consider the population receiving the message and the local capacity to manage server and/or telephony traffic.). NYCEM offered two examples of how we would implement embedded references in future Wireless Emergency Alerts: 2 Comments from NYC Emergency Management, dated December 29, 2015, page 2.
1. Citywide Emergencies (e.g., a coastal storm necessitating evacuation) – We would not direct the general public to our local website as our servers would not be able to handle the influx in traffic. Instead, we would direct the public to partner websites that contain information that has been generated and/or verified by NYCEM but on servers that have far more capacity.
2. Localized Emergencies (e.g., building explosion) – We would geo-target the message to a
much smaller area and include a link to local government websites. Since the message area and potentially affected population is smaller, local servers would be able to absorb the increased server traffic.
During our recent conversation, we also highlighted that the Commission allowing for embedded references could potentially create a market for “low use, high capacity/availability server providers” that emergency management organizations could contract with and leverage when they wanted to distribute an embedded reference to a large population. In the example we offer in (1) above, NYCEM would pre-load such a system with our coastal storm evacuation zones, evacuation center locations, etc., and direct people to that high-capacity site when needed. This would allow the general public to get the information they need without overly burdening local servers. NYCEM appreciates the feedback that the Commission has received from mobile service providers related to network congestion during emergencies. We believe that network congestion is a valid concern but needs to be addressed by the carriers in the interest of public safety. During an emergency, people are already using a lot of data in order to find out more information; clicking on an embedded reference would simply direct the public to valid emergency information without the need to search multiple sites. NYCEM understands why allowing embedded references to only be accessed via Wi-Fi is an attractive option for mobile service providers; however, we strongly oppose this recommendation in the context of emergency messaging. Anything that confuses or frustrates the public during an emergency is a barrier that should be avoided. Having the public click on a link that is supposed to provide more information — only to find out that their ability to obtain such information is dependent on seeking a Wi-Fi connection — is a departure from how people routinely access information on their phones. We view this departure from common practice as an added barrier that would both frustrate and confuse the public. Multilingual Capabilities NYCEM continues to support the Commission’s proposal to allow multilingual WEA messaging. NYCEM explained that in the past, when an emergency affected a particular community, messages would be translated into the relevant language for that community and sent along with the English-version of the message. Presently, NYCEM is in the final stages of preparing to offer our 80 most common messages in the 13 most commonly spoken languages in New York City, including American Sign Language.
These messages will be pre-translated to contain all of the information contained in the message, but will reference the English version of the message for the specific location affected (e.g., location of a fire, streets closed as a result of a vehicle collision, etc.). We fully recognize that this is an imperfect option, but it does significantly advance our goal of providing messages to as many people as possible during an emergency. While we continue to evaluate other options for multilingual messaging, we do not have sufficient confidence in machine translation technology to implement it for emergency messaging purposes. However, and as noted in our original comments3, we believe that the Commission should adopt rules that require device manufacturers to offer a “translate button” at the bottom of a WEA message so individuals can use the translation tool of their choosing (that they trust) to translate the message. NYCEM appreciates the creative approach offered by the Commission of potentially creating a database of the “Top 100 Words” (e.g., fire, flood, etc.) that could be used in an emergency and automatically translating those specific words into an individual’s preferred language. However, it is our position that only having a few words translated would be insufficient and that individuals need an entire translated phrase to fully understand the situation and determine what actions to take. It could be very confusing to see one translated word (e.g., “fuego”) in the middle of an English sentence absent any other context. NYCEM is supportive of state/local WEA opt-in testing to obtain feedback from the multilingual community on aspects of the translation that were either clear or unclear. When conducting this type of testing and feedback, we would initially begin with the most commonly spoken languages but only after we were reasonably certain that we could send emergency messages in those same languages. NYCEM would not want to set unreasonable expectations by testing with the multilingual community and then be unable to deliver the service when an emergency actually occurred. Alert Logging/Test Reporting from End User Devices As noted in our written comments to the NPRM4, NYCEM continues to fully support the Commission’s proposal to require logging and issue reporting. The Wireless Emergency Alert system is a mission-critical system and needs to be treated as such end-to-end, including requiring mobile service providers to log and report any errors. Without logging and reporting, NYCEM has no other way (other than anecdotal reports) of ensuring that a particular message sent was actually received and disseminated by the mobile service providers. With respect to reporting metrics, information on the effectiveness of geo-targeting and alert latency would be invaluable in determining the reach of the message, the public’s response to the message, and the efficacy of the WEA system. Information would allow emergency managers to hone their WEA targeting skills over time and make an informed decision with each message of how large an area to message based on the reported results of previous messages. 3 Comments from NYC Emergency Management, dated December 29, 2015, page 12 at 4. 4 Comments from NYC Emergency Management, dated December 29, 2015, page 14
In addition to automated reports provided by the carriers, NYCEM also shared that following WEA messages, NYCEM occasionally polls trusted partners (e.g., employees, community volunteers, etc.) to learn whether they received the message and where they were upon receipt. This information is then geocoded and placed on a map. For the Commission’s reference, two recent reports are appended to this filing and NYCEM would be willing to share future reports with the Commission. Per the Commission’s request, NYCEM will add a question to the post-WEA survey related to “approximate time received” in an attempt to evaluate message latency. Crowdsourced Feedback NYCEM continues to be deeply intrigued by the potential to obtain “crowdsourced feedback” following issuance of a WEA message. Consistent with our written comments5, NYCEM does not support the Commission adopting rules that would allow for “emergency requests” (e.g., “I need to be rescued,” “Send me an ambulance,” “My house is on fire,” etc.) to be received following a WEA. Being able to handle such requests adequately would require tremendous investment in technology and personnel resources and erroneous requests could divert resources from individuals who require emergency services. Instead, NYCEM offered two examples of how we would be able to use crowdsourced feedback immediately after it became available:
1. Strom-Related Damage/Downed Trees – NYCEM would send a WEA message following a strong storm/tornado and ask people to report back if there was a downed tree or storm damage visible at their present location. Using the latitude/longitude provided in the user’s feedback, NYCEM would plot the data on a map and very quickly be able to see concentrations of damage and deploy emergency resources, assessment teams, and other forms of support.6
2. Evacuation Compliance – NYCEM would send repeat WEA messages to coastal areas under
an evacuation order at several intervals prior to a storm’s landfall. Using handset delivery data provided by the mobile service providers, we would be able to intelligently estimate the public’s evacuation compliance. If similar numbers of handsets continue to be reached, NYCEM would enhance efforts to improve evacuation compliance (e.g., increased outreach, repeated messaging by the Mayor and other elected officials, etc.)
NYCEM appreciates the Commission’s invitation to join the CSRIC V working group and has been in touch with the group’s Co-Chairperson as of the submission of this filing. Preservation While NYCEM does not have any data on how often users retrieve emergency messages after they have been opened, we feel that making this option available to users is very important, especially considering
5 Comments from NYC Emergency Management, dated December 29, 2015, page 10 6 For the Commission’s benefit, NYCEM is including a copy of a downed tree map that we developed based on public reports to 3-1-1 following a series of tornados in September, 2010. We would be able to produce a similar map in minutes following WEA reports.
the forthcoming message length increase. Individuals will likely revisit the longer messages to retrieve relevant information (e.g., shelter locations, commodity distribution point locations, date/time details, etc.). Since some information classified in the proposed new WEA category Emergency Government Information (e.g., instruction on filing for disaster assistance with FEMA) will be valid after the 24-hour WEA message expiration requirement and/or after the emergency condition has abated, provisions will be needed to either: (a) extend the expiration time, or (b) allow users to save the WEA message for future reference. Opt-Out NYCEM highlighted the request that the Commission seek legislative relief from Congress on the requirement that an “opt out” option is available for locally-developed WEA messages. Given the current threat environment and the fact that all emergencies begin and end locally, local emergency management needs to have the unimpeded ability to reach the general public. More details on our opinion on this matter can be found in our written response to the NPRM.7
7 Comments from NYC Emergency Management, dated December 29, 2015, page 7 at 1.
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Mod
ified
: 9/2
0/10
17:
00
$
Tree
Dam
age
Rep
orts
: Eff
ecti
ve 9
/20/
10 1
5:00
Tree
Dam
age
Rep
orts
: Eff
ecti
ve 9
/20/
10 1
5:00
Sour
ce:
NY
C D
epar
tmen
t of P
arks
and
Rec
reat
ion
FOR
OFFI
CIAL
USE
ONL
Y
Map
Info
rmat
ion
!Tr
ee d
amag
e re
port
05
1015
2.5
Mile
s
WEA
Sur
vey:
9/3
/201
3
Ana
lyzi
ng th
e Re
ach,
Effe
ctiv
enes
s
of W
irele
ss E
mer
genc
y A
lert
s (W
EA)
Back
grou
nd
•FE
MA
rece
ntly
laun
ched
the
Wire
less
Em
erge
ncy
Ale
rt (W
EA) s
yste
m.
Form
erly
kno
wn
as C
MA
S, W
EA a
re e
mer
genc
y m
essa
ges
sent
by
auth
oriz
ed g
over
nmen
t ale
rtin
g au
thor
ities
thro
ugh
a m
obile
car
rier
.
–A
lert
s in
clud
e Pr
esid
entia
l Ale
rts
duri
ng a
nat
iona
l em
erge
ncy,
AM
BER
aler
ts, e
xtre
me
wea
ther
, and
oth
er th
reat
enin
g em
erge
ncie
s in
one
’s
area
.
•O
n 9/
2/20
13, t
he N
atio
nal W
eath
er S
ervi
ce is
sued
a F
lash
Flo
od W
arni
ng
for t
he fo
llow
ing
boro
ughs
: Bro
nx, B
rook
lyn,
Man
hatt
an, a
nd Q
ueen
s.
•Ph
ones
man
ufac
ture
d af
ter
Apr
il 20
12 a
re re
quire
d to
be
able
to re
ceiv
e W
EA m
essa
ges
sent
dur
ing
emer
genc
ies
and/
or s
ever
e w
eath
er e
vent
s.
Abo
ut th
e Su
rvey
•
Thou
gh th
e se
vere
wea
ther
ale
rt w
as n
ot is
sued
by
the
City
, the
New
Yor
k Ci
ty O
ffic
e of
Em
erge
ncy
Man
agem
ent h
as th
e ca
pabi
lity
to u
se s
uch
tech
nolo
gy d
urin
g an
em
erge
ncy.
•In
an
effo
rt to
mea
sure
the
effe
ctiv
enes
s of
the
aler
t, O
EM is
sued
a s
urve
y to
OEM
sta
ff a
nd th
e ag
ency
’s tr
uste
d pa
rtne
rs, i
nclu
ding
the
New
Yor
k Ci
ty C
omm
unity
Em
erge
ncy
Resp
onse
Tea
ms
(NYC
CER
T), t
he N
ew Y
ork
City
Citi
zen
Corp
s Co
unci
l, an
d Pa
rtne
rs in
Pre
pare
dnes
s.
•A
tota
l of 4
27 s
ubje
cts
part
icip
ated
in th
e su
rvey
, sen
t on
Sept
embe
r 3
at
9:30
a.m
. Am
ong
them
, 91.
8% c
ompl
eted
the
surv
ey (3
92 p
artic
ipan
ts).
The
Resu
lts
50.1
% (2
14)
43.3
% (1
85)
6.6%
(27)
The
Resu
lts
42.4
% (1
81)
22.2
% (9
5)
15%
(64)
11%
(47)
The
Resu
lts
Top
phon
e m
odel
s m
entio
ns:
•iP
hone
(127
tim
es)
•Bl
ackB
erry
(53
times
) •
Sam
sung
(40
times
) •
Dro
id (1
8 tim
es)
•M
otor
ola
(16
times
) •
HTC
(14
times
)
The
Resu
lts
28.3
% (9
1)
34.6
% (1
11)
21.5
% (6
9)
6.5%
(21)
9% (2
9)
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n as
ked
to
prov
ide
the
inte
rsec
tion
clos
est
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em a
t the
tim
e th
e al
ert w
as s
ent
out,
393
resp
onde
d w
ith th
e fir
st
stre
et, w
hile
308
re
spon
ded
to th
e se
cond
str
eet.
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tota
l of 3
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ople
sk
ippe
d th
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ques
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Prod
uced
: 9 S
EPT
2013
17:
00So
urce
: NYC
OE
M
$R
ecei
ved
Ale
rt")
Yes
")N
o
")I d
ont k
now
Num
ber o
f rec
ords
retu
rned
by
surv
ey: 4
26
Num
ber o
f rec
ords
with
insu
ffici
ent l
ocat
ion
data
or w
ere
outs
ide
of N
YC
: 140
- o
utsi
de o
f NY
C: 6
1 -
no
boro
ugh:
40
- n
o in
ters
ectio
n: 3
9 (s
ingl
e st
reet
onl
y)
Num
ber o
f rec
ords
with
suf
ficie
nt lo
catio
n da
ta: 2
86
Tota
l suc
cess
fully
geo
code
d: 1
33
Car
rier
)Ve
rizon
Oth
er c
arrie
r(
The
Resu
lts
We
aske
d su
rvey
resp
onde
nts
to p
rovi
de a
ny a
dditi
onal
que
stio
ns, c
omm
ents
, or
sug
gest
ions
they
had
abo
ut th
ese
mes
sage
s. 9
7 of
thos
e su
rvey
ed
resp
onde
d.
–So
me
resp
onde
nts
said
they
typi
cally
rece
ive
the
aler
ts a
nd/o
r re
ceiv
ed t
he la
st W
EA,
sent
in m
id Ju
ly, b
ut n
ot th
is m
essa
ge.
–M
any
cons
titue
nts
ques
tione
d th
e di
ffer
ence
bet
wee
n W
EA a
nd N
otify
NYC
.
–So
me
sugg
este
d th
e no
tific
atio
ns s
houl
d be
app
rove
d so
that
thos
e w
ith o
lder
pho
ne
mod
els
can
rece
ive
them
in o
ther
way
s (i.
e., S
MS
text
mes
sage
s).
WEA
Sur
vey:
7/1
7/20
13
Ana
lyzi
ng th
e Re
ach
and
Effe
ctiv
enes
s
of W
irele
ss E
mer
genc
y A
lert
s (W
EA)
Back
grou
nd
•FE
MA
rece
ntly
laun
ched
the
Wire
less
Em
erge
ncy
Ale
rt (W
EA) s
yste
m.
Form
erly
kno
wn
as C
MA
S, W
EAs
are
emer
genc
y m
essa
ges
sent
by
auth
oriz
ed g
over
nmen
t ale
rtin
g au
thor
ities
thro
ugh
a m
obile
car
rier
.
–A
lert
s in
clud
e Pr
esid
entia
l Ale
rts
duri
ng a
nat
iona
l em
erge
ncy,
AM
BER
aler
ts, e
xtre
me
wea
ther
, and
oth
er th
reat
enin
g em
erge
ncie
s.
•O
n 7/
17/2
013
at 3
:51
a.m
., th
e N
atio
nal C
ente
r fo
r M
issi
ng a
nd E
xplo
ited
Child
ren
issu
ed a
n A
MBE
R A
lert
for a
chi
ld a
bduc
tion
that
occ
urre
d in
New
Yo
rk C
ity.
•M
any
mob
ile p
hone
s ar
e re
quire
d to
be
able
to re
ceiv
e W
EA m
essa
ges
sent
dur
ing
emer
genc
ies
and/
or s
ever
e w
eath
er e
vent
s.
Abo
ut th
e Su
rvey
•
Thou
gh th
e A
MBE
R al
ert w
as n
ot is
sued
by
the
City
, the
New
Yor
k Ci
ty
Off
ice
of E
mer
genc
y M
anag
emen
t (O
EM) h
as th
e ca
pabi
lity
to u
se s
uch
tech
nolo
gy d
urin
g an
em
erge
ncy.
•In
an
effo
rt to
mea
sure
the
effe
ctiv
enes
s of
the
aler
t, O
EM is
sued
a s
urve
y to
OEM
sta
ff a
nd th
e ag
ency
’s tr
uste
d pa
rtne
rs, i
nclu
ding
the
New
Yor
k Ci
ty C
omm
unity
Em
erge
ncy
Resp
onse
Tea
ms
(NYC
CER
T), t
he N
ew Y
ork
City
Citi
zen
Corp
s Co
unci
l, an
d Pa
rtne
rs in
Pre
pare
dnes
s.
•A
tota
l of 5
34 s
ubje
ct p
artic
ipat
ed in
the
surv
ey (a
s of
July
24)
, sen
t on
July
17
at 1
0:30
a.m
. Am
ong
them
, 90.
6% c
ompl
eted
the
surv
ey (4
84
part
icip
ants
).
The
Resu
lts
57.9
% (3
09)
38.6
% (2
06)
3.6%
(19)
The
Resu
lts
45.7
% (2
43)
25.2
% (1
34)
13.2
% (7
0)
9.4%
(50)
The
Resu
lts
Top
phon
e m
odel
s m
entio
ns:
•iP
hone
(185
tim
es)
•Sa
msu
ng (8
6 tim
es)
•Bl
ackB
erry
(64
times
) •
Mot
orol
a (2
2 tim
es)
•D
roid
(19
times
) •
HTC
(18
times
)
The
Resu
lts
30.0
% (1
26)
31.4
% (1
32)
22.4
% (9
4)
5.5%
(23)
10.7
% (4
5)
The
Resu
lts
Whe
n as
ked
to
prov
ide
the
inte
rsec
tion
clos
est t
o th
em a
t the
tim
e th
e al
ert
was
sen
t out
, 48
5 re
spon
ded
with
the
first
st
reet
, whi
le
388
resp
onde
d to
the
seco
nd
stre
et. A
tota
l of
49
peop
le
skip
ped
this
qu
estio
n.
The
Resu
lts
We
aske
d su
rvey
resp
onde
nts
to p
rovi
de a
ny a
dditi
onal
que
stio
ns, c
omm
ents
, or
sug
gest
ions
they
had
abo
ut th
ese
mes
sage
s. 1
47 o
f tho
se s
urve
yed
resp
onde
d.
–Th
e m
ajor
ity o
f res
pond
ents
dee
med
the
ale
rt “
unne
cess
ary”
or
“ina
ppro
pria
te”
as th
ey
wer
e as
leep
at t
hat t
ime,
and
sug
gest
ed it
be
sent
at t
imes
whe
n pe
ople
are
aw
ake.
–Th
ough
this
was
n’t s
ent b
y N
YC, m
any
aske
d if
this
WEA
was
sen
t via
Not
ify N
YC; o
ne
resp
onde
nt c
ance
lled
his
subs
crip
tion
to N
NYC
bec
ause
of t
his
mes
sage
.
–So
me
sugg
este
d th
e no
tific
atio
ns b
e ex
pand
ed to
out
er c
ount
ies
(i.e.
, Nas
sau,
Suf
folk
, W
estc
hest
er, e
tc.).