Disaster Relief Systems Network Resilience and Recovery in

Disaster Relief Systems, Network Resilience and Recovery in Japan June 2012 Michiko Fukahori Ministry of Internal Affairs and Communications Japan

Contents 1. The Great East Japan Disaster 2. Damage to the Telecommunication Network 3. MIC Study Report “Maintaining Communications Capabilities during Major Natural Disasters and other Emergency Situations” 2

1. The Great East Japan Disaster ～ What has happened ～

The Great East Japan Earthquake & Tsunami - Date and Time: 11 March 2011 (FRI) 14: 46 JST (05: 46 UTC) - Magnitude: 9. 0 (the largest magnitude recorded in Japan’s history) - Epicenter: N 38. 1, E 142. 9 (130 km ESE off Oshika Peninsula) Depth 24 km 　 Miyako (Iwate) Run-up height: 38 m* JMA Seismic Intensity Sendai Otsuchi (Iwate) Run-up height: 17 m* Tokyo Epicenter Fukushima nuclear power station (Japan Meteorological Agency) Kesennuma (Miyagi) Run-up height: 20 m* * The 2011 Tohoku Earthquake Tsunami Joint Survey Group (http: //www. coastal. jp/) 4

The 3. 11 Disaster Miyako City, Iwate Prefecture 5

Summary of Damages Great East Japan Earthquake (2011. 3. 11) Great Hanshin Earthquake (1995. 1. 17) Magnitude 9. 0 7. 3 Dead 15, 835 6, 434 Missing 3, 669 3 Damaged Houses 903, 220 639, 686 Damaged Fishing Boats > 22, 000 40 Damaged Fishing Ports > 300 17 Damaged Farmland 23, 600 ha 214 ha *1 As of November 7, 2011 (source: National Police Agency) *2 As of November 24, 2011 (source: MAFF) 6

Thanks for assistance from all around the world Offers from 163 countries and regions, and 43 international organizations Condolences expressed by more than 180 countries and regions, and more than 60 international organizations As of October 17, 2011, survey by Ministry of Foreign Affairs Japan 7 7

Thanks for Assistance for Communication from ITU On 14 th March 2011, Secretary General of ITU kindly offered emergency assistance utilizing satellite communications equipment from International Telecommunication Union （ITU） Ø ITU deploys a total of 153 satellite communications equipment units for free and does not charge a communication fee. • 78 Thuraya satellite phones • 13 Iridium satellite phones • 62 Inmarsat Broadband Global Area Network terminals. Ø Those were lent out free of charge to Local governments, etc. via MIC. It helped local governments largely to deal with emergency situation just after the disaster. 8

2. Damage to the Telecommunication Network ～　Lessons Learned ～

Damage to Fixed Lines, Mobile Base Stations Fixed-line Communications Mobile Communications ■　 In total, around 1. 9 million communication lines were damaged. ■　 In total, about 29, 000 base stations were damaged. Max. no. of damaged base stations Max. no. of damaged lines 15000 ～ ～ [Unit: fixed-line phones 10, 000 Lines] FTTH fixed-line FTTH phones ＋ADSL fixed-line phones [base station s] 10

Network Congestion Fixed-line Communications ■　Carriers restricted phone traffic by as much as 80 to 90 percent. * * There was 4 to 9 times the normal volume of traffic (NTT East. ) Max. outgoing traffic restrictions Mobile Communications ■　Carriers restricted voice traffic by as much as 70 to 95 percent. * ■　Packet traffic, however, was either not restricted or restricted at a lower rate (0 to 30 percent). * There was 50 to 60 times the normal volume of traffic (Do. Co. Mo). e. Mobile was not subject to restrictions. Max. outgoing traffic restrictions voice packet 11

7, 000 4, 000 1, 000 3/11(金) 【 24: 00】 3/11(金) 【 24: 30】 3/12(土) 【 5: 00】 3/12(土) 【 6: 00】 3/12(土) 【 15: 30】 3/13(日) 【 15: 00】 3/14(月) 【 9: 00】 3/14(月) 【 17: 30】 3/15(火) 【 7: 00】 3/15(火) 【 18: 00】 3/16(水) 【 7: 00】 3/16(水) 【 17: 00】 3/17(木) 【 17: 00】 3/18(金) 【 12: 00】 3/18(金) 【 18: 00】 3/19(土) 【 18: 00】 3/20(日) 【 18: 00】 3/21(月) 【 18: 00】 3/22(火) 【 18: 00】 3/23(水) 【 17: 00】 3/24(木) 【 16: 00】 3/25(金) 【 16: 30】 3/27(日) 【 15: 00】 3/28(月) 【 16: 00】 3/29(火) 【 13: 00】 3/30(水) 【 13: 00】 3/31(木) 【 13: 00】 4/1(金) 【 13: 00】 4/4(月) 【 9: 30】 4/5(火) 【 13: 00】 4/6(水) 【 13: 00】 4/7(木) 【 13: 00】 4/8(金) 【 13: 00】 4/9(土) 【 13: 30】 4/10(日) 【 13: 30】 4/11(月) 【 10: 00】 4/11(月) 【 13: 00】 4/12(火) 【 13: 00】 4/13(水) 【 13: 00】 4/14(木) 【 13: 00】 4/15(金) 【 13: 00】 4/18(月) 【 9: 30】 4/18(月) 【 13: 00】 4/19(火) 【 13: 00】 4/20(水) 【 13: 00】 4/21(木) 【 13: 00】 4/22(金) 【 13: 00】 4/24(日) 【 18: 00】 4/25(月) 【 13: 00】 4/26(火) 【 13: 00】 4/27(水) 【 13: 00】 4/28(木) 【 13: 00】 5/2(月) 【 9: 00】 5/6(金) 【 9: 00】 Trend of shut down mobile base stations No. of disabled base stations No. of households without electricity [Unit: 10, 000 houses] MAX : About 6. 6 thousands stations NTT ＮＴＴドコモ Do. Co. Mo KDDI ＫＤＤＩ（ａｕ） (au) 500 6, 000 400 5, 000 MAX : About 4 thousands stations 300 MAX : About 3. 8 thousands stations 3, 000 After Shock (M 7. 4) 200 2, 000 100 MAX : About 6 hundreds stations 0 0 Softbank ソフトバンク mobile イー・モバイル e. Mobile No. of households without electricity 東北電力管内の停電戸数 13 under the jurisdiction of Tohoku Electric Power

Locations of Damage to Mobile Networks Base stations collapsed or backup batteries ran out NTT central office, NTT central office customer building, etc. (relay building) (housing building) Backup generators ran out of fuel because of long power outages Transmission line relay station Area A Base station Communication cable RNC Trunk exchange 　 Cables cut off or duct destroyed Area B 14

Causes of Damages Resulting from the Great East Japan Earthquake ■　Over 80% of communications breakdown both cases of fixed and mobile was caused by widespread and prolonged power outages. Fixed telephone Mobile telephone 15

Characteristics of the Disaster ü The most powerful known earthquake to have hit Japan and the extremely destructive tsunami -Telecommunication infrastructure seriously destroyed and carried away, especially in the Pacific coast region ü The earthquake and tsunami triggered power disruption and the electricity supply stopped for a few days. - Battery and fuel for electrical generators exhausted ü Emergency alert was highly crucial. - Some half an hour to evacuate after the earthquake until seawater flooded to the people ü Telephone congested extensively with so many calls - Not only in devastated Tohoku region, but also in metropolitan area because of so many calls made by a large number of commuters unable to get home due to traffic paralysis ü Restoration activities confronted with the difficulties caused by nuclear accidents 16

3. MIC Study Report “Maintaining Communications Capabilities during　Major Natural Disasters and other Emergency Situations”

Study at MIC Study Group on Maintaining Communications Capabilities during Major Natural Disasters and other Emergency Situations - Set up by MIC in April 2011 - Members: telecommunications carriers, vendors, internet service providers, application service providers, academia, and MIC - Published a report in December 2011 The report includes: - Summary of the 3. 11 disaster and its recovery - Action plan to protect the network against future disasters MIC: the Ministry of Internal Affairs and Communications 18

Outline of the Final Report Alleviating congestion in emergency situations Minimizing disruption to communications in the event of damage to base and/or relay stations Implications of the recent disaster for future network infrastructure Implications of the recent disaster for future internet usage 19

3 -1. Alleviating Congestion in Emergency Situations 1. Ensuring voice call capability (1) Revision of the design capacity of switching equipment and other measures to upgrade the overall capacity of the telecommunications network (2) Ensuring the stable viability of emergency priority calls (3) Consideration of new service types aimed at boosting the viability of voice calls (call length limit/reduced sound quality) 2. Expanding/Improving means of communication other than voice calls (1) Boosting the sophistication of emergency message services (Upgrade emergency message services (cross-referenced search) (2) Voice-based services not employing the telephone network (Convert Voice Messages into Data Files) (3) Addressing delays in mobile phone text message transmission (4) Simplified handsets for senior citizens 3. Keeping users informed of available means of communication during emergency (1) Effective information distribution via emergency notifications to mobile phones and broadcast media (2) Sharing and supplying of congestion and communications restrictions information through cooperation between the government and carriers (3) Education and distribution of information on communication methods during states of emergency in ordinary times 4. Designing robust networks to cope with congestion (R&D on Dynamic Control of Mobile Communication Networks at the Time of a Major Disaster) 20

Upgrade Emergency Message Services (cross-referenced searching) ■　Upgrading emergency message services to allow cross-referencing (i. e. searching) of different emergency message services. Register message/information of safety Emergency message dial (171) Registered: 570, 000 Viewed: 2, 760, 000 伝言蓄積装置 Storage device Record voice message/ information of safety Maximum capacity: 8 million messages Retention time: 48 hours （全国５０箇所） ・・・・・ 50 sites nationwide ・・・ Register message/information of safety via the internet Capacity: 500 million messages (text 伝言容量：５億伝言（テキスト換算） equivalent) 伝言保持：４８時間 (web 171) Retention time: 48 hours (web 171) View message/information of safety via the internet イ ン タ ー ネ ット 伝言サーバ Message server Registered: 110, 000 Viewed: 180, 000 I n Not evacuation centers Computer etc. Mobile phone/PHS emergency message boards Register message/information of safety on message servers maintained by mobile carriers Replay voice message/informatio n of safety 伝言蓄積装置 Storage device ・・・ F i x e 電 l i n網 固定d 話 e ・・・ n e t w o 固定電話番号（１０桁）で登録r k Registered with fixed line telephone number (10 digits) ・・ Emergency broadband message board (web 171) Evacuation center A Confirmation of message/safety t e r n e t Register with fixed-line phone number within disaster-affected 被災地内の固定電話番号で登録 region(mobile and IP numbers may also be used) （なお、携帯電話やＩＰ電話番号等も利用可能） Text Voice (attached file) Image (attached file) https: //www. web 171. jp Cross-referenced searching (at the initial stage, combined searching of emergency message boards and web 171) Registered: 1, 570, 000 Viewed: 2, 810, 000 Message server 伝言サーバー 各社携帯電話網 Mobile networks 伝言サーバー Message server Registered with telephone number (11 digits) 携帯電話番号（１１桁）で登録 View message/information of safety on message board services of mobile carriers Retention time: duration of the service for a specific 21 disaster

Convert Voice Messages into Data Files ■　Mobile carriers are introducing emergency voice message services for sending voice messages via the packet network at times of disaster. ■　Telecommunications Carries Association (TCA) developed a set of guidelines that includes interface specifications for interconnection to enable cross-communication among carriers. How the service works It is difficult to make contact because there is congestion after disaster Send voice messages by means of packet communications Calling Party ①Voice call (2)SMS notifications to B (1)Send voice messages Digitalize and send the message to B Packet network Send voice messages Message replay notifications A Voice call network Message Server of B (Do. Co. Mo center) (4)SMS notifications to A Notice that B received the message automatically Notice that B received the message Message receipt notifications Called party Receive voice messages (3)Replay messages Download and replay voice messages B 22

R&D on Dynamic Control of Mobile Communication Networks at the Time of a Major Disaster - Flexible reconfiguration of communication processing resources - Maximum possible resources can be directed to basic communication services during a disaster. Next-generation congestion-proof system Voice calls Email, internet Voice calls Music Movies Normal use Files Email, internet Music … Basic communication services … Voice calls Email, internet (emergency message boards) Music Movies Files … Rich media etc. Emergency use Movies Files No possibility to reconfigure or redirect processing resources Voice calls Rich media etc. Email, internet (emergency message boards) Other Dynamic allocation of processing resources 23

3 -2. Minimizing Disruption to Communications in the Event of Damage to Base and/or Relay Stations 1. Emergency repairs to damaged telecommunications infrastructure (1) Emergency repairs to base stations and local stations (2) Emergency repairs of transmission routes (3) Network sharing and collaboration between carriers during states of emergency (4) Information sharing and partnerships between relevant administrative institutions and infrastructure organizations 2. Providing communications capability to disaster-affected regions and evacuation centers (1) Securing and providing communications capability based on the length of time elapsed since disaster struck (Satellite-based mobile phones) (2) Advance deployment of effective means of communication in evacuation centers, etc. (Public Telephones as Means of Communication in Disaster) 24

3 -2. Minimizing Disruption to Communications in the Event of Damage to Base and/or Relay Stations 3. Ensuring stability of power supplies (Planned Revision to Technical Standards on Measures against Power Outage) (1) Ensuring emergency generators (including ensuring fuel) suited to the type and size of telecommunications facilities (2) Dissemination of information on the availability of fixed-line phones during electrical blackouts, and promotion of the use of battery powered fixed-line phones (3) Steps by manufacturers, etc. to reduce the power consumption of facilities and terminals, development of more lightweight and longer-lived batteries etc. 4. Providing emergency information and disaster damage reports (1) Effective use of emergency notification text messages on mobile phone (Emergency e -mail Notifications by mobile phone) (2) Enhancement and improvement of restoration area maps (3) Boosting the sophistication of services for verification of individual’s safety (using location data from mobile phone, etc. ) (4) Development of simplified devices for senior citizens and other means of providing information with consideration given to information literacy and accessibility 25

Satellite-based Mobile Phones ■ In order to secure means of communications for local governments in a time of disaster, MIC maintains reserve stores of satellite-based mobile telephones and simple radio communication devices and is formulating a system for lending these terminals free of charge to affected local governments. ■ In the Great East Japan Earthquake, the MIC loaned 214 satellite-based mobile telephones, 230 multichannel-access (MCA) radio communication devices, and 1, 355 simple radio communication devices. (2) Instruction to lend (3) Transportation to affected area Affected area Storage depot Relevant organizations How is the river? MIC Bureau of Telecommunications (1) Loan request Emergency response headquarters No flooding. Understood Preparation completed. Used as means of communication at disaster recovery centers and at on-site disaster management headquarters 26

Public Telephones as Means of Communication in Disasters Number of permanent public telephones (Type I) ■ Current 109, 000 public telephones should be maintained so as not to reduce the level of “minimal means of outdoor communication”, in disasters and other emergencies. Ad-hoc public telephones ■ It is hoped NTT East & West promote measures for ex-ante installation of ad-hoc public telephones at evacuation points and in convenience stores. Measures for improving convenience Providing information on the location of public telephones ■　NTT East & West should, using Web pages and other media, disclose widely the locations of permanent and ad-hoc public telephones. Announcements to users ■　NTT East & West should make efforts to publicize when call charges are to be waived during a disaster or other emergency. ■ Japan’s Telecommunications Carriers Association(TCA) and MIC should make efforts to 27 publicize this information and the universal service system.

Planned Revision to Technical Standards on Measures against Power Outage 【Measures against Power Outage】 ●Longer operation times for backup power generators and storage batteries • Considering a possibility of widespread and prolonged power outage that affects operation times for backup power generators and storage batteries, take necessary measures, including stockpiling of sufficient fuel and securing means of supplement, with respect to equipment that provide communications functionality to core emergency response facilities such as prefectural and municipal government offices. . ●Reporting/disclosure of backup power systems and procedures • • Report to MIC of measures against power outage (e. g. basic policy for operation times of communications functionality during a power outage, information on equipment with added protection against power outage and corresponding coverage areas, fuel reserves and supply systems) and status of deployment of equipment for emergency restoration (e. g. mobile power generator trucks). Disclose information on coverage areas of mobile base stations with backup power.

Emergency email Notifications by mobile phone ■ Mobile carriers are introducing emergency email notification systems. ■ They are also widening the scope to include tsunami warnings as well as emergency earthquake notifications, in cooperation with the Meteorological Agency. Generated by system automatically Meteorologic al Agency Em not ergen ific atio cy ea rthq n uak e Same system as for tsunami warnings ・ Messages appear on pop-up screen. ・ Emergency earthquake notifications and Area Mail messages use a special ringtone and/or vibration pattern. Area Mail Center Dedicated line Internet a cu n tio a ev d n ra te res s sa du Di oce pr Enter Local government manually on website ・ Sent to all mobile phones serviced by base stations within a given area simultaneously ・ Unaffected by network congestion Emergency earthquake notification Earthquake has occurred at ●●●. Be prepared for strong tremors. (Meteorologi cal Agency) ） 29

3 -3. Implications of the Recent Disaster for Future Network Infrastructure 1. Improving the disaster resilience of network (1) Ensuring network safety and reliability (Planned Revisions to Technical Standards on Safety and Reliability) (2) Promoting introduction of local government common duct etc. (3) Infrastructure deployment to suit the recovery plan of the affected area (4) R&D to improve network disaster-resistance (Research & development to enhance communication-network resistance to disasters) 2. Setting up systems and structures for responding to disaster (1) Verification/review of structure for responding to disasters at relevant telecommunications carriers (2) Information sharing/conveyance structure between the national government, relevant enterprises and local government 30

Planned Revisions to Technical Standards on Safety and Reliability I. Power outage ① Longer operating times for backup power generators and storage batteries II. Damage to trunk transmission lines Augmented with wide-zone base stations ⑥ Reports and updates on repairs to trunk transmission lines ② Reports and updates on efforts to restore power Central disaster response facility V. Other ⑬ Improve PHS resilience to power outages ⑫ Designate organizations with priority access to telephone network in an emergency ⑩ Analyze network usage during restricted periods IV. Network congestion and priority communication services Central disaster response facility S cro pare l i -en tra ne nce link (mi 24 -hour operation of backup power generators and storage batteries Mobile power generator trucks ) Mobile base station trucks ⑤ Additional base station capacity at central disaster response facility ③ Provide multiple transmission routes between all exchange facilities ④ Improve loop structure network reliability Authenticati on system ⑦ Geographical dispersion of key telecommunications facilities ⑨ Reports and updates on design capacity ⑧ Response based on hazard maps ⑪ Updates on network congestion III. Tsunami/flooding 31

Research & development to enhance communication-network resistance to disasters Based on lessons from the damage caused by the earthquake and tsunami, MIC implements research and development of disaster-proof technology to strengthen the critical ICT infrastructure. （１） Improvement of availability （２） Improvement of interoperability Research and development of technology to suppress telecommunication congestion of mobilenetwork and others by flexible-allocation of network-resource between different networks, when congestion is caused by a disaster. Internet line Data line Mobile network Flexible telecommunication between different networks Research and development of technology to reconstruct network-infrastructures immediately and automatically between different networks, when network-infrastructures are broken by the disaster, such as earthquake or tsunami, etc. Using the testbed in the stricken area (Tohoku area), actual proof experiments will be conducted. Internet connection Image transmission Emergency call Network Interoperability between different telecommunication devices Tohoku area

3 -4. Implications of the Recent Disaster for Future Internet Usage 1. Maintaining the viability of Internet connections (1) Safeguarding Internet access and functionality (Review of Bandwidth-control Guideline) (2) Approaches to network construction underpinning the Internet 2. Effective use of the Internet (1) Information sharing over the Internet (Publication of Recovery/ Reconstruction Data in Digital Format) (2) Use of social media services (3) Use of mirror sites (4) Information gap considerations (5) Effective use of the Internet 3. Application of cloud services (1) Active use of cloud services (2) Collaborations between cloud service providers (R&D on Inter-Cloud Technology for Wide-area Disaster Responses) 4. Building collaborative frameworks among Telecommunications operators to prepare for disaster (1) Operator collaborations to secure communications in the event of a disaster 33 (2) Coordination of disaster message boards

Review of Bandwidth-Control Guideline Background to bandwidth control ■　Internet traffic has increased dramatically with the spread of broadband. In particular, situations in which heavy users occupied too much network bandwidth existed. ■　Some ISPs applied bandwidth control to deal with the occupation of bandwidth by heavy users. Formulating the guidelines for bandwidth-control operating standards ■　In May 2008, an association of telecommunications operators (with MIC participating as observer) formulated a guideline for bandwidth-control operating standards (partly revised in June 2010). The purpose of the guideline is to establish minimum-requirement rules for operating standards, so avoiding arbitrary bandwidth controls. Overview of guideline for bandwidth-control operating standards ●　Categories of bandwidth control 1. Control of communications bandwidth by heavy users exceeding a set traffic volume 2. Control of communications bandwidth targeting specific applications (e. g. , P 2 P) ●　Organizing issues related to the Telecommunications Business Law: secrecy of communications, non-discrimination between users, and information disclosure Reviewed　guideline was published in March 2012 focusing on traffic control for temporarily restricting users’ access to bandwidth across the board with a view to preventing entire network congestion 34 during disaster.

Publication of Recovery/Reconstruction data in Digital Format ■ Information should be provided in HTML and CSV formats (not only in PDF, Word, Excel) in order to ensure the secondary use, access by mobile phone and to reduce the burden on networks. Title File formats for disclosing important information to the public (18 March, 2011: LASDEC(Local Authorities Systems Development Center) all local governments) Request for cooperation in providing disaster-related information (22 March, 2011: Cabinet Public Relations Secretary Other ministries) File formats for providing information on earthquakes occurring off the Tohoku coast Summary • • • (30 March, 2011: Ministry of Economy, Trade and Industry Keidanren(Japan Business Federation) ) Listings on each ministry’s Web site should provide the necessary information in a timely manner and in a form easily understood by citizens. Promptly make Web pages accessible by mobile phones. Change PDF Web content to HTML format. • As far as possible, use file formats, such as HTML and CSV, that place a relatively light burden on communication lines, rather than using only the more data-heavy file formats, such as PDF. • As far as possible, use data formats suited to automated processing, such as HTML and CSV, rather than using only data formats that are difficult to process automatically, such as PDF. 35 Develop a separate open API for information dissemination (29 March, 2011: Ministry of Internal Affairs and Communications Other ministries) Data formats for publishing information on earthquakes occurring off the Tohoku coast Publish information in HTML format, not in PDF alone. Use JPEG format, instead of PDF, as to scanned paper documents. Use CSV format, instead of Excel format, as to tabular data. •

R&D on Inter-Cloud Technology for Wide-area Disaster Responses - Sharing resources among multiple cloud systems by optimal communication route after a large -scale disaster - Transfer whole processing functions from one cloud to another within 30 minutes Advantages of the Inter-cloud approach - Individual operators can keep investment costs to a minimum. - Small and medium-sized operators will not be forced out of business. Cloud 1 Normal load 3 facilities Overload 4 facilities Cloud 2 2 stand-by facilities Use stand-by facilities of other carriers Cloud data center A Cloud 3 1 stand-by facility Boost disaster response capacity by Inter- clouds dispersed around remote regions Available to local businesses in the Tohoku region 1 stand-by facility d Clou nter. I Inter-Cloud test bed Cloud data center C Cloud data center B Technology for instant switching based on validation using JGN-X 36

The final report (English version) is available at: http: //www. soumu. go. jp/main_cont ent/000146938. pdf Press Release: Official Announcement of Final Report on the Maintaining Communications Capabilities during Major Natural Disasters and other Emergency Situations (December 28, 2011) http: //www. soumu. go. jp/main_sosiki/joho_tsusin/eng/Releases/Telecommunicatio ns/11122803. html 37

Thank you for your attention! 38