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Exploring the evolution of technology in emergency response, with a special focus on advances in geographic systems, incident management, social media and policy in New York City since September 11, 2001 and ideas for how the Information Architecture community can support emergency response efforts.
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The Information Architecture of
Emergency Response
Noreen Y. Whysel
IA Summit
March 23, 2012
Overview
• NYC GeoSymposium 2001-2011-2021
• Emergency Management in New York City
• Open Government and Public Engagement
• Future Emergency Management Needs
• Town Hall Meeting
– How can UX designers participate?
Hyatt Regency Hotel after Hurricane KatrinaSource: Bill Haber, AP
Hyatt Regency Serves as a ShelterSource: Gary-Coronado-Palm-Beach-Post
The Water is Rising (Hurricane Katrina)Source: DailyKos, various.
Flood, Orleans Parish Source: Douglas R. Clifford/St. Petersburg Times Photo.
Ground Zero, September 11, 2001Source: U.S. Navy photo by Chief Photographer's Mate Eric J. Tilford
Firefighters, September 11, 2001Source: CNN
Man covered with ashes assisting a woman walking and holding a particle mask to
her face, following the September 11th terrorist attack on the World Trade Center,
New York CitySource: Don Halesy, Library of Congress
NYC GeoSymposium
2001-2011-2021
7 WTC: Emergency Operations Center
• Located close to City Hall and agencies
• GIS software and facilities data
• Evacuation and collapse – Redundant systems were lost
Generators
Backup generators
Water supply
Ventilation system
Computer hardware
Telephones
Radios
Uninterruptible power supplies
Schools
Hospitals
Nursing homes
Flood zones
Evacuation routes
Emergency transp. routes
Shelter locations
9/11/01: A Turning Point
• Catalyst for cooperation and public engagement
• The imperative to improve data flow at least
between agencies was clear
OEM Timeline
OEM Timeline
What is an Emergency
Response Sytem?
Common Elements of an
Emergency Response System
• People
• Measurement tools/devices
• Data/Information Systems
• Communication
• Response
Emergency Response System
• Ladder Companies, Engine
Companies, Fire Marshalls,
Special Operations
• In-Car Radio, information
systems, scanners, cameras,
maps
• Temperature, presence of
smoke or other toxic fumes
• 911 call, dispatch, additional
services, reporting
• Fire suppression, rescue,
investigation, EMS
Emergency Response System
National Incident Management System, December 2008Source: U.S. Department of Homeland Security
Emergency Response System
• Mother and baby
• Thermometer
• Temperature reading
• Call to Doctor or 911
• Home treatment, doctor visit
or ambulance
People (and organizations)
Emergency Management
Information Systems
First RespondersPerson in Need
Emergency Response System
Mental Model for an
Emergency Response System
Something
BAD
happens
Someone
calls for help
Emergency
responder
arrives
Aid is given Forms,
Forms,
Forms
(Based loosely on Mental Models by Indy Young, Rosenfeld Media)
Emergency Response Incident Model D
ev
elo
p P
oli
cie
s
Dri
lls
an
d s
imu
lati
on
s
Mo
nit
or
con
dit
ion
s
Inci
de
nt
occ
urs
Dis
pa
tch
re
spo
nse
un
its
Est
ab
lish
co
mm
an
d
Cre
ate
re
stri
cte
d z
on
es
De
term
ine
ha
zard
s
Loca
te v
icti
m/s
urv
ivo
rs
Mit
iga
te h
aza
rds
Ass
ista
nce
Forms Forms Forms Forms Forms Forms
Maps Maps Maps Maps Maps Maps
Comm CommCommCommCommComm
Ap
pre
he
nsi
on
Inv
est
iga
tio
n
Planning Event Dispatch Assessment Rescue/
Recovery
Post-Event
De
bri
efi
ng
Emergency Management
in New York City
Office of Emergency Management
Services:
• Plans and prepares for emergencies
• Educates the public about preparedness
• Coordinates emergency response and recovery
• Collects and disseminates emergency information
Personnel:
• Responders
• Planners
• Watch commanders
• Administrative and support staff
• Citywide Incident Management System (CIMS)
Emergency Operations Center (2006)
Watch Command Center (2006)
FDNY Emergency Facilities
Emergency Operations Center Plan
Podium
GIS
Wa
tch
Co
mm
an
d2
4x7
op
era
tio
n
Sit
ua
tio
n R
oo
m
Transportation
Public Safety
Health and Medical
Human Services and
External Affairs
Utilities
Infrastructure
Private Sector
National/Regional
DoITT, OEM, Verizon,
ConEdison, LIPA, ISO,
NYS Power Association
OEM, DEP, HPD, DDC, DCAS,
US ACE, Parks, DSNY, DOB
gla
ss w
all
gla
ss w
all
OEM, BOMA, Universities,
Consumer Affairs, HANYC,
SIFMA, REBNY, SBS, NYS INS,
NYS Bank, NYSE
FEMA, NYS OEM, WEST, NAS,
SUF, PA OEM, NJSP, OMB,
LAW, NWS, OEM Logistics
DOE, SHA, MOIA, HRA, ARC,
OEM, CUNY, DFTA, CERT,
311, CAU
GNYHA, OCME, HHC, NYS
DOH, VA, REMSCO, EMS,
FDNY
Courts, MTA PD, Sheriff, NYPD,
USCG, NG, FBI, DHS, PAPD,
OEM
TLC, TRANSCOM, PATH, NYS DOT,
OEM, Amtrak, NJT, MNRR, LIRR,
MTA
EO
C M
an
ag
er
Admin
Logistics
x
x
x
x
x
x
x
x
x
x
x
x
x = OEM staff
OE
M S
taff
x x
CIMS: Citywide Incident
Management System (2005)
• Roles and responsibilities
• Chain of command by core competency
• Common processes
• Common vocabularies
• Common organizational structure
• Allows for Continuity of Operations
• Complies with National Incident Management System
• Compatible with other states and federal agency systems
Emergency Response
Technologies
OEM Emergency Response
Technologies
• Maps and Imaging
• Sensors
• Communications
• Information Systems
• Vehicles
Maps and Imaging
• NYCMAP: Basemap of NYC
including streets, building
footprint, some infrastructure
• Infrastructure maps: Department
of Buildings, Con Ed (power
company), Department of
Environmental Protection,
Department of Transportation
• LIDAR imaging
• Thermal imaging
• Aerial and satellite imagery
Citywide GIS Activity
• Connected City Initiative and data sharing mandates
• Webmap Framework– NYCityMaps
– 311 Service Requests Map
• Hurricane Evacuation Zone Finder– Heating/Cooling Center applications
• Aerial orthophotography and oblique angle imagery
• Subsurface to Surface linking (vertical integration projects)– Subway stations
– Building Information Modeling
• DHS funded Public Safety GIS Data Development Center– Best practices and standards for emergency data
– Collect, develop, and update geospatial data
NYCMAP (1999)
• Historically, city mapping departments were siloed.
• Data was not shared due to legal constraints
(software and data licenses) and security concerns.
• By 1999, a unified Basemap was already underway,
largely through advocacy efforts of GISMO.
• 9/11 drove home the need for a uniform basemap.
– Mayor’s Office of Emergency Management moved
to Pier 92 and later under Brooklyn Bridge
– Telecommunications systems were disrupted
Early Base Maps
Samples of discrepancies in street lines and waterfront polygonsSource: HydroQual
Open Mapping Advocacy
City Information Technology InitiativeSource: Municipal Art Society
NYCityMap Public Launch
• 1999 DoITT creates basemap
• 2000 Basemap released to city agencies
• 2001 My Neighborhood
• 2004 NYC Map Portal debuted
• 2006 NYCityMap public launched
• 2009 NYCityMap redesign, extendible, themes
NYCityMap (2006)
http://gis.nyc.gov/doitt/nycitymap/
NYCityMap Public Launch
• NYCity Map (2006, 2009)
• Green Infrastructure
• NYC Parks
• RIP: Rat Information Portal
• SCOUT: Street Conditions Observation Unit
• SPEED: Searchable Property Environmental E-Database
• Street Closures
• Transportation
• ZOLA: Zoning and Land Use
NYCityMap: Zoning and Land Use
http://gis.nyc.gov/doitt/nycitymap/template?applicationName=ZOLA
NYCityMap: ZOLA with Land Use Layer
Compare to Google Maps
LIDAR
LIDAR (Light Detection and Ranging) Images of WTCSource: NOAA/U.S. Army JPSD
For more images see Charting Ground Zero: Ten Years After
http://www.woodwardgallery.net/exhibitions/9_11.html
Thermal Imaging
WTC – Thermal Imagery, September 16, 2001Source: New York State, Office for Technology (c2001) and EarthData International.
Oblique Angle Aerial Photography
Hurricane Evacuation Zone
Finder (2006)
Sensors
• Handheld GPS devices
• Seismographic activity, thermal readings
• Structural integrity
• Biometric (portable fingerprint scanner, etc.)
• Chemical, biological, radioactive and nuclear (CBRN)
• Motion sensors for traffic, road activity
• Cameras
• Dogs (chemical traces, human survivors)
• Eyes and ears
Communications
• Telephony, 911, 311, 511 (MTA Info)
• NYCWiN: Wireless network
• Mobile phones/devices
• Radio
• Websites, SMS, Twitter, Facebook
• Ready NY Guides
• Emergency Communications Transformation Program (E911)
With land lines down and mobile
systems overloaded, the BlackBerry
phone was one of the few unimpeded
methods of communication that worked
in the aftermath of 9/11.
NYC Wireless Network
• NYCWiN network allows all the pieces to fit together
• Access to city, state and federal databases and GIS
• Warrant and license checks
• Mobile ID (fingerprint, mugshots and biometrics)
• CBRNE sensors
• Stream on-scene, live video to command centers and
Mayor’s office , telemedicine videoconferencing
Public Initiatives
• Ready NY Guides
• Community Emergency
Response Team (CERT)
program pilot
• 311 call center
311 Information
• 14,012 Twitter followers to @311nyc
• 19.7 million 311 requests per year
• 16,879 iPhone App Downloads
• 300 person staff
• 180 languages spoken
• 60,000 average daily calls
• 20,000 number of New Yorkers a 311 Call Center
representative speaks to every year
• 276,827 largest call volume in a single day
(27 Jan 2011)
Notify NYC
• Staffed by OEM Watch Commanders
• Twitter and RSS
• Localized messages via phone, email, SMS
• Taxi notification and electronic road signs
operated by Dept of Transportation.
• Emergency Alert System broadcasts severe
emergency information via TV and radio.
Notify NYC
World Trade CenterRelocationEarthquake
WNV Ground SprayingPower OutageDisruption - Other
WNV Aerial SprayingPhoneCollapse
Winter StormOutside of NYCClosure/Citiwide
WeatherOtherClosure
Water MainOil SpillChild Found
Tropical StormNotificationCeremony / Gun Salute
Tornado WatchMass Transit DisruptionBrush Fire
TornadoIssuance (mostly missing
persons)Bridge Closure
TerminationInformationalBridge /Tunnel Closure
SurveyHurricaneBlasting / Demolition
Structural CollapseHeat & Air QualityBeach Status Change
StruckHeatAlternate Side Parking
SnowHAZMAT ConditionAlert Cancelled
Simulated Fire/
ExplosivesH1N1Airport Disruption
Simulated FireGas Release / LeakAircraft Only
Simulated ActivityGas MainAircraft & Egress
Significant EventFloodAir Quality
Severe ThunderstormFireworksAerial
Senior FoundFerry DisruptionAccident/Emergency
Road Closure -
UnplannedEvacuationAccident
Road Closure - PlannedElectrical3+ Alarm Fire
Social Media
Enhanced 911
• Emergency Communications Transformation program began in 2004 after the blackout of 2003
• Streamlines emergency call taking, communication and response times via:
– Improved texting capabilities
– Geolocation for VoIP/mobile services
– System interoperability
• Public Safety Answering Center
– I: Brooklyn (current)
– II: Bronx (2015)
Information Systems
• Citywide Asset and Logistics Management System
• Unified Victim Identification System
• Situational Awareness for Field Response System
• Next Generation 911
Source:
CALMS: Citywide Asset and Logistics
Management System (2004)• Web-based tool
• Integrates databases across City, State, Federal, private and NFP
• CALMS is organized around six asset types:
– Fleet
– Equipment and Supplies
– Facilities
– Contracts
– Personnel (including spontaneous volunteers)
– Donated Goods
Unified Victim Identification
System (2004)• NYC Chief Medical Examiner
• Supports missing persons reporting and victim identification
• Large-scale catastrophes (terrorist attack, hurricane,
earthquake, pandemic flu event or other mass fatality
incident)
• Modules:
– UVIS-311: Call Center Module integrated with 311
– Missing Persons Module
– Family Assistance Module
– Field Operations Module
– Disaster Mortuary Management Module
– Disaster Victim Identification Module
– Dental Identification Module
Situational Awareness for Field
Response System (2010)
Active Incident Dashboard
Emergency Response Data Packet Generatorhttp://www.urisa.org/files/NYC_OEM_ESIG_2010.pdf
Vehicles
Mobile CIMS Center
Mobile Data CenterInteragency Command Center
Interagency Communications Vehicle
Mobile Data Center (2003)
Case Study:
Hudson River Parkway
Wall Collapse
Hudson River Parkway Wall Collapse
Henry Hudson Parkway Wall Collapses, May 12, 2005Source: The Gothamist
Elements of Response to a Wall
Collapse Incident
• People – victims, OEM, NYPD, FDNY, DOT, DOS, DOB, CAU, CERT, Tri-Borough Bridge and Tunnel Authority, Columbia University, Salvation Army, Red Cross, private hauling
• Measurement tool/devices – seismographic sensors, thermal and satellite imaging, search dogs
• Data/Information Systems – seismographic data, GIS, infrastructure maps, pictometry
• Communication – radio communications, 911, ICC-1 mayoral briefings, agency planning meetings
• Response – rescue, recovery, Citywide Incident Management System (CIMS), safety zone, evacuation, debris removal, stability tests, community assistance/temporary housing
Open Government
Information Policy
Law Enforcement Mayor Media Mayor
Giuliani’s Information Policy
• Statistics-oriented approach to law enforcement
• NYPD Compstat: GIS mapping of crime patterns
• Broken windows, aggressive enforcement
• Concerns about data openness
– NY State Freedom of Information Law (FOIL)
– Press conferences, town hall meetings, radio addresses
• Licensing, data format, bandwidth restrictions
Bloomberg’s Information Policy
• Bloomberg comes from the business of information
• Bloomberg – financial data, analytics, news, radio, TV
• Promoting NYC as a technology sector
• Data initiatives modeled after citizen efforts and
programs in other cities:
– Big Apps Contest
– Change By Us NYC
– City Council Open Government Mandate
“If we’re going to continue leading the country in innovation and transparency,
we’re going to have to make sure that all New Yorkers have access to the data
that drives our city.” Press Release, NYC Mayors Office
Bloomberg’s Information Policy
• Rachel Sterne, Chief Digital
Officer
• Road Map for the Digital City
• Outlines City’s plans for
– Access
– Open Government
– Public Engagement
– Industry
Open Data Initiatives
Open Data Initiatives
Open Street Map – Haiti Project
Google Crisis Maps
• Best Practices
– Checklists
– Common Alerting
Protocol
• Tools:
– Public Alerts
– Person Finder
– Custom Maps
– Google Earth
– Fusion Tables
– Docs and Spreadsheets
– Google Sites
App Contests and Hackathons
Emergency Management
Future Needs
Digital Tools and First Responders
• Ease-of-use
• Accuracy of Data
• Interoperability
• Compatibility with legacy systems
“Getting away from the ‘technical
user’ mentality and providing
information through tools/interfaces
that first responders are already
familiar with, i.e. Google Maps, Google
Earth, simple apps, etc.”
--Google Earth consultant
“Metadata isn't as key as immediacy
in emergency situations, and accuracy
is important in as much as it helps
make decisions, but in emergencies,
situations are fluid.”
--NY State DOT Employee
Q. What issues are most pressing in providing digital tools to first responders?
Requirements vs Delivery Gaps
• Simplicity/Ease of use (again)
• Coverage
• Redundancy
“The digital designers frequently come
from a complicated technical mindset
that overloads on the options. Users
want simplicity and familiarity.”
--Google Earth Consultant
“If power and communications
are out, remote sensing may not
work, so road conditions are
brought in via first-responders
and then rebuilt using the NYS
RSDA (Road Status and Damage
Assessment) tool.”
--NY State DOT Employee
Q. Please comment on any gaps between the requirements of digital
applications for first responders and what is delivered by digital designers?
Role of Information Architecture
• Do not employ IAs.
• Employ people who do IA tasks.
“We don't have staff with that title,
but many in engineering and IT that do
attempt to influence it, with a lot of
chaos as a result.”
--MTA Design Manager
“Yes, we employ IAs... broadly
speaking, we have back-end systems
GIS folks who clean up and produce
the RSDA tool, and front-line GIS
folks who report the data, and
produce maps for first-responders.”
--NY State DOT Employee
Q. Please comment on the role of Information Architecture in your practice.
What’s Happening Now?
• Open Data Mandate
• The Future of NYCWiN
• Fully Integrated, Next Generation 911
• NYC as a Tech Center
Next Generation 911
• Standardized interfaces
• Call processing (voice, text, data, multimedia)
• Data integration for routing and handling
• Delivers calls, messages and data to answering points and first responders
• Supports data and video communications
• Provides broadband services to public safety answering points and first responders
Enhancing Geospatial Applications
• Infrastructure Layer Integration: visualizing water, sewer, electric steam, gas, telecommunications, transit, etc.
• Building Information Management: visualizing building infrastructure and security
• Crowd Sourced Data: engaging the public to provide data to support emergency operations
• Field Data Collection and Communications: On-the-scene data collection by first responders across many agencies
• Common Operating Picture/Situational Awareness: Ability to access and share data in real time across wide geographic areas
Mashup Applications
• Integrating social media with maps and sensors– USGS Earthquake TED system
uses Twitter
– Machine readable Twitter hashtags
• Organizing response via social media– Times Picayune’s Katrina
bulletin board
– Red Cross Joplin Tornado project on Facebook
– OEM Facebook updates
• Handheld applications– Inventory, geolocation
– Language translation
Tweak the Tweet: proposed by
Karen Starbird, PhD student at
University of Colorado, 2009
“Random Hacks of Kindness”
conference was put to use in Haiti.
White Paper, “The Case for Integrating Crisis
Response with Social Media, ” Red Cross
Managing Expectations
• Data format - Does it work with your system? Is the data in a standard format or will it need to be converted for interoperablity?
• Definitions - Make sure the vocabulary used by the data source matches up with your understanding and use. Acronyms and codes can be confusing.
• Licensing - Are there restrictions on how the data can be used or whether it can be shared?
• Cost – Are you prepared for cost of data security and maintenance? Can you economize?
• Users – Do users understand appropriate uses? Do you take into account all uses?
Town Hall Meeting
How can IAs help?
Thank You!
• http://nwhysel.blogspot.com
• @nwhysel on Twitter
• Come see my Technology Timeline and NYCityMapdemos at the Poster Session!