Emergency Communications Setup

Emergency communications setup establishes alternative communication channels when normal infrastructure fails or proves insufficient for crisis response. This playbook activates when primary communications are unavailable, when an emergency response requires communications beyond normal capacity, or when operating in areas without existing infrastructure. The procedures prioritise speed of establishment over optimisation, recognising that imperfect communications operational within hours deliver more value than perfect communications established over days.

Activation criteria

Invoke this playbook when any of the following conditions exist:

Do not activate for single-channel failures where alternatives exist within normal infrastructure. A mobile network outage when internet remains functional does not require emergency communications; standard business continuity procedures apply.

Roles

For responses with fewer than three IT staff available, the communications lead assumes technical lead responsibilities. The logistics coordinator role transfers to whoever controls vehicle and supply access.

Communication channel hierarchy

Emergency communication channels exist in a priority hierarchy based on reliability, coverage, and ease of deployment. Select channels based on the operational context, available equipment, and communication requirements.

+--------------------------------------------------------------------+
|                    CHANNEL SELECTION HIERARCHY                     |
+--------------------------------------------------------------------+
|                                                                    |
|  +---------------------+                                           |
|  | 1. SATELLITE VOICE  |  Highest priority for voice               |
|  |    (Thuraya/Iridium)|  Global coverage, immediate deployment    |
|  +----------+----------+                                           |
|             |                                                      |
|             v                                                      |
|  +---------------------+                                           |
|  | 2. SATELLITE DATA   |  Internet connectivity                    |
|  |    (BGAN/Starlink)  |  Enables email, messaging, coordination   |
|  +----------+----------+                                           |
|             |                                                      |
|             v                                                      |
|  +---------------------+                                           |
|  | 3. HF RADIO         |  Long-range voice without infrastructure  |
|  |                     |  Requires trained operators               |
|  +----------+----------+                                           |
|             |                                                      |
|             v                                                      |
|  +---------------------+                                           |
|  | 4. VHF/UHF RADIO    |  Local area communications                |
|  |                     |  Simple operation, limited range          |
|  +----------+----------+                                           |
|             |                                                      |
|             v                                                      |
|  +---------------------+                                           |
|  | 5. MESH NETWORKING  |  Local data network without backhaul      |
|  |                     |  Requires multiple devices                |
|  +----------+----------+                                           |
|             |                                                      |
|             v                                                      |
|  +---------------------+                                           |
|  | 6. SMS/USSD         |  Lowest bandwidth fallback                |
|  |                     |  Works on degraded mobile networks        |
|  +---------------------+                                           |
|                                                                    |
+--------------------------------------------------------------------+

Figure 1: Emergency communication channel selection hierarchy

The hierarchy reflects both capability and deployment complexity. Satellite phones deploy in minutes but cost £1-3 per minute for calls. HF radio provides free communications over thousands of kilometres but requires 30-60 minutes for antenna deployment and skilled operators. Select based on immediate needs, then expand capabilities as the situation stabilises.

Phase 1: Immediate assessment

Objective: Determine communication requirements and available resources within 30 minutes of activation.

Timeframe: 0-30 minutes

1. Confirm the nature of the communications failure or requirement. For infrastructure failures, verify the outage scope by testing multiple carriers and connection methods. A single carrier outage differs from total infrastructure collapse. For new response locations, obtain geographic coordinates and terrain information.

2. Inventory immediately available emergency communications equipment. Check the emergency communications kit location and verify contents against the manifest. Standard kit contents include:

   • 2x satellite phones (Thuraya or Iridium) with charged batteries
   • 1x BGAN terminal or Starlink kit
   • 4x handheld VHF/UHF radios with chargers
   • 1x HF radio transceiver (if organisation maintains HF capability)
   • Solar charging panels (minimum 50W)
   • Spare batteries for all devices
   • Antenna cables and connectors
   • Frequency/channel reference cards
   • User quick-reference guides

3. Identify personnel with emergency communications training. Satellite phone operation requires minimal training (under 15 minutes for basic calls). HF radio operation requires certified operators or personnel with documented training. VHF/UHF handhelds require brief orientation (5 minutes) for voice operation.

4. Determine power availability at the deployment location. Satellite and radio equipment requires:

   Equipment	Power requirement	Battery runtime	Charging time
   Satellite phone	5W standby, 15W transmit	8-12 hours standby, 4 hours talk	2-3 hours
   BGAN terminal	20W average	2-3 hours continuous	3-4 hours
   Starlink	50-75W continuous	Requires mains or generator	N/A
   HF transceiver	10W receive, 100W transmit	4-6 hours receive, 1 hour transmit	4-6 hours
   VHF handheld	0.5W standby, 5W transmit	12-18 hours typical use	2-3 hours

5. Contact regional IT or headquarters to report activation and confirm coordination requirements. Use any available channel: personal mobile if functional, borrowed satellite phone, or physical messenger to location with communications. Report:

   • Location and nature of communications requirement
   • Estimated duration of need
   • Available equipment and personnel
   • Specific support requirements

Decision point: If satellite phones are available and functional, proceed directly to Phase 2 satellite deployment while completing broader assessment. Do not delay basic communications capability for comprehensive planning.

Checkpoint: Assessment complete when you have documented: failure/requirement scope, available equipment inventory, trained personnel list, power situation, and coordination status with headquarters.

Phase 2: Primary channel establishment

Objective: Establish reliable voice and basic data communication within 2 hours.

Timeframe: 30 minutes to 2 hours

1. Deploy satellite voice capability first. Satellite phones provide the fastest path to reliable voice communication.

   For Thuraya satellite phones (Middle East, Africa, Asia, Europe coverage):

   Power on sequence:
   1. Insert charged battery
   2. Extend antenna fully
   3. Power on (hold power button 3 seconds)
   4. Wait for satellite acquisition (30-90 seconds outdoors)
   5. Display shows signal strength bars when connected
   6. Dial international format: +[country code][number]

Position the phone outdoors with clear sky visibility. Thuraya requires line of sight to geostationary satellite at approximately 25-45 degrees elevation (varies by location). Buildings, dense tree cover, and terrain block signals.

For Iridium satellite phones (global coverage including polar regions):

   Power on sequence:
   1. Insert charged battery
   2. Extend antenna to vertical position
   3. Power on (hold power button 2 seconds)
   4. Wait for "Registered" status (60-120 seconds)
   5. Signal indicator shows connection quality
   6. Dial 00 or + followed by country code and number

Iridium uses low-earth orbit satellites passing overhead, requiring less precise positioning than Thuraya but subject to brief signal interruptions during satellite handoffs.

2. Test satellite voice connectivity by calling a pre-designated emergency contact number. Confirm two-way audio quality. If call connects but audio is poor, reposition to improve signal. If call fails to connect, verify:

   • SIM card properly inserted
   • Account active and funded (check with provider if uncertain)
   • Antenna extended and positioned correctly
   • Clear sky view in direction of satellite

3. Deploy satellite data capability. BGAN terminals provide data connectivity at 384-492 kbps; Starlink provides 50-200 Mbps where available.

   For BGAN terminal deployment:

   +------------------------------------------+
   |            BGAN POSITIONING              |
   +------------------------------------------+
   |                                          |
   |     Satellite direction                  |
   |            ^                             |
   |           /|\                            |
   |          / | \                           |
   |         /  |  \  Elevation angle         |
   |        /   |   \ (25-45 degrees)         |
   |       /    |    \                        |
   |      /     |     \                       |
   |   +-----------------+                    |
   |   |  BGAN Terminal  |                    |
   |   |    (flat on     |                    |
   |   |    stable       |                    |
   |   |    surface)     |                    |
   |   +-----------------+                    |
   |          |||                             |
   |          ||| Ethernet to laptop          |
   |          vvv                             |
   |   +-----------------+                    |
   |   |    Laptop       |                    |
   |   +-----------------+                    |
   |                                          |
   +------------------------------------------+

Figure 2: BGAN terminal positioning and connection

Point the terminal toward the satellite using the built-in compass and elevation indicator. The terminal’s LED or display guides alignment. Registration completes in 2-5 minutes once properly aligned.

For Starlink deployment:

Place the antenna in a location with clear sky view. The Starlink app shows obstructions. Connect power and wait 2-5 minutes for boot and satellite acquisition. Connect devices to the Starlink WiFi network or via ethernet adapter.

4. Configure communication priorities on satellite data connections. Satellite bandwidth is limited and expensive. Implement traffic management:

   • Disable automatic updates on all connected devices
   • Configure email clients for text-only mode
   • Block streaming and large file downloads
   • Enable compression where available

   BGAN charges by data volume: approximately £3-6 per MB. Starlink charges flat monthly rates but enforces fair use policies. A single background update can consume an hour’s communication budget.

5. Establish local area communications using VHF/UHF radios. Programme handhelds to designated emergency channels before distribution.

   Standard channel assignments:

   Channel	Purpose	Frequency (example)
   1	Command/coordination	148.000 MHz
   2	Operations team 1	148.025 MHz
   3	Operations team 2	148.050 MHz
   4	Logistics	148.075 MHz
   5	Security	148.100 MHz
   6	Inter-agency common	148.125 MHz
   16	Emergency calling	156.800 MHz (marine VHF)

   Actual frequencies depend on licences held and local regulations. Use pre-programmed radios from emergency stocks where available.

6. Test all deployed channels with a communications check. Each channel should confirm:

   • Voice clarity (scale 1-5, require minimum 3)
   • Two-way communication functional
   • Coverage at key locations
   • Backup power available

Checkpoint: Phase 2 complete when satellite voice, satellite data, and local radio are operational with confirmed connectivity tests.

Phase 3: Extended capability deployment

Objective: Expand communications capacity and establish redundancy within 6 hours.

Timeframe: 2-6 hours

1. Deploy HF radio if required for long-range communications without satellite dependency. HF radio provides voice communication over hundreds to thousands of kilometres using ionospheric propagation, requiring no infrastructure beyond the radio itself.

   HF deployment requirements:

   • HF transceiver (25-100W output)
   • Antenna (dipole, vertical, or long-wire)
   • Antenna tuner (if not built into transceiver)
   • Power supply (12V DC, 10-30A depending on output power)
   • Grounding rod and cable

   +----------------------------------------------------+
   |           HF DIPOLE ANTENNA SETUP                  |
   +----------------------------------------------------+
   |                                                    |
   |          Support (tree, mast, building)            |
   |                   |                                |
   |                   |  Rope/cord                     |
   |                   v                                |
   |          +--------+--------+                       |
   |          |                 |                       |
   |          |   Insulator     |                       |
   |          |                 |                       |
   |          +--------+--------+                       |
   |                   |                                |
   |         +---------+---------+                      |
   |         |                   |                      |
   |         | Dipole element    | Dipole element       |
   |         | (wire, 1/4        | (wire, 1/4           |
   |         | wavelength)       | wavelength)          |
   |         |                   |                      |
   |         v                   v                      |
   |         +                   +                      |
   |         |                   |                      |
   |         | Insulator         | Insulator            |
   |         |                   |                      |
   |         +-------------------+                      |
   |                  |                                 |
   |                  | Coax feedline                   |
   |                  | (50 ohm)                        |
   |                  v                                 |
   |         +------------------+                       |
   |         | HF Transceiver   |                       |
   |         +------------------+                       |
   |                  |                                 |
   |                  | Ground wire                     |
   |                  v                                 |
   |         +------------------+                       |
   |         | Ground rod       |                       |
   |         | (copper, 1-2m    |                       |
   |         | into earth)      |                       |
   |         +------------------+                       |
   |                                                    |
   +----------------------------------------------------+

Figure 3: HF dipole antenna deployment configuration

Dipole length depends on frequency band. For 7 MHz (40 metre band), each element is approximately 10 metres. For 14 MHz (20 metre band), each element is approximately 5 metres. Height above ground significantly affects performance; aim for 5-10 metres minimum.

2. Establish scheduled communication windows. In limited bandwidth environments, scheduled contacts prevent congestion and ensure critical traffic gets through.

   Standard schedule structure:

   Time (local)	Duration	Purpose	Participants
   07:00	15 min	Morning situation report	All field locations
   12:00	10 min	Midday check-in	Field locations with issues
   18:00	15 min	Evening report	All field locations
   21:00	10 min	Final check-in	Security-sensitive locations

   Outside scheduled windows, maintain listening watch on designated channels. Emergency traffic takes priority over scheduled traffic.

3. Configure mesh networking for local data connectivity if internet backhaul is unavailable or insufficient. Mesh networks enable file sharing, messaging, and coordination applications within the response area without external connectivity.

   Mesh network deployment using goTenna, Meshtastic, or similar devices:

   • Position relay nodes at high points (buildings, hills)
   • Ensure nodes have line-of-sight to at least two other nodes
   • Test message delivery between all endpoints
   • Document node positions for troubleshooting

   Mesh networks work for text messaging and small file transfer. They do not support voice calls or video.

4. Establish interoperability with other responding organisations. Multi-agency responses require shared communication channels.

   +------------------------------------------------------------------+
   |                 INTEROPERABILITY ARCHITECTURE                    |
   +------------------------------------------------------------------+
   |                                                                  |
   |  Organisation A      Shared                Organisation B        |
   |  Communications      Channels              Communications        |
   |                                                                  |
   |  +-------------+    +----------------+    +-------------+        |
   |  | Internal    |    | Inter-agency   |    | Internal    |        |
   |  | satellite   |    | coordination   |    | satellite   |        |
   |  | (own)       |    | (Cluster lead  |    | (own)       |        |
   |  +------+------+    | or UN OCHA)    |    +------+------+        |
   |         |           +-------+--------+           |               |
   |         |                   |                    |               |
   |  +------v------+            |             +------v------+        |
   |  | Internal    |    +-------v--------+    | Internal    |        |
   |  | VHF/UHF     |    | Common VHF     |    | VHF/UHF     |        |
   |  | channels    |    | frequency      |    | channels    |        |
   |  +------+------+    | (agreed by     |    +------+------+        |
   |         |           | all parties)   |           |               |
   |         |           +-------+--------+           |               |
   |         |                   |                    |               |
   |         +-------------------+--------------------+               |
   |                             |                                    |
   |                    +--------v--------+                           |
   |                    | Field teams     |                           |
   |                    | (monitor both   |                           |
   |                    | internal and    |                           |
   |                    | inter-agency)   |                           |
   |                    +-----------------+                           |
   |                                                                  |
   +------------------------------------------------------------------+

Figure 4: Inter-agency communication interoperability structure

Participate in cluster or coordination meetings to agree shared frequencies. Document interoperability arrangements including call signs, frequencies, and schedules.

5. Establish SMS/USSD fallback for locations where mobile networks remain partially functional. SMS often works when voice and data fail because SMS requires less network capacity.

   Configure SMS distribution lists for emergency notifications:

   SMS gateway configuration (example using Twilio):
   - Account SID: [organisation account]
   - Emergency distribution list: +44XXXXXXXXXX, +254XXXXXXXXXX...
   - Message template: "[EMERGENCY] [Location]: [Message] Reply Y to confirm"
   - Confirmation tracking: log all responses with timestamp

Test SMS delivery before relying on it. Network congestion during emergencies can delay SMS by hours.

6. Document all deployed communication channels in a communications plan.

   Communications plan contents:

   • Channel assignments (frequency, service, callsign for each)
   • Contact directory (name, role, assigned channels/devices)
   • Schedule (check-in times, reporting schedule)
   • Procedures (priority traffic handling, emergency calls)
   • Equipment inventory (what is deployed where)

Checkpoint: Phase 3 complete when redundant channels exist for critical communications, inter-agency coordination is established, and the communications plan is documented and distributed.

Phase 4: Operations and monitoring

Objective: Maintain reliable communications throughout the emergency response period.

Timeframe: Ongoing until transition to normal communications

1. Implement communications watch schedule. Someone must monitor emergency channels continuously during active operations.

   Watch schedule structure:

   Watch period	Duration	Minimum staffing
   Day watch (06:00-18:00)	12 hours	2 people (4-hour rotations)
   Night watch (18:00-06:00)	12 hours	1-2 people (4-6 hour rotations)

   Watch duties include monitoring all active channels, logging all traffic, ensuring equipment remains powered, and alerting leadership to significant communications.

2. Manage satellite communication costs. Track usage against budget and implement controls.

   Cost control measures:

   • Issue satellite phones with usage logs (require users to document each call)
   • Set daily usage limits by role (e.g., 20 minutes/day for coordinators, 10 minutes/day for others)
   • Review usage logs daily and counsel high users
   • Prefer data (email/messaging) over voice where possible (often cheaper per message)
   • Use callback procedures for non-urgent communications (receive calls rather than placing them)

   Sample cost tracking:

   Date	Device ID	User	Calls (min)	Data (MB)	Cost (£)
   Day 1	SAT-001	J. Smith	45	0	67.50
   Day 1	SAT-002	M. Jones	12	0	18.00
   Day 1	BGAN-001	Team	0	25	125.00
   Total			57	25	210.50

3. Conduct daily equipment checks. Communications equipment failures must be detected before they cause operational impact.

   Daily check procedure:

   • Verify all devices power on
   • Confirm satellite signal acquisition
   • Test voice connectivity (brief test call)
   • Check battery levels and charging status
   • Inspect antennas and cables for damage
   • Verify backup batteries are charged
   • Log check completion and any issues

4. Manage battery and power systems. In field conditions, power management determines communications sustainability.

   Power management priorities:

   Priority	Equipment	Power strategy
   1	Satellite phone (primary)	Keep charged, carry spare battery
   2	BGAN/Starlink	Run from vehicle or generator when transmitting
   3	HF radio	Reduce power when propagation is good
   4	VHF handhelds	Rotate batteries through charging station

   Solar charging works for satellite phones and handheld radios. A 50W panel in good sunlight charges approximately 4 handheld batteries or 2 satellite phone batteries per day.

5. Troubleshoot communication problems as they arise. Most emergency communication failures have straightforward causes.

   Symptom	Likely cause	Resolution
   Satellite phone shows no signal	Obstructed sky view	Move outdoors, away from buildings/trees
   Satellite phone shows signal but calls fail	Account issue or network congestion	Try alternative satellite phone; contact provider
   BGAN connects but extremely slow	Poor alignment or interference	Realign antenna; move away from metal structures
   HF radio no contacts	Wrong frequency or poor propagation	Check frequency against schedule; try different band
   VHF range shorter than expected	Antenna problem or terrain	Check antenna connection; find higher ground
   SMS not delivering	Network congested	Retry later; try alternative recipients

6. Conduct rapid user training for staff unfamiliar with emergency equipment. Effective training takes 15-30 minutes per device type.

   Training checklist by equipment:

   Satellite phone (15 minutes):

   • Power on/off
   • Antenna positioning
   • Making and receiving calls
   • Checking signal and battery
   • Charging

   VHF/UHF handheld (10 minutes):

   • Power on/off and volume
   • Channel selection
   • Push-to-talk operation
   • Battery check and change
   • Radio discipline (wait, identify, speak clearly)

   HF radio (60 minutes, operators only):

   • Power on and band selection
   • Frequency entry and memory channels
   • Antenna tuning
   • Making contacts (calling procedure)
   • Propagation basics (when to use which band)

Checkpoint: Operations phase continues until emergency concludes or normal communications restore. Document ongoing issues and resolutions in the communications log.

Phase 5: Transition and recovery

Objective: Transition from emergency to normal communications and recover equipment.

Timeframe: When normal communications restore or emergency concludes

1. Verify normal communications restoration. Before transitioning away from emergency channels, confirm normal systems work reliably.

   Restoration verification:

   • Internet connectivity stable for 24+ hours
   • Mobile voice and data functional
   • All users can access standard email and messaging
   • No planned maintenance or known issues with normal channels

2. Communicate transition plan to all users. Abrupt transition causes confusion and missed messages.

   Transition announcement content:

   • Date and time when emergency channels will close
   • Which normal channels to use instead
   • Fallback procedures if normal channels fail again
   • Equipment return instructions

3. Maintain emergency channels during transition period. Run parallel communications for 24-48 hours to catch any issues.

   Transition timeline:

   Period	Emergency channels	Normal channels
   Day 1	Full operation	Testing/verification
   Day 2	Monitoring only	Primary use
   Day 3	Standby (powered but unmonitored)	Full operation
   Day 4	Shutdown	Full operation

4. Collect and inventory all emergency equipment. Account for every device issued.

   Equipment recovery checklist:

   • Serial number matches issuance record
   • Physical condition documented (note any damage)
   • Accessories complete (chargers, cases, batteries)
   • Usage logs collected
   • Data cleared from devices (call logs, contacts)

5. Refurbish equipment for future deployments. Return equipment to emergency-ready state.

   Refurbishment procedures:

   • Clean and inspect all devices
   • Fully charge all batteries
   • Test functionality of each device
   • Replace damaged or worn components
   • Update firmware if updates available
   • Reset to default configuration
   • Restock in emergency kit with manifest

6. Conduct after-action review within 2 weeks of emergency conclusion. Document lessons for future responses.

   Review topics:

   • Which channels worked well and which failed
   • Equipment adequacy (quantity, type, condition)
   • Training adequacy (who struggled, what training gaps existed)
   • Cost versus budget
   • Inter-agency coordination effectiveness
   • Recommendations for equipment procurement, training, procedures

Checkpoint: Transition complete when all emergency equipment is recovered, refurbished, and restocked; after-action review documented; and communications operating normally.

Communications

Communication templates

Initial notification (to affected staff):

EMERGENCY COMMUNICATIONS ACTIVATED

Normal communications channels unavailable/insufficient as of [time].

IMMEDIATE ACTIONS:
1. Report to [location] to receive emergency communication device
2. Check in with [name/frequency] every [interval]
3. Use emergency channels for essential traffic only

Emergency contacts:
- Satellite phone: +[number]
- VHF Channel [X]
- HF frequency [X] kHz at [scheduled times]

This message sent via [channel] at [time/date].

Situation report (to headquarters):

EMERGENCY COMMUNICATIONS SITUATION REPORT

Location: [location]
Report time: [date/time]
Report number: [sequence]

SITUATION:
- Normal communications status: [down/degraded/restored]
- Cause: [if known]
- Estimated restoration: [if known]

DEPLOYED CAPABILITIES:
- Satellite voice: [number] phones, operational/issues
- Satellite data: [BGAN/Starlink], operational/issues
- HF radio: operational/not deployed/issues
- VHF/UHF: [number] handhelds, operational/issues
- Mesh network: deployed/not deployed

COVERAGE:
- [List locations with communications]
- [List locations without communications]

ISSUES:
- [List any problems]

SUPPORT REQUIRED:
- [List any support needs]

Next report: [scheduled time]

Executive summary (to leadership):

Subject: Emergency Communications Status - [Location]

As of [time/date]:

STATUS: Emergency communications operational covering [X] staff across [Y] locations.

KEY POINTS:
- Normal communications expected to restore [timeframe/unknown]
- Daily costs approximately £[amount]
- Inter-agency coordination established with [organisations]

DECISIONS REQUIRED:
- [Any decisions needed from leadership]

Contact: [name] via satellite +[number]

Equipment reference

Satellite phone comparison

Satellite data comparison

Radio range expectations

HF range depends on ionospheric conditions that vary by time of day, season, and solar activity. Higher frequencies (14-21 MHz) work better during daytime; lower frequencies (3-7 MHz) work better at night.

See also

• Emergency Communications -equipment selection and architecture concepts
• Satellite Connectivity -detailed satellite system specifications
• Secure Field Communications -encryption and secure channel establishment
• Emergency IT Activation -broader emergency IT surge procedures
• Field Office Rapid Deployment -rapid IT establishment for new field locations