Corrective Actions Still Needed 

to Achieve Interoperable 

Communications 

May 27, 2015 

OIG-15-97-VR
 
 

OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

Washington, DC 20528 / www.oig.dhs.gov

May 27, 2015 

MEMORANDUM FOR: The Honorable Russell C. Deyo 

Under Secretary for Management 

FROM: John Roth 

 Inspector General 

SUBJECT: Corrective Actions Still Needed to Achieve Interoperable 

Communications 

Two and a half years ago, we published an audit, DHS’ Oversight of 

Interoperable Communications (OIG-13-06), in which we tested Department of 

Homeland Security (DHS) radios to determine whether DHS components could 

talk to each other in the event of a terrorist event or other emergency. They 

could not. Fewer than 0.25% of the 479 radio users we tested could access and 

use the specified common channel to communicate. Further, of the 382 radios 

tested, only 20% (78) contained all the correct program settings for the 

common channel. 

In other words, nearly a decade after the 9/11 Commission highlighted the 

problem with interoperable communications, DHS components could not talk 

to each other using about $430 million worth of radios purchased. They could 

not do so because DHS had not established an effective governing structure 

with the authority and responsibility to ensure it achieved department-wide, 

interoperable radio communications. Although DHS had established a common 

radio channel to enable all components to communicate using interoperable 

radio systems, the channel was not mandatory. 

We recently conducted a verification review to assess DHS’ progress on the 

recommendations from our November 2012 report. Unfortunately, DHS 

components’ inability to communicate effectively on the DHS common channel 

persists. Although the Department has initiated corrective actions, including a 

draft communications interoperability plan and draft management directives to 

standardize Department-wide radio activities, these documents have not been 

finalized. Moreover, DHS was unable to provide a timetable for finalizing and 

disseminating these documents. 

Verification Review Results 

Progress on Recommendation 1 

The first recommendation from our 2012 audit was that DHS create a 

structure with the necessary authority to ensure that the components achieve 

interoperability. DHS did not concur with the first recommendation, believing 
 

OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

that its existing structure already had the authority to ensure radio 

interoperability. 

Although DHS initially did not concur with our recommendation, it has 

developed a draft communications interoperability plan that meets the intent of 

our recommendation. According to the draft provided by the Department, the 

plan “establishes a roadmap to improve tactical communications 

interoperability across seven distinct areas: Governance; Standard Operating 

Procedures; Technology; Training and Exercises; Usage; Outreach and 

Information Sharing; and Life Cycle Resourcing.” The draft plan also includes a 

goal to “Identify and, if needed, establish a decision-making body with the 

authority to govern cross-Component interoperability-related issues.” 

However, the draft communications interoperability plan has been under 

review since February 2014, and DHS officials have yet to establish a target 

date finalizing and implementing the plan. According to the DHS officials we 

interviewed, the draft plan has not been finalized because of the Department’s 

lengthy review process and delays caused by changes in leadership. 

Progress on Recommendation 2 

Our 2012 audit had also recommended that DHS develop and disseminate 

policies and procedures to standardize Department-wide radio activities, 

including program settings such as naming conventions to ensure 

interoperability. DHS concurred with our second recommendation and agreed 

to develop a Departmental interoperability plan and disseminate policies and 

procedures to standardize Department-wide radio activities. 

To address our recommendation to develop and disseminate policies and 

procedures to standardize Department-wide radio activities, DHS drafted 

several management directives: 

x Common Channels for Interoperability, 

x Plain Language Usage for Interoperability, 

x Land Mobile Radio Encryption for Interoperable Communications, and 

x Departmental Governance for Emergency Communications 

Interoperability. 

At the time of our review, the draft management directives were still under 

review and DHS officials were unable to provide an estimated date for 

finalization. 

www.oig.dhs.gov 2 OIG-15-97-VR 
OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

DHS’ draft communications interoperability plan also identifies goals and 

initiatives for developing policies, practices, and procedures that guide the 

implementation and use of interoperable radio communications. 

Interoperability Testing 

To determine whether radio interoperability had improved since our November 

2012 report, we tested 17 radio users from U.S. Customs and Border 

Protection (CBP), U.S. Immigration and Customs Enforcement (ICE), and U.S. 

Coast Guard (USCG) to see if they could access and use the DHS common 

channel to communicate. Test results demonstrated little improvement. 

Although seven radio users from ICE and USCG were able to successfully 

communicate using the specified common channel, eight users from CBP were 

still not aware that a DHS common channel existed. Additionally, a radio user 

from ICE and another from CBP knew about the common channel, but could 

not access it. 

We also intended to test radio interoperability at the Transportation Security 

Administration (TSA), but the location we visited did not have the DHS 

common channel programmed on any of its radios. According to the TSA 

manager we interviewed, transportation security officers do not have the need 

to communicate with other DHS components by radio. If officers had to 

coordinate an operation with CBP in another airport terminal, they would do so 

over the phone or in person. Nonetheless, when asked if he had any concerns 

about radio interoperability, he noted an incident where all airports in the area 

lost Internet and telephone services and had to use the Military Auxiliary 

Radios Systems to communicate with other components and law enforcement 

agencies. The manager also mentioned that TSA radios could not communicate 

with other components’ radios during the Boston Marathon bombings. Having 

the DHS common channel configured would have been useful at those times. 

Equipment Compatibility and Training 

During interviews, some component officials raised concerns about equipment 

compatibility and the lack of Department-wide interoperable communications 

training. Specifically, one official said that radio equipment is outdated and not 

compatible with the radio system used by state agencies. Another official told 

us that the components’ radio users are not being trained to access the DHS 

common channel. Other officials noted a lack of DHS-wide interoperable 

communications testing and training exercises. 

www.oig.dhs.gov 3 OIG-15-97-VR 
 

OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

Conclusion 

DHS continues to lack reliable interoperable communications for emergencies, 

as well as daily operations and planned events. The inability to communicate 

effectively during an emergency presents serious risks to the health and safety 

of the public. To better fulfill its mission and unify its efforts, DHS must 

prioritize interoperable communications and expedite the implementation of 

the recommended corrective actions in our DHS’ Oversight of Interoperable 

Communications report. 

Objective, Scope, and Methodology 

Our objective was to determine whether the Department created a structure 

with the authority to ensure that the components achieve interoperable radio 

communications, as well as policies and procedures to standardize 

Department-wide radio activities. To achieve our objective, we reviewed prior 

reports, DHS’ draft communications interoperability plan and draft 

management directives related to communications interoperability; interviewed 

DHS officials and component personnel from CBP, ICE, TSA, and USCG; and 

conducted limited radio interoperability tests on DHS’ common channel with 

17 radio users from CBP, ICE, and USCG in the Boston, Massachusetts area. 

We were unable to test TSA’s radio interoperability because DHS’ common 

channel was not programmed on any of TSA’s radios at the location we selected 

for testing. 

We conducted this verification review in March 2015 pursuant to the Inspector 

General Act of 1978, as amended. This review was not conducted according to 

generally accepted government auditing standards. Major contributors to this 

report include Patrick O’Malley, Director; Robert Greene, Audit Manager; 

Jeanne Garcia, Auditor-in-Charge; and Kendra Starkus, Program Analyst. 

Please call me with any questions, or your staff may contact Mark Bell, 

Assistant Inspector General for Audits, at (202) 254-4100. 

www.oig.dhs.gov 4 OIG-15-97-VR 
 

OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

Appendix A 

Report Distribution 

Department of Homeland Security 

Secretary 

Deputy Secretary 

Chief of Staff 

General Counsel 

Executive Secretary 

Director, GAO/OIG Liaison Office 

Assistant Secretary for Office of Policy 

Assistant Secretary for Office of Public Affairs 

Assistant Secretary for Office of Legislative Affairs 

DHS Audit Liaison 

Office of Management and Budget 

Chief, Homeland Security Branch 

DHS OIG Budget Examiner 

Congress 

Congressional Oversight and Appropriations Committees 

www.oig.dhs.gov 5 OIG-15-97-VR 
 

 

 

 

 

 

 

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