Summary of Public Outreach Efforts Concerning State and Local Public Safety Spectrum Management Policies & Procedures

 

 

 

 

 

 

 

 

 

Fredrick  R. Wentland

Associate Administrator

Office of Spectrum Management National Telecommunications

 and Information Administration

 

 

 

May  2004

 

 

 

 

 

 

 

 

 

 

Summary of Public Outreach Efforts Concerning State and Local Public Safety Spectrum Management Policies & Procedures

 

 

 

 

William D. Speights

Richard J. Orsulak

 

 

 

 

 

 

Fredrick  R. Wentland

Associate Administrator

Office of Spectrum Management National Telecommunications

 and Information Administration

 

 

May 2004

ACKNOWLEDGEMENTS

 

 

            NTIA wishes to thank the Facilitators/Subject Matter Experts of the National Forum for making the process of gathering public opinion and discussing various options a smooth and seamless progression.  Without the expertise and guidance from these dedicated leaders, this valuable information could not have been easily obtained.

 

            NTIA would also like to acknowledge the expert, timely, and outstanding work of the Booz, Allen and Hamilton contract support team, without whom this report would not be timely, accurate, and representative of all the opinions and guidance we received from the public safety community.   

TABLE OF

CONTENTS

 

List of Acronyms  ..………………………………..…………………………………………………………………………  iv

Executive Summary  ………………………………………………..…………………………………………………………  v

 

Section

 

1 INTRODUCTION  ……………………...…………………………………………………1

 

2  SUMMARY AND ANALYSIS OF PUBLIC                

OUTREACH MEETING #1 (November 12, 2003)   ………………………………5

Introduction  …………………………………………….…………………………………….5

General State and Local Public Safety Topics  ………………………………………….……6

      State and Local Public Safety Participation  ………………………………………...……6

      The Local, State, and Federal Relationship  ……………………………………...………6

       Continuation of the Public Safety Wireless Advisory

      Committee or Similar Mechanism  …………………….…………………………………7

      Improvement in Interference Protection…………………………….……………………8

Spectrum Needs Identification-Objective 1 Topics  ……………………….…………………9

       Identification of Individual Public Safety

      Agency Spectrum Needs  …………………………...…………………………………….9

      Identification of Nationwide Spectrum Requirements

      For Public Safety Agencies  ………………………………………..……………………10

      The Need for a National Spectrum Policy  ………………………………...…………....11

The Spectrum Management Process-Objective 2 Topics  …………………………………..12

      User Activities in the Spectrum Management Process  …………………...…………….12

       Frequency Coordinator Activities in the

      Spectrum Management Process  ………………………...………………………………13

      FCC Activities in the Spectrum Management Process  ………………………………....14

      The Speed of the FCC’s Rulemaking Process  ………………………………………….15

      A Single Spectrum Management Agency  ……………………….………………….......16

Peripheral Topics for Further Consideration ……………………….…………………….…17

      The Proper Role of Information Technology

      in Spectrum Management  ………………………………………………………….…...17

      Solutions to Interstate, Interregional, and

      International Coordination Issues  …………………………………………………..…..17

      Use of Technology and Politics to Address Radio System

      Costs and Limited Public Safety Agency Funding   …………………………………….18

Summary of Findings ……..……………………………………….………………………...18

3 SUMMARY AND ANALYSIS OF PUBLIC

OUTREACH MEETING #2 (February 10-11, 2004) ……………………………21

Introduction………………………………………………………………………………..…21

Key Findings…………………………..……………………………………………………..23

      Key Findings for Objective 1………………...……………………………………..……23

      Key Findings for Objective 2………………………….…………………………………37

      Key Findings for Objective 3………………………...……………………………….….46

      Key Findings for Objective 4………………………………...…………………………..53

     

Appendices

 

A Presidential Memo on Spectrum Policy ……………………..………………………A-1

B List of Attending Organizations (Novemeber 12, 2003) ………..………………B-1

C Supplemental Responses from November 12, 2003………….……………………C-1

D Jointly-Authored Submission………………………………..……………………….D-1

E OptionFinder Survey Questions………………………………..……………………E-1

F  Meeting Minutes from the February 10-11 Open Meeting…..……….…………F-1

 

 

 

 

 

 

 

 

 

 

 

 

List of

Acronyms

 

 

 

CAPRAD

Computer Assisted Pre- Coordination Resource and Database System

DHS

Department of Homeland Security

DOC

Department of Commerce

FCC

Federal Communications Commission

GHz

Gigahertz

IT

Information Technology

LMR

Land Mobile Radio

MHz

Megahertz

NPSPAC

National Public Safety Planning Advisory Committee

NPSTC

National Public Safety Telecommunications Council

NTIA

National Telecommunications and Information Administration

PSWAC

Public Safety Wireless Advisory Committee

RF

Radio Frequency

RFW

Request for Waiver

RPC

Regional Planning Committee

ULS

Universal Licensing Service

VHF

Very High Frequency

 

 

 

EXECUTIVE

SUMMARY

 

 

On May 29, 2003, President George W. Bush signed an Executive Memorandum announcing the Administration’s commitment to develop and implement a comprehensive United States Spectrum Policy for the 21st Century. The President's Memorandum created a Spectrum Policy Initiative that requires the Department of Commerce to prepare legislative and other recommendations to:

 

  1. Develop means to address the critical spectrum needs of national security, homeland security, and public safety

2.      Facilitate a modernized and improved spectrum management system

3.      Create incentives for more efficient and beneficial use of spectrum and to provide a higher degree of predictability and certainty for incumbent users

4.      Develop tools to streamline the deployment of new services and technologies, while preserving national security, homeland security, and public safety, and encouraging scientific research

 

            As required by the President’s Executive Memorandum on the Spectrum Policy Initiative, the Department of Commerce, through NTIA, conducted outreach in the form of public meetings to help in the development of recommendations to improve the public safety spectrum management process.  Two separate events were held to solicit input. The first meeting, a Roundtable discussion with State and local public safety frequency coordinators, national public safety organizations, and public safety agencies, was held on November 12, 2003.  The second meeting, held on February 10-11, 2004, included a much broader participation from the public safety community, academia, manufacturers, and the general public.

 

            From these meetings, a comprehensive set of findings was extracted and are represented below. Specific supporting findings are detailed in Section 3.  The combined findings of these two outreach efforts should be considered as broad in scope based on a limited investigation into the spectrum management issues of State and local public safety as they related to the four objectives in the memorandum.  They are generally representative of the public safety community, but are not intended to be a finite and limiting set.  Throughout the United States, there are reportedly as many as 55,000 public safety agencies of varying size, mission, and structure.  Each has unique problems and solutions regarding its own communications requirements, issues and solutions.  It may be unfair and unrealistic to assume that these findings are completely representative of this extraordinarily large base of users.  It should be noted, however, that a number of National organizations representing much of the public safety community were involved in these proceedings and have made clear statements regarding the four objectives in the Presidential Memorandum. 

 

 

 

Key Public Outreach Findings

 

Objective 1: Develop a means to address critical public safety needs

 

 

Key Findings

Agencies require universal guidelines, models, expertise, and financial resources in the short term to benefit and participate in long-term planning and requirements analysis

Public safety communications planning and requirements gathering must be guided by a national, representative body

The national planning body should contain similar characteristics to the successful PSWAC model

Objective 2: Facilitate a modernized and improved spectrum management process

 

 

 

Key Findings

The FCC’s license application and RFW processes must be reviewed, revised, and revamped to ensure that the associated rules and processes conform to realities in the field, are completed in a timely fashion, and are understandable and navigable for public safety agencies of all sizes

Submission of accurate and complete communications system information should be mandatory

The benefits and drawbacks of combining public safety spectrum authority should be thoroughly examined, clearly identified, and contrasted with other methods of increased coordination and cooperation among multiple levels of government

Objective 3: Create incentives for efficient and beneficial use

 

 

Key Findings

Efficiency metrics should be defined and developed to measure performance levels across multiple public safety services and frequency bands

Public safety spectrum needs a long-term, comprehensive vision to maximize efficient and beneficial use

Opportunities exist to leverage commercial services to complement existing public safety communications and increase efficiency, but differing reliability requirements must be taken into account

Objective 4: Develop the tools to streamline new technologies

 

 

Key Findings

Public safety requires equipment to meet specific standards, thorough testing of that equipment, and its timely deployment, as well as innovative planning to maximize the markets and cost savings associated with new technologies

Commercial services serve, and will continue to serve, as an important asset to public safety communications; however, most services do not meet public safety requirements

 

 

            The findings of the two events, the November 12, 2003 Roundtable, the February 10-11, 2004 National Forum, plus additional input received from the public, and NTIA analysis of this information will form the basis of recommendations included in the report to the President. 


 

 

 

 

 

 

 

 

 

 


PART 1

 

1 – Public Outreach,  and Analysis of Comments

and Recommendations Concerning

State and Local (Public Safety)

Spectrum Management

Section ASECTION 1 –

INTRODUCTIONIntroduction

 

 

 

BACKGROUND

 

 

            One of the most critical public safety needs before, during, and immediately after a homeland security threat, or any life-threatening incident, is reliable communications. 

After the first World Trade Center bombing and the Oklahoma City bombing, the public safety community learned, through a number of efforts, of the problems, issues, and barriers involved in effective communications interoperability.  Since the events of September 11, 2001, it has become quite clear that reliable public safety communications is the cornerstone of an effective first response to a homeland security threat, other life-threatening emergencies, or normal, day-to-day public safety activities.

 

            The September 11th attacks demonstrated, in a very public way, how critically important communications capabilities are for our nation's first responders. Since then, more attention has been focused on ensuring that first responders are better equipped to prevent or minimize the effects of any future domestic attacks. A good deal of the debate has centered on how to improve the ability of first responders to communicate with one another by the radio communications.

 

            U.S. spectrum management authority within the United States is divided between the Federal Communications Commission (FCC) and the President. The Communications Act of 1934 established the FCC and gave it the authority to assign frequencies to all non-federal government radio stations in the United States, including the public safety radio services. Under Section 305 of the Act, the President retains the authority to assign frequencies to federal government radio stations. The President has delegated this authority to the Secretary of Commerce, who has delegated it in turn to the Administrator of the National Telecommunications and Information Administration (NTIA).  NTIA also serves as the President’s principal advisor on telecommunications policy.

 

            An increased emphasis on effective public safety communications, coupled with the dramatic growth in consumer use of wireless communications services, has strained the outdated spectrum management process within the United States.  New wireless technologies, new services, and increased demand for these products and applications reveal that improvements are needed in a spectrum management system created more than 70 years ago.  As the 21st century unfolds, it has become increasingly obvious that the system must be reviewed, revamped, and revitalized.

 

On May 29, 2003, President George W. Bush signed an Executive Memorandum announcing the Administration’s commitment to develop and implement a comprehensive United States Spectrum Policy for the 21st Century. 1 The President's Memorandum (see Appendix A) created a Spectrum Policy Initiative that requires the Department of Commerce to prepare legislative and other recommendations to—

·        Develop means to address the critical spectrum needs of national security, homeland security, and public safety (hereinafter referred to as Objective 1)

·        Facilitate a modernized and improved spectrum management system (hereinafter referred to as Objective 2)

·        Create incentives for more efficient and beneficial use of spectrum and to provide a higher degree of predictability and certainty for incumbent users (hereinafter referred to as Objective 3)

·        Develop tools to streamline the deployment of new services and technologies, while preserving national security, homeland security, and public safety, and encouraging scientific research (hereinafter referred to as Objective 4)

 

The Executive Memorandum also requires that, among other things, a report on recommendations to address State, local, and private spectrum use be developed and submitted to the President. The Executive Memorandum states that:

 

“Consistent with the objectives above, the Department of Commerce shall, in accordance with applicable law, conduct public meetings that will assist with that Departments development of a detailed set of recommendations for improving policies and procedures for use of spectrum by State and local governments and the private sector, as well as the spectrum management process as a whole. The meetings will involve public events to provide an opportunity for the input of the communications industry and other interested parties.”

 

 

Text Box: “My Administration is committed to promoting the development and implementation of a U.S. spectrum policy for the 21st century…..” George W. Bush The Administration is committed to satisfying vital public safety needs and ensuring our national and homeland security while ensuringpromoting economic growth, spectrum efficiency, and global leadership in telecommunications.  Throughout the process of addressing the four objectives in the Memorandum, a primary goal remains clear to any change or improvement to the spectrum management system: the safety and protection of life and property.  Economic development is certainly important, since the introduction and deployment of new technology is essential to the well being of our nation as a whole, but the basic premise of safety of life and property, as well as our national defense cannot be overlooked or downplayed.  It forms the basis of why we exist as a nation; “to establish justice, insure domestic tranquility, provide for the common defense, promote the general welfare, and secure the blessings of liberty”2.   Arguably, an effective spectrum management system should place primary importance and attention on public safety and secondary, but equally asalso important, attention to commercial and consumer applications.    

 

The President's Memorandum created a Spectrum Management Initiative that requires the Department of Commerce to prepare legislative and other recommendations to—

·Develop means to address the critical spectrum needs of national security, homeland security, and public safety

·Facilitate a modernized and improved spectrum management system

·Create incentives for more efficient and beneficial use of spectrum and to provide a higher degree of predictability and certainty for incumbent users

·Develop tools to streamline the deployment of new services and technologies, while preserving national security, homeland security, and public safety, and encouraging scientific research

 

The Department of Commerce will develop recommendations for revising policies and procedures to promote more efficient and beneficial use of spectrum based on the input gathered through the public meetings. 

 

 

Consistent with the Executive Memorandum and Iin order to effectively discuss the issues surrounding public safety spectrum management,  NTIA planned several outreach events to reach the public safety community and the general public andto garner their views and opinions concerning the objectives in the President’s Memorandum.  These meetings were not only a requirement, but a necessity, since State and local public safety spectrum management falls under the jurisdiction of the FCC, and not NTIA. 

 

 

 

On November 12, 2003, NTIA held a Public Safety Roundtable discussion at the U.S. Department of Commerce in Washington, D.C.  Participants included federal officials from NTIA and the Department of Homeland Security (DHS), representatives from public safety organizations, and public safety frequency coordinators.  The purpose  of the roundtable was to introduce the President’s Memorandum, discuss issues related to the first two objectives, and gauge the depth of interest in these issues within the public safety community.  Additionally, the roundtable was designed to help NTIA develop an effective approach for future public meetings, later held on February 10-11, 2004.   The report of the roundtable, including an analysis of the findings, is included as Section 2.B of this Part (Part 1).

The second event consisted of a series of public meetings held on February 10-11, 2004 in Washington, D.C.  These meetings were designed to gather public opinion and input concerning all the four of the objectives in the President’s Memorandum.  These public meetings included a combination of presentations and group discussions on managerial and regulatory aspects of the radio frequency spectrum.  Attendees discussed and provided suggested improvements related to the President’s objectives from the State and local public safety point of view.  Moderators from the Federal Government, subject matter experts, and knowledgeable and respected public safety leaders helped spurn discussions on the issues related to the four objectives.  The report and analysis of those public meetings is included as Section C 3.of this Part.

Section EThe Appendices contain supplemental and supporting information, such asincludes  letters, positions, meeting notes, and other documents important to the public outreach thatand further support key findings.

These public safety events provided the quickest, most effective means to gauge the views and opinions of the public on the issues related to the President’s objectives.  The participants provided a representative cross-section of the public safety user community, major public safety organizations,  iindustry and service providers.  In general, interest in improving spectrum management for public safety communications was sincere, intense, and forward-thinking, enabling NTIA to develop recommendations based on an accurate, detailed public view of the issues.  

ENDNOTES

 

 

1.  Presidential Memorandum on Spectrum Policy, Memorandum for the Heads of the Executive Departments and Agencies, Spectrum Policy for the 21st Century, June 5, 2003.

 

2.  Preamble to the Constitution of the United States

 

 

 

 

 

 

 

 

These firefighters are part of our Nation’s first line of defense against natural disasters, terrorism, and other threats to the peace and well-being of our citizens.  They deserve the very best means of communications to serve the public. 

 

Fires, hurricanes, tornados, terrorist attacks, criminal pursuits—all of these natural and man-made events require effective search and rescue and timely recovery operations. An important tool in achieving these objectives is the radio communications link.  Interoperability is the ability for one responding agency to communicate with another responding agency(ies). For example, the FBI may need to communicate with a local police department during a bank robbery, or the US Forest Service may be required to communicate with the State Forestry Department while fighting a forest fire. These types of communications are referred to as multi-disciplined, multi-jurisdiction interoperable communications.  The lack of interoperability has been a major concern as reported in the media and verified through after-action reports.

 

 

 

First event

 

Subject matter experts from the public safety community

 

Second event

 

 

 

               effective and uninterrupted communications among public safety agencies will play a key role in future emergency response efforts.  Moreover, effective communications systems free of harmful interference are crucial for public safety agencies to detect and prevent future threats

Effective resolution of this interference problem is vitally important to the protection of life and property and critical to successful incident response. 

An effective, responsive spectrum management system, balancing the critical needs of public safety with the economic growth of the nation, is key to ensuring reliable public safety communications, effective homeland defense and national security.

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Section B – Report and Analysis of Meeting with Major Public Safety Organizations, November 12, 2003