second revision no. 102-nfpa 72-2014 [ global comment ] … · 2016-03-28 · second revision no....

Second Revision No. 102-NFPA 72-2014 [ Global Comment ]

10.12.2Visible notification appliances, textual visible notification appliances, and speaker notificationappliances located in the same area shall be activated and deactivated as a group unlessotherwise required by an ECS emergency response plan. (SIG-ECS)10.12.3*Visible alarm strobe notification appliances shall not be activated when speaker notificationappliances are used as permitted by 24.3.6 for nonemergency paging. (SIG-ECS)

Submitter Information Verification

Submitter Full Name: Christopher Coache

Organization: National Fire Protection Assoc

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Submittal Date: Fri Jul 11 08:55:16 EDT 2014

Committee Statement

CommitteeStatement:

The annex material associated with 10.12.2 should be associated with 10.12.3 asindicated in the committee statement for FR-363.

ResponseMessage:

Public Comment No. 19-NFPA 72-2014 [Section No. 10.12]

National Fire Protection Association Report http://submittals.nfpa.org/TerraViewWeb/ContentFetcher?commentPara...

1 of 1 9/22/2014 12:54 PM

Second Revision No. 78-NFPA 72-2014 [ Section No. 3.3.92 ]

3.3.93 Emergency Response Plan.

A documented set of actions to address the planning for, management of, and response tonatural, technological, and man-made disasters and other emergencies. (SIG-ECS)




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Submittal Date: Tue Jul 08 11:30:34 EDT 2014

Committee Statement

CommitteeStatement:

An emergency plan includes an emergency response plan - plus other elements like apre-plan and a communications plan – that leads to the ECS needs assessment.

ResponseMessage:

Public Comment No. 32-NFPA 72-2014 [Section No. 3.3.92]


1 of 1 9/22/2014 12:54 PM

Second Revision No. 92-NFPA 72-2014 [ New Section after 3.3.260 ]

3.3.260 Signaling Zone.

See 3.3.320 , Zone.




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Submittal Date: Wed Jul 09 09:46:13 EDT 2014

Committee Statement

Committee Statement: The change was made to correlate with the changes made with SR-88.

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1 of 1 9/22/2014 12:55 PM

Second Revision No. 91-NFPA 72-2014 [ Section No. 3.3.317.1 ]

3.3.320.2* Evacuation Signaling Zone.

An area consisting of one or more notification zones where signals are actuated simultaneously.(SIG-ECS)




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National Fire Protection Association Report http://submittals.nfpa.org/TerraViewWeb/FormLaunch?id=/TerraView/C...

1 of 1 9/22/2014 12:55 PM


7.5.5

Owner’s manuals for emergency communications systems shall be in accordance with Section24.15 . (SIG-ECS)




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Committee Statement

Committee Statement: The reference points to a section that points directly back to Chapter 7.

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1 of 1 9/22/2014 1:11 PM

Second Revision No. 101-NFPA 72-2014 [ Section No. 10.11 ]

10.11* ECS Priority Signals Actuation Time .

Visible indication of priority signals shall be automatically indicated within 10 seconds at the firealarm control unit or other designated location. (SIG-ECS) Actuation of alarm notificationappliances or emergency voice communications, emergency control function interface devices,and annunciation at the protected premises shall occur within 10 seconds after the activation ofan initiating device.

Supplemental Information

File Name Description

72_SR_101_A.10.11_edited.docx




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Submittal Date: Thu Jul 10 14:51:08 EDT 2014

Committee Statement

CommitteeStatement:

SIG-ECS: The action at the first draft entirely deleted section 23.8.1.1 regarding signals.The lost annex material from A.23.8.1.1 was added to A.10.11. The TC suggests that theCorrelating Committee review 10.12 as similar material to 10.11.

SIG-FUN: Reject PC-42: The proposed annex material was already added to A.10.12.1 inthe First Draft.

ResponseMessage:

Public Comment No. 42-NFPA 72-2014 [Section No. 10.11]


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A.10.11 Actuation of an initiating device is usually the instant at which a complete digital signal

is achieved at the device, such as a contact closure. For smoke detectors or other automatic

initiating devices, which can involve signal processing and analysis of the signature of fire

phenomena, actuation means the instant when the signal analysis requirements are completed by

the device or fire alarm control unit software. A separate fire alarm control unit contemplates a

network of fire alarm control units forming a single large system as defined in Section 23.8. For

some analog initiating devices, actuation is the moment that the fire alarm control unit interprets

that the signal from an initiating device has exceeded the alarm threshold programmed into the

fire alarm control unit. For smoke detectors working on a system with alarm verification, where

the verification function is performed in the fire alarm control unit, the moment of actuation of

smoke detectors is sometimes determined by the fire alarm control unit.

It is not the intent of this paragraph to dictate the time frame for the local fire safety devices to

complete their function, such as fan wind-down time, door closure time, or elevator travel time.


24.1.3

The requirements of Chapters 7, 10, 12, 17, 18, 21, 23, 26, and 27 shall also apply unlessthey are otherwise noted in conflict with this chapter.




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Committee Statement: The statement was changed into positive language.

Response Message:



1 of 1 9/22/2014 12:38 PM


24.3.6.2* Emergency Message Content.

Emergency messages shall have a content that is:

Appropriate for the intended message recipients

Focused on protective actions that the intended message recipients are to take

Based on the emergency response plan, emergency messages shall have content that providesinformation and instructions to people in the building, area, site, or installation.



72_SR_82_A.24.3.1_edited.docx




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Committee Statement

CommitteeStatement:

The language has been revised to coincide with acceptable practices in accordance withthe research provided to the committee. An annex reference to annex H (see SR-100) hasbeen added while deleting the current annex material. The paragraph has beenrenumbered to include all requirements for messaging under 24.3.7.

ResponseMessage:



1 of 1 9/22/2014 1:14 PM

A.24.3.1 See Annex H.


24.3.1 Intelligible Voice Messages.

Emergency communications systems shall be capable of the reproduction of prerecorded, synthesized, or live(e.g., microphone, telephone handset, and radio) messages with voice intelligibility in accordance withChapter 18 .

24.3.1.1*

Emergency communications systems shall be capable of the reproduction of prerecorded, synthesized, orlive (e.g., microphone, telephone handset, and radio) messages with voice intelligibility in accordance withChapter 18 .

24.3.1.2*

Where no listed loudspeaker exists to achieve the intelligibilty requirements of the Code for a notificationzone, nonlisted loudspeakers shall be permitted to be installed to achieve the intelligibilty for that notificationzone.







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CommitteeStatement:

There may be situations where in order to achieve the intelligibility requirements, listed appliancesare not available but non-listed appliances are available to meet the performance requirements of thecode.

ResponseMessage:

Committee Notes:

Date Submitted By

Jul 10,2014

ChristopherCoache

Move annex material in A.24.3.2 to A.24.3.2.1.

Jul 10,2014

ChristopherCoache

Deleted last paragraph in A.24.3.2.1. (already deleted in attachment).

Jul 10,2014

ChristopherCoache

Add new A.24.3.2.2 in attached document.

Jul 28,2014

Kim Cervantes Lee: See revised attachment

Jul 30,2014

Lee Richardson Kim; The changes in the attachment are OK.

Public Comment No. 215-NFPA 72-2014 [New Section after 24.5.4.2]


1 of 1 9/22/2014 12:41 PM


24.3.2* Microphone Use.

All users of systems that have microphones for live voice announcements shall be providedwith posted instructions for using the microphone.

24.3.3.1

All users of systems that have microphones for live voice announcements shall be providedwith posted instructions for using the microphone.




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Committee Statement

Committee Statement: Editorial change to comply with the NFPA Manual of Style.

Response Message:



1 of 1 9/22/2014 1:26 PM


24.3.5.4

The utilization of shared pathway levels, as specified in Section 12.5 , for Class N pathwaysused in emergency communication systems Where emergency communications systems utilizeClass N pathways that are also shared pathway Level 1 or Level 2 as a means to supportancillary functions, devices, or interconnected systems via common pathways, shall bedetermined by a risk analysis , the shared pathways shall meet the requirements of 26.6.3 . andapproved by the AHJ.

24.3.5.4.1

In addition to the requirements of 23.6.3 , a risk analysis shall be performed and approved bythe AHJ.




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Committee Statement

CommitteeStatement:

Editorial modification was made to the original comment for clarity.

Since section 23.6.3 creates requirements for analyzing and documenting a plan to utilizeshared pathway level 1 or 2 for life safety networks, this section (which deals with thesame issues for MNS) was updated to include the reference to that 23.6.3.

ResponseMessage:

Public Comment No. 137-NFPA 72-2014 [Section No. 24.3.6.4]



1 of 1 9/22/2014 1:27 PM


24.3.7* System Classification.

Emergency communications systems (ECS) shall consist of two classifications of systems, bedesignated as one-way and or two-way.

24.3.7.1

One-way emergency communications systems shall consist one or more of the following:

(1) In-building fire emergency voice/alarm communications systems (EVACS) (see Section24.4 24.4.2 )

(2) In-building mass notification systems (see Section 24.5 24.4.3 )

(3) Wide-area mass notification systems (see Section 24.6 24.4.4 )

(4) Distributed recipient mass notification systems (DRMNS) (see Section 24.7 24.4.5 )

24.3.7.2

Two-way emergency communications systems shall consist of one or more of the following:

(1) Two-way, in-building wired emergency services communications systems (see Section24.8 24.5.1 )

(2) Two-way radio communications enhancement systems (see Section 24.9 24.5.2 )

(3) Area of refuge (area of rescue assistance) emergency communications systems (seeSection 24.10 24.5.3 )

(4) Elevator emergency communications systems (see Section 24.11 24.5.4 )

(5) Stairway communications systems (see Section 24.12 )




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Committee Statement

CommitteeStatement:

The revised wording provides more clarity. The references were corrected and a newreference to stairway communications was added to complete the list of two-waysystems.

ResponseMessage:




1 of 1 9/22/2014 1:30 PM


24.3.10* Control Unit Listing for Mass Notification Systems.

Control units installed as part of a mass notification system shall be in compliance with this Codeand at least one of the following applicable standards: such as ANSI/UL 864, Standard forControl Units and Accessories for Fire Alarm Systems; ANSI/UL 2017, Standard for General-Purpose Signaling Devices and Systems ; or ANSI/UL 2572, Mass Notification Systems .

(1) ANSI/UL 864, Standard for Control Units and Accessories for Fire Alarm Systems

(2) ANSI/UL 2017, Standard for General-Purpose Signaling Devices and Systems

(3) ANSI/UL 2572, Mass Notification Systems .







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Committee Statement

CommitteeStatement:

Mass Notification systems have matured in technology as well as listings. UL 2572 hasbeen published for several years now. It is important to recognize that products must belisted to be used for MNS. As a result, at least one of the applicable standards isnecessary to be met in order to provide a level of system functionality and reliability.

Annex material was added to explain the relationship of the standards with control units.

ResponseMessage:



1 of 1 9/22/2014 1:31 PM

A24.3.11 A fire alarm control unit that is listed in accordance with ANSI/UL 864 or ANSI/UL

2017 can be used for MNS. A control unit only listed in accordance with ANSI/UL 2572 or

ANSI/UL 2017 cannot be used as a fire alarm control unit.

Second Revision No. 93-NFPA 72-2014 [ Section No. 24.3.14.4.1 ]

24.3.13.4.1

For systems employing relocation or partial evacuation, a Level 2 or Level 3 pathway survivabilityshall be required.

Exception No. 1: Level 1 shall be permitted where notification or evacuation zones areseparated by less than 2-hour fire-rated construction.

Exception No. 2: Level 1 shall be permitted where there are at least two pathways provided thatare separated by at least one-third the maximum diagonal of the notification or evacuation zonesthat the pathways are passing through and the pathway is Class X or Class N.




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24.4.1.2

If acceptable to the authority having jurisdiction, the system shall permit the application of anautomatic evacuation signal to one or more evacuation signaling zones and, at the same time,shall permit manual voice paging to the other evacuation signaling zones selectively or in anycombination.




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1 of 1 9/22/2014 1:32 PM


24.4.5.6

Manual controls shall be arranged to provide visible indication of the on/off status for theirassociated evacuation signaling zone.




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1 of 1 9/22/2014 1:33 PM


24.4.8* Relocation and Partial Evacuation.

The requirements of 24.4.8 shall apply only to systems used for relocation or partial evacuation during a firecondition.

24.4.8.1

New systems employing relocation or partial evacuation shall require documentation in accordance withSections 7.3, 7.4, and 7.5 in addition to the minimum documentation requirements of Sections 7.2 and24.15.

24.4.8.2

Systems shall be provided with manual voice transmission capabilities selectively to one or more notificationzones or on an all-call basis.

24.4.8.3

Under a fire condition, where the system is used to transmit relocation instructions or other fire emergencynon-evacuation messages, a 1-second to 3-second alert tone followed by a message (or messages wheremulti-channel capability is used) shall be provided.

24.4.8.3.1

The sequence [the alert tone followed by the message(s)] shall be repeated at least three times to inform anddirect occupants in the signaling zone where the alarm initiation originated, as well as other evacuationsignaling zones in accordance with the building fire safety plan.

24.4.8.3.2

Approved alternative fire alarm notification schemes shall be permitted so as long as the occupants areeffectively notified and are provided instructions in a timely and safe manner in accordance with the buildingfire safety plan.

24.4.8.4

Where provided, loudspeakers in each enclosed stairway, each exit passageway, and each group of elevatorcars within a common hoistway shall be connected to separate notification zones for manual paging only.

24.4.8.4.1

The evacuation signal shall not operate in elevator cars, exit stair enclosures, and exit passageways.

24.4.8.4.2

Manually activated speakers shall be permitted in exit stair enclosures and exit passageways in buildings thathave emergency voice/alarm communications systems in accordance with Section 24.4.

24.4.8.5

The requirements of 24.4.8.5 shall apply to both audible (tone and voice) and visible notification appliancecircuits.

24.4.8.5.1*

Fire alarm systems used for partial evacuation and relocation shall be designed and installed such that attackby fire within a signaling zone does not impair control and operation of the notification appliances outside theevacuation signaling zone.

24.4.8.5.2

Performance features provided to ensure operational reliability under adverse conditions shall be describedand technical justification provided in the documentation submitted to the authority having jurisdiction with theanalysis required in 23.4.3.1.

24.4.8.5.3*

All circuits necessary for the operation of the notification appliances shall be protected until they enter thesignaling notification zone that they serve by the protection provided by the pathway survivability levelrequired in 24.3.14.4.1 24.3.13.4.1 or by performance alternatives approved by the authority havingjurisdiction.

24.4.8.5.4

Where the separation of in-building fire emergency voice/alarm control equipment locations results in theportions of the system controlled by one location being dependent upon the control equipment in otherlocations, the circuits between the dependent controls shall be protected against attack by fire by theprotection provided by the pathway survivability level required in 24.3.14.4.1 24.3.13.4.1 or by performancealternatives approved by the authority having jurisdiction.


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24.4.8.5.5

Protection of circuits between redundant control equipment locations that are not mutually dependent shallnot be required.

24.4.8.5.6

Where the separation of the in-building fire emergency voice/alarm control equipment occurs as in24.4.8.5.4, and where the circuits are run through junction boxes, terminal cabinets or control equipment,such as system control units, power supplies and amplifiers, and where cable integrity is not maintained,these components shall, in addition to the pathway survivability required by 24.3.14.4.1 24.3.13.4.1 , beprotected by using one of the following methods:

(1) A 2-hour fire- – rated enclosure

(2) A 2-hour fire- – rated room

(3) Other equivalent means to provide a 2-hour fire resistance–rating approved by the authority havingjurisdiction

24.4.8.5.7

Paragraphs 24.4.8 through 24.4.8.5.6 shall not automatically apply when relocation or partial evacuation isof a non-fire emergency unless identified and required by a risk analysis.




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Committee Statement

Committee Statement: The language has been modified to provide clarity and consistency.

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2 of 2 9/22/2014 1:33 PM


24.4.9 Evacuation Signal Zoning.

24.4.9.1*

Undivided fire or smoke areas shall not be divided into multiple evacuation notification signalingzones.

24.4.9.2

If multiple notification appliance circuits are provided within a single evacuation signaling zone, allof the notification appliances within the zone shall be arranged to activate or deactivatesimultaneously, either automatically or by actuation of a common manual control.

24.4.9.3

Where there are different notification appliance circuits within an evacuation a signaling zone thatperform separate functions, such as presignal and general alarm signals, andpre-discharge predischarge and discharge signals, they shall not be required to activate ordeactivate simultaneously.




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1 of 1 9/22/2014 1:34 PM


24.5.5 Documentation.

Mass notification systems shall require documentation in accordance with Sections 7.3 , 7.4 ,and 7.5 in addition to the minimum documentation requirements of Sections 7.2 and24.15 .




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Committee Statement

Committee Statement: This is duplicate material. See Section 24.15.

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24.5.14.1

Unless otherwise established through the emergency response plan, controls Controls that areintended to be accessed by authorized users shall be mounted in accordance with24.5.14 24.5.15 24.5.14 24.5.14 .




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Committee Statement

CommitteeStatement:

This exception is too general and negates the exception with more detail established in24.5.15.6. Since 24.5.15.6 is part of 24.5.15, the exception is established and does notneed to be repeated.

ResponseMessage:



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Second Revision No. 97-NFPA 72-2014 [ Sections 24.13.4, 24.13.5 ]

24.13.4 Power Supplies.

All control units shall meet the power supply requirements of Section 10.6 and 24.13.5 .

24.13.4.1

All control units shall meet the power supply requirements of Section 10.6 and 24.13.4.2

24.13.4.2

The power supply for the emergency command center for emergency communications systemsshall include an uninterrupted power source with capacity sufficient to support the emergencyresponse plan established for the specific premises.

24.13.5

The power supply for the emergency command center for emergency communications systemsshall include an uninterrupted power source with capacity sufficient to support the emergencyresponse plan established for the specific premises.




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Committee Statement

Committee Statement: Change to comply with the NFPA Manual of Style.

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1 of 1 9/22/2014 1:35 PM

Second Revision No. 98-NFPA 72-2014 [ Section No. A.24.3.7.1 ]

A.24.3.6.1

The fundamental structure of the prerecorded or live messages is critical for providing information andinstructions that are intelligible. Prerecorded messages created in a controlled environment are considerablymore intelligible than live messages and should be developed and provided to handle as many of theprobable emergencies that a particular facility will encounter.

The voice instructions (live or prerecorded) should be preceded by a tone to get attention and prepare thetarget audience for voice instructions. This tone should be differentiated for specific emergencies, based onthe standards for that facility. The actual voice message (live or pre-recorded) should be delivered in awell-enunciated, clear, calm, and deliberate manner, using respectful language. Focus the message on theaction to be taken and minimize wasting words on the cause. For the voice itself, best results will vary,depending on the specific location — for example, in outdoor applications, it has been shown that a malevoice will provide better intelligibility, as the naturally lower frequency of the male voice travels better.Inversely, in an interior application, where the background ambient noise is typically in the same lowerfrequencies, a female voice tends to penetrate better, as it is more distinct from the ambient. Messagesshould be constructed using 2-second to 3-second bursts of information and brief periods of quiet betweenthe bursts of information. This methodology facilitates better processing of information by the brain andminimizes the negative effects of reverberation and echo.

Generally, the emergency message should consist of an alert tone of 1 second to 3 seconds, followed by avoice message that is repeated at least three times. The alert tone can be used in between repeats of thevoice message.

For live instructions, it is critical that the message be delivered in a clear and calm manner. When possible,the following procedure is recommended:

Think about what information must be delivered in the live announcement, keep it brief, and writedown the message

Read the message out loud for a practice round in a clear and projecting voice

When you are ready to announce, key the microphone and read the message at least three times

When possible, use an alert tone, such as a Code 3, 1000 Hz signal preceding the message, and thenannounce over the live microphone

Repeat the message a few times more as the emergency warrants

See Annex G .




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Committee Statement

Committee Statement: The new annex incorporates the material.

Response Message:

Public Comment No. 217-NFPA 72-2014 [Section No. A.24.3.7.1]


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Second Revision No. 99-NFPA 72-2014 [ Section No. A.24.3.7.2 ]

A.24.3.6.3

A well-crafted, evidence-based message (incentive to response) with content that includes thefollowing:

What: Guidance on what people should do

When: An idea of when they need to act

Where: Description of the location of the risk of hazard (who should be taking action andwho should not be)

Why: Information on the hazard and danger/consequences

Who: The name of the source of the warning (who is giving it)

Warning style is also crucial and should be specific, consistent, certain, clear, and accurate withattention paid to the frequency — the more it is repeated, the better.

See Annex G .




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Committee Statement

Committee Statement: The new annex incorporates the material.

Response Message:

Public Comment No. 218-NFPA 72-2014 [Section No. A.24.3.7.2]


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Second Revision No. 100-NFPA 72-2014 [ New Section after G.3 ]

Annex G Guidelines for Emergency Communication Strategies for Buildings and Campuses

This annex is not part of the requirements of this NFPA document but is included for informationalpurposes only.

G.1

The material in this annex is based on the National Institute of Standards and Technology (NIST) and FireProtection Research Foundation research Guidance Document: Emergency Communication Strategies forBuildings , by Erica Kuligowski, Ph.D. and H. Omori, 2014, as adapted by the NFPA ECS TC.

The purpose of this annex is to provide guidance to system designers, building managers, and/or buildingemergency personnel responsible for emergency communication on how to create and disseminatemessages using basic communication modes (audible and/or visual technology). The guidance providedhere is taken directly from a report published by the National Institute of Standards and Technology, whichwas based on a review of 162 literature sources from a variety of social science and engineering disciplines(Kuligowski et al. 2012) and the prioritization of the specific findings extracted from each literature source.

This document first presents guidance on how to create and disseminate emergency information in the face

of rapid-onset disasters 1 — providing guidance on the dissemination of alert signals, the creation of thewarning message, the formatting of messages for both visual and audible means, and the dissemination ofthe warning message. This document then provides examples of emergency messages (i.e., messagetemplates) for five different types of emergency scenarios. These message templates can be altered to fitthe needs of your occupants, as well as the type of emergency that has occurred and type of technologyused to disseminate the alerts/messages.

G.2 Guidance on Emergency Communication Strategies.

This section provides guidance for managers, emergency personnel, alarm system manufacturers,codes/standards committees, or others responsible for emergency communication on the ways in whichalerts and warning messages should be created, formatted, and disseminated. The guidance is divided intotwo main parts: guidance on alerts and guidance on warning messages. Although these two parts often getconfused, it is important to distinguish between the purpose of an alert and a warning message.

An alert is meant to grab peoples’ attention, notifying them that an emergency is taking place and thatthere is important information, which will be provided to them. The purpose of a warning message is to

give that important information to occupants.

Guidance on the construction and dissemination of both alerts and warnings is provided here.

G.2.1 Alerts.

It is imperative to disseminate an alert to let occupants know that a warning message will follow.Regardless of whether the warning message is provided audibly, visually, or via tactile means, an alert isnecessary to gain people’s attention and should be provided separately from the warning message. Aneffective alert should include the following characteristics:

(1) Alerts should be significantly different from ambient sounds.

(2) Buildings should reduce background noise when initiating audible alerts.

(3) Flashing, rather than static lights, preferably one standard color for all buildings, can be used to gainattention to visual warning messages.

(4) There are additional methods to alert occupants to an emergency: disruption of routine activities,tactile methods, social networks, and face-to-face.

(5) An alert signal should be accompanied by a clear, consistent, concise, and candid warning message.

(6) If selected, an alert should be tested for its success in getting occupants’ attention in the event of anemergency and used as part of building- or campus-wide training.

G.2.2 Warnings.


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Warning messages should provide information to the occupants on the state of the emergency and whatthey are supposed to do in response to this emergency. The warning message should come after an alertsignal is given and can be provided via visual or audible means. However, before such guidance onmessage format for visual and audible messages can be provided, it is vital to provide guidance on thecontent of the warning message itself.


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G.2.2.1 The Message.


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Regardless of the method used to disseminate the warning message, there are certain characteristics thatare required of an effective warning message. These are included here:

(1) Message Content.

(a) A warning message should contain five important topics to ensure that occupants havesufficient information to respond.

i. Who is providing the message? (i.e., the source of the message)

ii. What should people do? (i.e., what actions occupants should take in response to theemergency and, if necessary, how to take these actions)

iii. When do people need to act? (In rapid-onset events, the “when” is likely to be“immediately.”)

iv. Where is the emergency taking place? (i.e., who needs to act and who does not)

v. Why do people need to act? (including a description of the hazard and itsdangers/consequences)

(b) The source of the message should be someone who is perceived as credible by the occupants

(c) Building managers, campus managers, and emergency personnel should understand theaffected population and, from this understanding, develop a database of possible trustedsources (as well as backup sources).

(2) Message Structure.

(a) Message order for short messages (e.g., 90-characters) should be the following:

i. Source

ii. Guidance on what people should do

iii. Hazard (why)

iv. Location (where)

v. Time.

(b) Message order for longer messages should be the following:

i. Source

ii. Hazard

iii. Location

iv. Guidance

v. Time

(c) Numbered lists can help to chronologically organize multiple steps in a process

(d) For limited message length, message writers could draft the message in a bulleted form; eachof the five topics in the warning should be separated as its own bullet point

(e) Distinct audiences should be addressed separately in the message (or in multiple messages)

(3) Message Language (or Wording).

(a) Messages should be written using short, simple words, omitting unnecessary words orphrases.

(b) Messages should be written using active voice, present tense, avoiding hidden verbs.

(c) Messages should be written using short, simple, and clear sentences, avoiding doublenegatives and exceptions to exceptions; main ideas should be placed before exceptions andconditions.

(d) Emergency messages should be written at a sixth grade reading level or lower. An emergencymessage can be evaluated for its reading level using computer software and/or a simplecalculation.

(e) Emergency messages should be written without the use of jargon and false cognates.


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(f) Emergency messages should be provided in the language of the predominant affectedpopulace. If there is a possibility of isolated groups that do not speak the predominantlanguage, multilingual messages should be provided. It is expected that small groups oftransients unfamiliar with the predominant language will be picked up in the traffic flow in theevent of an emergency and are not likely to be in an isolated situation.

(4) Multiple Messages.

(a) Building managers, campus managers, and emergency personnel should anticipate the needto write more than one emergency message throughout a disaster, including feedbackmessages or updates.

(b) In update messages, occupants should be told why the information has changed, to ensurethat the new message is viewed as credible.

(c) Provide feedback messages after a “non-event” to inform occupants that the alert signal andwarning system operated and worked as planned and the reasons why the event did not occur.

(d) Building managers, campus managers, and emergency personnel should test emergencymessages with the affected population.

(5) Visual Warnings.

(a) Messages that are displayed visually will have different capabilities and limitations than thosedisseminated audibly. Message creators should consider different factors and make differenttypes of decisions based upon the dissemination method. The first consideration is the type ofvisual technology that will be used to disseminate the messages, which can include textualvisual displays, SMS text messages, computer pop-ups, email, Internet websites, news (TVbroadcast), or streaming broadcast over the web. Depending upon the technology chosen todisplay visual warning messages, guidance is provided here on message displays to enableoccupants to see or notice the displayed warning, understand the warning, perceive warningcredibility and risk, and respond appropriately.

(6) Noticing and Reading the Warning.

(a) Place the emergency sign in a location where people will notice it and be able to read it fromtheir original (pre-emergency) location.

(b) Signs will be reliably conspicuous within 15 degrees of the direct line of sight.

(c) Text is easier to read when written with a mixture of upper and lower case letters rather thanthe use of all capitals.

(d) The recommended relationship for older adults with lower visual acuity is D = 100 * h,providing a more conservative result, and ensuring that a larger population will be able to readthe emergency message.

(e) A stroke-to-width ratio of the letters is suggested as 1:5 (generally), with a ratio of 1:7suggested for lighter letters on a darker background.

(f) Building managers, campus managers, or emergency personnel should consult the ADAStandards for Accessible Design (U.S. Department of Justice 2010) for additional requirementson signage.

(g) Contrast between the text and the background should be at least 30 percent, althoughrecommended values could be as high as 60 percent.

(h) The use of pictorials (in lieu of or in addition to text) can also bring attention to the sign.

(i) Message providers should ensure that emergency information is not blocked by other signs orinformation.

(7) Comprehending, Believing, and Personalizing the Warning.

(a) Printed text should accompany symbols or pictorials used in visual warnings; a minimumnumber of words should be used to accompany graphics.

(b) Diagrams that display a series of sequential steps are more successful for comprehension of aprocess than one single graphic.

(c) A color-contrasted word or statement should be used for text that should be read first and/or be


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perceived as more urgent than the rest, unless color is used for other reasons (e.g. bilingualtext).

(d) A warning message can increase in perceived credibility and risk if occupants are shown thatothers are also responding.

(e) Simultaneously displayed text (discrete messages) is preferred rather than a sequentiallydisplayed message.

(f) Simultaneously displayed text can also be used for bilingual messages, especially if care istaken to differentiate the text of one language from the text of the other language.

(g) Limit the use of flashing words on visual message displays.

(8) Audible Warnings.

(a) There are specific warning technologies that only (or primarily) affect the aural sense, includingpublic address systems (voice notification systems), automated voice dialing, satellite/AM/FMradio broadcasts, satellite/off-air television broadcasts, and tone alert radios. Whereas visualtechnologies can limit message length, audible warnings are often limited only by the attentioncapabilities of the audience. In other words, an audible message can play for long periods oftime with these technology types, and the message creator and source must be careful toprovide all important information in an appropriate length of time.

(b) In this section, guidance will be given for methods to increase the likelihood that an individualwill perceive, or hear, the message. Following this, guidance will be provided that can increasecomprehension of the message for audible messages, as well as the ways in which to increasecredibility and risk assessment of the event when the warning is presented audibly.

(9) Perception.

(a) Other, non-alert/warning voices in the background should be reduced or eliminated.

(b) Any voice announcements should also be accompanied by simultaneous visual text.


(a) Letters are more difficult to identify in speech than numbers, which are more difficult thancolors.

(b) Message speakers (or sources) should not be heavily accented and should speak with a rateof approximately 175 words per minute.

(c) Audible warnings can be delivered using a live voice, dynamic voice (generated by text-to-speech software), or using pre-recorded voice.

(d) The live voice and dynamic voice methods provide the benefit of messages that can beupdated with new information while also conveying an appropriate level of urgency, ifnecessary.

(e) Dynamic and pre-recoded voice methods provide the benefits of easily repeating the playedmessages for longer periods of time and not relying on the voice announcer training or stresslevel while delivering the message.

(f) For the voice itself, best results will vary, depending on the specific location — for example, inoutdoor applications, it has been shown that a male voice will provide better intelligibility, as thenaturally lower frequency of the male voice travels better. Inversely, in an interior application,where the background ambient noise is typically in the same lower frequencies, a female voicetends to penetrate better, as it is more distinct from the ambient.

(g) Urgency measures should be used selectively to emphasize the more dangerous, immediate,life-threatening situations (since overuse can lead to non-response in future disasters).

(11) Dissemination of the Warning Message.

(a) Use multiple channels to disseminate the warning message, including visual, audible, andtactile means.

(b) A warning message should be repeated at least once, with some research advocating formessage repetition of at least three times.

(c) Messages should be stated in full, and then repeated in full, rather than repeating statements


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within the same message.

(d) Warning messages should be repeated at intervals, rather than consecutively.

(e) Warning messages should be disseminated as early as possible.

(f) Face-to-face communication should accompany other audible or visual technologies.

(g) Messages should be disseminated using a combination of both push and pull technologies.

(h) Push communication 2 is most important to use for alert signals as well as initial warningmessages.

G.3 Emergency Message Templates.

Rapid-onset emergencies often come with little warning and can have a major impact on communities. Inorder to provide clear, effective instructions for a threatened population, it is important to create messagetemplates ahead of time for a variety of different emergencies.

This section provides examples of message templates for five types of emergency, using various forms ofemergency communication technology. All bracketed text can be altered and replaced with text that bettersuits the needs of the occupants, emergency scenario, emergency response strategies, and the technologybeing used. Please see Kuligowski and Omori (2014) for more information on the process associated withthe development of these templates. Each template follows the guidance presented in this document.

G.3.1 Scenario 1 — Fire in a building, partial evacuation strategy, building-wide public addressannouncements.

Scenario 1 is a fire located on the 10th floor of a 20-story building. Individuals are unable to use elevators inthis scenario, except for those who are unable to negotiate the stairs, in which case building staff or firefighters will assist them using the freight elevator(s).

Protective actions: Occupants on floors 9, 10, and 11 are told to evacuate to the 8th floor (two floors belowthe fire floor). All other occupants are provided with a message to remain on their floor. Therefore, in thisscenario, two different types of messages are required to be provided simultaneously to occupants,depending upon the floor on which they are located: one message will be disseminated to floors 9, 10, and11, while a different message will be disseminated simultaneously to all other floors.

Technology used to disseminate the message: The building-wide public address system, which is capableof providing different messages to different floors (using a live voice or a dynamic voice).

G.3.1.1 Message Templates for Scenario 1:

(1) Building-wide announcement to Floors 9, 10, and 11: “Attention [floors 9, 10, and 11]. This is your[Building Safety Officer, Joe Smith]. A fire has been reported on the [10th floor] of the building.Everyone on the [9th, 10th, and 11th floors] should move to the [8th floor] to be protected from heatand smoke, since heat and smoke can creep into nearby floors during a fire. Use the stairsimmediately. Do not use the elevators. Those who need help getting to the 8th floor, please waitinside the stairwell [or go to the freight elevator lobby].”

(2) Building-wide announcement to all other floors: “Attention. This is your [Building Safety Officer, JoeSmith]. A fire has been reported on the [10th floor] of the building. Please wait on your floor. At thistime, you are safer remaining on your floor than leaving the building, because this building isdesigned to confine the fire [e.g., locally or to the 10th floor only]. Do not use the elevators for anyreason. We will give you further instructions, if the situation changes.”

G.3.2 Scenario 2 — Fire in a building, full evacuation strategy, building-wide public address announcement,and cell phone text message.


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Scenario 2 is a fire located on the second floor of a 20-story building in which smoke is traveling up thebuilding’s air-conditioning/venting system, causing the need for a full-building evacuation. Individuals areunable to use elevators in this scenario, except for those who are unable to negotiate the stairs, in whichcase building staff or fire fighters will assist them using the freight elevator(s).

Protective actions: Occupants on all floors are requested to evacuate the building, known as a full-buildingevacuation.

Technologies used to disseminate the message: The building-wide public address system, which iscapable of providing different messages to different floors (using a live voice or a dynamic voice). Also, a90-character text message alert to cell phone users in the building.


(1) Building-wide public address system: “Attention. This is [Chief Smith from the Springfield FireDepartment]. A fire has been reported on the [second floor] of the building. Everyone must leave thebuilding now to avoid contact with the fire’s heat and smoke. Go NOW to your closest stair and leavethe building. People who cannot use the stairs should go to the freight elevator lobby for help.”

(2) Cell phone text message (90 characters): “Evacuate building now. It is on fire. Go to freight elevator ifyou need help.”

Note: A description of the hazard (a more detailed “why” statement) is not included in this message due tocharacter limits. Also, the source is not listed. It is possible that the source will already be identified in the“From” or “FRM” line of the text message. If message contents are limited, there is always the option tosend a follow-up text message that provides more information or that continues the previous message.Also remember that some phones (i.e. non-smart phones) could display longer text messages in reversechronological order.

G.3.3 Scenario 3 — Tornado imminent on a college campus, campus-wide audible messaging system, andTwitter message.

Scenario 3 is a tornado imminent on a college campus.

Protective actions: The individuals on the college campus are instructed to “shelter in place.” Additionally,the National Weather Service provides examples of protective actions (included below):

Example 1: “TAKE COVER NOW. FOR YOUR PROTECTION MOVE TO AN INTERIOR ROOM ON THELOWEST FLOOR OF A STURDY BUILDING.”

Example 2: “TAKE COVER NOW. MOVE TO AN INTERIOR ROOM ON THE LOWEST FLOOR OF ASTURDY BUILDING. AVOID WINDOWS. IF IN A MOBILE HOME...A VEHICLE OR OUTDOORS...MOVETO THE CLOSEST SUBSTANTIAL SHELTER AND PROTECT YOURSELF FROM FLYING DEBRIS.”

Example 3: “THE SAFEST PLACE TO BE DURING A TORNADO IS IN A BASEMENT. GET UNDER AWORKBENCH OR OTHER PIECE OF STURDY FURNITURE. IF NO BASEMENT IS AVAILABLE...SEEKSHELTER ON THE LOWEST FLOOR OF THE BUILDING IN AN INTERIOR HALLWAY OR ROOM SUCHAS A CLOSET. USE BLANKETS OR PILLOWS TO COVER YOUR BODY AND ALWAYS STAY AWAYFROM WINDOWS.”

IF IN MOBILE HOMES OR VEHICLES...EVACUATE THEM AND GET INSIDE A SUBSTANTIALSHELTER. IF NO SHELTER IS AVAILABLE...LIE FLAT IN THE NEAREST DITCH OR OTHER LOW SPOTAND COVER YOUR HEAD WITH YOUR HANDS.”

(Examples found here: http://www.nws.noaa.gov/view/validProds.php?prod=TOR)

Technologies used to disseminate the message: A campus-wide siren system with audible messaging

capabilities. Also, a 140-character Twitter 3 message should be disseminated as well for this emergency.


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(1) Campus-wide audible messaging system): Alert tone precedes message [siren]. “This is [JoanSmith, Chief of Campus Police]. A tornado has been sighted on the ground at [20th Street andMockingbird Lane]. The tornado is strong and is moving toward the college campus at high speeds(with winds over 160 mph). High winds and large, flying debris can flatten a building in a storm of thismagnitude. Take shelter now. Get inside now, go to the lowest level, and get away from windows.Stay there until further instructions.”

(2) Twitter message (140 characters): “Take shelter inside a building NOW. Go to the lowest level, getaway from windows. Strong tornado near campus.” [Include hashtag in 140 characters.]

Note: The source of the message is not included in this Twitter message since the source will be evidentfrom the Twitter message layout.

G.3.4 Scenario 4 — Chemical spill in a building, building-wide public address announcements, andbuilding-wide email messages.

Scenario 4 is a chemical spill in a 40-story office building. The event was an accident and occurred on the1st floor of the building. There is the possibility of the chemical negatively affecting individuals on the lowerfloors of the building. Individuals are unable to use elevators in this scenario. For those who are unable tonegotiate the stairs, only one freight elevator will be used with fire-fighter assistance.

Protective actions: Occupants are advised to perform different actions based upon the floor on which theyare located. First, occupants on the first floor are advised to evacuate the building. At the same time,occupants on floors 2 through 10 are advised to travel to locations higher in the building — preferably tofloors 20 through 30. Concurrently, occupants on floors 11 and above are advised to remain in place.Therefore, in this scenario, three different types of messages are required to be provided simultaneously tooccupants, depending upon the floor on which they are located: one message will be disseminated to thefirst floor, one message will be disseminated to floors 2 through 10, and a third message will bedisseminated to all other floors.

Technologies used to disseminate the message: The building public address system, which is capable ofproviding different message to different floors (using a live voice or a dynamic voice). Additionally, an emailmessage (through the company’s email system) should be disseminated to employees on floors 2 through10 to relocate to a higher floor. [ Note: Do not worry about an email to other employees, although in anactual emergency, that would be necessary. ]

G.3.4.1

(1) Building-wide public address system: [first floor occupants] “This is your [Building Manager, JoeSmith]. A dangerous chemical has spilled on the first floor. The chemical makes it difficult to see andcan cause trouble breathing. Evacuate immediately.”

(2) Building-wide public address system: [floors 2 through 10] “This is your [Building Manager, JoeSmith]. A dangerous chemical has spilled on the first floor. The chemical makes it difficult to see andcan cause trouble breathing. Immediately use the stairs to relocate to the [20th through 30th floors],and then wait for further instructions. If you can’t use the stairs on your own, go to the freight elevatorand wait for help. Relocate now.”

(3) Building-wide public address system: [floors 11 and above] “This is your [Building Manager, JoeSmith]. A dangerous chemical has spilled on the first floor. The chemical makes it difficult to see andcan cause trouble breathing. People on [floors 1 through 10] are being evacuated. Please stay onyour floor. You are safer remaining where you are than if you try to leave the building. The chemicalwill not reach people on floors 11 and above. You would possibly be exposed to the chemical if youtried to leave the building. Do not use the elevators for any reason. We will give you furtherinstructions if the situation changes.”

Note: Provide emails with the same messages as listed above.

G.3.5 Scenario 5 — Violent event in an airport, airport-wide visual messaging screens, and cell phone textmessage.


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The fifth scenario is a violent event. Specially, the emergency involves an active shooter that has beenidentified in a major U.S. airport.

Example protective action: Occupants should evacuate the airport through all accessible doors, includingdoors from the gate waiting areas onto the tarmac area.

Technologies used to disseminate the message (along with example character limits that can be typical forthese types of technologies): A 90-character text message alert to individuals’ phones within the airport.Also, airport-wide visual messaging screens (limit message to 60 words or less) can be used to alertindividuals in terminals where the shooter is NOT located.


(1) Airport-wide visual messaging screens: “This is Los Angeles Police. Evacuate the terminal NOW.Follow directions from airport security. Shots have been fired near Gate 22.”

(2) Cell phone text message (90 characters): “Leave NOW. Follow airport security. Shots fired! Policereport: Shooter in Terminal A.”

Note: A description of the hazard (a more detailed “why” statement) is not included in this message due tocharacter limits. If message contents are limited, there is always the option to send a follow-up textmessage that provides more information or that continues the previous message. Also remember thatsome phones (i.e., non-smart phones) could display longer text messages in reverse chronological order.

G.4 Future Direction.

The purpose of this report is to provide guidance to system designers, building managers, and buildingemergency personnel responsible for emergency communication on how to create and disseminateeffective messages using basic communication modes (audible vs. visual technology), as well as examplesof emergency messages (message templates) for five different types of emergency scenarios. START(2013) contains additional message templates for similar types of rapid-onset events for both limited- andunlimited-character length dissemination technologies. Additionally, Kuligowski and Omori (2014) provideguidance on how to test the effectiveness of these messages.

As with any document, there are gaps in the research that hinder the ability to provide guidance on certaintopics, including message length and repetition. This guidance document focuses specifically on textualmessage creation, creating room for additional guidance on the development and testing of visual symbolsthat could be used instead of, or in addition to, textual emergency messages. In the future, as researchgaps are addressed, additional editions of this document would be useful to enhance the findings andguidance provided here.

G.5 References.

Kuligowski, E.D., S.M.V. Gwynne, K.M. Butler, B.L. Hoskins, and C.R. Sandler, 2012. DevelopingEmergency Communication Strategies for Buildings . Technical Note 1733, National Institute of Standardsand Technology: Gaithersburg, MD.

Kuligowski, E.D. and Omori, H., 2014. General Guidance on Emergency Communication Strategies forBuildings, 2nd Edition . NIST Technical Note 1827, National Institute of Standards and Technology:Gaithersburg, MD.

U.S. Department of Justice, September 2010. 2010 ADA Standards for Accessible Design . Washington,DC: DOJ. http://www.ada.gov/2010ADAstandards_index.htm.

START (National Consortium for the Study of Terrorism and Responses to Terrorism), 2013. Task 2.9:Phase II Interim Report on Results from Experiments, Think-out-Louds, and Focus Groups. University ofMaryland, College Park: College Park, MD.


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G.6 Footnotes.

1 Rapid-onset emergencies are those emergencies that occur with no or almost no (in the case ofminutes) notice, rather than slow-onset events (i.e., emergencies in which the occurrence is known hoursor even days in advance). These different emergency types require different sets of emergency messagesand dissemination techniques to allow building occupants to receive information in a timely manner,resulting in efficient and safer public response.

2 Push technologies are those that do not require individuals to take extra effort to receive the alert orwarning message (e.g., public address systems or text messages), whereas pull technologies require theindividual to seek additional information to acquire the alert/message (e.g., Internet websites).

3 Certain commercial entities, equipment, or materials are identified in this document in order to describean experimental procedure or concept adequately. Such identification is not intended to implyrecommendation or endorsement by the National Institute of Standards and Technology, nor is it intendedto imply that the entities, materials, or equipment identified are necessarily the best available for thepurpose.



72_SR_100_Annex_H_edited.docx




Street Address:

City:

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Zip:


Committee Statement

CommitteeStatement:

This annex provides valuable guidance with regard to message content, delivery, and developmentthat is necessary for a properly designed emergency communications system. This builds on thematerial included in FCR 32 which includes reference to NIST Technical Note 1779 which wassubsequently issued as Technical Note 1827.

This annex is based on the Fire Protection Research Foundation Final Report Guidance Document:Emergency Communication Strategies for Buildings which has been modified by the committee tocomply with the NFPA manual of style for annex material.

ResponseMessage:


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Annex H Guidelines for Emergency Communication Strategies for

Buildings and Campuses

H.1 The material in this annex is based on the National Institute of Standards and Technology (NIST) and

Fire Protection Research Foundation research Guidance Document: Emergency Communication

Strategies for Buildings, by Erica Kuligowski, Ph.D. and H. Omori, 2014, as adapted by the NFPA ECS TC.

The purpose of this annex is to provide guidance to system designers, building managers, and/or

building emergency personnel responsible for emergency communication on how to create and

disseminate messages using basic communication modes (audible and/or visual technology). The

guidance provided here is taken directly from a report published by the National Institute of

Standards and Technology, which was based on a review of 162 literature sources from a variety

of social science and engineering disciplines (Kuligowski et al. 2012) and the prioritization of

the specific findings extracted from each literature source.

This document first presents guidance on how to create and disseminate emergency information

in the face of rapid-onset disasters1 — providing guidance on the dissemination of alert signals,

the creation of the warning message, the formatting of messages for both visual and audible

means, and the dissemination of the warning message. This document then provides examples of

emergency messages (i.e., message templates) for five different types of emergency scenarios.

These message templates can be altered to fit the needs of your occupants, as well as the type of

emergency that has occurred and type of technology used to disseminate the alerts/messages.

H.2 Guidance on Emergency Communication Strategies.

This section provides guidance for managers, emergency personnel, alarm system manufacturers,

codes/standards committees, or others responsible for emergency communication on the ways in

which alerts and warning messages should be created, formatted, and disseminated. The

guidance is divided into two main parts: guidance on alerts and guidance on warning messages.

Although these two parts often get confused, it is important to distinguish between the purpose of

an alert and a warning message.

An alert is meant to grab peoples’ attention, notifying them that an emergency is taking

place and that there is important information, which will be provided to them.

The purpose of a warning message is to give that important information to occupants.

Guidance on the construction and dissemination of both alerts and warnings is provided here.

H.2.1 Alerts. It is imperative to disseminate an alert to let occupants know that a warning message will follow.

Regardless of whether the warning message is provided audibly, visually, or via tactile means, an

alert is necessary to gain people’s attention and should be provided separately from the warning

message. An effective alert should include the following characteristics:

1 Rapid-onset emergencies are those emergencies that occur with no or almost no (in the case of minutes) notice,

rather than slow-onset events (i.e., emergencies in which the occurrence is known hours or even days in advance).

These different emergency types require different sets of emergency messages and dissemination techniques to

allow building occupants to receive information in a timely manner, resulting in efficient and safer public response.

(1) Alerts should be significantly different from ambient sounds.

(2) Buildings should reduce background noise when initiating audible alerts.

(3) Flashing, rather than static lights, preferably one standard color for all buildings, can

be used to gain attention to visual warning messages.

(4) There are additional methods to alert occupants to an emergency: disruption of

routine activities, tactile methods, social networks, and face-to-face.

(5) An alert signal should be accompanied by a clear, consistent, concise, and candid

warning message.

(6) If selected, an alert should be tested for its success in getting occupants’ attention in

the event of an emergency and used as part of building- or campus-wide training.

H.2.2 Warnings.

Warning messages should provide information to the occupants on the state of the emergency

and what they are supposed to do in response to this emergency. The warning message should

come after an alert signal is given and can be provided via visual or audible means. However,

before such guidance on message format for visual and audible messages can be provided, it is

vital to provide guidance on the content of the warning message itself.

H.2.2.1 The Message.

Regardless of the method used to disseminate the warning message, there are certain

characteristics that are required of an effective warning message. These are included here:

(1) Message Content.

(a) A warning message should contain five important topics to ensure that occupants have

sufficient information to respond.

i. Who is providing the message? (i.e., the source of the message)

ii. What should people do? (i.e., what actions occupants should take in response to the

emergency and, if necessary, how to take these actions)

iii. When do people need to act? (In rapid-onset events, the “when” is likely to be

“immediately.”)

iv. Where is the emergency taking place? (i.e., who needs to act and who does not)

v. Why do people need to act? (including a description of the hazard and its

dangers/consequences)

(b) The source of the message should be someone who is perceived as credible by the

occupants

(c) Building managers, campus managers, and emergency personnel should understand

the affected population and, from this understanding, develop a database of possible

trusted sources (as well as backup sources).

(2) Message Structure.

(a) Message order for short messages (e.g., 90-characters) should be the following:

i. Source

ii. Guidance on what people should do

iii. Hazard (why)

iv. Location (where)

v. Time.

(b) Message order for longer messages should be the following:

i. Source

ii. Hazard

iii. Location

iv. Guidance

v. Time

(c) Numbered lists can help to chronologically organize multiple steps in a process

(d) For limited message length, message writers could draft the message in a bulleted

form; each of the five topics in the warning should be separated as its own bullet point

(e) Distinct audiences should be addressed separately in the message (or in multiple

messages)

(3) Message Language (or Wording).

(a) Messages should be written using short, simple words, omitting unnecessary words or

phrases.

(b) Messages should be written using active voice, present tense, avoiding hidden verbs.

(c) Messages should be written using short, simple, and clear sentences, avoiding double

negatives and exceptions to exceptions; main ideas should be placed before exceptions

and conditions.

(d) Emergency messages should be written at a sixth grade reading level or lower. An

emergency message can be evaluated for its reading level using computer software and/or

a simple calculation.

(e) Emergency messages should be written without the use of jargon and false cognates.

(f) Emergency messages should be provided in the language of the predominant affected

populace. If there is a possibility of isolated groups that do not speak the predominant

language, multilingual messages should be provided. It is expected that small groups of

transients unfamiliar with the predominant language will be picked up in the traffic flow

in the event of an emergency and are not likely to be in an isolated situation.

(4) Multiple Messages.

(a) Building managers, campus managers, and emergency personnel should anticipate the

need to write more than one emergency message throughout a disaster, including

feedback messages or updates.

(b) In update messages, occupants should be told why the information has changed, to

ensure that the new message is viewed as credible.

(c) Provide feedback messages after a “non-event” to inform occupants that the alert

signal and warning system operated and worked as planned and the reasons why the

event did not occur.

(d) Building managers, campus managers, and emergency personnel should test

emergency messages with the affected population.

(5) Visual Warnings.

Messages that are displayed visually will have different capabilities and limitations than those

disseminated audibly. Message creators should consider different factors and make different

types of decisions based upon the dissemination method. The first consideration is the type of

visual technology that will be used to disseminate the messages, which can include textual visual

displays, SMS text messages, computer pop-ups, email, Internet websites, news (TV broadcast),

or streaming broadcast over the web. Depending upon the technology chosen to display visual

warning messages, guidance is provided here on message displays to enable occupants to see or

notice the displayed warning, understand the warning, perceive warning credibility and risk, and

respond appropriately.

(6) Noticing and Reading the Warning.

(a) Place the emergency sign in a location where people will notice it and be able to read

it from their original (pre-emergency) location.

(b) Signs will be reliably conspicuous within 15 degrees of the direct line of sight.

(c) Text is easier to read when written with a mixture of upper and lower case letters

rather than the use of all capitals.

(d) The recommended relationship for older adults with lower visual acuity is D = 100 *

h, providing a more conservative result, and ensuring that a larger population will be able

to read the emergency message.

(e) A stroke-to-width ratio of the letters is suggested as 1:5 (generally), with a ratio of 1:7

suggested for lighter letters on a darker background.

(f) Building managers, campus managers, or emergency personnel should consult the

ADA Standards for Accessible Design (U.S. Department of Justice 2010) for additional

requirements on signage.

(g) Contrast between the text and the background should be at least 30 percent, although

recommended values could be as high as 60 percent.

(h) The use of pictorials (in lieu of or in addition to text) can also bring attention to the

sign.

(i) Message providers should ensure that emergency information is not blocked by other

signs or information.


(a) Printed text should accompany symbols or pictorials used in visual warnings; a

minimum number of words should be used to accompany graphics.

(b) Diagrams that display a series of sequential steps are more successful for

comprehension of a process than one single graphic.

(c) A color-contrasted word or statement should be used for text that should be read first

and/or be perceived as more urgent than the rest, unless color is used for other reasons

(e.g.. bilingual text).

(d) A warning message can increase in perceived credibility and risk if occupants are

shown that others are also responding.

(e) Simultaneously displayed text (discrete messages) is preferred rather than a

sequentially displayed message.

(f) Simultaneously displayed text can also be used for bilingual messages, especially if

care is taken to differentiate the text of one language from the text of the other language.

(g) Limit the use of flashing words on visual message displays.

(8) Audible Warnings.

There are specific warning technologies that only (or primarily) affect the aural sense, including

public address systems (voice notification systems), automated voice dialing, satellite/AM/FM

radio broadcasts, satellite/off-air television broadcasts, and tone alert radios. Whereas visual

technologies can limit message length, audible warnings are often limited only by the attention

capabilities of the audience. In other words, an audible message can play for long periods of time

with these technology types, and the message creator and source must be careful to provide all

important information in an appropriate length of time.

In this section, guidance will be given for methods to increase the likelihood that an individual

will perceive, or hear, the message. Following this, guidance will be provided that can increase

comprehension of the message for audible messages, as well as the ways in which to increase

credibility and risk assessment of the event when the warning is presented audibly.

(9) Perception.

(a) Other, non-alert/warning voices in the background should be reduced or eliminated.

(b) Any voice announcements should also be accompanied by simultaneous visual text.

Comprehending, Believing, and Personalizing the Warning.

(a) Letters are more difficult to identify in speech than numbers, which are more difficult

than colors.

(b) Message speakers (or sources) should not be heavily accented and should speak with

a rate of approximately 175 words per minute.

(c) Audible warnings can be delivered using a live voice, dynamic voice (generated by

text-to-speech software), or using pre-recorded voice.

(d) The live voice and dynamic voice methods provide the benefit of messages that can

be updated with new information while also conveying an appropriate level of urgency, if

necessary.

(e) Dynamic and pre-recoded voice methods provide the benefits of easily repeating the

played messages for longer periods of time and not relying on the voice announcer

training or stress level while delivering the message.

(f) For the voice itself, best results will vary, depending on the specific location — for

example, in outdoor applications, it has been shown that a male voice will provide better

intelligibility, as the naturally lower frequency of the male voice travels better. Inversely,

in an interior application, where the background ambient noise is typically in the same

lower frequencies, a female voice tends to penetrate better, as it is more distinct from the

ambient.

(g) Urgency measures should be used selectively to emphasize the more dangerous,

immediate, life-threatening situations (since overuse can lead to non-response in future

disasters).

(10) Dissemination of the Warning Message.

(a) Use multiple channels to disseminate the warning message, including visual, audible,

and tactile means.

(b) A warning message should be repeated at least once, with some research advocating

for message repetition of at least three times.

(c) Messages should be stated in full, and then repeated in full, rather than repeating

statements within the same message.

(d) Warning messages should be repeated at intervals, rather than consecutively.

(e) Warning messages should be disseminated as early as possible.

(f) Face-to-face communication should accompany other audible or visual technologies.

(g) Messages should be disseminated using a combination of both push and pull

technologies.

(h) Push communication2 is most important to use for alert signals as well as initial

warning messages.

H.3 Emergency Message Templates. Rapid-onset emergencies often come with little warning and can have a major impact on

communities. In order to provide clear, effective instructions for a threatened population, it is important

to create message templates ahead of time for a variety of different emergencies.

This section provides examples of message templates for five types of emergency, using various

forms of emergency communication technology. All bracketed text can be altered and replaced

with text that better suits the needs of the occupants, emergency scenario, emergency response

strategies, and the technology being used. Please see Kuligowski and Omori (2014) for more

information on the process associated with the development of these templates. Each template

follows the guidance presented in this document.

H.3.1 Scenario 1 — Fire in a building, partial evacuation strategy, building-wide public

address announcements.

Scenario 1 is a fire located on the 10th floor of a 20-story building. Individuals are unable to use

elevators in this scenario, except for those who are unable to negotiate the stairs, in which case

building staff or fire fighters will assist them using the freight elevator(s).

Protective actions: Occupants on floors 9, 10, and 11 are told to evacuate to the 8th floor (two

floors below the fire floor). All other occupants are provided with a message to remain on their

floor. Therefore, in this scenario, two different types of messages are required to be provided

simultaneously to occupants, depending upon the floor on which they are located: one message

will be disseminated to floors 9, 10, and 11, while a different message will be disseminated

simultaneously to all other floors.

2 Push technologies are those that do not require individuals to take extra effort to receive the alert or warning

message (e.g., public address systems or text messages), whereas pull technologies require the individual to seek

additional information to acquire the alert/message (e.g., Internet websites).

Technology used to disseminate the message: The building-wide public address system, which is

capable of providing different messages to different floors (using a live voice or a dynamic

voice).

H.3.1.1 Message Templates for Scenario 1:

(1) Building-wide announcement to Floors 9, 10, and 11: “Attention [floors 9, 10, and 11].

This is your [Building Safety Officer, Joe Smith]. A fire has been reported on the [10th

floor] of the building. Everyone on the [9th, 10th, and 11th floors] should move to the

[8th floor] to be protected from heat and smoke, since heat and smoke can creep into

nearby floors during a fire. Use the stairs immediately. Do not use the elevators. Those

who need help getting to the 8th floor, please wait inside the stairwell [or go to the freight

elevator lobby].”

(2) Building-wide announcement to all other floors: “Attention. This is your [Building Safety

Officer, Joe Smith]. A fire has been reported on the [10th floor] of the building. Please

wait on your floor. At this time, you are safer remaining on your floor than leaving the

building, because this building is designed to confine the fire [e.g., locally or to the 10th

floor only]. Do not use the elevators for any reason. We will give you further instructions,

if the situation changes.”

H.3.2 Scenario 2 — Fire in a building, full evacuation strategy, building-wide public

address announcement, and cell phone text message.

Scenario 2 is a fire located on the second floor of a 20-story building in which smoke is traveling

up the building’s air-conditioning/venting system, causing the need for a full-building

evacuation. Individuals are unable to use elevators in this scenario, except for those who are

unable to negotiate the stairs, in which case building staff or fire fighters will assist them using

the freight elevator(s).

Protective actions: Occupants on all floors are requested to evacuate the building, known as a

full-building evacuation.

Technologies used to disseminate the message: The building-wide public address system, which

is capable of providing different messages to different floors (using a live voice or a dynamic

voice). Also, a 90-character text message alert to cell phone users in the building.


(1) Building-wide public address system: “Attention. This is [Chief Smith from the

Springfield Fire Department]. A fire has been reported on the [second floor] of the

building. Everyone must leave the building now to avoid contact with the fire’s heat and

smoke. Go NOW to your closest stair and leave the building. People who cannot use the

stairs should go to the freight elevator lobby for help.”

(2) Cell phone text message (90 characters): “Evacuate building now. It is on fire. Go to

freight elevator if you need help.”

Note: A description of the hazard (a more detailed “why” statement) is not included in this

message due to character limits. Also, the source is not listed. It is possible that the source will

already be identified in the “From” or “FRM” line of the text message. If message contents are

limited, there is always the option to send a follow-up text message that provides more

information or that continues the previous message. Also remember that some phones (i.e. non-

smart phones) could display longer text messages in reverse chronological order.

H.3.3 Scenario 3 — Tornado imminent on a college campus, campus-wide audible

messaging system, and Twitter message.

Scenario 3 is a tornado imminent on a college campus.

Protective actions: The individuals on the college campus are instructed to “shelter in place.”

Additionally, the National Weather Service provides examples of protective actions (included

below):

Example 1: “TAKE COVER NOW. FOR YOUR PROTECTION MOVE TO AN INTERIOR

ROOM ON THE LOWEST FLOOR OF A STURDY BUILDING.”

Example 2: “TAKE COVER NOW. MOVE TO AN INTERIOR ROOM ON THE LOWEST

FLOOR OF A STURDY BUILDING. AVOID WINDOWS. IF IN A MOBILE HOME...A

VEHICLE OR OUTDOORS...MOVE TO THE CLOSEST SUBSTANTIAL SHELTER AND

PROTECT YOURSELF FROM FLYING DEBRIS.”

Example 3: “THE SAFEST PLACE TO BE DURING A TORNADO IS IN A BASEMENT.

GET UNDER A WORKBENCH OR OTHER PIECE OF STURDY FURNITURE. IF NO

BASEMENT IS AVAILABLE...SEEK SHELTER ON THE LOWEST FLOOR OF THE

BUILDING IN AN INTERIOR HALLWAY OR ROOM SUCH AS A CLOSET. USE

BLANKETS OR PILLOWS TO COVER YOUR BODY AND ALWAYS STAY AWAY

FROM WINDOWS.”

IF IN MOBILE HOMES OR VEHICLES...EVACUATE THEM AND GET INSIDE A

SUBSTANTIAL SHELTER. IF NO SHELTER IS AVAILABLE...LIE FLAT IN THE

NEAREST DITCH OR OTHER LOW SPOT AND COVER YOUR HEAD WITH YOUR

HANDS.”

(Examples found here: http://www.nws.noaa.gov/view/validProds.php?prod=TOR)

Technologies used to disseminate the message: A campus-wide siren system with audible

messaging capabilities. Also, a 140-character Twitter3 message should be disseminated as well

for this emergency.


(1) Campus-wide audible messaging system): Alert tone precedes message [siren]. “This is

[Joan Smith, Chief of Campus Police]. A tornado has been sighted on the ground at [20th

Street and Mockingbird Lane]. The tornado is strong and is moving toward the college

campus at high speeds (with winds over 160 mph). High winds and large, flying debris

3 Certain commercial entities, equipment, or materials are 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 identified are necessarily the best available for the purpose.

can flatten a building in a storm of this magnitude. Take shelter now. Get inside now, go

to the lowest level, and get away from windows. Stay there until further instructions.”

(2) Twitter message (140 characters): “Take shelter inside a building NOW. Go to the lowest

level, get away from windows. Strong tornado near campus.” [Include hashtag in 140

characters.]

Note: The source of the message is not included in this Twitter message since the source will be

evident from the Twitter message layout.

H.3.4 Scenario 4 — Chemical spill in a building, building-wide public address

announcements, and building-wide email messages.

Scenario 4 is a chemical spill in a 40-story office building. The event was an accident and

occurred on the 1st floor of the building. There is the possibility of the chemical negatively

affecting individuals on the lower floors of the building. Individuals are unable to use elevators

in this scenario. For those who are unable to negotiate the stairs, only one freight elevator will be

used with fire-fighter assistance.

Protective actions: Occupants are advised to perform different actions based upon the floor on

which they are located. First, occupants on the first floor are advised to evacuate the building. At

the same time, occupants on floors 2 through 10 are advised to travel to locations higher in the

building — preferably to floors 20 through 30. Concurrently, occupants on floors 11 and above

are advised to remain in place. Therefore, in this scenario, three different types of messages are

required to be provided simultaneously to occupants, depending upon the floor on which they are

located: one message will be disseminated to the first floor, one message will be disseminated to

floors 2 through 10, and a third message will be disseminated to all other floors.

Technologies used to disseminate the message: The building public address system, which is

capable of providing different message to different floors (using a live voice or a dynamic voice).

Additionally, an email message (through the company’s email system) should be disseminated to

employees on floors 2 through 10 to relocate to a higher floor. [Note: Do not worry about an

email to other employees, although in an actual emergency, that would be necessary.]


(1) Building-wide public address system: [first floor occupants] “This is your [Building

Manager, Joe Smith]. A dangerous chemical has spilled on the first floor. The chemical

makes it difficult to see and can cause trouble breathing. Evacuate immediately.”

(2) Building-wide public address system: [floors 2 through 10] “This is your [Building


makes it difficult to see and can cause trouble breathing. Immediately use the stairs to

relocate to the [20th through 30th floors], and then wait for further instructions. If you

can’t use the stairs on your own, go to the freight elevator and wait for help. Relocate

now.”

(3) Building-wide public address system: [floors 11 and above] “This is your [Building


makes it difficult to see and can cause trouble breathing. People on [floors 1 through10]

are being evacuated. Please stay on your floor. You are safer remaining where you are

than if you try to leave the building. The chemical will not reach people on floors 11 and

above. You would possibly be exposed to the chemical if you tried to leave the building.

Do not use the elevators for any reason. We will give you further instructions if the

situation changes.”

Note: Provide emails with the same messages as listed above.

H.3.5 Scenario 5 — Violent event in an airport, airport-wide visual messaging screens, and

cell phone text message.

The fifth scenario is a violent event. Specially, the emergency involves an active shooter that has

been identified in a major U.S. airport.

Example protective action: Occupants should evacuate the airport through all accessible doors,

including doors from the gate waiting areas onto the tarmac area.

Technologies used to disseminate the message (along with example character limits that can be

typical for these types of technologies): A 90-character text message alert to individuals’ phones

within the airport. Also, airport-wide visual messaging screens (limit message to 60 words or

less) can be used to alert individuals in terminals where the shooter is NOT located.


(1) Airport-wide visual messaging screens: “This is Los Angeles Police. Evacuate the

terminal NOW. Follow directions from airport security. Shots have been fired near Gate

22.”

(2) Cell phone text message (90 characters): “Leave NOW. Follow airport security. Shots

fired! Police report: Shooter in Terminal A.”

Note: A description of the hazard (a more detailed “why” statement) is not included in this

message due to character limits. If message contents are limited, there is always the option to

send a follow-up text message that provides more information or that continues the previous

message. Also remember that some phones (i.e., non-smart phones) could display longer text

messages in reverse chronological order.

H.4 Future Direction.

The purpose of this report is to provide guidance to system designers, building managers, and

building emergency personnel responsible for emergency communication on how to create and

disseminate effective messages using basic communication modes (audible vs. visual

technology), as well as examples of emergency messages (message templates) for five different

types of emergency scenarios. START (2013) contains additional message templates for similar

types of rapid-onset events for both limited- and unlimited-character length dissemination

technologies. Additionally, Kuligowski and Omori (2014) provide guidance on how to test the

effectiveness of these messages.

As with any document, there are gaps in the research that hinder the ability to provide guidance

on certain topics, including message length and repetition. This guidance document focuses

specifically on textual message creation, creating room for additional guidance on the

development and testing of visual symbols that could be used instead of, or in addition to, textual

emergency messages. In the future, as research gaps are addressed, additional editions of this

document would be useful to enhance the findings and guidance provided here.

H.5 References.

Kuligowski, E.D., S.M.V. Gwynne, K.M. Butler, B.L. Hoskins, and C.R. Sandler, 2012.

Developing Emergency Communication Strategies for Buildings. Technical Note 1733, National

Institute of Standards and Technology: Gaithersburg, MD.

Kuligowski, E.D. and Omori, H., 2014. General Guidance on Emergency Communication

Strategies for Buildings, 2nd Edition. NIST Technical Note 1827, National Institute of Standards

and Technology: Gaithersburg, MD.

U.S. Department of Justice, September 2010. 2010 ADA Standards for Accessible Design.

Washington, DC: DOJ. http://www.ada.gov/2010ADAstandards_index.htm.

START (National Consortium for the Study of Terrorism and Responses to Terrorism), 2013.

Task 2.9: Phase II Interim Report on Results from Experiments, Think-out-Louds, and Focus

Groups. University of Maryland, College Park: College Park, MD.

H.6 Footnotes.

1 Rapid-onset emergencies are those emergencies that occur with no or almost no (in the case of

minutes) notice, rather than slow-onset events (i.e., emergencies in which the occurrence is

known hours or even days in advance). These different emergency types require different sets of

emergency messages and dissemination techniques to allow building occupants to receive

information in a timely manner, resulting in efficient and safer public response.

2 Push technologies are those that do not require individuals to take extra effort to receive the

alert or warning message (e.g., public address systems or text messages), whereas pull

technologies require the individual to seek additional information to acquire the alert/message

(e.g., Internet websites).

3 Certain commercial entities, equipment, or materials are 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 identified are necessarily the

best available for the purpose.

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