NIST Special Publication 1093 

Mass Notification Messages: 

Workshop Proceedings 

Erica D. Kuligowski 

Richard D. Peacock 

Jason D. Averill 

Richard W. Bukowski 
NIST Special Publication 1093 

Mass Notification Messages: 

Workshop Proceedings 

Erica D. Kuligowski 

Richard D. Peacock 

Jason D. Averill 

Richard W. Bukowski 

Building and Fire Research Laboratory 

March 2009 

U.S. Department of Commerce 

Otto J. Wolff, Acting Secretary 

National Institute of Standards and Technology 

Patrick D. Gallagher, Deputy Director 
Certain commercial entities, equipment, or materials may be identified in this 

 document in order to describe an experimental procedure or concept adequately. Such 

identification is not intended to imply recommendation or endorsement by the 

National Institute of Standards and Technology, nor is it intended to imply that the 

entities, materials, or equipment are necessarily the best available for the purpose. 

National Institute of Standards and Technology Special Publication 1093 

Natl. Inst. Stand. Technol. Spec. Publ. 1093, 162 pages (March 2009) 

CODEN: NSPUE2 
ABSTRACT 

The goal of the workshop was to provide a forum where representatives from federal 

agencies could exchange ideas and current practices for mass notification in the event of 

an emergency and to discuss best practices for the creation of the messages that are 

disseminated during emergencies in the United States. The workshop included experts on 

mass notification from 12 different agencies in the federal government. 

After a review of the state-of-the-art on public warnings, the workshop participants spent 

the morning and afternoon sessions discussing the following questions: 

1) Break-out Groups: What are the differences/gaps between current mass 

notification systems and the lessons learned from research on community 

disasters? 

2) Large Group Discussion: How do we close these gaps to ensure that the correct 

information is given to the public when an emergency is imminent? 

The results of each session’s deliberations were discussed in the concluding session of 

the workshop. The most significant gap identified by the workshop participants was the 

lack of information transfer from researchers studying how the public responds to 

warnings to the individuals developing warnings to disseminate to the public during an 

emergency. In order to close this gap, several workshop participants expressed the need 

for federal guidelines and tools for message providers (e.g., local officials, building 

managers, etc.) that outline how to develop messages for each type of emergency and 

then how to disseminate these messages appropriately. In addition to federal guidelines, 

training courses and on-line resources for message providers could ensure more effective 

message creation and dissemination during disasters. 

Keywords: mass notification, public warnings, emergency messages, hazards, disasters, 

fires, emergencies 
Table of Contents 

1. Introduction.................................................................................................................. 1 

2. Workshop Agenda ....................................................................................................... 2 

3. Workshop Attendees.................................................................................................... 3 

4. Notes from Workshop Discussions............................................................................ 11 

5. Conclusions and Future Work ................................................................................... 17 

Appendix A - Mass Notification Messages Workshop Presentation 

Appendix B - Resources Provided by Workshop Attendees 

iii
Mass Notification Messages Workshop 

February 19, 2009 

National Institute of Standards and Technology 

1. Introduction 

On February 19, 2009, the National Institute of Standards and Technology (NIST) held a 

Federal Workshop on Mass Notification Messages. Participants from 12 federal agencies 

attended to discuss issues surrounding warning the public, building occupants, and other 

organizations during an emergency. The workshop, in addition to being a networking 

success, brought 37 federal employees and others around the table to discuss different 

perspectives and ideas surrounding mass notification messages and information 

dissemination during emergencies. 

The workshop was held at the Building and Fire Research Laboratory (BFRL) within 

NIST. BFRL’s mission is to promote U.S. innovation and competitiveness by anticipating 

and meeting the measurement science, standards, and technology needs of the U.S. 

building and fire safety industries in ways that enhance economic security and improve 

the quality of life. BFRL’s interest in mass notification systems focuses on the disconnect 

between the attention paid to the development of the hardware systems (which has 

received a great deal of attention) and the attention paid to the creation of messages and 

information to be disseminated by that hardware (which has received less). There are 

significant measurement science and standards opportunities in this area, which must be 

addressed. 

The purpose of this workshop was twofold: 1) to provide a forum where representatives 

from federal agencies could exchange ideas and current practices for mass notification in 

the event of an emergency and 2) to discuss the lack of attention paid to the creation of 

the messages that are disseminated during emergencies in the United States. During the 

discussion, agencies learned about the mass notification activities that are currently 

taking place in other agencies, discussed gaps in the current system, and then identified 

some possible ways forward to closing these gaps with current systems and future steps. 

This workshop encouraged the exchange of ideas and the development of new linkages 

between agency efforts that will likely continue in the months and year to come. 

This workshop proceedings contains the workshop agenda; a list of the workshop 

participants; notes from the discussion during the workshop; a discussion of future work 

in the area of mass notification; a public warnings presentation given by Dennis Mileti, 

University of Colorado, and Erica Kuligowski, NIST; and resources provided by 

workshop participants to share best practices among agencies. 

1
2. Workshop Agenda 

9:00 - 9:15 am Brief discussion of workshop agenda/organization 

Introductions 

9:15 – 11:00 am Presentation of social science research on public warnings given 

by Dennis Mileti, University of Colorado and Erica Kuligowski, 

NIST 

Questions from the audience 

11:00 – 11:15 am Break 

11:15 – 11:45 am Break-out Session: Comparison of research with current best 

practices 

11:45 am – 12:30 pm Group discussion about Break-out Session 

12:30 – 1:30 pm Lunch in the NIST cafeteria 

1:30 – 3:00 pm Large Group Discussion: Methods to bridge the gaps identified in 

the Break-out Session through current practice and future steps 

3:00 – 3:15 pm Break 

3:15 – 4:00 pm NIST wrap-up and discussion 

4:00 pm Adjourn 

2
3. Workshop Attendees 

Department of Defense: 

Joseph Simone 

Chief Fire Protection Engineer 

NAVFAC Washington (U.S. Navy) 

U.S. Department of Defense 

joseph.simone@navy.mil

202-685-9117 

Daniel Berkoski 

NAVFAC Washington (U.S. Navy) 

U.S. Department of Defense 

daniel.berkoski@navy.mil

202-685-0186 

Robert DiAngelo 

Chief Fire Protection Engineer 

U.S. Army Corps of Engineers 

U.S. Department of Defense 

robert.m.diangelo@usace.army.mil

202-761-0703 

Jeffry Dudley 

Fire Protection Engineer 

U.S. Air Force HQ Air Combat Command 

U.S. Department of Defense 

jeff.dudley@langley.af.mil

(757) 764-2876 

Jeffrey M. Woodard 

USMC Electronic Security Systems, Code 51530 

SPAWAR Systems Center Charleston 

U.S. Department of Defense 

jeff.woodard@navy.mil

843.218.5549 

3
Department of Homeland Security: 

Michael Dunaway 

Program Manager, Community Preparedness & Resilience 

Human Factors Division, Science & Technology Directorate 

U.S. Department of Homeland Security 

michael.dunaway@dhs.gov

Holly Rensvold 

SETA Support | Strategic Analysis, Inc. 

Science & Technology Directorate 

U.S. Department of Homeland Security 

Holly.Rensvold@associates.dhs.gov

202-254-6363 

William Kalin 

Consultant 

Clarus Technology 

Office for Interoperability and Compatibility 

Science and Technology 

U.S. Department of Homeland Security 

bill.kalin@associates.dhs.gov

202-254-6774 

DHS/Federal Emergency Management Agency: 

Cindy Taylor 

Executive Officer 

FEMA External Affairs 

U.S. Department of Homeland Security 

cindy.taylor@dhs.gov 

Ralph Swisher 

Project Officer 

Emergency Preparedness Demonstration Program (for disadvantaged groups and 

communities) 

FEMA 

U.S. Department of Homeland Security 

Ralph.swisher@dhs.gov 

(202) 646-3561 

4
Walter Florence 

Integrated Public Alert and Warning System PMO 

National Continuity Programs Directorate 

FEMA 

U.S. Department of Homeland Security 

Walter.Florence@dhs.gov

Timothy Putprush 

Program Manager 

Integrated Public Alert and Warning System (IPAWS) 

FEMA 

U.S. Department of Homeland Security 

Timothy.Putprush@fema.gov

540-542-2204 

Michael Donovan 

Program Manager 

Integrated Public Alert and Warning System (IPAWS) 

FEMA 

U.S. Department of Homeland Security 

Michael.Donovan@fema.gov

202-646-2733 

Chris Springer 

Consultant 

Integrated Public Alert and Warning System (IPAWS) 

FEMA 

U.S. Department of Homeland Security 

Christopher.Springer@fema.gov

202-646-5790 

DHS/US Fire Administration: 

Kenneth Kuntz 

National Fire Academy staff 

U.S. Fire Administration 

ken.kuntz@dhs.gov

5
General Services Administration:

David Frable 

Senior Fire Protection Engineer 

Fire Protection and Life Safety Program 

Environmental Division 

U.S. General Services Administration 

dave.frable@gsa.gov

630-845-1623 

Joshua Elvove 

Senior Fire Protection Engineer 

Fire Protection and Life Safety Program 

Environmental Division 

U.S. General Services Administration 

joshua.elvove@gsa.gov

Joseph Dafin 

Fire Protection Engineering Team Leader 

National Capital Region 

U.S. General Services Administration 

joseph.dafin@gsa.gov

Laura Doyle 

Fire Protection Engineering Team Leader 

National Capital Region 

U.S. General Services Administration 

laura.doyle@gsa.gov

National Oceanic and Atmospheric Administration’s National Weather Service: 

Margaret Fowke 

Program Analyst 

Office of Strategic Planning and Policy 

National Weather Service 

National Oceanic and Atmospheric Administration 

margaret.fowke@noaa.gov

301-713-0258, ext.189 

Chris Maier 

National Warning Coordination Meteorologist 

National Weather Service 

National Oceanic and Atmospheric Administration 

chris.maier@noaa.gov

301-713-0090 x175 

6
Herbert White 

Dissemination Services Manager 

Office of Climate, Water, and Weather Services 

National Weather Service 

National Oceanic and Atmospheric Administration 

Herbert.White@noaa.gov

301-713-0090 x146 

Craig Hodan 

Chief, Dissemination Systems Branch 

National Weather Service 

National Oceanic and Atmospheric Administration 

craig.hodan@noaa.gov

301-713-9480 x 187 

Environmental Protection Agency: 

Dayna Gibbons 

U.S. Environmental Protection Agency 

Gibbons.Dayna@epamail.epa.gov

Janis Johnston 

AAAS Science and Technology Policy Fellow 

National Homeland Security Research Center 

U.S. Environmental Protection Agency 

Johnston.Janis@epamail.epa.gov

Nuclear Regulatory Commission: 

Ned Wright 

Emergency Preparedness Specialist 

Division of Preparedness and Response 

Office of Nuclear Security and Incident Response 

US Nuclear Regulatory Commission 

Ned.Wright@nrc.gov

7
Department of Energy: 

Al Cerrone 

Continuity of Operations Program (COOP) Manager 

Office of Emergency Operations 

U. S. Department of Energy 

Al.Cerrone@nnsa.doe.gov

Bill McArthur 

Director 

Office of Worker Safety and Health Policy 

U.S. Department of Energy 

bill.mcarthur@hq.doe.gov

301-903-9674 

Centers for Disease Control: 

Marsha Vanderford 

Branch Chief, 

Emergency Communications 

Centers for Disease Control and Prevention

mvanderford@cdc.gov 

404-639-0848 

State Department: 

Don Traff 

Chief, Fire Protection Section 

Domestic Environmental and Safety Division 

A/OPR/FMS/DESD 

U.S. Department of State 

TraffDP2@state.gov

202-647-9528 

Joon Yoo 

Fire Protection Engineer 

Domestic Environmental and Safety Division 

A/OPR/FMS/DESD 

U.S. Department of State 

YooJW@state.gov

202-647-6716 

8
National Institute of Standards and Technology:

Jason Averill 

Group Leader of the Engineered Fire Safety Group 

Building and Fire Research Laboratory 

National Institute of Standards and Technology 

jason.averill@nist.gov

301-975-2585 

Richard Bukowski 

Senior Research Engineer 

BFRL Coordinator of Standards and Codes 

Building and Fire Research Laboratory (BFRL) 

National Institute of Standards and Technology 

richard.bukowski@nist.gov

301-975-6853 

Erica Kuligowski 

Fire Protection Engineer 

Building and Fire Research Laboratory 

National Institute of Standards and Technology 

erica.kuligowski@nist.gov

301-975-2309 

Richard Peacock 

Chemical Engineer 

Building and Fire Research Laboratory 

National Institute of Standards and Technology 

richard.peacock@nist.gov

301-975-6664 

University of Colorado:

Dennis Mileti 

Professor Emeritus, Sociology Department 

Former Director, Natural Hazards Center 

University of Colorado at Boulder 

dennis.mileti@colorado.edu

9
National Academy of Sciences:

Claudia Mengelt 

Program Officer 

Ocean Studies Board 

National Academy of Sciences 

Cmengelt@nas.edu

202-334-1993 

10
4. Notes from Workshop Discussions 

As a start to the workshop, Dennis Mileti and Erica Kuligowski gave an overview of the 

social science research on public warnings. Their presentation had three main sections; 1) 

a discussion regarding the research base, 2) an overview of a complete and integrated 

warning system, and 3) the factors that influence public warning response. The complete 

presentation can be found in Appendix A. After the presentation, workshop participants 

formed four break-out groups that discussed how their agency’s and/or the nation’s best 

practices (either research-based or applications-based) compared with the lessons learned 

from research performed on community-based disasters. From these groups, a series of 

gaps were identified. They are provided below. 

Breakout Session: Comparison of research with current best practices 

1) Messages created to follow a set of regulations (for a certain federal agency) do not 

necessarily equate to a meaningful message that will ensure appropriate public 

response. Messages need to be tested to confirm effectiveness and ensure appropriate 

public response. 

2) There is no current national education system to assist in the development of a 

national warning system. 

3) There is a need for a standardization of terms that would be used in public warning 

messages, e.g., shelter in place, defend in place, lock-down, etc. These terms are used, 

sometimes interchangeably; however, they can be confusing for the general public. 

4) At the moment, there are several individual federal agencies, some focusing on 

specific sets of hazards and although some of the agencies have commonalities, there 

are still silos among the agencies/hazards. There is a need for a coordinated agencywide effort for warning the public in emergencies. 

5) There is an information transfer gap between the research/technology and the local 

governments (the people developing and providing the messages). There needs to be 

larger effort at clearly transferring research and data to the people who need to use 

this information in planning for emergencies. 

6) There is no single, consistent message for each type of hazard; i.e., there is no single 

message on hurricanes from all agencies; no single message on fires for all agencies, 

etc. 

7) There is a need to train and provide the necessary resources to the message providers. 

8) The emergency messages that are disseminated to the public in an emergency should 

avoid information overload. There is specific information that should be provided to 

the people with special needs and then other information that should be provided to 

the general public. 

11
9) The federal government needs to construct a multi-hazards, multi-jurisdictional 

approach to warning the public in an emergency. 

10) The local and state emergency officials are invited to the region or federal planning 

and/or training meetings; however, they are usually too busy to attend. 

11) During an emergency, there is not always enough time to coordinate among agencies 

on the development of an appropriate message (at the community level, campus level 

or building level). At the present time, little effort has gone into pre-coordination for 

public warnings. The lack of pre-coordination on messages and dissemination is a 

problem because sometimes in disasters, messages are not provided to the public or 

they are provided, without the appropriate information from the warning players 

involved. 

12) There is an issue with the use of jargon in emergency messages. When messages use 

jargon, there is a possibility that the public may not understand the messages. This is 

especially likely with visitors, people whose first language is not English, etc. 

13) Question – how does a community/building/agency, etc. use technology systems 

(e.g., alarms and sirens) without inducing an inappropriate reaction from the public? 

14) Question – in an emergency, how does one convey the actual threat to life? For 

example, in Hurricane Katrina, the actual threat to life was the water/flooding from 

the hurricane, instead of the hurricane itself. 

15) In the Mileti/Kuligowski presentation, one of the suggestions was to continually 

monitor the actions of the public during a disaster, so that warnings/messages can be 

refined to ensure appropriate public response. At the moment, monitoring the public 

response and adapting the warnings to that response is not being done as well as it 

should be in the United States. 

12
In the afternoon session, the workshop participants discussed ways in which the federal 

government could close the gaps identified in the morning session. Some workshop 

participants mentioned that many agencies may have already developed the technology to 

ensure a complete, integrated warning system, including reverse 9-1-1, Integrated Public 

Alert and Warning System (IPAWS), social networking technology such as texting 

technology, and others. However, these require positive actions by the public. There was 

a brief discussion about how to get the public to enroll in the receipt of these messages 

via various technologies, and participants suggested code requirements and/or providing 

some impetus to get people to sign up for such technology services. 

Even if the technology exists, effective communication depends also on the content of the 

message. Therefore, the large group discussion focused on what should be done to ensure 

that the correct, appropriate information is provided to the public in an emergency. A 

series of suggestions are provided here from the discussion. 

Large Group Discussion – What should be done to ensure that the correct 

information is given to the public in an emergency? 

1) The public should be educated well before the threat. It is important to know that a 

hazard is approaching or the likelihood that a disaster will occur, e.g., tornadoes or 

other short lead-time warning events. At the moment, there is no national education 

campaign. 

2) Currently, there is no education on what to do in preparation for or during a disaster. 

The public (e.g., school children) could be educated similar to the methods used 

around the time of the Cold War – in the schools. 

3) This discussion has focused more on preparedness for a disaster rather than how to 

warn the public when a disaster is imminent. 

4) A question was raised regarding who gives the message. The consensus reached was 

that it was “the locals” (e.g., local emergency managers, local officials, building 

managers, etc.) who were responsible for providing messages to the public in a 

disaster. Therefore, the federal government needs to make sure that “the locals” are 

trained in providing appropriate messages in emergencies. 

5) An emphasis should be placed on providing the local officials with the resources that 

they need to ensure that the correct information is given to the public during a 

disaster. 

13
What is our federal approach? What does the federal government need to do to ensure 

that the correct information is given to the public when a disaster is imminent? 

Guidelines, standards and requirements/generic templates 

6) Best practices and guidelines on message development should be created for message 

developers (e.g., the locals who are tasked with writing emergency messages). These 

can be placed as an appendix to the building codes; e.g., National Fire Protection 

Association (NFPA) 72, National Fire Alarm Code. 

7) Generic templates should be established for different types of hazards, so that 

messages can be developed quickly in an emergency. 

8) Both training and guidance on message writing for each emergency hazard should be 

developed. The federal government should provide tools so that consistency in 

messages among regions in the country can occur. Currently, the information 

provided to the public in an emergency is very different from state to state. The 

federal government can help by providing expertise, tools, techniques, guidelines, etc. 

9) However, the issue is initiating the standards rather than enforcing the standards. 

Generic process standards on how to write a message and disseminate the message 

should be developed rather than the specific words for each community. The reason 

for this is because each community’s needs and requirements are different, so it must 

be left up to the local officials to provide the community-based information during a 

disaster. 

Training and education/workshops 

10) Another way to ensure that the local officials provide the correct information to the 

public is through training, possibly through the Federal Emergency Management 

Agency (FEMA). One possibility is to take advantage of the FEMA alert warning 

course (See Appendix B – Resource Section). Training courses and/or workshops 

should be given to the state/local emergency officials on message writing and 

dissemination. 

Metric/Measurement 

11) A metric to measure how well the new messages for specific emergencies actually do 

what they are supposed to do (elicit appropriate public response) should be 

developed. Once tests are performed using this metric, the results from these tests 

should be communicated to message providers in order to improve current best 

practices. 

14
Regional approach 

12) Within these approaches (guidelines, training, templates, etc.), the differences in 

response among the regions should be taken into account. For example, if there are 

sirens blaring in Norman, OK (where tornadoes are prevalent), the public is likely to 

understand what that means. However, in Washington, DC, what would the public 

do? 

Other suggestions 

13) Standardized terminology should be developed for use in public warnings/messages 

around the country. For example, some messages may use “defend in place,” while 

others may use “remain in place” or “shelter in place” to instruct people to remain in 

their current location (without relocating) until further notified. These become 

confusing to people not familiar with the evacuation procedure for their community 

and/or building. 

14) The federal government should advertise its information and research in a better way. 

Money should be spent on better communicating our messages out to the people who 

need them. For example, take a look at that “freecreditreport.com” commercial – this 

is a commercial that is very difficult to forget. 

15) Attention should be paid to the organizations that have been warning outside of 

official channels (e.g., Rim of the World - http://www.rimoftheworld.net/). The newer 

generations will tackle technology and warning issues in a new way. There will be an 

interface (the bottom up approach meets the top down approach, e.g., the 

government) that will require quality control. 

16) Incentives should be provided for local officials to create appropriate messages and 

use the appropriate dissemination methods. One method of incentivizing is to tie any 

grants provided to the local governments to their attendance at training workshops or 

courses on how to write an emergency message. 

Concerns with the approach, the future 

17) There is a perception of resistance from the local level to instructions and/or 

requirements established at the federal level. 

18) In reference to the federal government providing guidelines on message development, 

the local officials are the most knowledgeable about their terrain (e.g., the weather in 

their region, the subpopulations that live in the area, etc). Therefore, the responsibility 

of message development should be left entirely to them. 

19) The federal government is so big with so many different agencies. How do different 

agencies within the federal government make sure that the information that one 

15
agency is giving out does not conflict with the information provided by another 

agency? How do we make sure that the federal information is consistent? 

20) Where does the grant funding come from? For example, the National Oceanic and 

Atmospheric Administration does not have any grant funding associated with the 

HazCollect project (See Appendix B – Resource Section) at this time that can be used 

as leverage to motivate warning authorities to take training modules. 

What has already been done? 

21) At the Nuclear Regulatory Commission, there are standards for the time frame to 

deliver/provide the message. This standard is 15 minutes and needs to be physically 

demonstrated by those applying for the plant licenses. 

22) The Centers for Disease Control and Prevention has templates for messages for 

specific disasters and the National Public Health Information Coalition also has 

templates for messages for other types of disasters (See Appendix B – Resource 

Section). These templates should be made accessible to message providers. 

23) The Department of Homeland Security has a new program on improvised explosive 

devices (IEDs) that will produce best practices to train local officials and community 

leaders on how to frame warnings in these types of events. 

24) The Federal Emergency Management Agency has a disaster management program 

that focuses on writing emergency messages and how to decide when to issue a 

warning. 

25) Common Alerting Protocol (CAP) is a non-proprietary data exchange format that can 

be used to transfer emergency information between alerting systems. The Federal 

Emergency Management Agency is working with other federal agencies and the 

private sector to bring CAP to fruition. The CAP Alert Origination Working Group 

will work with representatives from emergency management, weather service, 

manufacturing, special needs, and other communities of interest to develop best 

practices for message content and format (in progress). At the moment, it is unclear 

how CAP is defining message content. 

16
5. Conclusions and Future Work 

The purpose of the workshop was twofold: 1) to provide a forum where representatives 

from federal agencies could exchange ideas and current practices for mass notification in 

the event of an emergency and 2) to discuss the lack of attention paid to the creation of 

the messages that are disseminated during emergencies in the United States. To do this, 

the day was structured for two separate discussions, one discussion about gaps in the 

current mass notification messages and dissemination strategies, and another discussion 

about methods (both current efforts and future steps) to bridge these gaps related to 

message creation. 

Gaps in message creation and dissemination 

During the discussion about gaps in message creation and dissemination, a major theme 

surfaced regarding information transfer. Essentially, the people providing the messages 

(i.e., message providers) in a disaster do not have the necessary tools, techniques, 

guidance, and training that they require to provide information to the public when a 

disaster is imminent. Workshop participants identified the lack of canned or standardized 

messages for specific emergencies for message providers to use when that emergency 

occurs. Also, information transfer becomes particularly difficult since message providers 

are usually local officials or building managers that are extremely busy on a daily basis 

and do not necessarily have the time and/or institutional support to attend training 

sessions or perform research on public warnings. In most instances, messages are 

“created” moments before they are disseminated with little or no reference to the 

expertise or research on effective public warnings. 

Along with the information transfer gap, other gaps were discussed. Participants 

identified the lack of standardization of the emergency terms that are used in warning 

messages (e.g., shelter in place, defend in place, lock-down, and other ways to keep 

people in their homes and buildings). Similarly, the issue of jargon in current messages 

was raised along with the confusion over how much information should be provided in 

one message. There was a consensus that while a text message character limit, for 

example, may not be sufficient to provide an efficient message, message writers must be 

careful to avoid information overload. 

Methods to close the gaps 

Workshop participants spent the afternoon discussing methods to close these gaps with 

current and/or future efforts among federal agencies. The overwhelming response from 

workshop participants was the need for federal guidelines and/or tools for local message 

providers (e.g., local officials, building managers, etc.) on how to develop messages for 

each type of emergency. The participants envisioned that these guidelines would very 

clearly translate the research identified in the social sciences and other disciplines on 

evidence-based messages into guidelines as well as generic templates and canned 

messages. The implementation of these guidelines into a standard was suggested; 

however, not all workshop participants were interested in imposing federal guidelines on 

local officials in the United States. It is important that these guidelines remain relevant, 

17
but generic so that local officials and building managers can incorporate regional factors 

into their message to ensure appropriate public response. 

In the group discussion, some suggested that additional help should be given to the 

message providers to ensure better message creation. One suggestion was to provide 

training sessions and workshops for local message providers, in addition to or instead of a 

guidelines document. Additionally, the federal government could institute incentives that 

would accompany the use of guidelines or attendance to training sessions, and these 

incentives could include providing grants to the local officials or building managers that 

incorporate certain techniques into their message creation and dissemination program. 

Last, another suggestion involved creating a metric to measure the efficiency of 

developed messages in eliciting a certain response from the public. Participants suggested 

that other agencies were already incorporating message metrics into their projects by 

actually testing, in a laboratory, the effectiveness of certain types of messages. Once 

these tests are performed, results should be communicated to the message providers so 

that current best practices can be improved. 

Where do we go from here? 

During the discussion, certain agencies identified publicly-available resources that help to 

initiate the process of information transfer to the local message developers/providers. 

These resources are provided in Appendix B of this proceedings. The resources include 

documentation on alerting and warning the public (including agency regulations and/or 

specifications for messages), descriptions of warning training courses (both used in the 

past by FEMA and currently in development at the National Weather Service), and 

message templates and examples for use in certain types of emergencies (e.g., 

bioterrorism, chemical agents, radiation, hurricanes and pandemic flu). It is clear that 

some agencies have noticed and begun responding to the need for common practices in 

warning content (see Appendix B). 

Through this workshop, NIST has begun the necessary effort of collecting the wealth of 

knowledge on public warnings in the federal government for local message providers. 

What is still needed, however, is a broad federal effort to extend and supplement this 

information with guidance on message creation for types of emergencies not mentioned 

above, including fire, tornadoes, floods, etc. Many participants felt that, from this effort, 

an all-inclusive guidance document should be developed for local warning providers that 

outlines how to develop messages for all types of emergencies that occur in the United 

States. This guidance document could include guidelines on how to structure a warning 

message, guidelines on how to disseminate that message appropriately, and examples of 

this method through the use of generic templates and canned messages for different types 

of emergencies. Also, the guidance document could provide metrics to use when 

evaluating whether messages elicit the intended public behavior. 

Federal agencies are in the unique position to work together on this effort to improve the 

way that warnings are created and disseminated in this country. Some at the meeting 

suggested the value of developing a federal standing committee on mass notification 

messages to continue discussion on warning resources and begin the development of the 

18
19

federal guidance document. This standing committee could consist of many people 

representing the agencies present at the workshop as well as other interested parties. 
Appendix A

Mass Notification Messages Workshop Presentation
Mass Notification 

Messages Workshop

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79
80

STATUS

ROLES

EXPERIENCE

CUES

INFO

RECEIVED

MILLING

KNOWLEDGE

PERCEIVED

RISK ACTION

INFO 

BELIEF
81

STATUS

ROLES

EXPERIENCE

CUES

INFO

RECEIVED

MILLING

KNOWLEDGE

PERCEIVED

RISK

ACTION

IINFO 

BELIEF
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90
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91
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92
93
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6"/+7%/*+7%(%*%665/+(*B .+*+7%*6%$%/.&*&%9%&

94
CONCLUSION CONCLUSION

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Appendix B

Resources Provided by Workshop Attendees
1

Resources provided by Workshop Participants:

Ned Wright, NRC:

1) The NRC/FEMA regulation on Alert and Warnings and Public Information

(http://www.nrc.gov/reading-rm/doc-collections/nuregs/staff/sr0654/sr0654r1.pdf)

See document pages 43-46, 49-51, and Appendix 3

2) FEMA Course sponsored by the Emergency Management Institute (EMI)

G272 - Warning Coordination

--------------------------------------------------------------------------------

This 1!-day field course is the latest in the hazardous weather series of courses 

produced in partnership with the National Weather Service (NWS). It is designed 

to be conducted jointly by NWS warning coordination meteorologists and state 

emergency management staff for an audience of local emergency managers. 

Every year the United States experiences more severe weather than any other 

country in the world. In order to reduce deaths, injuries, and property losses, 

emergency managers must work closely with the NWS and the news media to 

provide effective warnings that can be received and understood by people at risk. 

This course is intended to help facilitate that process.

Course topics include The Social Dimensions of Warning Response; Developing 

Effective Warning Messages; Developing an Effective Community Warning 

Process; and working with the news media to create a Weather Warning 

Partnership.
2

Marsha Vanderford, CDC:

CDC has developed content for initial alert messages on a number of likely public 

health threats on the CDC "First Hours" site: 

http://emergency.cdc.gov/firsthours/intro.asp

It includes at all Category A bioterrorism agents Anthrax, Botulism, Pneumonic 

Plague, Smallpox, Tularemia, Viral Hemorrhagic Fevers (VHF) ; chemical agents, 

radiation agents, and suicide bombs. Each one includes pre-approved 

and messages tested with the public for clarity, actionability, and 

comprehension. Long and short versions of each are available. You will also find 

reports about audience testing and profiles on the site.

In addition the National Public Health Information Coalition has an inventory of 

materials on hurricanes and pan flu produced by state and local health 

departments that can provide examples of alerting messages that might be 

repurposed by others. The pan flu inventory is found at 

http://www.nphicpanflu.org/ Hurricane messages can be found at 

http://www.nphic.org/hurricane.aspx
Timothy Putprush, FEMA: 

Web resources: 

http://www.fema.gov/emergency/ipaws/

http://www.sbe.org/gov_eas.php (information on Common Alerting Protocol)

3
4

Herb White, NWS/NOAA: 

Web resources: 

http://www.weather.gov/warningworkshop/

http://www.weather.gov/os/hazcollect/

http://www.disasterhelp.gov/disastermanagement

1) NWS Procedural Instruction 10-511, WFO Severe Weather Products 

Specification at http://www.weather.gov/directives/sym/pd01005011curr.pdf, 

is an example of how the NWS provides standard specifications to our 

forecaster staff that is dispersed across 122 Weather Forecast Offices (WFO) 

across the country including Issuance Criteria, content, format, and 

update/correction handling. For example, the content of a Severe 

Thunderstorm Warning is described as part of the overall product technical 

description in section 2.3.4 starting on page 4. Similarly, content for a 

Tornado Warning is in section 3.3.4 starting on page 7. Similar product 

specifications for all NWS watches, warnings, advisories, outlooks and 

followup statements for an array of warning programs are available on the 

NWS Directives website at http://www.weather.gov/directives/010/010.htm

2) Similarly, NWS Procedural Instruction 10-511, Non-Weather Related 

Products Specification, contains specifications for Non-Weather Emergency 

Messages (NWEM) in section 5 with definitions, examples, and additional 

Non-Weather Related Emergency Message Description Guidelines in the 

Appendices. A separate pdf file of NWSI 10-518 Appendix C is attached that 

is a primary reference for various civil warning authorities. (attachment 1) 

3) Also online are Draft NWS Instruction 10-1701, Text Products Formats and 

Codes, section for CTA Markers at http://www.weather.gov/os/ctamarker/ that 

has some general guidance for CTAs themselves. 

4) Attached- the Goals and Objectives for the NWEM Training module currently 

in development for the HazCollect rollout in late April. This is to provide an 

idea as to some of the KSAs we feel are necessary for warning authorities 

and how we're developing training to address those at the same time as 

specific service-oriented training At this time, the plan is to make the training 

a pre-requisite for approved HazCollect registrants. (attachment 2)

5) The PPW Report 2004-2, Protecting America’s Communities: An Introduction 

to Public Alert & Warning (attachment 3), and the MSRC II Guide to 

Establishing Local Coordination of Emergency Communication Systems at 

http://www.mediasecurity.org/documents/index.html. The main docs are the 

first two listed at http://www.mediasecurity.org/documents/MSRC_Guide.pdf

and http://www.mediasecurity.org/documents/EAS_Appendix.pdf.
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DRAFT

Audience

This training is intended for any state or local official who is authorized to issue 

EAS warnings in compliance with FCC rules and state and local EAS plans. As 

indicated above, responsible individuals may or may not be professional 

emergency managers. Other likely disciplines include Law Enforcement, Fire 

Services, Emergency Communications Centers (911), Public Information 

Officers, or elected officials. A wide range of knowledge and experience is 

anticipated, and the appropriateness of course design will be validated through a 

pilot test period.

Goals and Objectives

Goal: Following the completion of this course, the trainee will have the 

knowledge and skills to implement an effective warning program to ensure that 

appropriate, complete, and accurate warnings are issued to the public through 

the HazCollect system. 

The course material will be organized into five units. The following objectives are 

organized by unit:

Unit 1: What is HazCollect? Who is authorized to use it?

Objective 1.1: The student will gain a general understanding of how the 

HazCollect system operates and the dissemination systems available.

Objective 1.2: The student will be able to determine whether he/she meets the 

necessary criteria for authorization to use HazCollect. 

Objective 1.3: The student will be able to determine the geographical area for 

which he/she may be authorized.

Unit 2: NWEM Message Types.

Objective 2.1: The student will be able to apply knowledge of the most frequently 

used NWEM message types appropriately.

Objective 2.2: The student will be able to apply procedures for correcting, 

updating, or canceling NWEMS. 

Unit 3: CAP Elements and Message Content Constraints.

Objective 3.1: The student will be able to apply knowledge of required and 

optional CAP elements in relation to entry fields in a “typical” NWEM authoring 

tool.
DRAFT

Objective 3.2: The student will be able to apply understanding of how CAP 

elements and HazCollect server post-processing results in the final NWEM. 

Objective 3.3: The student will be able to apply knowledge of voice-to-text issues, 

including message length limitations and factors related to pronunciation.

Objective 3.4: The student will be able to apply knowledge of other message 

constraints, including allowable characters and formatting.

Unit 4: Alerting Criteria, Message Content Elements, Message Style 

Elements

Objective 4.1: The student will be able to locate the state EAS plan that pertains 

to his/her jurisdiction and use the criteria contained therein to determine under 

what circumstances EAS Alerts may be issued.

Objective 4.2: The student will be able to apply generic guidance to determine 

when to issue EAS Alerts via the HazCollect system.

Objective 4.3: The student will be able to apply knowledge of content elements of 

effective warnings (who, what, when, where, why, how) through use of a generic 

message template.

Objective 4.4: The student will be able to apply knowledge of style elements of 

effective warnings (specificity, consistency, certainty, clarity, accuracy, priority, 

source for additional information).

Unit 5: Implementing Effective Public Warning: Plan, Execute, Review, 

Improve

Objective 5.1, Planning: The student will be able to use an SOP Template for 

establishing local policy, requirements, and procedures, in collaboration with the 

local WFO and Local Emergency Communications Committee (LECC).

Objective 5.2, Execute: The student will be able to incorporate activation of local 

warning procedures into tests and exercises.

Objective 5.3, Review: The student will be able to participate in an after action 

review of HazCollect procedures. 

Objective 5.4, Improve: The student will be able to identify and track 

implementation of Corrective Actions.
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