Draft

RADIO DIVISION
ISSUE : XXX 2006

DRAFT GUIDELINES ON DISASTER MANAGEMENT

(with reference to Telecommunications)

No: SD/DMT-01/01.XXX 2006

TEC

TELECOMMUNICATION ENGINEERING CENTRE KHURSHID LAL BHAVAN, JANPATH NEW DELHI-110001 INDIA

All rights reserved and no part of this publication may be reproduced, stored in a retrieval system or transmitted, in any form or by any means, electronic, mechanical, photocopying, recording, scanning or otherwise without written permission from the Telecommunication Engineering Centre New Delhi.

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Abbreviations :
APT BS BSC BSNL BTS DGM DOT ETSI GIS GM GMPCS GSM HAM ISP ITU MHz MOU MSC PABX PCO PMRTS PSTN SDCA TAX UHF VHF VSAT WLL Asia Pacific Telecommunity Base Station Base Station Controller Bharat Sanchar Nigam Limited Base Station Terminal Deputy General Manager Department of Telecommunications European Tecommunication Standardisastion Institute Geographical Information Service General Manager Global Mobile Personal Communication by Satellite Group Special Mobile Help All mankind Internet Service Provider International Telecommunication Union Mega Hertz Memorandum of Understanding Mobile Switching Centre Private Automatic Branch Exchanges Public Calling Office Public Mobile Radio Terminal Service Public Switched Telephone Network Short Distance Charging Area Trunk Automatic Exchange Ultra High Frequency Very High Frequency Very Small Aperture Terminal Wireless in Local Loop

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Draft Guidelines on Disaster Management (With reference to Telecommunications)

CHAPTER 1

DISASTER : INTRODUCTION AND CLASSIFICATION

1.0 Background

Indian sub-continent has experienced a number of natural disaster & calamities like earth quake, cyclone, flood, drought, famine, fire etc. causing loss of life, damage to property & disruption of essential services like failure of telecommunication, interruption in electricity & water supply, disruption of transportation, loss in agriculture fields etc. The maintenance of essential services such as telecommunication is required for overall disaster management including search and rescue and thus Telecom services may be termed as the life-line of all such operations. As disaster may occur suddenly with or without warning, disaster prevention is better than disaster response because it will be difficult even for the best measures to replace disaster preparedness, and even the highest level of preparedness will never cover all aspects of disaster response. 1.1 Scope

This document deals with the telecommunication aspects of the Disaster Management, that include telecom equipment & services as well as telecom infrastructure such as Telecom equipment buildings and towers. It is understood that disaster resistant telecom infrastructure is a pre-requisite to withstand the effect of such disaster for providing uninterrupted telecom services. The following factors, vital for the management of telecom services during disaster, are considered in the present Standard: (i) advance preparedness, availability of equipment, administrative actions, drill, preparedness of staff to spring into actions and coordination with other agencies etc.; (ii) availability of redundancy in the communication network system so that if one network fails, the alternate will be available; (iii) role of wireless, satellite / radio connectivity with the key functionaries in the event of disaster; (iv) suitable resistant measures for the telecom infrastructure such as telecom buildings and towers, which include design as well as maintenance aspects. 1

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Further considering the prime importance of telecommunication during disaster, it is imperative that, as part of the disaster management plan itself, a mechanism for the periodic review of all recommended measures shall be established and Responsible Authority shall strictly monitor the compliance of the same. 1.2 Definitions

For the purpose of the present document, the following definitions shall be applicable: Disaster: Disaster is a serious disruption of the functioning of society, posing a significant, widespread threat to human life, health, property and/or the environment, whether caused by accident, nature or human activity and whether developing suddenly or as a result of complex, long term processes. Disaster mitigation: Disaster mitigation means measures designed to prevent, predict, prepare for , respond to, monitor and/ or mitigate the impact of disaster. Public Protection Communications: It is the Communications used by responsible agencies and organizations dealing with maintenance of law and order, safety of life and property, and emergency situations. Disaster Relief Communications: It is the Communications used by agencies and organizations dealing with a serious disruption of the functioning of society, posing a significant, widespread threat to human life, health, property or the environment, whether caused by accident, nature and human activity, and whether developing suddenly or as the complex, long term processes. 1.3 Classification of Disaster

Indian Sub continent is highly vulnerable to natural disaster and calamities due to unique and widely varying geographical, and environmental conditions. It has witnessed a number of disaster in the recent past, including Orissa Super Cyclone in 1999, Bhuj Earth Quake in 2001 and Tsunami in 2004, in which thousands of people lost their lives. Different types of disaster strike at different part of country with varying intensity. 1.3.1 Whereas water, wind and environmental related disaster are fairly predictable in advance, geological related disaster (viz. earthquake , tsunami etc.) and man made disasters never come up with advance information. All such disaster disrupt the infrastructure and as a result, the telecom services may be affected and in extreme cases, even may remain interrupted for a long time. The disaster, affecting telecommunication network, can be broadly divided into three categories: Wide spread disaster Local disaster

Draft Manmade disaster

1.3.1.1 Wide spread disaster like high cyclone in coaster areas, local earthquakes of high intensity, land slides in hilly area, sea erosion, dam burst, Dam failure, mine fire etc. The wide spread geological related disaster of this category are generally not predictable in much advance. Cyclone in coastal area some times crosses the limits of previous records as was witnessed in Gujrat in 1998 and during super cyclonic storm in coastal district of Orissa on 29th October 1999 with wind speed more than 250 km. The tsunami of year Dec. 2004 affected a large parts of the sea coast of South India. In the case of very high intensity earthquakes of Latur in 1998 and Gujrat on 26th Jan 2001, large scale damage to buildings, roads, telecommunication infrastructure has been caused coupled with extreme suffering to human beings. 1.3.1.2 Local disaster like flood due to heavy rains, land slides in hill area, drought, tornadoes, hurricanes/hailstorm/cloud burst and fire in jungles, epidemic, chemical and industrial and nuclear disaster. The disaster of this category are small disaster like floods due to heavy rains, land slide in hilly areas and fire in jungles. Some disaster of this category are predictable in advance like floods due to heavy rains. The meteorological department can predict rains, and cyclones and warn the people accordingly. In this case, mostly communication on terrestrial line fails while radio and satellite based system works. The radio and satellite links could be utilized in such cases. 1.3.1.3 Manmade disaster like air crash, train accident, war activities, riots, industrial accident, radio active leakage and ecological disasters etc. The local disaster of this category is man-made. The management of such disaster is done by the operating agency, police and rescue workers etc. 1.3.1.4 All disaster typically have grave impact on telecommunications supply and demand by creating additional temporary needs at a time of reduced availability and overload of permanent networks. For those responsible for the provision of telecommunications, this means to make best use of what remains available while at the same time building up additional capacity. 1.4 Impact of Disaster

All disaster have great impact on telecommunication supply and demand by creating additional temporary needs at a time of reduced availability and overload of the permanent networks. In such situations, the operating agencies have not only to make best use of available telecommunication networks but may have to build up additional; capacity. The impact of disaster on telecommunication infrastructure is manifold, e.g. the buildings collapse, power supply gets disrupted, roads are blocked, fire breaks out, telephone exchanges get overloaded, towers get twisted, cables get washed away etc.

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1.5

Role of telecom in the aftermath of Disaster

The occurrence of disaster events cannot be prevented fully but their impact can be reduced by preparing appropriate advance operational plans, establishing warning systems, training emergency response personnel, educating citizens and testing emergency procedures. Information collection and communication to disaster area is most important to extend help in that area. Telecom plays this important role by communicating and disseminating disaster information to residents as promptly as possible, as well as ensuring the restoration of a speedy communication system after a disaster occurs. This requires establishment of links between disaster coordinators, telecommunication authorities and service providers on each level. As the Telecommunication is the LIFE-LINE for the Rescue and Relief operation, it should be planned to withstand the effect of Disaster for providing uninterrupted services.

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DISASTER MANAGEMENT: EQUIPMENT & NETWORK

2.0

TELECOMMUNICATION

Telecom technology for Disaster Management: Key Considerations

For playing an effective role in the disaster management, the following considerations are of vital importance for the use of telecommunication technology:
When disaster events occur, getting the best out of high technology based

telecommunication systems and infrastructure requires national, regional and international cooperation.
The disaster mitigation communication is required in support of measures to deal with

emergency situation of disaster where resources or expertise are required beyond those available from public safety service where the extent and duration of the event are unknown. Disaster relief telecommunication network system should enable smooth information transmission among the central government, state government, disaster preventionrelated agencies, local municipal entities, and hospitals, schools and other public institutions. Systems for emergency warning and disaster relief need to make use of existing telecommunication and radiocommunication systems as well as new applications of existing broadcasting, amateur, mobile, satellite and fixed services in setting up warning systems and to provide information response systems. Responses to large disaster events are likely to involve a large number of relief agencies and relief teams which create severe pressure on requirements for interoperability and cooperation including frequency coordination of radiocommunication systems. As interoperability of radiocommunication services is of fundamental importance for efficient and effective disaster relief operations, Harmonised frequency use has been identified as one approach that leads to improved interoperability. 2.1 Present International Standards and documents on Disaster Management

World wide, Disaster management has been accorded very high importance. ITU, APT, ETSI and other organisations are also actively working in this area for framing Standards/Recommendations. 2.1.1 ITU Documents/Recommendations for Disaster

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2.1.1.1 The ITU has recognised national / international use of radio communication in case of disaster and administrations have been urged to take all practical steps to facilitate the rapid deployment and effective use of telecommunication resources for disaster mitigation and disaster relief operations by reducing and, where possible, removing regulatory barriers and strengthening transborder cooperation between States as reflected in Articles 40 and 46 of its Constitution and in resolution 209 (Mob-87). ITU radiocommunication Sector is to continue to study, on aspects of radiocommunications that are relevant to disaster mitigation and relief operations, such as decentralized means of communications that are appropriate and generally available, including amateur radio facilities and mobile portable satellite terminals. Some important Recommendations of ITU are as follows: i) Amateur Radio administrations are encouraged to include the amateur services in their national disaster plans and telecommunication assistance information inventories; administrations are encouraged to reduce and, where possible, remove, barriers to the effective utilization of the amateur services for disaster communications; amateur and disaster relief organizations are encouraged to develop memoranda of understanding (MOU) between themselves and with administration as well as to cooperate together with. ii) National disaster preparedness plan countries to develop a single national disaster telecommunication preparedness plan to identify existing resources available to provide emergency communication, outline steps needed to mitigate damage to such resources, establish means of providing temporary service, and make provisions for disaster recovery; iii) Cooperation between organizations memorandum of understanding, in support of the national plan,to be exchanged between government and non-government organizations, including cooperation; iv) Exercise and drills disaster communications networks be exercised regularly under simulated emergency conditions, such as loss of power mains or base stations; v) Reporting reports of strengths, weaknesses and suggested improvements resulting from such exercises be distributed to interested parties. vi) Disaster communication resources

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a) Amateur and amateur satellite services amateur services be recognized as disaster communications resources, particularly useful during the first few days of a disaster prior to the arrival of relief organizations. They are capable of being reconfigured as required for short-range and international radiocommunication, independent of other telecommunication services, and capable of providing qualified operators; during and in the aftermath of disasters, the amateur services be used for disaster welfare traffic to relay messages on behalf of concerned relatives and friends of people in the affected area.

b) Land mobile services steps be taken to strengthen cellular and other public mobile communication systems against natural disasters, to provide redundancy, and to make arrangements for priority and pre-emptive access during emergencies; provisions be made for intercommunication between non-public land mobile systems such as public safety, local government and private mobile units likely to be used in disasters.

2.1.1.2 ITU Recommendation ITU-R F.1105 on Transportable Fixed Radiocommunication Equipment for Relief Operation deals with various types transportable wireless equipment and their broad characteristics. 2.1.1.3 ITU-D has also issued a Handbook on Disaster Communication against Question No. 16/2. This document deals with this subject in a comprehensive manner with specific needs of developing countries. 2.1.2 APTs Work Since the 9th ASTAP in Mar 2005, a separate Expert Group has been working in this area. APT has recently come out with 2 draft Recommendations : i) ii) 2.1.3 Radiocommunication Systems for Early Warning and Disaster Operations Radiocommunication Systems for Disaster Mitigation and Relief Operations ETSIs work

ETSI has been dealing with subject in a very detailed manner through Emergency Communications and homeland Security committee. Its Project MESA is defining the specifications for digital mobile broadband technology and developing reference architecture and the derivations of system technical requirements. 2.2 Long Term Planning Measures

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Considering that the Telecommunication is the LIFE LINE for the Rescue and Relief operations, the telecom infrastructure should be planned, taking into account a long term perspective, to withstand the effect of Disaster so as to provide uninterrupted service. This may require broad conformance with a number of planning measures as well as optimal capacity utilization & redundancy in the network. As careful planning of telecommunication network can avoid severe damages, telecommunication in the country should be well planned taking into account all precautionary measures which will reduce and mitigate the effect of disasters. Thus Telecommunication network planner should study the possibility of natural disaster in the area of concern. 2.2.1 Transmission & Access Planning In coastal areas, optical fibre cable for junction and trunk working should be sufficiently away (say 25 km) from sea coast and river beds and should be laid at proper depth. The microwave routes in cyclone prone areas should be avoided and in unavoidable circumstances, should be placed far from the coastal line (say 25 km). Further, the microwave tower base foundation should be strictly made as per soil conditions. Alternative telecommunication links such as SDH system on optical fibre cable should be planned with alternative routing. All the district headquarters, not connected on SDH ring so far, should be progressively connected on SDH ring within a time frame of (say) 2 years so that in case of failure of one route, the city may not be cut off from rest of the country. Further, media diversity/route diversity should be used, if not used so far, within a time frame of (say) 2 years, to avoid total cut off from the rest of the country. The disaster affects the telecommunication infrastructure and telecommunication network. The anxiety calls in large number from different places to disaster area severely overload the telecom system and creates congestion. The overload created by anxiety calls and repeated attempts in disaster case, some times exceeds the engineered overload capacity of the telecom system. The repeated attempts of callers ,though of short duration, make the common control server to work more and creates overload in common control equipment. Effective Guidelines should be prescribed by Service operators to avoid congestion during such overload periods. The incoming and outgoing cable for a station should be laid on different roads and if it is not possible at least on different sides of the road. Mobile systems in access side of telecommunication system should be encouraged especially in disaster prone areas such as zone 4 for earth quake and coastal areas for cyclone.

Draft Sufficient battery back up (for 8-12 hours) should be provided at telecom equipment centres( depending on the power situation at that location and strategic position of the telecom centre ), especially in disaster prone areas.

2.2.2 Redundancy in Infrastructure To provide redundancy, ALL level I TAXs (as per DoT nomenclature) or their equivalent, as well as other important TAXs, large interconnect exchanges and, transmission media of such stations, should be planned at two different geographically apart locations, with interconnection media of sufficient capacity. Also, the two transmission centers should also have long distance transmission media independent of each other. Major exchanges (say of 10 K and above), big MSCs, important Internet nodes etc. should have connectivity to one more TAX/ Gateway MSC ( other than the one to which it is required to be parented) as the case may be.

2.2.3 Civil infrastructure & other measures The building structure should follow the norms for seismic resistance depending on seismic zones as well as proper building codes. The plinth should be kept high in coastal and flood prone areas. Building should be made earthquake resistance ones. The equipment should be installed at adequate height in the building especially in coastal and flood prone areas. The drop wire should be avoided a far as possible and DP should be indoor. 2.2.4 General Control room telephone numbers, separate for incoming and outgoing call, be standrised for whole country which could be accessed from other stations by dialing on STD. A telephone directory of Amateur Radio HAM operators should be made available up to district level. ( Details are given Chapter 3) Creation of Integrated Database

2.3

A centralised database at circle/state level should be maintained, with access to Central/Corporate office, containing information about various types of communication resources available in different parts of the circle, GIS information of area, other different networks, history of disaster in that area and corrective action, staff duties and training schedule, list of supporting agencies/industries/ individuals etc. This information database should also be accessible to district administration. Further, as the long term planning requires integration of services by various agencies, other relief & rescue aspects such as information about geographical maps, food supplies, needed material supply should also be included in the database for helping other agencies

Draft and human resources to run the emergency services. This requires distributed databases for fast recovery and restoration. The database should be structured in such a way that once place of disaster is fed, the complete details of resources available around the region for quick response are provided. The mechanism for accessing such databases should be very simple, user friendly with the feature of multi-user working. As the availability of telecom connectivity may become difficult during such periods and considering the multi-vendor scenario in India, suitable mandatory agreements should be in place between all the service providers for providing access to such databases during emergency situations. 2.4 MOU with other Agencies

As the disaster management requires cooperation among a number of relief agencies, the MOU among such agencies should be made mandatory as a part of licensing conditions. Such special arrangements should automatically come into force immediately after occurrence of a disaster. Some of the important agencies for MOUs are as follows: DoT & Telecom Operators should have MOU for emergency communication with amateur radio clubs. Telecom Operators should have MOU with other service providers such as cable TV, ISP, GMPCS, Cellular Mobile Telephone, HAM, VSAT etc. They should also have such MOU among themselves to share the facilities in case of emergencies. The licensing conditions of all service providers should be suitably amended to mandatory share the infrastructure in area of disaster. Through agreements between Operators and Airlines, immediate airlifting of telecom equipment during disaster is possible. Further, as per requirement, Helicopter service for carrying telecom equipment to the affected area may be availed of. These measures are critical since telecom connectivity is a prerequisite for effective relief and rescue work

The licensing conditions should have provision for entering into such MOU within a specified time period ( say 2-3 years) of launching of the services in a circle, failing which suitable action should be prescribed. 2.5 Organisational Set-up Measures

An effective organisational set-up at all levels viz. Central, State and District is very important for implementing and monitoring the disaster management plan. 2.5.1 Central/Corporate office level: All telecom operators should designate officers, working in the Corporate office & part of the top management team, for coordination with the DoT HQ for disaster related matters. At least two officers should be named, one principal and the other one alternate. Further, an internal standing disaster management committee should be set up at Corporate HQ with members from Planning, Operations,

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Draft Switching, Mobile, Finance, Transmission wings etc, for overall coordination & management. 2.5.2 State/Circle level: Every Telecom operator shall have standing Disaster Management committees at state/circle level.The committee will be headed by the state/circle chief of that Operator, who shall also coordinate with DoT during such situations. Other members may be Circle level top senior officers (say of the rank of General Manager) such as GM (Mtce), GM (Project), Chief Engineer (Electrical), Chief Engineer (Civil), GM (Finance), as well as representatives from other operators such as Cellular, PMRTS, Basic, HAM etc for better inter-operator coordination. Operation and Disaster Coordinator with this committee shall be done by each District Head of that Telecom Operator. This committee shall look after over all disaster management in the circle. Further every Telecom Operators should have a well defined organizational structure for disaster management at this level and senior officers ( say of the level of GM/DGM ) for Disaster Database and Disaster Operation should be designated .

2.5.3 District level: Each district should have a similar standing committee under the chairmanship of the District Telecom Head and district level members. 2.5.4 All the above standing committees shall meet at least once in 6 months to review the preparedness and readiness for any kind of natural calamity. 2.5.5 The licensing conditions should have mandatory provisions for having such set up as given above within a specified time period ( say 2-3 years) of launching of the services in a circle, failing which suitable action should be prescribed. 2.6 Technological Options during Disaster

In the event of disaster, the most urgent need is restoration within minimum time. The restoration of telecommunication is divided into three categories viz. emergency solution, restoration period solution and permanent solution. The wide spread disaster like cyclone, earth quake, drought epidemic etc are to be attended to on large scale. In case of cyclone, earth quake etc. total failure of communication links may occur. There is destruction of human lives and property. In this case emergency telecommunication is a prerequisite for carrying out rescue and relief work, information broadcasting, collection of needed material/data, contacting different agencies such as police, administration, medical facilities etc. Occurrence of such disaster need the communication contact immediately. The emergency communication is possible by: Satellite telephone e.g. Inmarsat Telephone

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Draft Amateur Radio VSAT service in disaster area PMRTS (Public Mobile Radio Trunk Service) namely Radio Taxi service Van containing Mobile equipment such as WLL, GSM, etc. along with transmission system and switching equipment

Satellite telephones work using direct Satellite connectivity. The same shall be used for communication during disaster. All State/ Circle telecom Heads and district heads should be provided with at least (say) five and three satellite telephones respectively. The state administration should also have satellite telephones. Through MOU, agreement and mutual understanding, the amateur radio clubs shall be made a part of disaster management programme. This will facilitate to immediately use their facilities in an effective manner without waiting for any further coordination. A telephone directory of Amateur Radio HAM operators should be prepared by DoT and made available up to district level. Services of VSAT networks, configured for closed user group (CUG) operation could also be made use of a PABX, which could be connected to PSTN network using VSAT in disaster area. (Fig-1 at Annex-1) 2.7 Restoration of Communication

It may so happen that exchanges/MSC/BTS/Internet nodes/transmission lines are not working immediately after occurrence of a disaster. The permanent restoration of telecommunication takes time as re-building is a long process. In this period, it is very important to have temporary communication solution for relief operation. It is assumed that satellite telephones and amateur radios are already working and therefore they can be used for information exchange for sending relief telecommunication equipment in disaster area. The following technological approaches can be followed: Amateur Radio Service The Amateur Radio Service operators networks in all ranges of concern for disaster communications, from local VHF networks to long distance HF and satellite links. Most of the considerations in the following section apply in principle to all disaster communications radio networks Amateur Radio operators can take upon themselves the public service role as and when requested, and they do so in times of disaster. Many of the characteristic of the amateur

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Draft radio service are such that they can assist to respond to requests for disaster communications services. These characteristics include the operation of highly independent and flexible networks while often using very limited resources. This permits amateur radio to be of service in disaster communications in several ways. Firstly, it provides a cadre of trained operators, many with superior technical and operational skills. These operators are able to use radios under field conditions and, most important, to make them works. Secondly, amateurs already have in place, in many parts of the world, an existing core of stations loosely configured for local, regional and intercontinental radio communications. WLL The relief equipment could be transported in an air conditioned van. The van should have built-in power supply, battery and generator (Fig-2 at Annex-1). The required equipment is an Exchange of (say)1000 lines having V 5.2 interface. The V5.2 interface is connected to Base Station (BS). WLL antenna is installed on top of the van. The subscribers are given hand held terminals and Mobile PCOs could also be setup. The exchanges junction E1 lines are connected to nearby working exchange either by radio system (within 30 Km) or by optical fibre cable. There could be some difficulties in installing roof top antenna on microwave tower. A collapsible/ready to assemble on site microwave tower could be taken to disaster area to solve this problem. GSM/Cellular Mobile Telephone system The other possibility is extension of citys Mobile Switching center (MSC) by installing BTS on van. The van with emergency equipment could be taken as near as possible to disaster place. If cellular mobile telephone network is working near the disaster hit area, AC van containing BTS equipment, 3 panel antennas, and 15 GHz radio system/OLTE for E1 line connection to BSC could be taken to disaster area. The subscribers are given hand held terminals. Mobile PCOs could also be setup. The BTS is connected to nearby working BSC either by radio system (within 30 Km) or by pre-terminated optical fibre cable. The AC van should be equipped with arrangement for built in power supply, battery, generator etc. There could be some difficulties in installing roof top antenna or microwave tower. A collapsible/ready to assemble on site microwave tower could be taken to disaster area. For provisioning of 2 Mbps connectivity to WLL based equipment or Cellular Mobile Telephone based equipment, satellite IDR with 2.4 m antenna in Ku band or 3.8 m antenna in C band can be used instead of Microwave Radio or optical fibre (Fig-3 at Annex-1). This mobile station should have capability to up link audio, data and video broadcasting information.

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Satellite Systems One way to improve the chances that an emergency link will remain operational during a disaster, is to connect it via satellite. This will make it free from both a failure of terrestrial infrastructure and a congestion of the PSTN. VSAT is one such suitable technology. Mobile Satellite System Presently, the most widely used mobile satellite system is the Inmarsat system. The Inmarsat system consist of Geo-stationary satellites, which connect mobile terminals through Land Earth Stations (LES) to the PSTN and other networks. A communication link includes at least one LES, which is the actual service provider. Standard M and mini-M terminal for Inmarsat applications Mini-m terminals are about the size and weight of a laptop computer and standard M terminals the size of a briefcase. They enable connections with any PSTN subscriber world wide, including other mobile satellite terminals. They can not be used in a vehicle when in motion unless equipped with special antennas compensating for the movement of the vehicle. Others standards such as standard C, standard B and standard A may also be used depending upon their availability. Global Mobile Personal Communications by Satellite (GMPCS) The advantages of Global Mobile Personal Communications by Satellite (GMPCS) versus other mobile satellite systems is that the terminals are very small and lightweight, about the size and weight of a cell phone. Terminals will be of dual mode type and able to connect to either satellite or terrestrial service. Normally, users program the terminal to connect to a cellular system when that is available but automatically connect to the satellite system when cellular coverage does not exist. During disaster, it will be directly get connected to satellite. The effective use of regional mobile satellite systems is possible to restore telecommunications services in the disaster hit areas. Services of regional satellite such as ACeS can be utilised. Very Small Aperture Terminal (VSAT) Networks

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Draft VSAT are mostly designed for fixed installation, but Flyway systems are available for disaster recovery purpose. Further developments are expected is enhance their applications in disaster communications. For serious reliable long-range communications, VSAT is a superior system. The terminal equipment needs to be protected from physical damage. The dish in particular should be placed where it is not exposed to flying debris during storms, while still maintaining its aim at the satellite. Following a storm or an earthquake, an adjustment in the position of the antenna may be necessary, and special equipment in addition to the actual VSAT terminal is required for this purpose. VSAT systems connect the PBX directly to another location via satellite link. This means immunity from failure of the ground services as long as the earth station remains operational and has independent power. The possibility of use of VSAT based PABX is also useful as it provides wide connectivity. Land/satellite mobile communication with voice, data and video facility are best suited for rescue. Further restoration work is possible with advanced storage of the required rebuild equipment. The Internet The internet provides support for Major operations and functions of organizations, irrespective of distances between headquarters and field offices. For governmental disaster workers, access to the Internet permits continuous updates of disaster information, accounts of human and material resources available for response, and stateof-the-art technical advice. - Following a disaster, it may not be possible to access direct, high bandwidth connectivity. - The integration of wireless (including satellite-based) technologies and of high-speed capability on wire connections will provide disaster managers with access to information resources. The personnel at the site of an event has the primary task to save lives. Specific information might greatly enhance the efficient and effective use of available resources. - Sending and receiving e-mail and using web-based directories to locate colleagues, suppliers, governmental and non-governmental organizations who can provide assistance. - Tracking news and weather information from a variety of government, academic and commercial providers. - Participating in worldwide discussion lists to exchange lessons learned and coordinate activities

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Draft Other issues related to Equipment Needs The design of a mobile van containing telecom equipment should be standardised for provisioning of immediate connectivity to the affected area. The van should have WLL/Cellular mobile equipment, an exchange and microwave/satellite system for connectivity to network. The van should have fax, voice, telephone etc. for information exchanges. Provision should also be there for carrying logistics such as food, water shelter inside the van. SMPS power supply with sufficient Battery bank should also be available in the van. Engine alternator sets of sufficient capacity with diesel storage should follow the van. Since there may be unavailability of power for long duration at the time of disaster (like cyclone, floods) in almost all the affected installation, mobile generator set should be readily available in fully tested condition, which should be moved to the strategic locations immediately, both in 30 KVA trolley mounted and portable 3.5 KVA capacity with diesel tank for 24 hours capacity.

It shall be made mandatory for all Telecom service Operator, within (say) 3 years of launching their services in a circle, to: have MOU, agreement or mutual understanding with the amateur radio club ( wherever such clubs are operating. This will help in effectively utilizing HAM network during initial phase of restoration of communication. have at least one mobile van i.e. WLL/GSM type with transmission connectivity stationed at all state capitals as well as at all zonal/regional headquarters of states This should ensure that the van can be rushed from this location to any of districts of that zone/region in shortest possible time, that should be 4-5 hours normally. In case, the area is more disaster prone or the above time period limit cannot be met by keeping the vans at the above locations, additional vans shall be placed for a group of 4-5 districts (depending on districts size & location) and stationed at a district HQ ( within that group) having good transmission connectivity. have minimum of 2 INMARSAT phones, 2 GMPCS telephones and 2 VSAT terminals with each district telephone unit. 2.8 Measures on Disaster Occurrence

As India is prone to frequent natural calamities, if the past experience is any indicator, the following should be strictly conformed to by all Operators: Control rooms shall be set up at National/central, State/circle and district level for major disaster, at State/circle and district level for minor disaster and at district level for local disturbance. Control room shall start operating immediately on the occurrence of a disaster without waiting for any instructions. Immediate action is required for opening of help line and public phone booths with/without charges (preferably without charges) so that during disaster/emerging

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Draft situation, the same could be made operational on a short notice at hospitals, control rooms, rehabilitation centers, district administration, railway/bus stations, air ports etc. in the affected area. On getting the information about damage in a particular district , a team should be deputed on the spot at the earliest to assess the extent of damage and to plan restoration activities. The team should consist of members from various telecom fields such as mobile (GSM/WLL etc.), switching , transmission, civil, electrical experts etc. This team should be self contained (should carry water, food [for at least 2 days], blankets, bed, satellite phone, mobile phone etc). They should open the control room in affected district. Based on feedback of the team, the assessment of the situation is to made and then telecom links should be restored in a well planned manner on top most priority to avoid delay. Further teams are to be deputed from circle. One district can be given responsibilities to restore communication of 1 tehsil/SDCA. (The team should consist of officers from various telecom fields such as mobile, switching/transmission, external plan, civil and electrical etc. and may be preferably drawn from nearby unaffected tehsil / SDCA/district). All teams, deputed for restoration activities, should proceed with self contained infrastructure (vehicles/Stores/Logistics requirements like food, water, tents, beds blankets etc. Rerouting plan for junction failure on optical fibre should be made, up-dated and followed. All level I TAXs, major telecom central offices such as MSCs, Internet nodes, Exchanges etc. to be manned round the clock. The MSCs/TAXs/BTSs/Internet nodes etc. are likely to get congested due to heavy traffic in view of rumours/news etc. In such cases, effective traffic management is required and in the case of exchanges, local exchanges of major city can directly be pertained to other TAXs by passing the local TAX. Action may be taken to avoid overload as per the document titled Traffic Overload Management in Telecom System . VSATs can be deployed for immediate communication. Training, Drill and Reporting

2.9

The quick response of managing suddenly occurring disaster calls for availability of trained staff and operating telecommunication restoration equipment. New staff members are often expected to learn on the job from predecessors or peers, but in respect of

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Draft disaster communications, this approach is not sufficient. Periodic training also ensures a continuous awareness of the additional demands which each individual might be confronted with in case of disaster. Disaster response depends on teamwork. Training exercises including all potential partners are therefore important. The trainers need to make the exercise realistic enough to expose weaknesses in procedure or equipment, but at the same time simple enough for newcomers to learn how operations are supposed to work. Taking equipment out of storage and testing them during training exercises are major contributions to maintaining a readiness state. It is necessary that the equipment meant for restoration should be kept in working condition. The staff training on simulated disaster is required. The method of restoration of telecom infrastructure should be a regular management feature of telecommunication.The last week of April is fixed as Plan Updating Week and first week of May is fixed as Plan Rehearsal Week. This shall be strictly complied with. The training should also be imparted for setting control room, reporting to concern authorities, database management and cooperation with various agencies. 2.10 Pilot Project

Pilot projects shall be taken up to assess the preparedness of existing communications network to respond quickly to any disaster. The project should attempt to learn and evaluate the background information on prevalent disaster in the country, problems and constraints of disaster communications, existing operational structure and the equipment and personnel involved. Disaster management plan may be updated as per the findings of the pilot project to make it more realistic and effective. Considering the size of India as well as its disaster susceptibility, at least one pilot project shall be taken up by each Telecom Operator in each circle/state every year. 2.11 Operators Disaster Management Plan

A Disaster Management Plan, describing the compliance of the above measures as well as other arrangements in this regard, shall be submitted by each Telecom Operator to the DoT HQ every year.

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Draft CHAPTER 3

DISASTER MANAGEMENT: BUILDINGS AND TOWERS

3.0 General

India has witnessed a number of disasters in the recent past, including Orissa Super Cyclone in 1999, Bhuj Earth Quake in 2001 and Tsunami in 2004, in which thousands of people lost their lives. The maintenance of essential services such as telecommunication is required for overall disaster management including search and rescue operations and thus Telephone exchanges buildings and towers may be termed as life line buildings. Disaster resistant civil infrastructure (i.e. buildings & towers) for telecom equipment is, therefore, required to withstand the effect of such disaster for providing uninterrupted telecom services. 3.1 i) Objectives The measures have been prepared keeping in view specifically the effects of earthquake & cyclone on telecom buildings & towers. However, suitable resistant measures for other natural calamities/disasters have also been incorporated in this chapter wherever found appropriate. The earthquake is a pseudo force that depends on the inertia of structure & hence related with the weight of the structure. In case of buildings, earthquake forces are more predominant than wind forces. The objective of the earth quake resistant measures is to ensure, as far as possible, that structures are able to respond without structural damage to earth quake shocks of moderate intensities and without total collapse to earth quake shocks of heavy intensities. The tower is a skeleton structure, that is light in weight as compared to buildings, and hence effect of earthquake force is insignificant on tower. Wind forces, which act on the projected elevation of the tower, become the dominant force for the design. Thus, the tower should be designed to withstand the effects of high wind velocities and cyclones.

ii)

iii)

The following have been discussed in this chapter: i) ii) iii) iv) 3.2 New Buildings Rented Buildings Existing buildings/Structures Towers

New Buildings

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Draft i) The new buildings shall be designed as per the latest applicable BIS Codes including IS 1893 Part I:2002 using Importance Factor of 1.5 for all types of Buildings. The general principles to be observed in the construction of such earthquake resistant buildings are Lightness, Continuity of Construction, avoiding/reinforcing Projecting and suspended parts, Building configuration, strength in various directions, stable foundations, Ductility of structure, Connection to non-structural parts, provision of expansion & contraction and fire safety of structures. The past experience shows that for avoiding damage to buildings & human beings during the occurrence of such disasters, the architectural features such as projected box type elevations and cantilever projections should be kept to bare minimum length (say not more than 60 cm) and due care shall be taken to make these features monolithic with the main structure. The plinth should be kept high in coastal and flood prone areas commensurate with High flood level. The structural analysis /structural drawings/architectural drawings should be preserved in soft copies in all structural design units. It should be mandatory so as to use this information in future whenever any revision takes place in BIS codes. Rented Buildings The Home Ministry D.O. No. 31/51/2003-NDM dated 25.11.03 terms the T.E. buildings & Towers as life -line buildings / infrastructure and lays down a time frame for inspection and retrofitting of T.E. infrastructure in compliance with the latest B.I.S codes. The IS: 1893 code for earthquake resistant design of structures gives Importance factor of 1.5 for telephone exchanges buildings. However a number of telephone exchanges in rural as well as in urban areas are working in rented buildings that may not be even properly designed for static loads. It may be difficult to get B.I.S. codes compliant adequately engineered buildings in most of the locations. a) It is, therefore, suggested that buildings should be planned keeping in view the future needs with a long-term perspective. Further considering the very high vulnerability in the seismic zones IV &V, buildings for housing telecom equipments may be constructed preferably within 3 years span in a phased time bound manner in these zones. b) At the same time, in other seismic zones viz. II & III, the same approach should be adopted as a long term planning measure, to gradually house the Telecommunication equipments in adequately engineered buildings only.

ii)

iii)

iv)

v)

3.3 i)

ii)

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Draft iii) However, till adequately engineered Telecom Operator Owned building are available, buildings for housing telecom equipment may be taken on rent through a two stage bidding process i.e. Technical bid & financial bid. In the first phase of bid opening, only technical bids shall be opened without opening the financial bids. Subsequently, Technical Bids shall be evaluated on the basis of available structural / architectural drawings as well as by physical inspection of the buildings to ascertain suitability. Only technically suitable buildings shall be considered for opening of financial bids. This will help in ensuring the selection of technically suitable building. In order to reduce damage to equipment & human lives during occurrence of such disasters, the buildings with masonry construction as well as buildings situated in congested locations & narrow lanes may be avoided, if possible. The plinth of the building should be high in coastal and flood prone areas. If the requirement of a roof top tower is also foreseen, the building with RCC framed construction shall be selected. Existing Buildings/Structures As a rule, existing technical buildings in DoT (Now BSNL & MTNL) have been designed & constructed in accordance with the B.I.S seismic codes in force at the time of their construction. There have been changes in the BIS Seismic Codes over the years which would necessitate retrofitting of some of these buildings in accordance with the latest BIS Codes. It is suggested that a three-phase strategy may be adopted to achieve this objective. i) Phase I: The survey of the existing buildings should be undertaken in a time bound manner to make a comprehensive data-base as per Proforma A of Annex 3. A period of one year can be fixed for such exercise and this data-base should be updated from time to time & reviewed at least once in three years. ii) Phase II: On the basis of this data-base, the Proforma B of Annex 3 can be followed to take up retrofitting activities only in physically distressed buildings/ buildings non compliant with BIS Codes. iii) Phase III: On completion of Phase II, the retrofitting in other buildings may be taken up on a case-by-case basis.

iv)

3.4

3.5 i)

Towers Towers in the cyclone prone areas shall be designed adequately to survive the high wind speed.

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Draft ii) For roof top tower, the Base should be adequately designed to transfer load of tower on RCC grid and further where steel beams are used for transfer of load, adequate lateral strengthing shall be designed especially for web region. To ensure safety of towers during such disaster; it shall be made mandatory for all telecom Operators to design the towers by incorporating the provisions of latest B.I.S. codes of practice governing the design. A structural safety certificate may be obtained from a qualified structural engineer and submitted to a designated central unit of DoT, which shall be authorized to check any design. And, if any design is found deficient in examination, appropriate action shall be taken against the concerned operator. A data base of existing towers indicating year of construction shall be prepared as per Proforma C of Annex 3 within one year for comprehensive periodical checking and maintenance of towers. Remedial action in this regard may be taken as per Proforma D of Annex 3. A regular maintenance exercise, as given in Annex 4, may be undertaken in order to ensure that the tower shall perform functionally in accordance with its designed life. Training on Earth Quake Resistant Design Training on earth quake resistant should be imparted to all concerned officers of the Telecom Operator. This will help them in better appreciation of its importance and taking necessary measures at all levels from selection of site to planning, design and construction for all type of structures. References 1. 2. 3. 4. 5. 6. 7. 8. Interim Report of High Powered Committee for preparation of Disaster Management Plan under Chairmanship of Shri J.C. Pant Presentation to National Committee on Disaster Management by Dr APJ Abdul Kalam Principal Scientific Advisor to the Govt. of India Earthquake UN system Response Summary of action plan press release dated 6th Feb 2001 Traffic overload Management in Telecom System Crises Management committee report of Department of Telecommunication dated 22th Feb 1999 DoT Report on Management of Telecommunications during Disaster and Natural Calamities, July 2001. ITU-D study going document No. 2/167-E and No. 2/168-E Guidelines on Disaster Resistant Telecom Buildings and Towers - with Special Reference to Earth quake & Cyclone, issued by DoT in 2005

iii)

iv)

v)

3.6

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Draft

Annex--1

Satellite based Solution

VSAT Terminal be Equipped on Vehicle with Other facilities of connecting to computer & Voice terminal Temporary connectivity to PSTN network
Disaster Area

LNA HPA UP/DN PABX

Radio/ Wireline

Personal Station (PS)

Fig. 1

Land Mobile Network Solution during recovery

1. WLL CDMA based
Disaster Area

Radio
Exchange

Fibre

Radio SBM BSC / OLTE

WLL

BS

Trmls

AC VAN with BS equipment Communication for 25 Km on Hand Set

2. GSM based
Disaster Area Radio Fibre
Radio OLTE BS Cellular Phone

MSC

BSC

Fig. 2

AC VAN with BTS equipment Communication for 30 Km on Hand Set

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Draft

Land Mobile Network & Satellite Solution Good during Recovery Process: 1. WLL based
IDR Exchange

Disaster Area

SBM X BSC BS

WLL Trmls

IDR

Antenna

AC VAN with BS equipment Communication for 25 Km on Hand Set

2. GSM based
Disaster Area

MSC

BSC

IDR

Antenna
IDR BTS Cellular Phone

IDR Intermediate Data Rate

Fig. 3

AC VAN with BTS equipment Communication for 30 Km on Hand Set

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