Accidents, such as cable damage due to digging or locating errors  and damage associated with a vehicle accident. FCC  activates DIRS in response to an event and then uses these data to  track network restoration during and after an emergency event. Wireless Outages Caused by Physical Incidents Have Increased since 2009, and Outages due to Natural Disasters Lasted Longest

		Trends in Number and Reported Causes of Wireless Outages

The number of wireless outages attributed to a physical incident  increased from 2009 to 2016 (see fig. Specifically, the number of  outages with a physical incident reported as a root cause increased from  189 outages in 2009 to 1,079 in 2016. Of wireless outages reported to FCC that were attributed to physical  incidents, most were due to accidents, described below:
Accidents—which include cable damage due to a backhoe cut, among  other causes—were the root cause for 74 percent of wireless outages  attributed to a physical event. Specifically, figure 4 shows that outages where a natural  disaster was cited as the root cause were often twice as long as outages  attributed to an accident or manmade event. From 2009 to 2016, the  annual median duration of wireless outages attributed to accidents  ranged from 8 hours to 16 hours, compared to natural disasters, which  ranged from 19 to 36 hours. Regarding failures in other providers’ networks, 87 percent of outages  attributed to a physical incident (5,206 of 6,002 outages) were due to  a failure in another provider’s network, which includes backhaul  connecting cell sites to mobile switching centers and onto the broader  network. FCC and DHS  actions include the following:
Chartering advisory committees that examine resilience: DHS and  FCC charter federal advisory committees that have studied how  agencies and industry could improve resiliency. Voluntary Industry Framework Aims to Improve Wireless Network Resiliency, but FCC Has Limited Plans to Monitor This Framework

In April 2016, an industry coalition consisting of CTIA, a wireless industry  association, and five wireless carriers announced the Wireless Network  Resiliency Cooperative Framework (framework) in response to FCC’s  2013 notice of proposed rulemaking on wireless network resiliency. In December 2016, FCC said it would continue to engage with industry on  the implementation and use of the framework, and FCC has taken some  steps to monitor the framework’s implementation. Specifically, FCC  developed a plan to track certain tasks related to the framework in August  2017. In particular, FCC’s plan does not track any outputs or  outcomes over time that speak to the results of the framework, such as  the number of roaming requests made and fulfilled during an emergency  event. In addition, FCC has not communicated the framework to all state and  local public-safety officials and wireless carriers, potentially limiting its  effectiveness. Absent sufficient monitoring,  including identifying specific, objective measures for the framework, FCC  lacks information on the framework’s outcomes and overall effectiveness;  such information could help FCC identify whether it needs to take steps to  address challenges or take other action to further promote wireless  network resiliency. Furthermore, FCC does not have any plans to actively  communicate information about the framework to public safety officials  and industry representatives. A concerted effort by FCC to promote  awareness of the framework could help more public safety officials and  other industry participants use the framework to prepare for or help  mitigate the risks to wireless networks posed by natural disasters and  other emergencies. Recommendations for Executive Action

We are making the following three recommendations to FCC:  The Chairman of FCC should work with industry, to the extent practical, to  develop specific and measurable objectives for the Wireless Network  Resiliency Cooperative Framework, such as outputs to measure the  extent of the framework’s use. DHS and the  Department of Commerce had no comments. Appendix I: Objectives, Scope, and Methodology

This report examines federal agency and industry efforts to improve the  resiliency of mobile wireless networks in response to natural disasters  and other physical incidents since Hurricane Sandy, a natural disaster  that caused significant communications outages across several states in  late 2012. Specifically, this report examines: (1) trends in mobile wireless  outages attributed to physical incidents since 2009 as reported to the  Federal Communications Commission (FCC), (2) the actions federal  agencies and industry have taken since 2013 to improve wireless network  resiliency, and (3) options that federal agencies could take to improve  network resiliency and their advantages and disadvantages. We chose this timeframe to cover  4 years of data before and after Hurricane Sandy. We also interviewed FCC and DHS about each  agency’s awareness of and role monitoring industry use of the framework,  and we reviewed FCC plans to monitor and share information about the  framework.
Why GAO Did This Study

Americans increasingly rely on mobile wireless communications for safety-related communications like calling 911 and receiving weather alerts. Mobile wireless networks face risks from physical incidents including extreme weather events and intentional and accidental damage. For example, in 2017 several major hurricanes damaged wireless network infrastructure, leaving many U.S. citizens without reliable access to wireless communications.
GAO was asked to review federal efforts to improve the resiliency of wireless networks following natural disasters and other physical incidents. This report examines: (1) trends in mobile wireless outages reported to FCC since 2009 and (2) actions federal agencies and industry have taken since 2013 (after Hurricane Sandy) to improve wireless network resiliency, among other objectives. GAO analyzed wireless outage data from 2009 to 2016 (4 years before and after Hurricane Sandy); reviewed FCC, DHS, and industry documents; and interviewed stakeholders who represented a variety of perspectives, such as industry, public safety, and consumer groups. GAO assessed FCC's efforts to monitor an industry initiative to improve wireless network resiliency against federal internal control standards.

What GAO Found

The number of wireless outages attributed to a physical incident—a natural disaster, accident, or other manmade event, such as vandalism—increased from 2009 to 2016, as reported to the Federal Communications Commission (FCC). During this time, the number of outages substantially increased from 189 to 1,079 outages, with most of the increase occurring from 2009 to 2011. FCC officials said this increase was due in part to growth in wireless customers and wireless infrastructure. Almost all outages attributed to a physical incident were due to an accident, such as damage to a cable due to a digging error (74 percent) or a natural disaster (25 percent). However, outages due to a natural disaster had a longer median duration (ranging from 19 to 36 hours), which was more than twice as long as outages caused by an accident. Power failures and failures in other providers' networks also play a role in wireless outages attributed to physical incidents. For instance, carriers reported that 87 percent of wireless outages attributed to a physical incident were due to a failure in another provider's network on which they rely.
Since 2013, federal agencies and industry have taken actions to improve the resiliency of wireless networks. For example, the Department of Homeland Security (DHS) and FCC charter federal advisory committees that have examined resiliency issues and potential solutions, such as sharing infrastructure during emergencies. FCC also proposed a rule that would disclose how individual wireless carriers' networks performed during emergency events. In response, an industry coalition announced an initiative—the Wireless Network Resiliency Cooperative Framework—whereby carriers agreed to allow roaming on each other's networks and aggregated statistics to be published on how networks performed during emergency events. This initiative prompted FCC to not adopt its proposed rule. FCC said it would engage with industry about the framework's implementation and use, but FCC has limited formal plans to oversee or spread knowledge of the framework:
FCC developed a plan to track the completion of initial implementation tasks outlined in the framework, but this plan does not include steps to track or evaluate any outputs or outcomes from the framework.
FCC and industry documents describe broad goals for the framework, such as advancing information sharing during and after emergency events, but neither FCC nor industry has set any specific measures to help determine whether the framework achieves these broad goals.
Although some public safety officials and other stakeholders GAO contacted were not aware of the framework, FCC did not have plans to actively communicate information about the framework to these audiences.
More robust measures and a better plan to monitor the framework would help FCC collect information on the framework and evaluate its effectiveness. Such steps could help FCC address any challenges or decide whether further action is needed. Also, by promoting awareness about the framework, FCC would help public safety officials and other industry participants to be well positioned to use the framework to help them prepare for or respond to emergency events.

What GAO Recommends

FCC should work with industry to develop specific performance measures for the Wireless Network Resiliency Cooperative Framework, monitor the framework's outcomes, and promote awareness of it. FCC agreed with the recommendations.