Emergency Communications

The Federal Communications Commission began an examination of the 911 calling capabilities of enterprise communications systems, which serve many office buildings, educational campuses, and hotels. Noting reports that some of these systems may not support direct 911 dialing, route 911 calls to the nearest 911 call center, or transmit accurate information on the caller’s location or call-back number, the Commission is seeking to identify the reasons why the 911 capabilities of these systems appear to be lagging. The FCC seeks input on topics including the current state of the enterprise communications systems marketplace; the public’s expectations when calling 911 from these systems; the capabilities, limitations, and costs of provisioning 911 on these systems; and related developments, such as the extent of state legislation and industry standards in this area. The FCC is also seeking comment on potential ways to ensure that 911 calling from these systems keeps pace with technological developments and public expectations, including through voluntary best practices or through the development of voluntary technical or operational standards. In addition, the FCC asks whether it should continue to refrain from adopting 911 rules for enterprise communications systems or whether updating or streamlining existing rules to better support 911 capabilities for these systems is warranted. (FCC 17-125)

Margarita Aponte and her relatives cleared the road in front of her house with two oxen Sept 24, then drove an hour from her devastated hometown in central Puerto Rico to the old telegraph building in the capital of San Juan. There, thousands of Puerto Ricans gathered for a chance at a resource nearly as precious as power and water in the wake of Hurricane Maria — communication. “It’s ringing, it’s ringing, it’s ringing!”

Aponte, a janitor, screamed as her phone connected to free Wi-Fi and her Facetime call went through to the mainland. Her eyes filled with tears as she talked with nephews, uncles, brothers and sisters in Florida and Massachusetts for the first time since Maria destroyed nearly every cellphone and fiber optic connection on this US territory of 3.4 million people. The low murmur at one of two free Wi-Fi hotspots is occasionally interrupted by the cheering of someone getting through the largely jammed network. Most spend hours frowning at their phones, unable to connect. “There’s no communication. We’re in God’s hands,” Yesenia Gomez, a kitchen worker, said as she left a message for her mother in the neighboring Dominican Republic. Dozens of other Puerto Ricans opted to pull over to the side of the road along various highways where cellphone signals were strongest.

Most Puerto Ricans are just trying to reach family members. Few have access to Wi-Fi hotspots or electrical outlets. Sustained winds of 155 mph obliterated 95 percent of Puerto Rico's wireless cell sites, leaving much of the country a deadzone. In the past week, Puerto Rico's government has received more than 110,000 outside calls, many, no doubt, from panicked relatives. Remote places like Arecibo, near the western part of Puerto Rico, were particularly hard-hit. Here, the only reliable mode of communication is radio. And amid the silence, a determined network of radio hobbyists, affectionately called "hams," is helping communities make contact.

Ham radio is an older technology, archaic by some modern standards, but highly customizable. Hobbyists must pass a test to obtain a license, so the term "amateur" is something of a misnomer. As of 2015, there were 726,275 hams in the US, and six million worldwide. These networks are remarkably resilient in bad weather, with the exception of solar storms.

For the more than five million Puerto Ricans living on the United States mainland, it was bad enough to watch news reports on Sept 19 of Hurricane Maria ripping through an island where relatives and friends lived. What made it worse was not knowing how their loved ones had fared.

With the entire power grid knocked out and with more than 95 percent of wireless cell sites out of service, communication was all but impossible on Sept 21, and an already emotional day became even harder for the Puerto Rican diaspora. Federal Communications Commission Chairman Ajit Pai said that the hurricane’s impact on the island’s communications infrastructure had been “catastrophic,” and that the commission was trying to help. Some services, like texting and a few internet messaging apps, were reported to be working, but not consistently.

For all their seeming immateriality, the internet and the cloud rely on a vast industrial infrastructure consisting of data centers linked through a sprawling network of fiber optics. The facilities are stacked with servers — boxlike computers that crunch the data for everything from hospitals, law enforcement agencies and banks to news websites, email and weather reports — that cannot be without electricity and cooling for even a fraction of a second. Yet even as millions of people lost power across Florida, and thousands of homes and businesses were flooded out in Miami and Texas, the heavy digital machinery at the heart of the internet and the cloud held firm. Though the storm disabled some cellphone towers and local connections, Jeff Eassey, a manager for Digital Realty who hunkered down in the Miami building, said the center never stopped processing and transmitting data. It lost utility power around 8:30 a.m. on Sunday, Sept. 10, but supplied its own electricity with generators.

On June 22, 2017, the Federal Communications Commission adopted a Report and Order in this docket establishing Commission procedures for administering the state opt-out process as provided under the Public Safety Spectrum Act, as well as delineating the two-prong statutory standard by which the Commission will evaluate state alternative plans. The Report and Order resolved all issues, except the standard under which the FCC would review compliance with “Prong 2” of the statutory test. The Report and Order directed the Public Safety and Homeland Security Bureau (Bureau) to issue a Public Notice establishing an expedited comment period for public comment on ex parte filings submitted by the First Responder Network Authority (FirstNet) on this standard. FCC Chairman Ajit Pai said, "With today’s Order, we take another step towards the creation of a nationwide interoperable public safety broadband network. Specifically, we finalize the technical criteria the Commission will use to evaluate plans from those states that elect to optout of the network that will be deployed by the First Responder Network Authority."

In a filing to the Federal Communications Commission, the AWARN Alliance blasted T-Mobile for disparaging its efforts to developed an advanced emergency alerting system based on the new ATSC 3.0 broadcast system. T-Mobile has called ATSC 3.0 “an inferior platform” compared to the "well-established wireless network.” On the contrary, AWARN charged, it is the wireless network that is inferior and that T-Mobile. What’s more, it said, T-Mobile and other wireless carriers are actively resisting current FCC efforts to improve their emergency alerting.

The Federal Communications Commission announced that Chairman Ajit Pai and Commissioner Mignon Clyburn will be in Florida on September 18. They will jointly inspect the damage caused by Hurricane Irma, meet with those engaged in recovery operations, and receive updates about the ongoing efforts to restore communications services.

In the wake of Hurricanes Irma and Harvey, I was pleased to see the United States Senate’s unanimous passage of the SANDY Act of 2017 last night. We know that weather-related emergencies and other disasters can occur anywhere at any time–and this legislation comes not a moment too soon. Among other things, it promises to help speed restoration of essential communications in times of disaster. Kudos to Senators Cantwell, Booker, Thune, Nelson, Rubio, Menendez, and Schumer for their leadership as well as to Congressman Frank Pallone for his previous work to secure passage of this legislation in the House.

Here at the Federal Communications Commission, the 16th anniversary of the September 11 attacks reminds us that we must do all that we can to improve emergency communications. As it happens, September is also National Preparedness Month. So there’s no better time to recognize that effective communications can be the difference between life and death—whether emergency personnel are responding to a terrorist attack, hurricane, earthquake, flood, or tornado....

But despite the value of social media in times of disaster, our experience with Hurricane Harvey also underscores the importance of not confusing social media as a substitute for calling 911. During the disaster, for example, some public safety entities warned that social media was not the best means of communicating emergency rescue requests. All of this points to the need for best practices about how to communicate effectively both about 911 outages and during 911 outages.