A comprehensive system to alert the American people in times of hazard allows people to take action to save lives. The Federal Emergency Management Agency (FEMA) is responsible for the current Emergency Alert System (EAS) and the development of the new Integrated Public Alert and Warning System (IPAWS). In this requested report, GAO examined (1) the current status of EAS, (2) the progress made by FEMA in implementing an integrated alert and warning system, and (3) the challenges involved in implementing an integrated alert and warning system. GAO conducted a survey of states, reviewed FEMA and other documentation, and interviewed industry stakeholders and officials from federal agencies responsible for public alerting.

As the primary national-level public warning system, EAS is an important alert tool, but it exhibits longstanding weaknesses that limit its effectiveness. EAS allows state and local officials limited ability to produce public alerts via television and radio. Weaknesses with EAS include lack of reliability of the message distribution system; gaps in coverage; insufficient testing; and inadequate training of personnel. Further, EAS provides little capability to alert specific geographic areas. EAS does not ensure message delivery for individuals with hearing and vision disabilities, and non-English speakers. FEMA has projects under way to address some of these weaknesses with EAS. However, to date, little progress has been made and EAS remains largely unchanged since GAO's previous review, completed in March 2007. As a result, EAS does not fulfill the need for a reliable, comprehensive alert system. Initiated in 2004, FEMA's IPAWS program is intended to integrate new and existing alert capabilities, including EAS, into a comprehensive "system of systems." However, national-level alert capabilities have remained unchanged and new technologies have not been adopted. IPAWS efforts have been affected by shifting program goals, lack of continuity in planning, staff turnover, and poorly organized program information from which to make management decisions. The vision of IPAWS has changed twice over the course of the program and strategic goals and milestones are not clearly defined, as IPAWS operated without an implementation plan from early 2007 through June 2009. Consequently, as state and local governments are forging ahead with their own alert systems, IPAWS program implementation has stalled and many of the functional goals of IPAWS, such as geo-targeting of messages and dissemination through redundant pathways to multiple devices, have yet to reach operational capacity. FEMA conducted a series of pilot projects without systematically assessing outcomes or lessons learned and without substantially advancing alert and warning systems. FEMA does not periodically report on IPAWS progress, therefore, program transparency and accountability are lacking. FEMA faces coordination issues and technical challenges in developing and implementing IPAWS. Effective public warning depends on the cooperation of stakeholders, such as emergency managers and the telecommunications industry, yet many stakeholders GAO contacted knew little about IPAWS and expressed the need for better coordination with FEMA. FEMA has taken steps to improve its coordination efforts, but the scope of stakeholder involvement is limited. FEMA also faces technical challenges related to systems integration, standards development, the development of geo-targeted and multilingual alerts, and alerts for individuals with disabilities. For example, the standard intended to facilitate integration of systems is still under development and is not widely used. As a result of these coordination and technical hurdles, integration with state and local systems will likely be a significant challenge due to potential incompatibility, and FEMA does not yet have logistical plans to integrate these systems.

Status Legend:

Status will change from "In process" to "Open," "Closed - implemented," or "Closed - not implemented" based on our follow up work.

• In Process
• Open
• Closed - implemented
• Closed - not implemented

Recommendations for Executive Action

Recommendation: In order that the public alert and warning system be conceived of, designed, and implemented, the Secretary of Homeland Security should direct the Administrator, FEMA to improve program management and align IPAWS's vision with the requirements established in the executive order, implement processes for systems development and deployment, including (1) updating IPAWS strategic goals and milestones, implementation plans, and performance measures; (2) prioritizing projects in consultation with stakeholders; and (3) creating the necessary documentation on system design and specific release schedules for IPAWS.

Agency Affected: Department of Homeland Security

Status: Open

Comments: On September 29, 2010, I contacted the Department of Homeland Security to determine the status of the recommendations but have not yet received a response.

Recommendation: In order that the public alert and warning system be conceived of, designed, and implemented, the Secretary of Homeland Security should direct the Administrator, FEMA to improve program transparency and accountability, report periodically to the the Congress and the Secretary of Homeland Security on progress toward achieving an integrated public alert and warning system. The report should include information on ongoing IPAWS projects, financial information on program expenditures, and status updates in achieving performance measures and reaching milestones.

Agency Affected: Department of Homeland Security

Status: Open

Comments: On September 29, 2010, I contacted the Department of Homeland Security to determine the status of the recommendations but have not yet received a response.

Recommendation: In order that the public alert and warning system be conceived of, designed, and implemented, the Secretary of Homeland Security should direct the Administrator, FEMA to help ensure system dependability, as IPAWS is developed and deployed, establish and implement a plan to verify (1) the dependability and effectiveness of systems used to disseminate alerts, and (2) that IPAWS participants have the training and technical skills to make use of IPAWS infrastructure and to issue effective public alerts.

Agency Affected: Department of Homeland Security

Status: Open

Comments: On September 29, 2010, I contacted the Department of Homeland Security to determine the status of the recommendations but have not yet received a response.