1

Development & Implementation

of Cell Broadcast Technology
for Disaster Alert Dissemination
through Indian Telecom Network
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Executive Summary
India is vulnerable to a wide range of natural hazards and also at risk of various industrial accidents.
Disasters have killed nearly a million people over the last decade and resulted in huge economic losses.
In most of the cases, the loss of human lives could be avoided with proper precautions based on timely
early warnings to the people. In this direction, National Disaster Management Authority (NDMA) is
building a Common Alerting Protocol (CAP) Integrated Alert System to alert people regarding disasters
in location-specific manner over various media. C-DOT is the technology partner for this project.

Telecom network plays an important role in reaching the public. Cellular network today covers more
than 93% of India and caters to more than 1.164 billion subscribers. SMS and Cell Broadcast are two
technologies readily available for location-based alerting with each suited to some specific use cases.
Considering existing network infrastructure in the country, Cell Broadcast is best suited for sending alerts
over a large area or in a very small time, especially for disasters with less lead time such as Tsunami, Gas
leaks, Lightning etc. More than 20 countries worldwide such as the United States (Wireless Emergency
Alert WEA), Japan (Earthquake&Tsunami Warning System ETWS), South Korea (Korean Public Alert
Service), European Union (EU-Alert) have implemented location-based alerting based on cell broadcast.

In this regard, DoT has given instructions to all Telecom Service Providers (TSPs) to operationalize Cell
Broadcast in their networks on pan-India level at the earliest. However, presently, Cell Broadcast
technology is not readily available in TSP networks or available on very limited scale with some TSPs for
Value Added services (VAS) and advertisements through third party Cell Broadcast solution provider.

C-DOT is ready to fill the gap and develop the technology for implementation of Cell Broadcast solution
or integrate CAP Platform with TSPs through third-party Cell Broadcast solution provider. To this end,
C-DOT is developing an indigenous, secure and cost-effective solution and beta version of the same is
being tested with different network operators. C-DOT is also conducting PoC trials with TSPs through their
existing third-party Cell Broadcast solution providers.

During PoC testing with live networks, it was observed that even within the same TSP, there exists a multi-
vendor Radio Access Network (RAN) ecosystem. Architecture and deployment structure of each
Licensed Service Area (LSA) is different, with a different mix of Original Equipment Manufacturers (OEMs),
technologies, and equipment of different 3GPP releases. Many TSPs also have some legacy equipment
or systems without maintenance contract. Integration with Cell Broadcast solution on pan-India scale
requires interfacing connectors of different kinds. Thus, RAN integration is time consuming and heavily
dependent on support from TSPs and OEMs but is critical to the cell broadcast implementation process.

The live TSP networks are managed by OEMs and identified Operation and Maintenance (O&M)
providers as per long-standing commercial agreements with confidentiality clauses. Hence, responsibility
of RAN integration needs to be taken up by the TSPs to ensure smooth and timely implementation of an
important technology like Cell Broadcast in India.
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Cell Broadcast
Cell Broadcast is a broadcast-based technology allowing the sending of alerts to all mobile phones
within a specified area. The area can be a single mobile network cell tower, a small region, or the entire
network. Thus, this enables messages to be sent to millions of devices in near real-time and without effect
on channel congestion. Cell broadcast does not require fetching of mobile numbers in the targeted
area by processing of live subscriber dump thus saving a tremendous amount of time as compared to
SMS. These messages can also be broadcast repeatedly by the cell tower, to ensure maximum
penetration. On the mobile handset, the broadcasted alert can be displayed with no user interaction
and a distinct warning sound to get user attention.

Due to these merits, many countries such as the United States (Wireless Emergency Alert WEA), Japan
(Earthquake& Tsunami Warning System ETWS), South Korea (Korean Public Alert Service), European Union
(EU-Alert) etc. to name a few, have implemented location-based alert systems based on cell broadcast.

Cell Broadcast (CB) based dissemination is the need of the hour, especially, in situations where lead time
to disasters is less due to its fast dissemination capability and delivery of critical information without user
interaction.

Multi- Broadcast Disaster Alert Large

Near Real
Lingual based w/o user messages
Time
Support technology interaction supported

Geo-targeted Faster than SMS Receiver

Caters to Large number
and Geo- & Congestion database not
Roamers of channels
scalable independent required
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Cell Broadcast in Other Countries

Japan: Japan adopted the J-Alert system in 2007, and the system uses cell broadcast messages to issue
earthquake and tsunami warnings and advisories quickly. The system is also capable of transmitting alert
messages for other disasters, including special emergency threats like missile strikes or large-scale
terrorism. A Cell Broadcast alert was also issued in 2016 during the Kumamoto earthquake where 85.1%
of the survivors of the earthquake reported that cell broadcast was the first warning they received.

USA: USA has the Wireless Emergency Alerts system (earlier CMAS alerts) that is designed to quickly
disseminate alerts across the network using Cell Broadcast in English and/or Spanish.
USA regularly uses cell broadcast alerts to alert people regarding imminent disasters. WEA alerts have
been used more than 61000 times since 2012 by local governments and law enforcement agencies.

European Union: In 2018, the European Union adopted a new directive on European Electronic
Communications Code (EECC) under which, all EU member states should set up cell broadcast alert
systems. Netherlands introduced NL alert in 2012, and achieved a reach of more than 90% of the
population in 2020.
Netherlands recently used cell broadcast alerts in July 2021 to warn people of impending floods and to
seek shelter outside the flooding areas.

South Korea: Korean Public Alert System (KAPS) based on Cell Broadcast was launched in 2005 and since
has been used for alerting people regarding various disasters.
The government used the service for disaster related purposes in 2016, after Gyeongju earthquake and
in 2020, the alert system was used 54749 times, mostly due to the COVID19 pandemic.
According to surveys, 90.5% of South Korea's people have a positive opinion about the need for the alert
system, while only 1.3% of the respondents viewed the system negatively.
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Cell Broadcast vs Geo-targeted SMS

Cell Broadcast and SMS are two cellular technologies with great potential for disseminating alert related
information to the public. Below is a comparison of their capabilities:

Characteristic SMS Cell Broadcast

Dissemination type Delivered individually to each
subscriber.
Speed Can be time-consuming
depending on underlying
technology, geo-targeted area
size, network load.
Network Congestion Affected by congestion and
create congestion.
Subscriber Requires identification of
Identification subscribers in the area.
Roaming Not sent to roamers entering
after subscriber identification
User Interaction Requires user initiative to be
read.
Anonymity Not anonymous, as subscriber
identification required
Delivery Report Individual delivery reports
available
Opt-out Users cannot opt out of SMS.
Broadcasted to all
Delivered within few minutes
immediately after identification of cell
towers in geo-targeted area.
Neither affected by nor does it create
congestion.
Does not require subscriber
identification.
Reaches all roamers, as subscriber
identification not required.
Displayed without user interaction
and sound warning tone
Anonymous and ensure privacy.
Delivery confirmation not available
Users can opt out of some cell
broadcasts through handset settings.

Geo-targeted SMS dissemination through NDMA CAP Platform has proved to be an important tool for
alerting regarding disasters with high lead time and issue COVID guidelines since its pilot in January 2020.

However, where the lead time for disasters is less, such as Tsunami, Lightning, for Gas leakage incidents,
etc., Cell Broadcast is the need of the hour due to its advantages.

SMS and Cell Broadcast can be used in a complementary manner

as per lead time, type of disaster, network congestion, and other factors
to fill the gaps of the other.
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Enabling Cell Broadcast in Telecom Networks

Cell Broadcast technology is defined by 3GPP and the 3GPP standards documents define the key
network elements involved, i.e., Cell Broadcast Entity, Cell Broadcast Centre and Radio Access Networks.

Cell Broadcast Entity, CBE (CAP Integrated Alert System)

This is where the Cell Broadcast message originates, dictating the message text, its destination, and the
message scheduling. For disaster alert dissemination in India, CAP Integration Alert System will act as the
centralized CBE platform for issuing cell broadcast-based alerts across the country.

Cell Broadcast Center, CBC

This entity connects to the mobile operator’s core network. The CBC manages the transmission of
messages received from the CBE and routes them to the target cells, through the RAN controllers by
implementing 3GPP protocols.

Radio Access Network (RAN) Controller

The entity in the operator’s radio network that manages a group of cells. The RAN controller distributes
the cell broadcast message received from the CBC to the target cells which then execute the
broadcast.
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Current Status of Cell Broadcast Readiness in India

There are five major telecom service providers (TSPs) in India: Airtel, Vi, Reliance Jio, BSNL and MTNL.
The following Cell Broadcast implementation status has been communicated by the TSPs to DoT:

• Jio: CBC not available

Cell Broadcast functionality has not been used so far and needs to be
configured in RAN controllers and cells.

• Airtel: Earlier CBC integration for 2G Value Added Services (VAS) only.
Recently, third party CBC integrated in Andhra Pradesh for 2G, 3G, 4G.
RAN configuration and integration in Andhra Pradesh completed.

• Vi: 2G CBC on limited scale.

Recently, third party CBC integrated in Andhra Pradesh for 2G, 3G, 4G.
RAN configuration and integration in Andhra Pradesh completed.

• BSNL: 2G, 3G CBC for Value Added Services (VAS) and advertisements using
modification of SIM cards.
Recently, third party CBC integrated in Andhra Pradesh for 2G, 3G, 4G.
RAN configuration and integration in Andhra Pradesh completed.
Limited PoC testing has been conducted using C-DOT CBC also.

• MTNL: CBC not available.

Limited PoC testing has been conducted using C-DOT CBC. CBC needs to be
deployed in the network on full-scale and integrated with all RAN.
Cell Broadcast functionality needs to be configured in RAN controllers and cells.

CBC needs to be placed in the core network of the TSPs based on their respective network architecture.
Further, RAN integration and configuration for cell broadcast to be implemented by TSPs in each of the
22 LSAs, where each LSA is a mix of equipment from different technologies (2G, 3G, 4G, 5G), OEMs, 3GPP
releases and different models.

TSPs need to integrate disaster-grade CBC with their networks

OEM specific RAN integration and configuration to be done by TSPs

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Challenges of implementing Cell Broadcast in India

Absence of Disaster Oriented Cell Broadcast Systems:
Some TSPs in India such as Airtel, Vi and BSNL integrated CBC in their network in late 2000s and early
2010s on limited scale for 2G only. This integration was done for non-critical applications such as Value
Added Services (VAS) and advertisements for subscribers. These older systems need to be updated and
scaled for newer equipment and expanded network sizes so that system can take heavy load without
failure under critical disaster situations and deliver time-sensitive alert information with low latency.
Recently, Airtel, Vi, BSNL have been tested under NDMA CAP Project through third party cell broadcast
solution provider, however, it was noted that further refining and reconfiguration is required for effective
alerting.

Unavailability of CBC and Requirement of new CBC Installation

TSPs in India such as Reliance Jio and MTNL which do not have CBC need to install the same at a suitable
location based on network architecture of the TSP network such that connectivity to all RAN elements is
feasible and meets the low latency requirements of disaster management applications. To ensure high
availability and redundancy, a disaster recovery setup at independent geographic location needs to
be installed and maintained.

Integration of CBC with TSP Radio Access Network (RAN):

Integration of CBC with all Radio Access Network elements across India is critical to implementation of
Cell Broadcast in India. This involves the following challenges:

1. TSP network is a multi-vendor ecosystem across India comprising of equipment from Nokia, Alcatel,
Motorola, Ericsson, ZTE, Nortel, Samsung, Huawei, Tejas, etc. An interworking connector for each OEM
is required for connecting CBC with RAN. Rigorous integration testing is also required.

2. Architecture and deployment structure of each LSA is different, with a different mix of OEMs,
technologies (2G/3G/4G). Thus, a unique integration methodology is required for each LSA.

3. Interworking connectors are required for various versions and models of OEM equipment installed
across the country. Such equipment correspond to different 3GPP releases and implement protocols
and interfaces differently.

4. Many TSPs also have some legacy equipment or systems without Maintenance Contract; for such
systems it is difficult to get the required support for integration. Suitable interworking connectors need
to be developed despite the limited support available.

Below diagram is a sample representation of the complex situation in India.

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TSP live networks are managed 24 X 7 by TSPs through multiple OEMs and other identified Operation &
Maintenance (O&M) partners to ensure high QoS. Implementation of Cell Broadcast is heavily dependent
on necessary support from TSPs, OEMs and O&M vendors. Thus, it is crucial that TSPs and their vendors
take responsibility of RAN integration for timely and smooth implementation of Cell Broadcast in India.

CAP Platform Integration

The CBC residing in TSP networks needs to be integrated with NDMA CAP SACHET Integrated Alert System
for issuing alerts from a centralized platform. Integration testing is required for compatibility between the
CAP Platform and CBC to ensure broadcast can take place as per the requirements of the disaster
management authorities. Secure connection must be established to ensure minimum exposure of TSP
core network to the Internet to ensure overall security of the TSP network.

Mandatory enabling of Cell Broadcast feature in handsets:

Some mobile handsets in India do not have cell broadcast functionality enabled. Cell Broadcast
functionality needs to be mandatorily enabled in handsets to ensure broadcasts containing critical
disaster alert information reaches the public with maximum penetration.
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C-DOT Cell Broadcast Solution

To fill the gaps in implementation of an important technology like cell broadcast in India, C-DOT is
developing a cost-effective and indigenous Cell Broadcast solution for providing CBC to TSPs.
CDOT’s CBC will be 3GPP specifications compliant, secure, reliable and support 2G, 3G, 4G, and 5G.

C-DOT would be providing software solution for implementation of Cell Broadcast. Along with the same,
technical support at L2 will be provided to the TSPs for integration with their network. Regular updates
will be provided to keep CBC up to date with latest 3GPP releases and security guidelines.

Hosting resources including hardware, connectivity, uninterrupted power etc. to be provided by the
TSPs. Roll-out and Operation and Maintenance to be handled by respective TSPs and their existing O&M
providers as is done for CAP SMS.

C-DOT Cell Broadcast Solution in Action

➢ C-DOT CB solution has been successfully tested with MTNL 3G Nokia and on limited scale with
BSNL 4G, 3G Nokia network
➢ C-DOT CB solution supports geo-targeted alerts in regional languages and large messages

Some screenshots
from
C-DOT Cell Broadcast
Solution testing
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Key Findings from PoC under NDMA CAP Project

As per DoT instructions, PoC testing of Cell Broadcast implementation has been conducted with multiple
TSPs such as Airtel, Vi, BSNL and MTNL.

C-DOT CB solution PoC has been successfully conducted with MTNL 3G network in Delhi. Limited testing
with BSNL 3G, 4G network has also taken place in Maharashtra. Recently, PoC testing was conducted in
Andhra Pradesh where third-party Cell Broadcast solution provider is integrated. In this testing, it was
observed that the deployment & RAN integration are not disaster grade, as the solution was initially
deployed for VAS.

During PoC testing with live networks, it was observed that even within the same TSP, there exists a multi-
vendor ecosystem. Further, architecture and deployment structure of each LSA is different, with a
different mix of OEMs, technologies, and equipment of different 3GPP releases. Many TSPs also have
network segments with legacy equipment or systems without maintenance contract.

Several issues were observed in the Cell Broadcast solution deployed in Andhra Pradesh such as
significant delays (>10 minutes) in reception of alerts by handsets, limitations on selection of geo-
targeted area, configuration issues resulting on repetitive reception of same alert multiple times,
reception of garbled messages on handsets for regional languages and inconsistent delivery of cell
broadcast on handsets among other issues.

Such issues need to be resolved for providing an effective disaster alerting solution that is fast and reliable
in time-sensitive disaster situations.

Based on RCA conducted by third-party Cell Broadcast solution provider, most of these issues can be
resolved to some extent by changing certain parameters of RAN integration for cell broadcast. The same
is heavily dependent upon support from TSPs and their OEMs.

Thus, RAN integration is crucial to the disaster grade implementation cell broadcast
in the country. Since, RAN is completely managed by TSPs, OEMs and identified O&M
partners, implementation of disaster grade system needs to be facilitated by them.
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Way Forward

Cell Broadcast is a technology which is critical to alert dissemination especially in the case of disasters
with less lead time such as Tsunami, Gas Leaks, Lightning etc. Hence, it is of utmost importance to
implement the technology in a reliable, stable and robust manner.

As elaborated above, RAN integration of CBC and configuration of RAN is a critical and challenging
part of the implementation process, as this involves integrating wide variety of RAN equipment for
optimized and effective alert dissemination with low latency. This requires deployment of interworking
connectors for integration and configuration of equipment of all technologies and models across India.
Cell Broadcast implementation in terms of integration of RAN and roll-out across India is heavily
dependent on support of the TSPs and respective OEMs for integration and development of customized
interfaces for integration.

As the telecom networks are already live, and being managed using 24 X 7 managed services by TSP
OEMs and O&M providers; integration with RAN must be implemented carefully while ensuring there is
no impact on existing functioning of the telecom network. TSPs and respective OEMs/O&Ms work in
tightly coupled manner and they maintain a customized implementation of each TSP network as per TSP
requirement Since, this configuration is generally confidential in nature, TSPs would be in favor of
managing the Cell broadcast integration internally through OEMs and O&M providers rather than
sharing such information with external Cell Broadcast Solution providers.

In light of the above, RAN integration needs to be managed by TSPs for timely implementation of Cell
Broadcast in India and for achieving an effective alert dissemination mechanism. C-DOT Cell Broadcast
Solution would be providing required software for implementation of Cell Broadcast along with
necessary technical support for integrating C-DOT CBC with RAN in coordination with TSPs.

Hosting resources including hardware, connectivity, uninterrupted power etc. to be provided by the
respective TSPs. Roll-out and Operation and Maintenance to be handled by the TSPs and their existing
O&M providers as is done for CAP SMS.