Collaborative Tools for Emergency
Response in a National Disaster
Report prepared for;
Disaster Management Office, Apia, Samoa
Prepared by: HEAL, Apia, Samoa
January20 2012
This report does not necessarily reflect the views of the Government of the Independent State of Samoa or the
Disaster Management Office of Samoa, and cannot be held liable for its contents.
1|Page
Abbreviations and Acronyms
ALERTS Automated Live Emergency Response Telecommunications System
CBDRM Community Based Disaster Risk Management
DAC Disaster Advisory Committee
DMO Disaster Management Office
DEM Act Disaster and Emergency Management Act
DRM Disaster Risk Management
DRR Disaster Risk Reduction
EPC Electrical Power Corporation
GSM Global System for Mobile Communications
MAF Ministry of Agriculture and Fisheries
MNRE Ministry of Natural Resources and Environment
MWCSD Ministry of Women, Community and Social Development
MWTI Ministry of Works, Transport and Infrastructure
NDMP National Disaster Management Plan
NEOC National Emergency Operations Centre
SFESA Samoa Fire and Emergency Service Authority
SMS Short Message Service
SRCS Samoa Red Cross Society
SWA Samoa Water Authority
VERT Volunteer Emergency Response Team
2|Page
Table of Contents
Abbreviations and Acronyms .......................................................................................................................... ii
Table of Contents ........................................................................................................................................... iii
EXECUTIVE SUMMARY ................................................................................................................................ 4
1 INTRODUCTION ..........................................................................................................................................5
2. Warning System Current Status………………………………………………………………………................. 5
2.1 Activating the Warning…………………………………………………………………………………… 5
2.1.2 Delivery Mechanisms…………………………………………………………………………………...5
2.2.1 SMS…………………………………………………………………………................ 5
2.2.2 Sirens…………………………………………………………………………………...6
2.2.3 Radio…………………………………………………………………………………… 6
2.2.4 TV………………………………………………………………………………………. 7
2.2.5 Community Action…………………………………………………………………..... 7
3. ALERTS!...................................................................................................................................................... 8
3.1 ALERTS! Warning System Components………………………………………………………………. 8
3.1.1 Mercalli Index System………………………………………….……………..…………….....9
3.1.2 Cell Broadcast Platform ……………………………………………………………………10
3.1.3 USSD platform………………………………………………………………………………...12
3.1.4 Location Specific SMS delivery……………………………………………………………...14
3.1.5 IVR Voice Platform …………………………………………...………………………………16
3.1.6Computer Warning Platform ………………………………………………………………... 17
3.1.7 Common Alert Protocol……………….……………………………………………………...19
3.2 ALERTS CONNECT System components…………………………………………………………… 20
3.2.1ALERTS CONNECT Core…………………………………………………………………... 20
3.2.2Proposed Core upgrade……………………………………………………………………... 21
3.2.3 Additional Training…………………………………………………………………………… 22
3.2.4Common Operational Datasets…………………………………………………………….. 22
3.2.5 Mobile App……………………………………………………………………………………. 24
3.2.6 Call/SMSLocation Platform……………………………………………………………….. 24
3.2.7 Field Reporting Situation Wheel……………………………………………………………. 26
3.2.8 Streetlevel Mapping…………….…………………………………………………………….27
3.2.9 997 Call overflow voice mailbox……………………………………………………………. 29
3.2.10 997 SMS management platform…………………………………………………………...29
4. Costing Summary…………………………………………………………………………………………………. 30
5. Summary…………………………………………………………………………………………………………… 31
6. About HEAL…………………………………………………………………………………………………………31
3|Page
Executive Summary
ALERTS! Is a comprehensive communication system designed to provide warning information via
phone call, SMS and Cell Broadcast as well as triggering the Sirens and Broadcasts over Radio,
Computer and TV channels. ALERTS also links to ALERTS CONNECT, the emergency
management system developed for the NEOC to record and coordinate emergency response.
Developing ALERTS! in Samoa was beneficial,as all the disadvantages of a developing nation
exist for disaster warning and management, (low resource base, low skill, low staff numbers). Yet
Samoa also has well developed infrastructure to allow for development and testing of the concepts
for the system without adding additional environmental factors.
Initially endorsed by Cabinet in April 2010, ALERTS! has continued to expand its capabilities in
emergency warning delivery and interactive communication.
The principal behind ALERTS! has spent the last two years researching, compiling,developing and
negotiating the necessary services for ALERTS! to become an effective warning platform for
developing nations. The full system is now available for little more than the initial quotes that were
being provided for a typical Cell Broadcast implementation.
ALERTS! CONNECT has already been recognized as groundbreaking in terms of cost and
services provided for developing nations. A host of humanitarian agenciesare following its
development with interest (SOPAC, UN-SPIDER, Stand By Task Force, Harvard Humanitarian
Initiative, Secure World Foundation,UNOCHA, GDACS, US State Department, USGS,
DigitalGlobe, Google, GISCorps, EuropeanCommission Joint Research Center (JRC).
COSTING SUMMARY (Includes 5 year maintenance and support fees)
ALERTS! Warning system components.
Mercalli Index System
Reduces time for a warning to be broadcast, enhances accuracy.
Cell Broadcast Platform
The most effective method of delivering threat detail direct to the public
USSD System
Real time 2 way link to people who can select from menu of help
Location specific SMS delivery System
Useful for targeting small populations of mobile users to deliver local warning
IVR Voice Platform
Real Time verified delivery of warning and interaction with key decision makers
Computer Warning Platform
Provides instant screen warning to all connected computers
Standardisation of messaging using Common Alert Protocol (CAP)
Cost USD
$9,000
$330,000
$87,500
$90,000
$290,000
$34,000
$11,000
ALERTS CONNECT
Upgrade to automated report management
Mobile (Ushahidi app) for Blackberry
Additional Training budget
Additional Common Operational Database sets budget
Field Reporting Situation Wheel
Streetlevel Mapping Database
Call/SMS Location Platform
997 Call overflow voice mailbox
997 SMS management platform
$17,500
$6,500
$17,500
$11,000
$6,500
$170,000
$120,000
$20,000
$8,500
TOTAL
$1,229,000
4|Page
Introduction
Since the Samoan Tsunami in 2009 the global level of activity for disaster notification has been
alarming in the past two years. Resulting from Samoan Tsunami, reinforced by Chile Tsunami and
culminating in the Japan Tsunami in March, awareness of the danger from major Tsunami’s is at
an all-time high.
The additional impact of Cyclone Yasi in Australia, Christchurch’s devastating earthquakes,
volcanic eruptions in Chile and Mexico, record flooding, record breaking tornadoes and hurricanes
in the USA, natural disaster awareness is also at a high.
Samoa is a country prone to several major natural hazards so the current focus is on urgent
building of capacity for Disaster Management. A serious impact from a cyclone is now imminently
expected with each season that arrives.
There has been a large amount of work done in the direction of disaster response with the
formation of the VERT, the bolstering of the Emergency Services, community education and the
current development of the NEOC and its ALERTS! communication systems. These solutions are
working to enhance the speed and effectiveness of delivery of warning information to the public.
2. Warning System Current Status
The current warning system has inherent delays, both in activation and delivery. The activation
side has excellent analytical services provided by the Meteorology Service. The weakness is in
being able to communicate the information rapidly to the delivery systems.
The delivery systems for Samoa are built from patchwork efforts from various involved parties to
create a rudimentary system. While basic in its design, it does show ingenuity by the parties
contributing to be able to develop a system with very little to no funding. However, there are
significant weaknesses in the system with time being lost because the system is not automated
end to end. And time is the most critical element to survival in some hazards.
2.1 Activating the Warning
The most time critical assessment to activate a warning is that of an earthquake and possibly
Tsunami. In this case the Meteorology Office tasks four key people to make a determination on
threat level by guessing the strength of the earthquake. As this is a subjective determination there
are four “experiences” of the earthquake to combine and come up with a final analysis. They use a
process called The Mercalli Scale Index.
The key issue for this analysis is communication with the team being able to discuss their
experiences with each other. As there is no set time for when an earthquake could occur, this
poses some difficulties for each team member being available at any time. It is vital that they can
reach each other in order to make as accurate an assessment as possible as the entire country of
Samoa relies on their assessment.
It is strategically important to find a way to link the team together at any time to assist in their
assessment and generate the warning as quickly and accurately as possible
2.2 Delivery Mechanisms
2.2.1 SMS
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SMS or Short Message Service is a message delivery system that operates on Digital networks,
usually cellular. It comprises a short text message limited in characters, usually 160, and delivered
to specific phone numbers.
As a majority of the population now has a mobile phone, SMS is a critical mass system of
information delivery. The messages are sent to a specific database of numbers. This needs to be
constantly updated when people lose or change their phones and numbers.
The strength of SMS is that it can provide detail on what is happening and advise a response
directly to key individuals that have a capacity to mobilise the general population.
The weaknesses are that sms cansuffer in delivery at the most critical time, its not location
specific, anyone can send one and the delivery is relatively slow compared to other services.
When people are trying to communicate en mass via their mobiles, they overwhelm the cellular
and landline networks. This in turn affects all commercial messaging, including sms, so any
messages are delayed.
With a changing situation as a disaster unfolds this can cause significant confusion as to what the
situation currently is. There have been instances of multiple messages being sent out with
different information but being received at the same time. So it is difficult to know which is the
correct message for that particular time.
Standard SMS delivery also does not determine the location of a phone. A receiver may not be in
the critical impact zone of a pending disaster yet would receive a message but not be able to
immediately contribute to the wellbeing of their local population.
Additionally, anyone can send an SMS. People have been panicked by prank SMS’s which they
weren’t sure was real but passed on to their friends and family anyway. The receiving person then
sees a message from someone they know and accepts it as genuine, and so forth.
It is essential to have a timely message delivery system that can provide accurate and
authoritative information without being impacted by an overloaded Cellular and landline network.
2.2.2 Sirens
The effectiveness of sirens to warn of impending danger has been well documented by the
success of the Sinalei siren during the 2009 Tsunami.
Activation of the siren saved the lives of almost everybody within its range when the Tsunami was
rushing in.
The New Zealand Government has provided initial funding of NZ$150,000 to Samoa (as part of a
multi-million dollar project for 5 pacific nations) to begin development of a siren system. This is
currently underway.
2.2.3 Radio
Radio is a lifeline for communication to Samoa as almost all families have a radio even if they do
not have TV or a phone. It is one of the most basic forms of communication available during a
disaster.
Radio 2AP on AM frequency is the official station for emergency warnings before, during and after
natural disasters. The station works in a close relationship with the MNRE (specifically
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Meteorology and DMO) to ensure live and prerecorded messages are broadcast. Radio 2AP is the
most wide ranging radio station therefore most suited to delivery of official messages.
Radio Polynesia Ltd.is aprivately owned station that operates four separate Radio Stations from its
Savalalo Headquarters in Apia, Samoa. The FM stations tend to be listened to by younger people
so it is important that they also can receive information pertaining to an event or impending
danger.
The biggest problem with radio delivery is in the initial setup of the emergency warning as this is a
manual process. Time delays can occur when people are not onsite to set the systems up for
message delivery.
An automated system would allow immediate transmission of emergency messages thus saving
considerable potential delay in getting the information out to the populace. This is a simple IP
interface connecting a voice message delivery controller directly to the radio broadcasting
equipment.
2.2.4 TV
Like Radio, TV is an important part of the current information delivery to the general population.
There are several stations and they cover a good part of the country.
It suffers the same initial delays in being able to get the message out in that it’s a manual process
to set up the systems for delivery. This can also be easily automated to allow for immediate
message delivery via a scrolling device providing a message across the screen.
2.2.5 Community Action
One of the key issues surrounding the response to large earthquakes has been the lack of time to
get an authoritative warning to the people most directly affected. This is a combination of getting
authoritative information processed in time as well as being able to deliver that information quickly.
With the current systems this is not possible.
The general consensus is that people need to take their own initiative during an event.
The process operates much like the Meteorology Team assessing earthquakes via the Mercalli
Index. If a person feels an earthquake they need to decide if they feel it was enough to be a threat
of Tsunami to mobilise to safety.
Community based efforts are currently being implemented to improve village awareness to
potential threats so they can be self-sufficient in their response to a threat.
The inherent difficulties are that people not used to feeling earthquakes are unsure about whether
one is threatening or not. People also don’t like to look silly or waste time on false alarms.
That period of indecision could be all it takes between being safe and not being safe. This
magnifies when a key decision maker is hesitant while the populace he is responsible for waits.
But community based awareness is the first line of defense against a threat and timely official
announcements can only enhance the response and assist decision making.
3. ALERTS!
ALERTS! Is a comprehensive warning system designed to rapidly provide information to key
public members via Phone call, Sms and Cell Broadcast as well as triggering the Sirens and
Broadcasts over Radio, Computer and TV channels. ALERTS also links to ALERTS CONNECT,
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the emergency management system developed for the NEOC to record and coordinate
emergency response.
ALERTS!stands for “Automated Live Emergency Response Telecommunications System”
ALERTS! is being developed
by HEAL in Samoa in
conjunction with a number of
specialized
suppliers
of
telecommunications services.
HEAL is a communications
and new media consultancy.
The background of ALERTS!
came from discussions in
March 2009, about a concept
for a
tsunami warning
system. Additional motivation
to develop the system was
borne from the September 29
Tsunami and following Tsunami scare on Oct 7 2009.
The Tsunami Warning System utilizes state of the art technology from Stanford University, USA
and allows an accurate determination of the threat level within 30 seconds. This compares to
existing warning technology available via PTWC of about 5 minutes. The system is still in
experimental phase, but it did raise enough interest in the warning delivery methods of the system
to allow for approval for development.
In Thursday 20 January 2011, the ALERTS CONNECT information management system was
introduced as a working demonstration. On Friday 21 January a request came from the Disaster
Management Office to activate the system in order to manage information coming from a possible
strike from Cyclone Wilma which was heading towards Samoa.
Within an hour the system was enabled to a full operating system. People were introduced and
trained on the system within two hours and successfully managed to monitor reports coming in
from around Samoa and contributed to the management of the crisis.
The simplicity of the system combined with its capability to manage large volumes of data,
convinced the Disaster Management Office to adopt the system. ALERTS CONNECT software is
also support by a global group of volunteers who are constantly enhancing its capabilities.
3.1 ALERTS! Warning System components
ALERTS! is a warning delivery system made up of a number of connected delivery modules. The
system works by utilizing a number of the modules to get a message out as there is no one
failsafe method for delivering a warning. Each method has its strengths and weaknesses
These modules include delivery of warning messages via automated voice call via landline phone,
cell phone call, sms messages to cell phones, message delivery via Cell Broadcast, signals via TV
and radio channels, computer screens and alarm systems.
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3.1.1 Mercalli Index System
When an earthquake occurs a team of 4
specialists at the Samoa Met Office get
together to determine the level of warning
that gets sent out by what they felt. The
biggest concern about the method is that the
team has to corroborate to determine an
alert.
With a disaster striking at any time it was
important to find a way that allowed the team
to meet up no matter where they were at the time.
The ALERTS! Mercalli index app provides the key decisionmaking teamat the Meteorology
Office, a way that allows access from any location (e.g. away from the office) to enable rapid and
informed decisions that allow an emergency message to be broadcast in the fastest possible time.
Only the team can access the system via their mobile smartphones and join into a group decision
about what level of threat is to be advised to key responders and the public.The app advises each
of the users who is connected and thus able to participate in the decision making process. They
can also send messages and talk to each other via the platform and discuss their decisions.
The Mercalli Index App will additionally increase accuracy of the resulting warning message which
is critical for the Advisory Agencies in keeping credibility with the public.
If the Mercalli app is compromised by network limitation a back-up system is being devised to
allow the team to call into a conference call and discuss the options for selecting the warning level
by touch tone (within the Voice IVR platform).The Mercalli app was created and designed by
HEAL.
Cost: USD$9000
Timeline.
Activity
0
Month
1
2
Deposit
Software
development
Testing
Acceptance
Implementation
3.1.2Cell Broadcast Platform
Cell Broadcast is not a new service. In fact, it has
resided in the GSM network since GSM was
9|Page
developed but was never considered for emergency services until recently. Now it is the most
discussed option of the cellular emergency tools available.as a way of getting detailed emergency
information out to the public instantly.
Cell Broadcast operates in a manner similar to SMS in that it provides a delivery method of text
messaging to phones.Yet the advantages over sms are significant. These being;
1. Immunity to network congestion. During network congestion phone calls are blocked,
SMS messages are delayed but Cell Broadcast is not affected at all which is why it is
critical.
2. Speed of delivery!The networksin Samoa produce about
1600 SMS messages a minute or 270 every 10 seconds.
Cell Broadcast can reach allenabled phones within Samoa
in 10 seconds.
3. Ability to provide warnings by location.Cell Broadcast
can target specific locations and reach phones within that
location.
4. Messages come only from trusted sources (unlike sms
where anyone can start panic via a prank message) and
there are multiple channels available that can be used to target specific groups.
While Cell Broadcast resides in the GSM system, it requires a control server (CBE) to manage the
formulation and delivery location of the messages. This control system plugs into the main
telecommunications network to send the messages via the cellular system.
Cell Broadcast platform will provide a
method of delivering large volumes of
real time delivery messages in time of
Disaster.
Virtually all GSM phones have the
capability to receive Cell Broadcast
but do need to have the service
activated in the phones.
A proposal to assist the activation of
GSM phones of 4000 key people in
Samoa
is
linked
with
the
implementation of the Cell Broadcast
service.
This will be done in cooperation with the networks. Each phone needs to have its cell broadcast
feature set up in order for the phone to be able to receive the messages. Much like a radio needs
to be tuned into a certain station.
Cell Broadcast has 65000 “stations” available for use. Each station is able to carry a different
message to the phone. These can be for sending messages in various languages or sending to
specific groups only (e.g. fire volunteers in a certain area).
Why is Cell Broadcast critical?


It works when other services don’t due to congestion.
Fastest way to get a warning out.
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


Only from authorised sources
Can target a specific location
Multiple channels available for language options or specific groups
Pricing breakdown
Sr. No
Servers
Unit $
Total
2
$11,000
$22,000
24U Rack with mounted monitor,
keyboard and mouse
1
$1,000
$1,000
UPS
Professional Rack/Tower LCD
2250W 2U Line Interactive UPS
2
$2,500
$5,000
License
OS/Database and software
Licenses
1
Travel/Accom/Per diem
40
$1,500
$60,000
Annual Service Fee
5
$18,000
$90,000
Project Management Fee
1
$10,000
$10,000
4000
$10.50
$42,000
Item
Description
Qty
Server
Rack Mount Telecommunications
server with redundancy
Rack
Accessories
Software
$100,000 $100,000
Professional Services
Phone setup fee
USD
$330,000
Tala
$742,500
Timeline
The project is to be customized to integrate into the ALERTS! system and requires working in with
other telecommunications modules to be fully compliant. The programming is done by the supplier
in close liaison with HEAL. Estimated timeline from order to operation is 6 months from funding.
Activity
Deposit
Purchase of
Components
Platform
Customisation and
Installation
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0
1
2
Month
3
4
5
6
Web Interface
Testing
Acceptance
Training and Launch
Sustainability
Cost:Almost all of the ALERTS! modules are beneficial to a number of other agencies. There
exists an opportunity to sell access to the services to the other agencies thereby generating
revenue to support ongoing license fees and support.
For example; Ministry of Health can put out a nationwide cell broadcast for anyone displaying
symptoms of Influenza in an H5N1 outbreak, Police can send out an alert to specific locations
during a car chase in progress, Fire dept. can alert to a hazardous chemical leak to people
downwind.
Skill: The system requires a degree of skill to operate which creates a risk of skilled staff being
unavailable through attrition. It is important to have regular training sessions for a select group to
ensure someone is able to operate the system at all times. Two training sessions a year are built
into the annual fees.
3.1.3 USSD Platform
USSD (Unstructured Supplementary Service Data) is not a new service. It has
resided in the GSM network since GSM was developed. USSD is supported by
every GSM handset. No additional application, phone menu or sim menu is
needed for USSD to function.
USSD is a session oriented technology and hence it supports menus and
transactions. Contrasting with SMS, it offers real time connection during a
session. The connection remains open, allowing a two-way exchange of a
sequence of data. It is generally associated with real-time or instant messaging
services.
All USSD services are accessed by dialing numbers between * and #. The
handset recognizes those numbers and forwards the request to the USSD server
instead of initializing a normal call or a data call. A common use of USSD is
when a person checks their prepay balance. The vendor's "check balance"
application hides the details of the USSD protocol from the user
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A USSD message can be up to 182 alphanumeric characters in length. USSD would be used in an
emergency to gather more information about people in need. A message would be sent out via
sms, or preferably via cell broadcast, to the location asking people if they need help. If they need
help then they dial *997# (or similar) to initiate the USSD session. Upon initiation, on their phone
screen will come a menu that they can select options from. The responses from USSD sessions
can plug straight into ALERTS CONNECT to create a report. This provides an efficient method of
gathering information from the field of interest.
Why USSD?




Works on every handset
Real time link, no delayed messaging
Easiest method of obtaining structured requests for help
Requests can easily be converted to reports in ALERTS CONNECT
Cost
Sr. No
Qty
Unit $
Total
Rack Mount Telecommunications
server with redundancy
2
$6,000
$12,000
Rack
Fold out mounted monitor, keyboard
and mouse
1
$1,000
$1,000
License
OS/Database and software Licenses
1
$55,000
$55,000
Project Management Fee
1
$4,500
$4,500
Annual Service Fee
5
$3,000
$15,000
Item
Description
Processor
Servers
Accessories
Software
Professional Services
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USD
$87,500
Tala
$196,875
Timeline
Activity
0
1
Month
2
3
4
Deposit
Purchase of
Components
Platform Customisation
and Installation
Web Interface
development
Testing
Acceptance
Training and Launch
Sustainability
Cost: There is value in the system for other agencies. For example; Ministry of Health can use
USSD to query a target area on disease prevalence, Police could use USSD for asking a
community what services are most important to them. Any survey or multi choice questionnaire
can be run via USSD.
Skill: Operating the USSD platform is easier than Cell Broadcast or Geo-targeted SMS and
requires little in the way of skill levels other than knowing how to structure the session. Training is
supplied for two years on the system.
3.1.4 Location specific SMS delivery (GEO-targeted SMS)
Compared to Cell Broadcast, SMS is slow and usually you cannot tell where a person is at the
time they receive an SMS. Cell Broadcast is an immediate location based service that reaches all
phones within the target zone. But that is only if they are set up to receive the message. Cell
Broadcast is also one way messaging (like a radio) therefore delivery of an emergency message
cannot be confirmed.
HEAL has been working on a new concept
where SMS can be sent to all phones in a
specific area.
Cell phones in a specific location are instantly
identified via their connection to a target cell
tower.
If there is a localised disaster, (e.g. major gas
leak) the location is pinpointed then a query is sent to the closest cell towersto identify the phones
connected to the towers. Those phones are then warned to evacuate the area.
This service is useful in small targeted areas with less than ~1000 phones as this will still allow a
message to be sent in under a minute.
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A number list is instantly generated then a warning SMS is created and sent out to the specific list.
The list does not reveal user identities just the live numbers connected to the tower.
Why Geo-targeted SMS?




Location specific within a cell site zone
No change to the cell phone set up so reaches all phones in that area
Rapid delivery to a small volume of cell phones
Can provide message delivery confirmation
Costing
Sr. No
Unit $
Total
1
$11,000
$11,000
Fold out mounted monitor,
keyboard and mouse
1
$1,000
$1,000
OS/Database and software
Licenses
1
$52,000
$52,000
Project Management Fee
1
$6,000
$6,000
Annual Service Fee
5
$4,000
$20,000
Item
Description
Qty
Processor
Rack Mount
Telecommunications server
Rack
License
Servers
Accessories
Software
Professional Services
USD
$90,000
Tala
$202,500
Timeline
Activity
Deposit
Purchase of Components
Platform Customisation and
Installation
Web Interface development
Testing
Acceptance
Training and Launch
Sustainability
15 | P a g e
0
1
Month
2
3
4
Cost: Geo-SMS is a new service and is constantly evolving. The cost includes annual service fees
which include any upgrades.
There is value in the system for other agencies. For example;



Ministry of Health can target a specific area to advise for a Dengue outbreak.
Fire department can advise on a fire that’s spreading,
Police can warn of a suspect in a certain area and watch for anyone suspicious.
Skill: Operating the Geo-SMS platform requires similar skills to the Cell Broadcast Platform..Biannual training is included in the annual fees
3.1.5 IVR Voice Platform
The ALERTS! Calling Platform is regarded as a vital interactive voice based link to all key decision
makers in ensuring they receive the warning
messages.
1. Able to simultaneously make 500 calls
at once to decision makers within the
community, the calling platform delivers
an automated voice message that
decision makers can interact with.
This enables the system to monitor who is
getting the information and who is not.
2. System can be restricted to provide the
message only to the designated person
regardless of who answers the phone.
3. Can determine if the phone is answered
and the message has been understood.
4. The response is recorded in real time to
ensure the system knows who has
received the message and what other
options might be required to ensure
delivery.
5. The message can be delivered in
English or Samoan.
ALERTS! Calling platform is different to ALERTS! Cell Broadcast in that it provides two way
communication in real time and can verify delivery of the emergency message to key personnel.
The Calling platform has a vital role in communicating information rapidly for decision making but
also controlling who has access to the information..
Why IVR Voice?



Guarantees message delivery
Directly interactive with key recipient in real time
Instant delivery
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Cost:
Sr. No
Unit $
Total
2
$11,000
$22,000
1
$1,000
$1,000
2
$2,500
$5,000
1
$75,000
$75,000
Travel/Accom/Per diem
30
$1,800
$54,000
Annual Service Fee
5
$16,000
$80,000
Project Management Fee
1
$10,000
$10,000
4000
$10.75
$43,000
Item
Description
Qty
Server
Rack Mount Telecommunications
server with redundancy
Servers
Accessories
Rack
UPS
Fold out mounted monitor, keyboard
and mouse
Professional Rack/Tower LCD
2250W 2U Line Interactive UPS
Software
License OS/Database and software Licenses
Professional Services
Key Influencer Phone setup fee
USD
$290,000
Tala
$652,500
Timeline
Activity
Deposit
Purchase of Components
IVR Platform Customisation
and Installation
Web Interface development
Testing
Acceptance
Training and Launch
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0
1
Month
2
4
5
Sustainability
Cost: IVR Voice requires ongoing development for new menus and development of the voice
platform and this is costed in a 5 year service plan. The system can be utilized by other Ministries
for emergency warnings, as well as in phone surveys
Skill: The system requires a degree of skill to operate which creates a risk of skilled staff being
unavailable through attrition. It is important to have regular training sessions for a select group to
ensure someone is able to operate the system at all times. Two training sessions a year are built
into the annual fees.
3.1.6 ALERTS! Computer Warning Platform
The ALERTS! Computer warning Platform provides a
delivery path to every (registered) computer.
During an emergency broadcast an emergency message will
appear on the screen of the computer warning the user of the
threat.
The message can be specific to a group of users (e.g. all
computers in one building warning of a fire, or a specific
Government Department) or blanket all computers in Samoa
that are connected to the Platform.
The networks must be enabled to allow for the signal to access the application on the computer
The program is delivered via email and opened by the user. Instructions for installing the program
are provided in the email. The IT departments may be required to allow the program to be
installed.
Upon installation the program requests the email address of the user and it sends an email back to
the server to verify installation.
The server then regularly displays whether the computer is connected to the system. It resides on
the computerin the background much like an instant messenger program.
Once an alert is issued this is transmitted to the program which then activates and takes over the
computer screen.
The instructions on what to do are displayed on the screen. The display stays active until the
warning is cancelled or updated.
Why Computer Warning?
 Provides intrusive alert to anyone busy working (connected computer)
 Works where phones or sirens may not be heard
 Visual warnings are faster to understand than text based warnings.
Cost:USD$34,000
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Timeline:
Month
Activity
0
1
2
3
Deposit
Software development
Testing
Acceptance
Implementation
Sustainability:
Cost: The Computer Warning Platform requires no ongoing development other than server
maintenance. There is value in the system for other agencies in related warnings.
Skill: Operating the platform is relatively easy and requires little in the way of skill levels other than
knowing how to structure the message with Common Alert Protocol (CAP).
3.2.8 Common Alert Protocol (CAP)
Common Alert Protocol is a set of structured commands based on a universal language that
allows any elements of a warning system to operate regardless of their underlying compatibility.
It has been recommended that ALERTS! Adopt CAP as the communicating standard. This
relatively easy to do but does require programming time, consultation and development.
Cost: USD$11,000
Sustainability: Once in place, Common Alert Protocol is self-sustaining
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3.2 ALERTS CONNECT System Components
3.2.1 ALERTS CONNECT Core
ALERTS CONNECT is the Disaster Information Management System designed to allow
assistance from people all
around the globe (termed
crowdsourcing), to help with
processing data streams into
usable
information.
This
creates a scalable platform to
respond to any size of
disaster in Samoa.
This style of system is
necessary in a small country,
like Samoa, with limited staff,
resources and funds, to
respond to a major scale
disaster, but still maintain the
sovereignty of control during
the response.
ALERTS CONNECT is based on software that is increasingly being used in monitoring disaster
situations. Initially proving its capability in the Haiti Earthquake disaster, the software platform
(Ushahidi) is now seen as the standard for crowd sourced response to disaster monitoring and
humanitarian action around the world.
In terms of the effectiveness of crowdsourcing, the most poignant example to date was a
competition undertaken by DARPA,(Defense Advanced Research Projects Agency)to find ten red
weather balloons secretly located (but easy to spot) across the United States of America.
The objective of the competition was to explore the roles the Internet and social networking play in
the timely communication, crowdsourcing, and urgent mobilization required to solve broad-scope,
time-critical problems.
The finding of all ten eight foot red balloons, a feat normally
considered impossible via traditional communication means,
was achieved in just under 7 hours, a significant testimony to
the power of new media, utilizing the “crowd” and its potential
impact in time critical situations like disasters.
Many other useful applications where information recording is required have been implemented as
well. Some 15,000 uses of the platform have been implemented including, vote monitoring, crime
tracking, and political unrest.
The most notable events which have involved United Nations participation have been: Haiti
Earthquake, Pakistan Floods, Libya Uprising, Syria Uprising.
While ALERTS CONNECT platform is relatively new to utilization for disaster management,
UNOCHA have investigated the system and fully supportive of the development citing Samoa as
being at the forefront of this emerging technology.
Characteristics of ALERTS CONNECT are:
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1. Visually based. Information is able to be comprehended at a glance. This is a map centric
system which allows a rapid and easily understood visual analysis of the unfolding situation.
2. Easy to use. The barrier to entry for using the system is very low. A user can be introduced
to the system and begin contributing in a basic fashion within 10 minutes. While using they
can also learn additional elements of the system to become more adept. This means that
anyone can become proficient in using the system This compares to other management
systems which take many weeks to understand and a user becomes very specialized and
therefore critical to its operation.
3. Scalable. The system can handle 1 or 1000 users contributing to the operation. Each
person can sign in from anywhere to assist.
4. Crowdsourcing capability. The system allows for crowdsourcing, a new concept that is
being embraced by the United Nations in their quest to find more efficient ways to respond
and assist in a time of emergency. People from all walks of life can contribute their time to
the running of the system. People are allocated specific tasks (microtasking) within the
system and the combination of the “many hands” and small roles make for rapid
assimilation of data into usable information.
5. Real Time. Information is rapidly delivered via the system to responders and decision
makers in real time
All Ministries as well as responding agencies, can link in and provide essential information which is
mapped. This enables therapid understanding of the situation and therefore what response is
required in real time.
Any Aid agency or ministry (local and foreign) can be connectedto be apprised of the situation
immediately and therefore be able to determine their response efforts.
3.2.2 Proposed Core Upgrade
Upgrade to automated report management via dynamic mapping
ALERTS CONNECT operates with manual input to
maintain reports.
Every time there is a change to the status of each
report it must be manually handled and updated.
This means each report needs to be handled every
time there is a change of status even if it is
unimportant. This takes up a lot of time on reports that
have no critical importance.
As the original software was designed for monitoring
situations and not actively managing them, the status of
the reports is also not instantly identifiable on the map.
This requires a customization that currently does not
exist via the Ushahidi software.
A new design was presented at Geneva to develop a
more automated system for emergency management.
This would allow the users to instantly see the status of a
report by its colour on the map.
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A red dot indicates a verified report, an orange dot indicates a report that a responder is taking
action, and a green dot to indicate the situation has
been resolved.
As the responders report any updates to the status of
the report into the system, it automatically upgrades
itself on the screen
The system would also reveal the reports needing
attention by flashing to indicate they are falling outside
agreed parameters set at the time the report was
made.
The management team can then intervene and
determine what is required to assist the situation to resolution.
There is already a lot of activity in a disaster so minimizing handling is an essential improvement
at the management end.
This upgrade is estimated to improve report handling efficiency up to 80% based on the 80:20 rule
(80% of the reports will take up 20% of the time.). These reports could basically look after
themselves in the system freeing up the needed resource to focus on the difficult 20% of reports.
Cost: USD$17,500 has been put towards the development of the upgrade.
Timeline: Development is expected to take place within 2012
Sustainability: Ushahidi is responsible for the development of the software and have already
indicated their interest in developing this concept. There is also a global network of volunteers who
assist in developing new tools for Ushahidi which can be introduced to ALERTS CONNECT. The
software also links into the Standby Volunteer Taskforce, which can provide training and guidance
via the internet.
3.2.3
Additional Training
The benefit of increasing the number of people able to use ALERTS CONNECT was clearly seen
during the cyclone exercise on December 3rd 2011. A small group of trained personnel
successfully interacted with the volunteer community to handle over 700 incoming requests for
assistance.
The resulting discussion highlighted the need for continuing development of the base of people
able to quickly sit down at the system and assist in handling the incoming help requests.
Discussions with the Telecommunications companies highlighted an opportunity to train the
operators on ALERTS CONNECT to enable them to load reports from incoming emergency calls.
A budget has been included to allow for additional training of volunteers for the 2012 year.
Cost: USD$17,500
3.2.4Common Operational Datasets
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ALERTS CONNECT Database is built up from a series of datasets that are relevant to Samoa. In
a disaster these are called upon to provide baseline data so that the reporting Ministries can
assess their situation and contribute to developing the real time situation report.
The datasets are made into spreadsheets and then each Ministry is responsible for its own
spreadsheet of data in online and (backup) offline versions.
These are all linked back to ALERTS CONNECT which then extracts summary data from each
spreadsheet and compiles it into the real time situation report. Each spreadsheet is the exclusive
domain of the Ministry responsible and the NEOC. Any other party wanting access to a particular
spreadsheet must gain permission from the governing Ministry
It is imperative that these spreadsheets are completed with the most up to date information
available to allow accurate and reliable situation reports.
These reports cover status of the population (missing, injured, deceased, displaced), essential
infrastructure (roads, power, water, buildings etc.),social infrastructure (money, water, food, and
amenities), impacts on crops and livestock, emergency facilities and assets.
Timeline:A number of datasets are still being developed and a budget for this has been set aside
to continue the collection.
Cost: USD$11,000
Sustainability: The datasets are a base requirement to the efficient running of the management
system during a disaster. It is the mandate of every Ministry to keep its information up to date.
However, this does not necessarily get followed which is why many crucial datasets are missing.
Once the datasets arecompiled it is up to the relevant Ministries to keep their spreadsheets up to
date. DMO will be regularly monitoring the status of the sheets and chase the lagging ones.
23 | P a g e
3.2.5 Mobile App
ALERTS CONNECT Mobile is seen as a vital extension of ALERTS
CONNECT. Responders will need to be in the field yet they will need access
to essential information about the unfolding emergency.
ALERTS CONNECT Mobile is being developed for iPhone and Android in
conjunction with Ushahidi developers. Blackberry is not on the priority list yet
this is the most prevalent smartphone platform in the South Pacific.
Cost: USD$6,500
Timeline: Two months from funding
Sustainability: Once the software is developed, it can be shared with the global community in
return for ongoing upgrades and maintenance.
3.2.6 Call /SMS Location Platform
The Call/SMS Location Platform allows rapid mapping
locating within seconds of an emergency call (and
possibly sms) allowing faster dispatch and delivery of
response to those in need.
This service can be operated at the NEOC and
interconnects with the carriers to cross reference cellular
network data with the user signal.
On landlines it should be easier to locate considering the
landline phone is a fixed location system. However this
was never properly recorded and discussions are
underway with Bluesky to find the best solution.
Such systems exist in many developed nations but have traditionally been prohibitively expensive
for developing nations.
Advances in location technology now means such a service is well within range of affordability and
recent uses of this technology, as seen in Haiti, are showing the versatility of having real time
location ID capability for life saving situations.
Why Call /SMS Location?




Specific for finding where emergency call is coming from
Faster arrival of life saving services
Verification of caller location and ID (database not 100% complete)
Able to assist with SMS messages as well as calls
24 | P a g e
Cost:
Sr. No
Qty
Unit $
Total
Rack Mount Telecommunications
server with redundancy
2
$6,000
$12,000
Rack
Fold out mounted monitor,
keyboard and mouse
1
$1,000
$1,000
License
OS/Database and software
Licenses
1
$37,000
$37,000
Travel/Accom./Per diem
20
$1,000
$20,000
Project Management Fee
Annual service fee
1
5
USD
Tala
$5,000
$9,000
$5,000
$45,000
$120,000
$270,000
Item
Description
Processor
Servers
Accessories
Software
Professional Services
Timeline
Activity
0
1
Month
2
3
4
Deposit
Purchase of Components
Platform Customisation and
Installation
Web Interface development
Testing
Acceptance
Training and Launch
Sustainability: This service has immediate benefit to any emergency service response. Fire,
Police, Ambulance (NHS) and VERTS would benefit considerably. Therefore they will be
encouraged to participate in the use and cost of the service once the 5 year service agreement
expires
.
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3.2.7 Field Reporting Situation Wheel
This is a low tech solution for when the networks are
challenged for communications and easy entry of a report
into sms.
A card wheel is provided in the field. The three wheels
correspond to:



Outer wheel - Location,
Middle wheel - Situation
Inner wheel - Priority.
As each entry on the left side of the wheel lines up inside
the viewing window it has a corresponding 3 number code
which is unique to that entry. , so you can have a large
number of different types of wheels
in the field and still know which
version the report is coming from.
For example; there might be a
wheel for more specific medical
data. Each field will have its own
code specific to that wheel
To send in a report you dial the
wheel to your present location,
select
the
situation
and
priority.Then type in the revealed 9
digit number (3 * 3 codes) into an
SMS. The SMS is sent into the
NEOC and automatically translated
back into a report.
A confirmation message is sent back detailing the long version of the message so the sender can
see it’s correct.
Why?



The best way of generating structured reports when technology fails
Anybody can operate
Unlimited number of wheels able to be developed for specific purposes
Cost: USD$6.500
Timeline:The wheels can be developed instantly
Sustainability: The wheels are easily set up after initial learning curve.
Wheels can be used by anyone to assist in reporting situations in the field, when more advanced
methods fail.
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3.2.8Street level Mapping
ALERTS! Streetlevel is, as it sounds, a literal view of the buildings and surrounds at streetlevel.
Similar in style to Google’s
Streetview,with the ability to move
along and around the street, looking
from any angle.
DMO requires an accurate record of
a scene prior to a disaster to enable
appropriate compensation from
relief
funding.
This
prevents
inaccurate claims from being
submitted by affected persons.
However, there are many uses of this service by the various
Ministries and this will provide a valuable mapping resource with
each Ministry having a set of data and information on each
building, structure or infrastructure item.
Buildings can have Fire Dept.,
Insurance, Disaster Management,
Health, PUMA, Stats related
databases.
E.g.; a bridge can be imaged,
across, around, and underneath so
it can quickly be visualized in time
of disaster to assess its situation and structural integrity according
to changing conditions.
The Fire department can be looking at a building they are travelling to, to see where the entrances
and exits are, interior layout and hazardous areas. This would allow them to enter the building
rapidly and know the layout even in the dark or in heavy smoke.



Recording offroad trails can assist in accessing difficult regions or findingescape paths
Disaster zones can be flown over to record damage and changes in 360 degree imaging.
Building alterations and Improvements can be recorded and compared with previous views.
Upkeep on the service would be via the key Ministries responsible for ongoing developments.




MTWI maintains and updates roads and infrastructure
Building permits by PUMA identify developments needing updating
Ministry of Tourism for Tourist related spots, walks, hotels, amenities.
All Ministries would be responsible for maintaining their databases
A special camera system records the scene from all angles at each location every 0.5 seconds,
which allows for rotation of the view while walking, driving or flying.
Accessories include; backpack for filming while walking or biking, car mount , auxilliary servers to
assist in image conversion, flash cards and protective transportation equipment.
Why?

Provides an actual record of locations before a disaster to allow visualization of loss.
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


Provides visual record to allow familiarization of location before entering danger zone
Improves planning and implementation of rescues while minimizing risk
Additional uses for other Ministries have yet to be realized as the service is very new, but is
seen as having significant scope.
Cost:
Sr. No
Item
Description
Qty
Unit $
Total
1
Server
Image Processing server
2
$3,000
$6,000
2
Camera
Crisis Camera 360 by 160
1
$25,000
$25,000
3
Pack
Crisis Camera backpack
1
$4,000
$4,000
4
Case
Server Transport Case
1
$2,000
$2,000
5
Charger
Battery and Charger
2
$250
$500
Hardware
Accessories
6
GPS
Dead Reckoning Module/ Walk
1
$9,000
$9,000
7
GPS
Dead Reckoning Module/ Car
1
$2,000
$2,000
8
Mount
Car Mount
1
$5,000
$5,000
9
Memory
Class-10 SD Cards 64 Gig
10
$250
$2,500
10
License
Image conversion software
1
$5,000
$5,000
11
License
Streetlevel mapping software
1
$15,000
$15,000
12
Travel/Accom/Per diem
30
$1,250
$37,500
13
Annual support
5
$7,500
$37,500
14
Training Fee
1
$9,000
$9,000
15
Project Management Fee
1
$10,000
$10,000
Software
Professional Services
USD
$170,000
Tala
$384,525
Timeline
Activity
Deposit
Purchase of Components
Project design and preparation
Training
28 | P a g e
0
1
2
3
4
5
6
Project implementation
Data conversion to mapping
Sustainability: The mapping system has been designed with a built in 5 year support plan. Within
this tie it is envisaged that other Ministries will be encouraged to participate and contribute to the
ongoing development of the service, insurance and replacement of equipment as needed
3.2.9997 Call overflow voice mailbox
During a disaster it is expected that a large volume of calls will come to the NEOC via the 997
short code that is being set up. The NEOC has 8 lines that can accept calls simultaneously. Any
call volume greater than this will be answered by the call centres at the Telecommunications
carriers.
Once call volume exceeds their capacity, or if they are unable to handle enough calls, the call
goes to the Call overflow voice mailbox.
The Mailbox is interfaced directly into to ALERTS CONNECT which allows the users to
immediately access them and turn them into reports.
The reports are then forwarded to the appropriate responders based on priority.
This design prevents any urgent requests from sitting in a normal voicemail centre and not being
recovered because of heavy live call volume.
Cost: USD$20,000
Timeline: 2 Months from funding
Sustainability: Once the platform is set up it needs no further maintenance. The software resides
on existing servers.
3.2.10 997 SMS management platform
The 997 short code being set up for the NEOC is capable of handling emergency 997 SMS
If a person is unable to call they can send an SMS and this instantly gets recorded within ALERTS
CONNECT SMS mailbox.
This allows the users to immediately access them in the system and turn them into reports.
The reports are then forwarded to the appropriate responders based on priority.
Cost: USD$8,500
Timeline: 2 Months from funding. This setup is linked to the installation of the 997 voice mailbox
Sustainability: Once the platform is set up it needs no further maintenance. The software resides
on existing servers.
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COSTING SUMMARY (Includes 5 year maintenance and support fees)
ALERTS! Warning system components.
Mercalli Index System
Reduces time for a warning to be broadcast, enhances accuracy.
Cost USD
$9,000
Cell Broadcast Platform
The most effective method of delivering threat detail direct to the public
$330,000
USSD System
Real time 2 way link to people who can select from menu of help
$87,500
Location specific SMS delivery System
Useful for targeting small populations of mobile users to deliver local warning
$90,000
IVR Voice Platform
Real Time verified delivery of warning and interaction with key decision makers
$290,000
Computer Warning Platform
Provides instant screen warning to all connected computers
$34,000
Standardisation of messaging using Common Alert Protocol (CAP)
$11,000
ALERTS CONNECT
Upgrade to automated report management
$17,500
Mobile (Ushahidi app) for Blackberry
$6,500
Additional Training budget
$17,500
Additional Common Operational Database sets budget
$11,000
Field Reporting Situation Wheel
Low tech solution during difficult communication periods
$6,500
Streetlevel Mapping Database
(via desk and mobile hardware + GPS) showing visualized location
$170,000
Call/SMS Location Platform
Advises the location of the 997 caller to enhance emergency response.
$120,000
997 Call overflow voice mailbox
Logs incoming voicemail into ALERTS CONNECT for processing
$20,000
997 SMS management platform
Logs incoming SMS by time into ALERTS CONNECT for processing
$8,500
TOTAL
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$1,229,000
4
Summary
Samoa has identified its limitations in being able to respond to large scale disasters. The
combination of lack of staff, resources and skill causes serious limitations in a traditional response
structure. Therefore, Samoa has had to look at a totally new way of responding and leveraged
emerging new technologies to achieve its goals.
Because of this, Samoa is now becoming the focus of international interest in its low cost efforts to
develop an integrated warning and response system. UNOCHA has expressed interest in the
system which is seen as an essential factor in the development of effective Disaster response
systems for developing nations.
The key factors of time saved in streamlining warning delivery out to the populace as well as being
able to analyse and filter large streams of data coming in from the field in real time are proving to
be essential factors for developing nations globally, hence United Nations interest.
Combining this with access for developing nations to global crowdsourced assistance provides
essential support and “extra hands” during times of emergency without the nation losing their
sovereignty or control of the situation.
The icing on the proverbial cake is that these techniques being implemented are being developed
at a fraction of traditional system costs, another essential for developing nations with little
resource available for emergency response.
This proposal is to fund all the elements requested by the DMO as essential to turn ALERTS! into
a comprehensive warning and management system. Each element has its strengths and
weaknesses to provide warning to the public as is seen in the table below:
Network
Speed dependent
Cell Broadcast
Platform
USSD System
Geo-SMS delivery System
IVR Voice Platform
Computer Warning Platform
High
Med
Low
Med
High
low
Med
Med
High
Low
Reach
Verified
Receipt
High
Low
Med
Med
Low
No
High
Med
High
No
Sustainability is paramount and to ensure this the requirements of 5 years support have been built
into costings for all elements.
This will allow ample assimilation of all aspects into the daily processes of government, thereby
becoming part of their managementpolicies.
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