Updated: 2023 09 26 – added info & links on state EAS plans, added info on disabling alerts from local authorities
There is a lot of rumors, speculation and general chatter about the upcoming (Oct 4th) test of the Emergency Alert System and the Integrated Public Alert and Warning System (IPAWS). In this article I’ll explain what they are and how they are used. I’ll show you why you should include these in your situational awareness and communications intelligence (COMINT) plans.
The Integrated Public Alert and Warning System (IPAWS) is the integration of the Emergency Alert System (EAS), Wireless Emergency Alerts (WEA), the NOAA weather radio and other internet based message delivery services. These include alerting beacons, display message boards and banners, systems that can display on TV and computer screens and even voice over IP phone displays. Some Amateur Radio repeaters rebroadcast IPAWS messages, usually weather alerts based on specific type codes (see below).
The History
The original of capability to warn the public started with CONELRAD (Control of Electromagnetic Radiation) established in 1951. It utilized AM radio stations that would transmit for for 5 seconds then another station would transmit, in a round-robin, to prevent enemy bombers from using a station as a homing beacon for attacks. They system was only designed to be used in the event on an enemy attack.
Emergency Broadcast System (EBS)
In 1963 CONELRAD was replaced by the Emergency Broadcast System (EBS). This capability included the ability to override local radio programming to broadcast the emergency message. The system was also used to give local warnings for severe weather. Due to an accident that caused the codeword for a real message being sent at the same time that a test was due highlighted a number of flaws in the use of the system for a real emergency (a reason why regular tests of systems is important).
Emergency Alert System
The Emergency Alert System replaced EBS in 1997. As with the EBS it is a program regulated by the Federal Communications Commission (FCC) under Title 47 Code of Federal Regulations (CFR) Part 11.
Broadcast and TV stations have an encode-decoder. Within a geographical area there is a primary entry point (PEP) station that then retransmits the signal to other stations in their area.
Public Broadcast Stations (PBS) were primary entry points for a radio signal what would originate from the Federal Emergency Management Agency (FEMA) primary or alternate control points. The EAS introduced the use of Specific Area Message Encoding (SAME) codes, that identify a specific county. These are the same (pun) codes used by the National Weather Service and in weather radios. As with the EBS its primary purpose was to allow the President to communicate directly with the public, although local authorities utilized it by agreements with local broadcasters for weather and other local emergencies.
With the increasing use of cell phones and the internet it was realized that there were many people who would not hear EAS if not listening to a local station or with their TV on at home. This was highlighted after hurricane Katrina and President Bush signed an Executive Order directing the Security of Homeland Security to modernized the nation’s warning system.
State EAS Plans
All states have a broadcasters association group that creates the states EAS plan, a requirement under 47 CFR Part 11 §11.21 The plan typically lists the primary receiving stations(s) and how they resend the signal to other stations in the area. It lists the types of messages codes they have agreed to broadcast automatically and handling of other codes. Below are links to a few I found but you can search “your state EAS plan” and you should find it.
Integrated Public Alert and Warning System (IPAWS)
IPAWS integrated existing systems and added some additional capabilities:
- Emergency Alert System (EAS)
- Wireless Emergency Alerts (WEA, formerly known as the Commercial Mobile Alert System (CMAS)
- NOAA Weather Radio All Hazards (Non-Weather Emergency Alerts – NWEA’s)
- Integrated Public Alert & Warning System Open Platform for Emergency Networks (IPAWS-OPEN)
The open standard Common Alerting Protocol (CAP) was adopted so that messages could be sent between any system. The FCC regulates WEA’s in Title 47 CFR Part 10.
Now local, tribal, territorial, state and federal entities can become Alerting Authorities and using a compliant tool (software) can send messaged through IPAWS-OPEN to multiple different devices within a geographical area. There are over 20 vendors that offer programs that are IPAWS compliant.
The compliant, or originating tools, are the same used by agencies who provide “opt-in” signup for local alerts and messages HOWEVER when IPAWS is used they can use the SAME code or draw a polygon or “fence” so that a message only goes to those in a specific area. By using IPAWS the message goes to everyone, not just those who have opted-in to get messages.
The IPAWS information feed is made available to almost anyone. Messages can be sent to highway message boards, large display boards, banner boards, beacons, sirens (trigger), if fact anything that can receive an internet signal. It can even display on voice over IP phone displays (useful for offices). Some Amateur Radio repeaters are set up to broadcast certain IPAWS messages, usually weather related.
You can see current IPAWS messages here. This is a live feed and updates in real time (no need to refresh).
When a message is sent there is a prefix event codes (a Non-Weather Emergency Message – NWEM) that are used to indicate the nature of the message (not to be confused with the weather event codes) Broadcasters and others use the codes to determine if they are going to rebroadcast the message. All are optional except the national emergency code.
Message Lengths
When IPAWS first came out WEA messages to cell phones were limited to 90 characters (the maximum length of a text message the time). Since then, with smart phones, messages can be 360 characters. Because of this the Alerting Authorities create 2 messages, a shorter 90-character one and a 360-character one. Obviously even a 360-character message, let alone a 90-character message, is limited in what it can convey and there have been extensive studies in messaging, especially through “COVID years” in how to be concise but still convey the message. It is even more challenging where English is not someone’s native language. Right now messages are sent in English and Spanish.
IPAWS versus Opt-In Systems
Local opt-in system can have the option to send automated weather notifications. When you sign up with your local agency you can usually select the types of messages you want to receive (depending on how the system has been set up). Automated weather messages are sent regardless if the local agency decides to send a message, such as a tornado warning, with IPAWS. So if you have signed up you could get one message that is the automated and another through IPAWS.
Messages sent though the opt-in system, where you have signed up, can add options for you to acknowledge the message, or send a number of programmed responses, like “I’m safe” or “I need assistance by the emergency stairs” etc. which are useful of evacuations etc. Messages sent via IPAWS do not have this capability.
IPAWS messages that are sent to cell phones don’t go over the regular data channels that SMS (text) message go. So delivery is almost guaranteed.
IPAWS messages will also go to those visiting the area, as all cell phones in the defined geographical area get the messages. The requirements from the FCC to cell phone providers requires the provider to deliver the message within 0.1 mile of the defined polygon, not a radius of a cell tower. Thus when you travel within the polygon you would get the message, but could be 1/2mile away and not get it. This is useful for agencies when they have an incident and want people within a specific area to stay in place, evacuate or take some other specific action.
Testing
Local Alerting Authorities are required to do a monthly test. In many areas you do not see or hear see this test. The FCC requires a bi-annual test that is broadcast. The last test was supposed to occur during 2021 however it was cancelled as they didn’t want to do it through the public health COVID emergency. This year the test will be conducted on October 4th, about 2.20pm Eastern time.
Selecting / Disabling WEA Messages
In the iPhone (I don’t have an Andriod but probably the same) you can disable SOME messages (and sounds) sent from your local alerting authority.
Go into SETTINGS then NOTIFICATIONS. Scroll to the bottom of the list and you will find GOVERNMENT ALERTS.
There you can select AMBER Alerts (missing/abducted children), test and public safety alerts (generally anything sent my your local alerting authority).
You can also select Emergency Alerts and enable/disable the alert and sound.
You cannot disable the national alerts. I’m not sure if having test alerts disabled applies to the national alerts – I believe that it only applies to those sent by your local alerting authority.
Caution
By disabling these you may not get tornado, flash flood, wildland fire, evacuations and other life saving messages.
Communications Plan – Situational Awareness
Determining what, and when, to use an opt-in or IPAWS to send a message is up to each Alerting Authority. However both opt-in and IPAWS can be another tool in your situational awareness toolbox.
You should sign up for any local alerting provided by authorities where you live and work, if a different county. Search for your local county or city with the word “alerting” or “public notification” and you should find their signup page. While other social media outlets might provide you a quicker awareness unless you are monitoring them 24/7 it is easy to miss things. I’ve seen agencies post road closures or significant delays that would not otherwise be on social media, especially if you are driving. Now I will say if you are using a navigation app while driving, even if you know where you are going, they are usually pretty quick at showing delays, but they don’t post the “why.” Whereas I’ve seen agencies post such things as “highway 43 closed eastbound for accident.” This gives you time to avoid the area altogether.
As we have seen recently areas have been hit by significant events and agencies have not opted to activate warning sirens as they have always publicized they were for a tsunami warning, not a wildfire. If you go to the mid-west sirens are used for tornado warnings, while areas near a nuclear power plant use them to signify an event at the plant. It will be interesting to read the after action report as to why IPAWS wasn’t used – although I’m hearing that it was but too late as cell phone towers had already been knocked off the air.
One of the top complaints in every after action report from a real event or exercise is that there was a lack of communication, or communications failed.
So, like all other tools, this is another tool in your toolbox.