Journal of Fundamental and Applied Sciences

Research Article
ISSN 1112-9867 Special Issue

Available online at http://www.jfas.info

CHALLENGES OF COMMUNICATION SYSTEM DURING EMERGENCY

DISASTER RESPONSE IN MALAYSIA: A REVIEW

S. Azmani1, N. Juliana1,*, A. M. Idrose2, N. A. Amin3 and A. S. M. Saudi3

1
Faculty of Medicine and Health Sciences, UniversitiSains Islam Malaysia, 55100 Kuala
Lumpur, Malaysia
2
Emergency and Trauma Department, Hospital Kuala Lumpur, 50586 Kuala Lumpur,
Malaysia
3
Institute of Medical Science Technology (MESTECH), Universiti Kuala Lumpur, 43000
Kajang, Selangor, Malaysia

Published online: 05 October 2017

ABSTRACT
The purpose of this review is to provide the overview of available systems and potential
future systems for communication during disaster in Malaysia. Electronic searches in major
subject loci databases such as MEDLINE (via PUBMED), Ovid, Science Direct, Scopus,
IEEE Xplore digital library and Springer are used in conducting the reviews. The major
challenge is to integrate between readily available communications systems at pre-disaster,
during disaster and post-disaster. Therefore, this review will further provide information for
the policy makers, responsible personnel as well as researchers on the vulnerability of the
communication systems during disaster and the future direction of effective communication
system in Malaysia.
Keywords: disaster; communication system;GIRN; effective communication system;
emergency medicine.

1. INTRODUCTION
National Security Council (MNSC) Directive No. 20 (2012) delineates disaster as an incident

Author Correspondence, e-mail: [email protected]

doi: http://dx.doi.org/10.4314/jfas.v9i4s.51
 N. Juliana et al. J Fundam Appl Sci. 2017, 9(4S), 890-904 891

which occur in a sudden manner and complex in its nature which causes losses of lives,
damages to property or natural environment and perturb local activities [1]. Disaster in
Malaysia can be divided into natural disasters, man‐made disasters and subsequent disasters
[2]. During the past decade, Malaysia faced numerous disasters including floods, landslides,
transportation accidents, industrial accidents and collapse of buildings. These events caused
physical and emotional distress among those who were involved either directly or indirectly
[3].
Hence, in these kinds of situations, systematic communication system is essentially needed to
ensure appropriate actions and proper managements can be carried out efficiently among the
search and rescue teams [4,5]. During disaster, arrangement of emergency communications
focuses on accurate information transfer between disaster sites to the responding base or
hospitals and alternative communication method to be used when other means of
communications such as the telephone and radio services fail to serve their purposes, either
they are disabled or overwhelmed.Efficient emergency communication system during disaster
will speed up relief and recovery operations, thus lessen the loss of life and properties [6].
Using available advanced communication technology to streamline emergency responses is a
positive effort to integrate among the victims, community and organisations in charge of
disaster management [7]. However, with the current system, there are still unsolved issues that
include damage to communications infrastructure such as the power supply and network
exacerbated difficulties in response and rescue during previous disasters of flood and
landslides [8]. Disasters such as flood and tsunami are inevitable, but the sufferings can be
minimized with proper communication system. Dissemination of timely, precise and
comprehensible warnings to local populations involved and policy makers may reduce the
losses and damages [9].
In this review paper we discuss the communication system during disaster in Malaysia and the
loop holes to be improved. This review will focus on the development of communication
system during disaster in Malaysia and the challenges to cope with crisis situations that arise
due to natural or man-made disasters.

2. SEARCH METHODS/DATABASES
Electronic searches in major subject loci databases such as MEDLINE (via PUBMED), Ovid,
Science Direct, Scopus, IEEE Xplore digital library and Springer are used in conducting the
reviews. This review includes restrospective studies, cohort, cross-sectional and experimental
studies. All the survey, simulation and modelling that relate to the communication system
 N. Juliana et al. J Fundam Appl Sci. 2017, 9(4S), 890-904 892

during disaster or disaster management are reviewed.

3. RESULTS AND DISCUSSION

3.1.Disaster in Malaysia
Geographically Malaysia is located outside the Pacific Rim of Fire, thus is protected from
earthquakes and volcanoes. Before the millennia, Malaysia hadnever been struck by
large-scale natural disasters [10]. However, in recent years, Malaysia was vulnerable to
various natural hazards including large floods, tsunami, cyclonic storms and landslides that
emerged from climatological changes [11].
Floods, landslides, droughts and the 2004-tsunami were significant natural disasters that
alternately took place in Malaysia. Damaged of infrastructures and personal losses due to the
disasters was estimated to reach billions of dollars [12-13]. In 2004, the first local tsunami
that affected 200 km of Malaysia coastline from Perlis to Selangor caught Malaysia surprised
and unprepared. The disaster resulted in 68 deaths, 6 declared missing, 91 hospitalized and
276 were treated as outpatient [14]. Ten years later, 2014 year end downpour and floods alone
were estimated to cost the country 670 million USD of infrastructure losses along with
mortality [15]. Besides that, local report of landslides events in Malaysia reported 56
landslides since the year of 1989 to 2009 [16-17]. Table 1 summarizes part of the natural
disasters experienced by Malaysia. Malaysia also experienced man-made disasters from time
to time. There were 18 local man-made disasters between the duration of 1968 to 2004 [10].
The disasters may have an acute impact to the nation or give rise to long-term disasters. There
were few classifications of man-made disasters that lead to medical emergency response
namely technological disaster, transportation accidents, and public failure (Table 1).
Previous disasters played an important role in the evolution and growth of the disaster
management in Malaysia. Fig. 1 summarizes the current theoretical workflow of the rescue
chain during disaster. Policy makers, legislation agencies and health care providers learned
from the tormented history to increase level of disaster preparedness. Preparedness refers to
steps taken before the occurrence of disaster in order to either avoid or reduce the effect of
disaster [18]. Part of the preparations must include enhancing the effectiveness of emergency
response by strengthening available strategic planning, operational procedures, tactical tiers,
public training for disaster risks and responses and effective communication system [19-20].
N. Juliana et al. J Fundam Appl Sci. 2017, 9(4S), 890-904 893

Table 1. Natural and Man-Made disasters that occurred in Malaysia

Types of Area Affected Year Number Impact
Disaster of
Fatalities
Floods [21] Kuala Lumpur 1971 32 180,000 people were affected
Set up of Kuala Lumpur flood
mitigation programme
Northeast 1993 10 13,000 people were
Kinabatangan 2000 2 affected,16 houses being
Kelantan + Terengganu 2000 10 swept away
East Malaysia 20 villages affected , 4000
East Malaysia 2001 11 people evacuated
2014 10 Thousands people evacuated
200 thousands evacuated
Landslide Kuala LipisGuaMusang 1993 1 15 casualties
[17] Road
Cameron Highlands 1994 7
Genting Highland 1995 20 22 casualties
Mud-slide PosDipang 1996 44
Bukit Antarabangsa
1999 1000
Tsunami Malaysia coastline 2004 68 767 injuries and 6 missing
[22,14] (Perlis to Selangor)
Storm [23] Tropical storm Greg 1996 230 4925 damaged houses
West Coast, Sabah
Disease Enteroviral outbreak 1997 25
[24-25] Sibu Sarawak
SARS, Malaysia 2003 2 3 cases recovered
2000 2 100 hospitalised, 901 nurseries
Hand, foot and mouth, closed
Johor

Technological Fire and explosion, 1991 23 103 injuries recorded, factory

 N. Juliana et al. J Fundam Appl Sci. 2017, 9(4S), 890-904 894

disaster [26] bright sparkles and residential buildings were

damaged
Fire and explosion 1992 13 Loss of ship and damage of
Choon Hong III Ship, jetty
Tiram Kimia, Klang
Selangor
Transportation Tourist bus accident, 1996 17
accidents Ravine, Genting
Highland, Pahang
Merapoh Bus Tragedy 14
Bukit Gantang bus crash 2003
Cameron highlands bus 20
crash 2007
GentingSempah-Genting 27
Highland bus crash 2010
37 16 casualties
2013

Fig.1.Theoretical workflow of the rescue chain

3.2. Emergency Communication Services in Malaysia and Its Vulnerability
The recent susceptibility for emergencies and disaster to affect Malaysia provides urgency for
 N. Juliana et al. J Fundam Appl Sci. 2017, 9(4S), 890-904 895

Malaysian government and policy makers to enhance and optimize the emergency
communication system. Experts from multiple disciplines had propounded ideas of utilizing
various types of communication systems as a mechanism to inform affected parties and react
to adverse events [27].
3.2.1.Universal Emergency Number
In July 2007, Malaysian government has launched the ‘One nation, one number’ system of the
universal emergency number ‘999’ for all types of emergencies. The system was made to be
public friendly and has proven to be very useful for early activation of the emergency medical
services in cases of emergencies including disasters [28]. Nonetheless, since the launching of
this number there was higher prevalence of prank calls as compared to actual emergency. The
number may be centralized but the uniformity of emergency medical services communication
system between different agencies is still inadequate. Each distinct agency relies on their own
communication system of call-receiving and dispatching of response teams [29]. The
incoordination leads to inappropriate transfer, overlapping in services and lapse of response.
Up to date, the coordination was still done manually.
3.2.2.Fixed, Mobile Networks and Internet-based Communication
Landlines communication system has been used for decades during emergency and disaster
situation. The system uses copper of fiber optic cables, which are vulnerable to damage when
exposed to elements in case of flood and storm. The system that is non-portable and highly
infrastructure-dependent is not a popular communication system to be relied as the main
communication system during disaster [30].
Main difference during daily emergency situation and disaster is the massive nature of disaster.
Therefore, in the event of disaster, communication through networks may leads to network
congestion. Survey based on the 2014 flood in the East Coast of Malaysia showed that social
media was the main resource of exchanging information among public with the flood victims
[31]. Flood victims seem to gravitate towards using mobile messaging application to share
information on the situation. Despite, the high prevalence of social media usage during the
event, effective response for disaster relief was found to be relatively low [32]. Social media
and up to date communication technologies maybe regarded as the fastest point of reference
in times of crisis, but the vast information received without restriction via multiple databases
exaggerate the difficulty of effective and accurate response to be provided for the victims
[33-34]. Another study during the Great East Japan earthquake on 2011 in other hand showed
that the use of mobile phones, laptops and landline phones usage were rated poor to moderate
satisfactory level during disaster relief [35].
 N. Juliana et al. J Fundam Appl Sci. 2017, 9(4S), 890-904 896

Another usage of the mobile networks will be receiving a real-time disaster information
system from sensors placed at certain disaster susceptible sites. Study in Taiwan reported the
system which include geographical disaster monitoring and alarm transfer via mobile
networks is important to assist the prevention and early response during disaster situation.
However, up to date, there is still no such integrated system from susceptible disaster area
within Malaysia that directly link with the emergency system for early forecast of disaster
[36].
Internet-based communication system such as ‘Whats App’ had been used effectively during
the 2014 Gentingbus crash. During this event, the wifi services were functional from the
incident site as well as all responding hospitals. The system proved to be extremely useful as
communication was free, fast and clear. There is no ‘lag time’ when compared to walkie-talkie
use. The informations exchanged were clear as all respondents could read the text. This is
better than walkie-talkie conversations whereby only one person can talk at any one time. The
quality of voice heard many times is not good and the information use is limited. More time is
taken too as each person who talks needs to mention the person he wishes to speak, while
every time needing to state when the conversation is over. It was also found that at the end of
multiagency response, a ‘log’ can be produced and it could be stated who says what at which
time [34]. This is extremely useful for post-mortem uses. The ‘Whats App’ and Twitter
application also allows pictures, videos and audios to be transmitted from the site. Following
this, during each mass casualty incidents, responders in hospitals in Malaysia utilize this
mode of communication to complement the GIRN services. The only concern with the use of
this mode of communication is the guarantee of security and confidentiality [33,21].
3.2.3.Satellite-Based Communication
Satellite-based communication is another alternative for communication in the event of
disaster. Japan, United States of America and Russia are the countries that have utilised the
system to disseminate emergency messages during previous disasters. Satellite-based
communication is a robust system with the capability of transferring data and information to
relevant geographical locations. Real-time disaster alert and also data transfer together with
image transfer are the advantages of this system [37]. Furthermore, satellite communication
system is a stand-alone system that is independent from terrestrial communications
infrastructure. Therefore, the system is not susceptible to any damage of infrastructure during
the disaster and telecommunication traffic congestion. The main dilemma is this system
requires maintenance and the operation are costly for both users and service providers. It is
important to note that in spite of the plausible capability of the system, signals from
 N. Juliana et al. J Fundam Appl
A Sci. 2017, 9(4S), 890-904 897

navigation satellites could only be received in outdoor environment. Another limitation is the
vulnerability of the system to climatological phenomena suc
suchh as fog and rain which are the
common weather conditions in Malaysia [38].
[
3.2.4.Radio Networks
In Malaysia, there is an exclusive system Government Integrated Radio Network (GIRN) as
an alternative for communication during disaster [[39].
]. This radio network was made to have
limitless network availability with high security encryption. The aims of this system are
generally to providee a system that is resistant to any climatological factors with minimal
infrastructure dependent. The radio network is a shared network between multiple agencies
but each agency is able to maintain their independence and autonomy of their own
communication system [40].Agencies
].Agencies involved in the networking are the national security,
fire and rescue, health, ambulance frontier guards and other related agencies such as
transportation
ion companies, airports and delivery companies. GIRN is capable to enhance its
coverage to areas outside its coverage by using Trunked Mode Operation (TMO) gateway,
Direct Mode Operation (DMO) repeater. Up to date, there are few ambulance and agencies’
official
icial vehicles being equipped with RDU/CUBE to provide temporary network coverage at
sites beyond GIRN network coverage. All these features are very useful at time of disaster to
ensure continuous communication between local population effected and the rescue
res team.
Nevertheless, GIRN is still incapable of transferring data in image forms [41].
[ Fig. 2
summarizes the components of GIRN.

Fig.2.
2. Component of GIRN in Malaysia
Malaysian Amateur Radio Emergency Service Society (MARES) is a local non
non-government
Organisation (NGO), which provides emergency communication service during disaster. The
organisation
nisation has been actively involved in providing disaster communication services to
 N. Juliana et al. J Fundam Appl Sci. 2017, 9(4S), 890-904 898

agencies such as Royal Malaysia Police, Red Crescent and Royal Malaysian Airforce [42].
Two distinct advantages of the amateur network are the independence of infrastructure used
and most of the operators involved are skilled operators. Radio amateur network have proved
to be very useful during disaster since the incidence of Highland Tower (1993), tsunami
(2004), save and rescue operation for Piper 28 at GentingBidai (2005) and the list continues
up to recent disasters that struck Malaysia [43]. Nonetheless, in order for amateur radio
operators to be able to contribute in the event of disaster, local public officials must be
conscious of the network capabilities and limitations.
3.3.Ideal Communication System for Disaster Preparedness
Previous literatures suggested prepositioning of relief supplies to areas that are disaster-prone
in order to expedite distribution of supplies to victims once disaster struck. However, this type
of disaster preparation requires high investment with uncertainty of the occurrence of disaster.
Solid model of communication system in the event of disaster is the best solution for fast
relief and accurate dissemination of resources to areas affected [44]. Therefore, few disaster
models suggested tangible and intangible investments for disaster communication system.
Tangible investments include improvement of available infrastructures such as
communications equipment and information technology needed for disaster response together
with emergency power plants. In other hand, intangible investments include training of staffs,
hiring experts on communication system and educating vulnerable communities to recognize
specific pre-disaster events and to respond appropriately [45]. Malaysia has a sturdy
mechanism and framework in the disaster management and communication during disaster
following the National Security Council Directive No. 20 [46,1]. The framework clearly lined
the roles and responsibilities of each different agency and the communication flow in order to
gain information and to communicate when disaster occurs. Hence, the information on the
mechanism and framework must be made known to all staffs involved and also public
especially the population at vulnerable areas with high risk of disaster occurrence.
Disaster communication system includes sending, receiving and retrieving accurate data
ideally at pre, during and post disaster. Therefore, it is very important to have well-developed
software preferably managed by an agency with strong management and commitment for
crisis and disaster management [47]. Functional data distribution system is crucial at interface
level to control who gets the information, at different time and at different places. In order to
secure data inflow and outflow, data distribution system must be able to verify, control the
quality and store the data. Thus, all important data can be further managed into thematic
application such as natural disaster namely flood, landslides, forest fire and many more. All
 N. Juliana et al. J Fundam Appl Sci. 2017, 9(4S), 890-904 899

these data management system is an intelligent communication system that may enable later
damage assessment, thematic hazards maps and risk prediction [48].
Part of the challenges that we learnt from previous disasters was the deployed ad hoc
communication network might be susceptible to errors and security hazards [28]. During the
2015 flood which affected the northeast region of Malaysia, the emergency response network
utilized was vulnerable to exaggeration of the actual event, thus creating more panic situation
[49]. Faulty information being disseminated may temper with the routing of actual data
messages in the network. The interruption may affect the reliability of emergency response
networks, hence distracting emergency response efforts [50]. Recent work on web-based
Community Emergency Management and Awareness System (CEMAS) in Malaysia is a joint
effort between National Security Council of Malaysia and academic research to provide
systematic communication with public regarding information on disaster. Sublime
communication network should provide adequate security services for reliable and secure
information exchange. Identity of the information source should be validated in order to
determine the authentication of data received. Therefore, it is suggestible to incorporate strict
security services in the framework of disaster communication system [51].

4. CONCLUSION
Based on the studies reviewed, it is important to determine the role of each communication
systems in modulating the event of disaster. Most of the cross sectional and cohort studies
indicated that advancement of various communication technologies offers opportunity for
better disaster management hence reduced disaster-induced fatalities. However, serious
consideration should focused on structuring the communication system during disaster with
security encryption. Furthermore, special backup network that least infrastructure dependent
and allows immediate communication between disaster relief agencies must always be readily
operational. The limitation on the studies is that the integrated role of the readily available
communication system during disaster does not elaborate robustly in mechanistic ways of the
flow during disaster management [52].
Natural disaster is inevitable, however, minimizing duration of response time and bringing
accurate resources during the response may reduce its severity. Therefore, prediction of the
next disaster at pre-disaster state and risk stratification based on previous disasters need to be
taken into account as the alternative way to aid in reducing the degree of damage. Part of the
annual disaster that struck Malaysia was the northeast flood. Based on the forecast,
pre-disaster communication system may assist in disseminating contingency plans lined by
 N. Juliana et al. J Fundam Appl Sci. 2017, 9(4S), 890-904 900

the government to vulnerable population with high risk. The limitations discussed in previous
surveys described that public knowledge on disaster response and resources are still reserved.
Therefore, future disaster communication system should include data that reflect the
knowledge transferred to the community together with level of community awareness [53].
Finally, in this brief review, we conclude that the major challenge is to integrate between
readily available communications systems at pre-disaster, during disaster and post-disaster.
The integration may assist in organizing local communication systems in the event of disaster.
Moreover, this brief review also highlights the importance and preeminence of the GIRN
system during disaster. Nevertheless, the capabilities of the system should be utilized to the
maximum. As the system is not subjected to network congestion and infrastructure damage,
unlimited data may be received and disseminated during disaster [54]. Therefore, the future of
this system may be improved by utilizing this system for image transfer such as image of
onsite disaster overview, injuries, and crucial data [55]. Hence, there is a need to conduct
robust multidisciplinary studies on effective communication system for disaster that include
experts in emergency medicine, public health, information communication technology,
engineering and last but not least the policy makers [56].

5. ACKNOWLEDGEMENTS
We would like to thank Prototype Development Research Grant Scheme
(PRGS/1/2015SKK03/USIM/02/1) for providing the fund in development of communication
system to be utilised during disaster.

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How to cite this article:

Azmani S, Juliana N, Idrose A M, Amin N A, Saudi A S M. Challenges of communication
system during emergency disaster response in malaysia: a review. J. Fundam. Appl. Sci., 2017,
9(4S), 890-904.