Standard Disaster Communications Protocol (EMCOMM-PANAMA)

Standard Disaster Communications Protocol

(EMCOMM-PANAMA)

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1. Regulatory Foundations and Normative References

Republic of Panama (ASEP / MINGOB)

• PNAF (ASEP): Defines national spectrum segmentation.
  • Amateur Radio: 80m (3.5–4.0 MHz), 40m (7.0–7.3 MHz), 20m (14.0–14.350 MHz), 15m (21.0–21.450 MHz), 10m (28.0–29.7 MHz), 6m (50–54 MHz), 2m (144–148 MHz) and 70cm (430–440 MHz).
  • Citizen Band (CB): 26.960 – 27.410 MHz (40 channels).
  • FRS (Family Radio Service): 462 / 467 MHz (UHF license-free, low power).
  • ISM Band: 902 – 928 MHz (Low power / digital modulation LoRa - Meshtastic).
• Executive Decree N° 64 (May 28, 2019 - MINGOB): Amateur Radio Service Regulations in Panama.

IARU Region 2 (Americas Region)

• IARU R2 Band Plan: Emergency Centres of Activity (CoA).

International Red Cross / ITU

• Tampere Convention (1998) and Disaster Information Management Manuals (IFRC).

2. Frequency Plan by Operator Category

2.1. Licensed Amateur Radio (HP Stations / IARU R2)

2.2. Unlicensed (General Public, Community Brigades, and Families)

2.3. Off-Grid Decentralized Digital Networks (Meshtastic / LoRa)

For tactical text messaging and coordinates between command posts and brigades:

• Operating Band: 915 MHz (ISM Band 902–928 MHz - Region 2).
• Modem Preset: LongFast (Standard preset to maximize range and universal interoperability).
• Primary Channel Configuration:
  • Channel Name: LongFast
  • Center Frequency: 906.875 MHz (Standard LongFast slot US915 / Region 2).
  • Encryption Key (PSK): AQ== (Default public key to allow universal reception).

Mesh Network Operational Best Practices:

• Do not send continuous long text transmissions to avoid air collisions (Duty Cycle).
• Set GPS position reporting intervals to no less than 15 minutes on portable nodes (or disable it on fixed base stations).

3. Operational Time Schedule and Listening Windows (Energy Management)

In disasters with prolonged power outages, continuous operation drains batteries and causes desynchronization. The following temporal protocol is established:

To conserve battery power in radios, phones, and portable systems (which could take weeks to restore), a protocol of “Operational Windows” is established during the blackout. Outside of these windows, radios must remain off.

3.1. Activation Phases and Schedules

3.2. First 3 Minutes of Silence Rule

At the start of each window (from minute :00 to :03), no station with stable power or routine traffic will transmit. This space is mandatorily reserved for:

1. Listening to weak or low power transmissions (QRP/portables).
2. Listening to immediate distress calls (MAYDAY / EMERGENCY / SOS).

4. Information Traffic Classification and Format

All transmitted messages must follow the standard precedence scale (IFRC / IARU):

• EMERGENCY: Imminent risk of loss of human life (Search and rescue, urgent evacuation). Immediately suspends any other transmission on the frequency.
• PRIORITY: Urgent medical traffic (not immediate death), official alerts on dam breaks, landslides or severe weather changes.
• HEALTH & WELFARE: Inquiries about the status of people or families in impact zones. Only attended when there is no pending Emergency or Priority traffic.
• ROUTINE: Standard logistics coordination, schedule confirmation, and technical checks.

Brief Situation Report Format (SITREP - 5 Points)

To keep messages brief and concise in both voice (VHF/HF/CB/FRS) and text (Meshtastic):

5. Gateway and Interoperability Procedure

To transfer information from unlicensed communities (CB / FRS / Meshtastic) to command centers and institutional HF networks:

• Dual Watch: Authorized amateur radio operators with multiband equipment will maintain monitoring on the tactical amateur frequency (146.520 MHz) and citizen relief frequencies (Channel 9 CB 27.065 MHz or Channel 1 FRS 462.5625 MHz).
• Relay Station: The radio operator will take accurate note of the community report received via CB/FRS/Meshtastic (without altering its content) and formally retransmit it through the HF NVIS network (7.090 / 7.190 / 7.240 kHz) to civil protection authorities or the Net Control Station (NCS).

6. Modulation Best Practices and Severity Codes

In high-stress situations, panic reduces modulation clarity. Operators must adhere to the following standards:

6.1. Vital Emergency Codes

These are used exclusively at the beginning of a transmission to interrupt lower-priority traffic:

6.2. International Phonetic Alphabet (ITU)

Under stress and radio interference, letters like B, C, D, P, and V sound identical. To transmit street names, medications, or callsigns, use the phonetic alphabet mandatorily:

7. Operational Security and Anti-Panic (OpSec)

In the first 48 hours of a telecommunications collapse, unverified rumors, false alerts, or exaggerated reports will proliferate, inducing blind panic in the population.

1. The Direct Source Rule: Never relay information as fact unless it comes directly from an institutional base station (SINAPROC, Fire Dept, Police) or you are observing it with your own eyes. If you report third-party data, always preface your message with: “Receiving unconfirmed report that…”
2. Authentication (Anti-Spoofing): Bad faith operators or panicked individuals may try to sow chaos on open frequencies. When organizing neighborhood tactical nets, establish a simple “Passcode” or authentication code shared only among trusted operators before the blackout to validate the identity of the base station.
3. Tactical Silence Control: If you are in a shelter or listening to a portable radio, keep the volume to a minimum or use headphones. Prevent the untrained general public from hearing raw and uncontextualized reports over the air (e.g., casualty counts or morgue requests), as this can trigger anxiety crises or mass hysteria in an enclosed environment.
4. Ionospheric Deception (Sporadic-E / Skip): In Citizen Band (11m) and occasionally in VHF, atmospheric conditions can bounce your signal thousands of kilometers away. You might hear a distress call so clearly that you think it’s your neighbor, when it’s actually coming from another country. Always state and request Country/Province (e.g., “This is Panama base, city of David”). If you contact a foreign country, immediately clarify your location so they understand you are outside their physical area of operations and do not expect an immediate physical rescue from you.

Created by the Author: Revision v1.0. Corrections and suggestions from the community are welcomed.