ALTERNATIVE FREQUENCIES

FOR USE BY

PUBLIC SAFETY SYSTEMS

Response to Title XVII, Section 1705 of the 

National Defense Authorization Act for FY2001 

U.S. DEPARTMENT OF COMMERCE 

National Telecommunications and Information Administration 
NTIA SPECIAL PUBLICATION 01-48

ALTERNATIVE FREQUENCIES 

FOR USE BY 

PUBLIC SAFETY SYSTEMS

Response to Title XVII, Section 1705 of the 

National Defense Authorization Act for FY2001 

Thomas L. Chirhart 

Charles T. Hoffman 

Richard J. Orsulak 

Edward F. Drocella 

U.S. DEPARTMENT OF COMMERCE 

Donald L. Evans, Secretary 

Nancy J. Victory, Assistant Secretary 

for Communications and Information, and 

Administrator, National Telecommunications 

and Information Administration 

December 2001 
Project Management 

Office of Spectrum Management 

William T. Hatch

Associate Administrator

Office of Spectrum Management

Fredrick R. Wentland

Director, Spectrum Plans and Policies

William D. Speights

Manager, Public Safety Program

Report Authors 

Thomas L. Chirhart 

Charles T. Hoffman 

Richard J. Orsulak 

Edward F. Drocella 

Contributors 

U.S. Department of Justice 

Merri Jo Gamble 

U.S. Treasury Department 

James Downes/Ralph Robles 

U.S. Department of the Interior 

Arthur Nelson 

U.S. Department of Agriculture 

Marvin Storey 

iv 
TABLE OF CONTENTS 

ACRONYMS AND ABBREVIATIONS ...................................................... ix 

EXECUTIVE SUMMARY ................................................................ xi 

SECTION 1. INTRODUCTION ........................................................... 1-1

BACKGROUND ................................................................ 1-1

OBJECTIVE .................................................................... 1-3

APPROACH .................................................................... 1-3

SECTION 2. IDENTIFICATION OF FREQUENCY BANDS TO BE CONSIDERED FOR ALTERNATIVE 

FREQUENCIES 

INTRODUCTION ............................................................... 2-1

SELECTION OF FEDERAL GOVERNMENT FREQUENCY BANDS TO BE CONSIDERED FOR 

ALTERNATIVE FREQUENCIES ................................................... 2-1

State and Local Public Safety Spectrum Allocations Above 100 MHz ................... 2-1

Federal Government Spectrum Allocations ....................................... 2-2

ANALYSIS OF FEDERAL GOVERNMENT FREQUENCY BANDS ......................... 2-4

Aviation Communications and Radionavigation ................................... 2-4

Fixed and Mobile Communications ............................................ 2-5

Space and Environmental Sciences ............................................ 2-7

National Security .......................................................... 2-8

Satellite Communications ................................................... 2-10

Analysis Summary ........................................................ 2-10

FEDERAL GOVERNMENT FREQUENCY BANDS SELECTED FOR CONSIDERATION ...... 2-10

SUMMARY .................................................................... 2-11

SECTION 3. FEDERAL OPERATIONS IN THE 162-174 MHz AND 406.1-420 MHz BANDS

INTRODUCTION ................................................................ 3-1

FEDERAL PUBLIC SAFETY AGENCY PLANS IN THE 162-174 MHz AND 406.1-420 MHz 

BANDS ........................................................................ 3-2

Department of Justice ....................................................... 3-2

Department of the Treasury .................................................. 3-2

United States Coast Guard ................................................... 3-3

Other Federal Public Safety Agencies ........................................... 3-4

SPECTRUM EFFICIENT TECHNOLOGIES IN THE 162-174 MHz AND 406.1-420 MHz BANDS . 3-5

Migration to Narrowband Technology .......................................... 3-5

Integrated Wireless Networks ................................................. 3-6

Receiver Performance Standards .............................................. 3-7

Trunking Technology ....................................................... 3-7

SUMMARY ..................................................................... 3-7

SECTION 4. IMPLICATIONS OF REDUCING THE SPECTRUM AVAILABLE TO FEDERAL PUBLIC 

SAFETY AGENCIES

INTRODUCTION ................................................................ 4-1

IMPACT OF REDUCING THE SPECTRUM AVAILABLE FOR FEDERAL PUBLIC SAFETY

COMMUNICATIONS ............................................................. 4-1

FEDERAL AGENCY COMMENTS ON REDUCING SPECTRUM RESOURCES FOR PUBLIC

SAFETY COMMUNICATIONS ..................................................... 4-3

Department of the Treasury .................................................. 4-3

v 
Department of Justice ....................................................... 4-4

Department of the Interior ................................................... 4-4

Department of Agriculture ................................................... 4-5

TRENDS IN FEDERAL PUBLIC SAFETY SPECTRUM USAGE ........................... 4-5

SUMMARY ..................................................................... 4-5

SECTION 5. CURRENT FEDERAL INTEROPERABILITY EFFORTS

INTRODUCTION ................................................................ 5-1

NTIA PUBLIC SAFETY PROGRAM ................................................. 5-2

FEDERAL INTERAGENCY PUBLIC SAFETY PROGRAMS AND WORKING GROUPS ........ 5-2

ONGOING REGULATORY EFFORTS ................................................ 5-3

INTERAGENCY COMMITTEES .................................................... 5-4

SUMMARY ..................................................................... 5-4

SECTION 6. SUMMARY/CONCLUSIONS

INTRODUCTION ................................................................ 6-1

SUMMARY ..................................................................... 6-1

CONCLUSIONS ................................................................. 6-3

APPENDICES 

APPENDIX A: Floyd D. Spence National Defense Authorization Act for Fiscal Year 2001 ............... A-1

APPENDIX B: Federal Public Safety Agency Input ............................................. B-1

APPENDIX C: Current PSWN Interoperability Pilot and Demonstration Programs ..................... C-1

LIST OF TABLES 

TABLE 

2-1 Overview of State and Local Public Safety Frequency Bands Above 100 MHz ................... 2-2

2-2 Overview of Federal Government Frequency Allocations in the 100 - 1000 MHz

Frequency Range ................................................................. 2-3

LIST OF FIGURES 

FIGURE 

2-1 Allocation Hierarchy of the 902-928 MHz Band ......................................... 2-9

C-1 PSWN Pilots ................................................................... C-1

vi 
ACRONYMS AND ABBREVIATIONS 

BBA-97 Balanced Budget Act of 1997

CFR Code of Federal Regulations

DEA Drug Enforcement Administration

DoD Department of Defense

DOE Department of Energy

DOI Department of the Interior

DOJ Department of Justice

EMS Emergency Medical Services

FBI Federal Bureau of Investigation

FCC Federal Communications Commission

FLEWUG Federal Law Enforcement Wireless Users Group

GMF Government Master File

GPS Global Positioning System

IACP International Association of Chiefs of Police

ICHIEFS International Association of Fire Chiefs

ILS Instrument Landing System

INS Immigration and Naturalization Service

IRAC Interdepartment Radio Advisory Committee

ITN Integrated Treasury Network

IWN Integrated Wireless Network

JWN Justice Wireless Network

LMR Land Mobile Radio

MoA Memorandum of Agreement

MoU Memorandum of Understanding

MHz MegaHertz

NDAA-2000 National Defense Authorization Act For Fiscal Year 2000

NDAA-2001 National Defense Authorization Act For Fiscal Year 2001

NDRS National Distress and Response System

NDRSMP National Distress and Response System Modernization Project

NIJ National Institute of Justice

NTIA National Telecommunications and Information Administration

OBRA-93 Omnibus Budget Reconciliation Act of 1993

PSWAC Public Safety Wireless Advisory Committee

PSWN Public Safety Wireless Network

USCS United States Customs Service

USDA United States Department of Agriculture

USCG United States Coast Guard

USGS United States Geological Survey

USMS United States Marshall Service

USSS United States Secret Service

WINS Wireless Interoperability Network Strategy

vii 
EXECUTIVE SUMMARY 

On behalf of the Secretary of Commerce, the National Telecommunications and 

Information Administration (NTIA) has prepared this report in response to Title XVII, Section 

1705 of the National Defense Authorization Act for FY2001. It represents part of a joint 

submission to the Congress by NTIA and the Federal Communications Commission regarding 

alternative frequencies for use by state and local public safety agencies. It is submitted as a 

separate report, under a joint cover letter, outlining the issues involving the use of alternative 

frequency bands allocated for federal use. Another important part of this legislation directs the 

Department of Defense (DoD) to study the feasibility of sharing frequencies in the 138-144 MHz 

band with non-federal public safety agencies.1 

This report discusses frequency bands considered as alternative frequencies to the 138-144 

MHz band and defines this in terms of comparable spectrum. Based on the analysis in this report 

of the Federal Government frequency bands between 100-1000 MHz, only the 162-174 MHz and 

406.1-420 MHz federally allocated bands satisfy the criteria of comparable spectrum and can be 

considered alternative frequencies. 

This report outlines federal agency use of the 162-174 MHz and 406.1-420 MHz bands, 

concentrating on departments and agencies with primary public safety missions. Since these 

missions continue to expand and the use of these bands continues to grow, NTIA and the federal 

agencies have developed policies, rules and plans to alleviate spectrum congestion. This was 

done by mandating spectrum efficient technology, encouraging the development of consolidated 

integrated networks, enhancing the utility of this spectrum by setting transmitter and receiver 

performance standards, and encouraging the use of trunking technology. 

The impact of reducing the spectrum resources available to federal public safety agencies 

is addressed. The rapid expansion in the use of these bands to accommodate growth of voice and 

data systems within federal agencies places a greater urgency on these agencies to use these bands 

in the most efficient ways possible. The continued competition for limited spectrum resources 

underscores the fundamental need for federal public safety agencies to use spectrum more 

efficiently. Loss of additional spectrum would dramatically affect the ability of federal public 

safety agencies to perform their primary function of protection of life and property. 

This report outlines current federal efforts to enhance interoperability among federal, 

state, and local public safety agencies. NTIA has recognized the importance of these efforts and 

is actively involved in developing strategies and providing policy guidance to enhance their 

effectiveness. Many sharing and interoperability agreements already exist among these agencies. 

NTIA is convinced that these partnerships are the key to improved interoperability. 

1 The DoD has initiated an engineering study in the 138-144 MHz band. 

viii 
In summary, NTIA has concluded that additional frequencies in the 162-174 MHz and 

406.1-420 MHz bands, other than the 40 federal, state, and local public safety interoperability 

12.5 kHz channels recently provided for in these bands, cannot be provided without jeopardizing 

the crucial missions of federal public safety agencies. The Public Safety Wireless Advisory 

Committee (PSWAC) Final Report identified the need for an additional 2.5 MHz of spectrum for 

federal, state and local interoperability. The 40 channels NTIA designated for federal, state and 

local incident response and law enforcement interoperability represents 0.5 MHz of the 2.5 MHz 

of this spectrum. NTIA will continue to work with federal, state, and local public safety agencies 

and organizations in developing plans and strategies to ensure that these agencies, at all levels of 

government, can perform their mission critical functions without the encumbrances and barriers of 

the past. 

ix 
SECTION 1

INTRODUCTION

BACKGROUND 

The National Telecommunications and Information Administration (NTIA), an agency of 

the U.S. Department of Commerce, is responsible for administering spectrum assigned for federal 

agency use. The NTIA establishes policies concerning frequency assignment, allocation and use, 

and provides the various federal departments and agencies with guidance to ensure that their 

conduct of telecommunications activities is consistent with these policies.2 The NTIA also serves 

under the Executive Branch as the President’s principal adviser on telecommunication policies 

pertaining to the Nation’s economic and technological advancements and to the regulation of the 

telecommunications industry.3 NTIA develops executive branch positions to ensure that policy is 

effectively presented to federal agencies, the Federal Communications Commission (FCC), 

Congress, and the public. 

Because of the events of September 11, 2001, the need to protect the citizens of the 

United States has been at the forefront of attention from the Congress, the Executive Branch, and 

regulators. A critical component of any successful means of protection and the necessary 

emergency response and rescue operation is the ability of public safety agencies to communicate 

with one another with modern, robust communications systems with adequate radio spectrum 

resources. During joint law enforcement and incident response operations, it may be necessary 

for public safety officials from one jurisdiction (e.g., a federal agent) to communicate with public 

safety officials from a different jurisdiction (e.g., local police) responding to an incident. The 

inability to communicate with each other in this situation occurs when one jurisdiction is operating 

their radio equipment on a different frequency than the other jurisdiction, or with systems of 

different technologies (i.e., conventional, trunking, analog, and digital systems). Lessons learned 

over the years, and more recently, point to this critical need for interoperability in order to 

communicate effectively. The inability of federal, state, and local law enforcement, fire, 

emergency medical services (EMS) and other public safety providers to communicate during the 

Oklahoma City Federal Building bombing response in 1995 was a prime example.4 

2 NTIA, Manual of Regulations and Procedures for Federal Radio Frequency Management, U.S. 

Department of Commerce, National Telecommunications and Information Administration, Jan. 2000 

Edition [hereinafter “NTIA Manual”]. 

3 National Telecommunications and Information Administration Act, Pub. L. No. 102-523, 106 Stat. 

3533 (1992) (codified at 47 U.S.C. 901-904). 

4 Public Safety Wireless Network (PSWN) Program, Public Safety Radio Spectrum: A Vital Resource 

for Saving Lives and Protecting Property (Oct. 2000). 

1-1 
Long before these tragic events, numerous professional organizations such as the 

International Association of Chiefs of Police (IACP), International Association of Fire Chiefs 

(ICHIEFS) (formerly IAFC), and the Association of Public Safety Communications Officials 

International-Inc. (APCO), have led the effort to obtain additional spectrum specifically for public 

safety services. On March 22, 1995, a House Appropriations Subcommittee proposed the 

establishment of a joint advisory committee on public safety telecommunications issues. The 

result was the establishment of the Public Safety Wireless Advisory Committee (PSWAC), a joint 

effort sponsored by the NTIA and the FCC. The PSWAC was tasked with providing advice on 

current and future wireless communications requirements of public safety agencies through the 

year 2010. The culmination of the PSWAC process was a final report to the NTIA and FCC.5 

As a direct result of the PSWAC effort, Congress directed the reallocation of 24 

megahertz (MHz) of spectrum in the 700 MHz band allocated for broadcast television (former 

channels 60-69) for public safety service use. This action has gone a long way to meet the needs 

of the state and local public safety agencies. PSWAC also identified an immediate need for 2.5 

MHz of spectrum for interoperability. The state and local public safety user community has been 

petitioning the FCC for additional spectrum, particularly in the spectrum below 512 MHz, where 

the majority of state and local public safety systems operate. 

The efforts by the public safety community to gain additional spectrum below 512 MHz 

prompted Congress to include language in Section 1705 of the National Defense Authorization 

Act for Fiscal Year 2001, (NDAA-2001).6 The statute requires the Department of Defense 

(DoD) to study the potential for sharing the 138-144 MHz band with state and local public safety 

agencies. Specifically, the law requires the Secretary of Defense, in consultation with the 

Attorney General and the Secretary of Commerce, to conduct an engineering study to identify: (1) 

any portion of the 138-144 MHz band that the Department of Defense can share in various 

geographic regions with public safety radio services; (2) any measures required to prevent harmful 

interference between Department of Defense systems and the public safety systems proposed for 

operation on those frequencies; and (3) a reasonable schedule for implementation of such sharing 

of frequencies. The results of this study will be submitted to Congress in a separate report. 

5 Final Report of the Public Safety Wireless Advisory Committee to the Federal Communications 

Commission and the National Telecommunications Administration Vol. 1 (Sept. 1996) [hereinafter 

“PSWAC Final Report, Vol 1”]. PSWAC was an NTIA and FCC jointly sponsored Federal 

Advisory Committee. It was established in response to provisions of Title VI of the Omnibus Budget 

Reconciliation Act of 1993 directing the FCC and the NTIA to coordinate more closely with the public 

safety community in planning future spectrum needs of the federal, state and local public safety 

agencies. 

6 National Defense Authorization Act, Fiscal Year 2001, Pub. L. No. 106-398, § 1705, 114 Stat. 1654, 

1654A-366 (2000). An excerpt of the language of the public law is included in Appendix A. 

1-2 
In addition to the 138-144 MHz DoD sharing study, Section 1705 of the NDAA-2001 

directs the Secretary of Commerce and the Chairman of the FCC to jointly submit a report to 

Congress on alternative frequencies available for use by public safety systems no later than 

January 1, 2002.7 This document constitutes the Secretary’s portion of that report. 

OBJECTIVE 

The objective of this report is to review federally allocated spectrum and determine the 

potential for identifying alternative frequencies for use by state and local public safety services, in 

accordance with NDAA-2001. 

APPROACH 

NTIA used the following approach: 

1. Briefed the Interdepartment Radio Advisory Committee (IRAC)8 prior to the start of this 

report. 

2. Solicited input and advice on spectrum usage and agency impact from the IRAC. 

3. Obtained information from a variety of sources to assist in identifying potential spectrum 

alternatives that could be used by public safety services. Sources included, but were not limited 

to, the following NTIA published reports: 

National Land Mobile Spectrum Requirements -

U.S. Department of Commerce/NTIA, January 1994 

Preliminary Spectrum Reallocation Report -

U.S. Department of Commerce /NTIA, February 1995 

Land Mobile Spectrum Planning Options -

U.S. Department of Commerce/NTIA, October 1995 

Final Report of the Public Safety Wireless Advisory Committee to the 

FCC and NTIA, Volume 1 and 2-

Public Safety Wireless Advisory Committee (PSWAC), September 1996 

7 Id., Section 1705(c) Report. It is assumed that the phrase “public safety systems” refers to state and 

local (i.e., non-Federal Government) systems. 

8 The IRAC, consisting of representatives of 20 federal agencies, serves in an advisory capacity to the 

Assistant Secretary of Commerce for Communications and Information. The IRAC, in existence 

since 1922, assists the Assistant Secretary in the discharge of her responsibilities pertaining to use of 

the electromagnetic spectrum. 

1-4 
Spectrum Reallocation Report - Response to Title III of the Balanced Budget Act of 

1997-

U.S. Department of Commerce/NTIA, February 1998 

Assessment of Electromagnetic Spectrum ReallocationU.S. Department of Commerce/NTIA, January 2001 

U.S. National Spectrum Requirements - Projections and TrendsU.S. Department of Commerce/NTIA, March 1995 

Particular attention was given to past NTIA reports that dealt with reallocations of Federal 

Government spectrum to the private sector. The intent was not to duplicate those efforts, but 

utilize the extensive research that was conducted for those reports. Relevant public documents, 

such as FCC filings, and open literature articles, were also used as appropriate. Federal agency 

mission requirements and the criticality of access to spectrum resources to perform their missions 

was documented. 

4. Coordinated with the pertinent/affected federal agencies and also worked with members of the 

IRAC committees by providing status reports and affording them the opportunity to provide 

additional input or suggestions as the report developed. 

5. Coordinated with the FCC Wireless Telecommunications Bureau and Office of Engineering 

and Technology. The statute requires NTIA and the FCC to jointly submit the report to 

Congress. The approach taken was for NTIA and the FCC to study and examine only spectrum 

under their respective regulatory authority. That is, the NTIA report considered alternative 

frequencies that could be used by public safety systems from the federally-allocated frequency 

bands, which included both federally exclusive and shared allocations, while the FCC report 

considered the non-federal frequency bands. 

1-4
SECTION 2 

IDENTIFICATION OF FREQUENCY BANDS TO BE CONSIDERED FOR 

ALTERNATIVE FREQUENCIES 

INTRODUCTION 

As discussed in Section 1, the NDAA-2001 directs the Secretary of Commerce and the 

Chairman of the FCC to jointly submit a report to Congress on alternative frequencies that could 

be made available for use by public safety systems. For purposes of this report, NTIA considered 

“alternative frequencies” to be those frequencies comparable to the 138-144 MHz band. The 

criteria used in this report to determine such comparability are: 1) the proximity of Federal 

Government bands to current state and local public safety bands;9 2) compatibility of the technical 

characteristics of the Federal Government bands; 3) the feasibility of using Federal Government 

bands; and 4) public benefits of the systems currently operating in the Federal Government bands. 

SELECTION OF FEDERAL GOVERNMENT FREQUENCY BANDS TO BE 

CONSIDERED FOR ALTERNATIVE FREQUENCIES 

State and Local Public Safety Spectrum Allocations Above 100 MHz 

An overview of the current state and local public safety frequency bands above 100 MHz 

is provided in Table 2-1. 

NTIA focused this report on spectrum above 100 MHz since spectrum congestion 

experienced by state and local public safety voice communication systems occurs above 100 MHz. 

In addition, as shown below, all of the current frequency bands for state and local public safety 

use are below 1000 MHz. Since the criteria used in this report is to identify alternative 

frequencies in proximity to the current frequency allocations for state and local public safety 

agencies, Federal Government spectrum above 1000 MHz will not be considered. This will limit 

consideration to federally-allocated frequency bands above 100 MHz and below 1000 MHz. 

9 Federal Government frequency bands that are in close proximity will have similar propagation 

characteristics and will reduce the costs associated with modifying the existing state and local public 

safety equipment. 

2-1 
Table 2-1

Overview of State and Local 

Public Safety Frequency Bands Above 100 MHz

Frequency Band 

(MHz) 

150-162 

173.2-173.4 

220-222a 

450-470 

470-512 

764-776 and 794-806 

806-821 and 851-866 

821-824 and 866-869 

a

 A portion of this band is allocated for Federal Government use. 

Federal Government Frequency Allocations 

Table 2-2 provides an overview of the frequency bands between 100 MHz and 1000 MHz 

that are allocated to the Federal Government on a primary basis. These bands will be examined to 

determine if spectrum can be identified for alternative frequencies for state and local public safety 

use. 

2-2
Table 2-2

Overview of Federal Government Frequency Allocations 

in the 100 - 1000 MHz Frequency Range

Frequency Band 

(MHz) 

Primary Allocation(s) 

108-117.975a Aeronautical Radionavigation 

117.975-137a Aeronautical Mobile (Route) 

137-138a Space Operation (space-to-Earth); Meteorological Satellite (space-to-Earth); Space 

Research (space-to-Earth); Mobile-Satellite (space-to-Earth) 

148-149.9a Fixed; Mobile; Mobile-Satellite (Earth-to-space) 

149.9-150.05a Mobile-Satellite (Earth-to-space); Radionavigation-Satellite 

150.05-150.8 Fixed; Mobile 

157.0375-157.1875 Maritime Mobile 

162.0125-173.2c Fixed; Mobile 

173.4-174c Fixed; Mobile 

220-222a Fixed; Land Mobile 

225-399.9b Fixed; Mobile; Mobile-Satellite; Aeronautical Radionavigation 

399.9-401a Radionavigation Satellite; Standard Frequency and Time Signal Satellite; Mobile-Satellite 

(Earth-to-space); Meteorological Aids; Meteorological Satellite (space-to-Earth); Space 

Research (space-to-Earth); Mobile-Satellite (space-to-Earth); Space Operation (space-to-Earth) 

401-402a Meteorological Aids (radiosonde); Space Operations (space-to-earth); Earth 

Exploration-Satellite (earth-to-space); Meteorological-Satellite (earth-to-space) 

402-403a Meteorological Aids (radiosonde) 

403-406a Meteorological Aids (radiosonde); Earth Exploration Satellite; Meteorological Satellite 

406-406.1a Mobile-Satellite (Earth-to-space) 

406.1-420d Fixed; Mobile; Radio Astronomy; Space Research (space-to-space) 

420-450 Radiolocation 

608-614a Land Mobile; Radio Astronomy 

902-928 Radiolocation 

932-935/941-944a Fixed 

960-1215a Aeronautical Radionavigation; Radionavigation Satellite (space-to-Earth) 

a

 Allocated for shared government (i.e., Federal)/non-government use.

b The 328.6-335.4 MHz portion of this band is used for the glide slope application of the ILS.

c

 Hereinafter, these bands will collectively be referred to as the “162-174 MHz band”. d The radio astronomy service is a shared government/non-government allocation in the 406.1-410 MHz portion of

this band.

2-3
ANALYSIS OF FEDERAL GOVERNMENT FREQUENCY BANDS 

NTIA determined the bands to be considered for alternative frequencies for use by state 

and local public safety systems through an elimination process using the criteria identified earlier. 

The discussion is structured around five categories representing the functions supported in the 

bands used by the Federal Government identified in Table 2-2: 

• Aviation Communications and Radionavigation 

• Fixed and Mobile Communications 

• Space and Environmental Sciences 

• National Security 

• Satellite Communications 

Aviation Communications and Radionavigation. Safe travel in the air is vitally dependent 

upon interference-free use of the radio frequency spectrum for both aeronautical communications 

and radionavigation services. The frequency bands 108-118 MHz, 118-137 MHz, 328.6-335.4 

MHz, and 960-1215 MHz are allocated to the aeronautical radionavigation, aeronautical mobile 

(route), and radionavigation satellite services. These bands support a variety of civil, non-federal, 

and DoD provided aeronautical safety functions. These are shared government/non-government 

bands. 

The 108-118 MHz band is used by the Instrument Landing System (ILS), VHF 

Omnidirectional Range, and Local Area Augmentation Systems for GPS, which are used 

extensively by civil and federal aircraft. The estimated number of ILS sites is projected at 1,020 

in the year 2005.10 

The 118-137 MHz band is used for air traffic control communications. The Federal 

Aviation Administration (FAA) operates over 3,000 radio stations in this band to serve all 

elements of air traffic services, weather alerting, landing and take-off, en route control, and 

emergency communications.11 In addition, on an “as required” basis, FAA provides radio 

frequency support for the aeronautical communications needs of public safety agencies such as 

Treasury, Customs, and Forestry for law enforcement and firefighting requirements. To meet the 

growing demands for aeronautical voice communications in this band, new technology is planned 

to be implemented (e.g., time division multiple access) that will increase the spectrum efficiency of 

systems using this band. 

10 National Telecommunications and Information Administration, U.S. Department of Commerce, NTIA 

Special Publication 94-31, U.S. National Spectrum Requirements: Projections and Trends (Mar. 1995) 

at 111 [hereinafter “NTIA Special Publication 94-31”]. 

11 National Telecommunications and Information Administration, U.S. Department of Commerce, NTIA 

Special Publication 94-27, Preliminary Spectrum Reallocation Report (Feb. 1994) at 4-21 [hereinafter 

“NTIA Special Publication 94-27”]. 

2-4 
The 960-1215 MHz band is used by a wide variety of aeronautical radionavigation systems 

including: Distance Measuring Equipment; the Tactical Air Navigation system; the Air Traffic 

Control Radar Beacon System; and the Universal Access Transceiver. In addition, the band is 

authorized for use by DoD’s Joint Tactical Information Distribution System on a non-harmful 

interference basis. At the 2000 World Radio Conference, a new allocation was added to the 

1164-1215 MHz portion of the band for a new GPS signal, GPS L5, to be used by international 

civil aviation. The FAA provides management of this band, as well as the other bands designated 

for the Aeronautical Assignment Group.12 

The technical characteristics of the equipment used in these bands and the international 

standardized nature of the systems operated in these bands is not consistent with the equipment 

used by state and local public safety agencies. Due to the critical nature of the aeronautical safety 

services provided in these bands, and the airborne nature of their use, sharing would not be 

possible and, therefore, the 108-118 MHz, 118-137 MHz, 328.6-335.4 MHz, and 960-1215 MHz 

bands were not considered to be possible alternative frequencies for use by state and local public 

safety systems. 

Fixed and Mobile Communications. The 157.0375-157.1875 MHz band is allocated to the 

Federal Government for maritime mobile operations. The primary use of this band is for the 

United States Coast Guard (USCG) ship-to-shore radio communications for safety and distress 

response functions, marine safety broadcasts, and command and control of USCG vessels. This 

band is also used for communications with the general maritime community. The band is divided 

into six channels. Two of these channels have specialized use associated with non-government 

maritime mobile operations. The frequencies in this band are international maritime mobile 

channels, and are controlled by various international rules and regulations.13 For these reasons, 

this band was not considered to be a possible alternative frequency band for state and local public 

safety systems for interoperability with Federal Government public safety systems. 

The Federal Government non-tactical land mobile operations are accommodated in the 

162-174 MHz and 406.1-420 MHz bands. These bands are the most widely used by the federal 

agencies. Forty-eight federal agencies are authorized to operate in the 162-174 MHz band and 47 

agencies in the 406.1-420 MHz band.14 These bands are in close proximity to spectrum currently 

allocated for state and local public safety agencies. Thus, the radiowave propagation 

characteristics and system coverage will be essentially the same. The federal systems in these 

bands use a wide range of equipment types in a variety of geographic environments for voice and 

data communications. Common types of equipment include base and repeater stations, mobile 

12 The Aeronautical Assignment Group (AAG), chaired by the FAA, is responsible for engineering AAG 

frequency assignments and determining whether or not applications for frequency assignment action 

should be approved by NTIA. 

13 International Telecommunications Union, Appendix S 18. 

14 NTIA Special Publication 94-27 at 14. 

2-5 
stations, and hand-held portable stations. In nearly all cases, the equipment used by the federal 

agencies is the same type of “off-the-shelf” equipment used by state and local public safety 

agencies.15 Therefore, state and local public safety systems could use these bands with minimal 

modification to their existing equipment. Based on these factors, the 162-174 MHz and 406.1-420 

MHz bands were considered to be possible alternative frequencies for use by state and local public 

safety systems. 

The 220-222 MHz band is allocated for fixed and land mobile services, with a requirement 

for 5 kHz channelization. There are 200 frequency pairs for shared federal and non-federal 

operations. However, only 10 channels are for exclusive Federal Government use. The complete 

channeling plan is described in the NTIA Manual.16 Currently, the only technology that has been 

identified to satisfy the 5 kHz channelization requirement is amplitude companded singlesideband, an analog modulation scheme.17 Although this band is in close proximity to current 

state and local public safety allocations, there is a significant difference in the technical standards 

for the equipment. State and local public safety equipment is currently based on 25 kHz 

channelization primarily employing analog modulation with voluntary migration to 12.5 kHz and 

eventually 6.25 kHz channel bandwidths utilizing digital modulation. The channelization and 

modulation schemes employed by the state and local public safety equipment are incompatible 

with those used in the 220-222 MHz band. Furthermore, most of the non-federal channels in this 

band have been licensed through competitive bidding. Based on these factors, the 220-222 MHz 

band was not considered to be a possible alternative frequency band for use by state and local 

public safety systems. 

The 932-935 MHz and 941-944 MHz bands are allocated to the Federal Government and 

non-federal users for the fixed services on a co-equal shared basis.18 These bands are an 

important resource to satisfy low-capacity Federal Government fixed communications systems. 

Most of the Federal Government applications that use these bands are located in areas where 

commercial communications service is either unavailable or cost prohibitive. Satisfying these lowcapacity communication requirements in higher frequency bands will generally result in less 

efficient use of the spectrum because of the non-availability of suitable low-capacity radio 

equipment.19 The equipment that uses these bands typically transmits on a frequency in one band 

15 Id. at D-2. 

16 NTIA Manual, Section 4.3.15 at 4-198. 

17 Institute for Telecommunication Sciences, National Telecommunications and Information 

Administration, U.S. Department of Commerce, NTIA Report 94-311, A Survey of Relative Spectrum 

Efficiency of Mobile Voice Communication Systems (July 1994) at 31. 

18 National Telecommunications and Information Administration, U.S. Department of Commerce, NTIA 

Special Publication 98-36, Spectrum Reallocation Report Response to Title III of the Balanced Budget 

Act of 1997 (Feb. 1998) at 3-21 [hereinafter “NTIA Special Publication 98-36”]. 

19 Id. at 3-22. 

2-6 
with a corresponding receive frequency in the other band or a paired channel. This means that 

one cannot consider spectrum in one band without impacting the other band. Moreover, the 

lower frequency band is located 63 MHz from the highest state and local public safety frequency 

band (866-869 MHz), which means that the existing public safety equipment would require 

modification. Based on these factors, and extensive non-Federal Government use, the 932-935 

MHz and 941-944 MHz bands were not considered to be possible alternative frequencies for use 

by state and local public safety systems. 

Space and Environmental Sciences. As shown in Table 2-2, the 137-138 MHz and 399.9-401 

MHz bands have many different radio services allocated in a small amount of bandwidth (e.g., 1 

MHz or less). In order to accommodate these diverse radio services, new sharing techniques had 

to be employed. For example, in the 137-138 MHz band, co-frequency sharing in the same 

geographic area with the mobile-satellite systems was not possible; consequently, a time sharing 

approach had to be employed. Moreover, in both of these bands, there are allocations for satellite 

downlinks, which would make sharing with ground based public safety systems difficult. 

Although close in proximity to the spectrum allocations for state and local public safety, sharing 

with the many different radio services is not a viable option. Therefore, these bands were not 

considered to be possible alternative frequencies for use by state and local public safety systems. 

The 401-402 MHz, 402-403 MHz and 403-406 MHz bands are allocated on a world-wide 

basis for the meteorological aids service. In addition, the 402-403 MHz band is also allocated to 

Earth Exploration Satellites and Meteorological Satellites. The equipment employed in these 

bands provides many of the observations and weather reports, issues forecasts and warns of 

weather and flood conditions affecting national safety and the economy. The data collected by the 

equipment used in these bands is shared among federal agencies, state, and local governments, 

academic research programs, and private weather-forecasting firms. Because of the national and 

agency specific meteorological functions and requirements, the Federal Government is the largest 

user of meteorological aids equipment in these bands.20 The current frequency allocations for 

meteorological aids are adequate for the foreseeable future. As new meteorological aids systems 

are introduced, all attempts will be made to field these systems in the existing allocations.21 In 

view of the importance of these bands for weather prediction as well as the services already 

provided to the public by the systems operating in these bands, sharing with public safety would 

not be possible.22 Therefore, these bands were not considered to be possible alternative 

frequencies for use by state and local public safety systems. 

20 NTIA Special Publication 94-31 at 173.

21 Id. at 176.

22 NTIA Special Publication 98-36 at 3-21.

2-7 
The 608-614 MHz band is allocated for land mobile (medical telemetry and telecommand 

operations only) and radio astronomy observations.23 Federal and university radio astronomy 

research activities are interrelated and complementary. While using a portion of this band could 

satisfy the alternative frequency requirements, it would come at the expense of domestic and 

international radio astronomy research, depriving the public of new scientific discoveries. 

Because of the importance of the frequencies allocated on an exclusive basis for radio astronomy 

observations and the extreme sensitivity of the receivers, loss of a portion of the band or sharing 

the band with public safety systems would have a significant detrimental effect on national radio 

astronomy operations. For this reason, the 608-614 MHz band was not considered to be a 

possible alternative frequency band for state and local public safety systems. 

National Security. The Army, Navy, and Air Force heavily use the 150.05-150.8 MHz band to 

support air-to-ground, air-to-air, and air-ground-air tactical communications. As a result of the 

large line-of-sight distances from aircraft, the emissions from airborne tactical radios could make 

co-channel sharing with land-based receivers difficult over large geographic areas of the country. 

Following September 11, military use of these tactical radios is expected to increase. 

Furthermore, use of the 150.05-150.8 MHz band is subject to coordination/agreement with both 

Canada and Mexico. Based on these factors, this band was not considered to contain possible 

alternative frequencies for state and local public safety systems. 

The 225-399.9 MHz band consists of several band segments that are used by the DoD in 

support of its national security mission. Tactical fixed and mobile communications are performed 

in the 225-328.6 MHz and 335-399.9 MHz portions of the band. The systems operating in these 

band segments support wartime functions; however, extensive peacetime training and alert 

exercises are conducted to maintain combat readiness.24 Military mobile satellite operations are 

conducted in the 235-322 MHz and 335.4-399.9 MHz segments of the band. Military satellite 

communications are essential to link the activities of ground, air, surface, and subsurface mobile 

platforms.25 The communications functions performed in the 225-399.9 MHz band are critical to 

DoD operations and this band is the single most critical spectrum resource of the tactical military 

forces.26 The 225-399.9 MHz band is in close proximity to public safety allocations and has 

similar technical characteristics. However, based on the extensive use and the importance of this 

band for military preparedness in defense of the Nation, the 225-399.9 MHz band was not 

considered to a possible alternative frequency band for state and local public safety systems. 

23 There are only five frequency bands below 5 GHz that are allocated for radio astronomy on an 

exclusive basis. 

24 NTIA Special Publication 98-36 at 2-5. 

25 Id. 

26 Id. at 2-6. 

2-8 
The 399.9-401 MHz segment of the band is allocated to the radionavigation satellite and 

mobile satellite services. Federal Government use of this band segment is limited to federal earth 

stations operating with non-Federal Government satellites. Therefore, this band was not 

considered a possible alternative frequency band for use by state and local public safety systems. 

The 420-450 MHz band is occupied by military land-based, airborne, and shipborne longrange search and surveillance radar systems used for national defense. The DoD has spectrum 

requirements for the radars that operate in this frequency band.27 The high power associated with 

these long-range radars will make sharing with in-band public safety systems impractical. 

Therefore, the 420-450 MHz band was not considered to be a possible alternative frequency band 

for use by state and local public safety systems. 

The 902-928 MHz band spectrum 

management structure is extremely complex 

as shown in Figure 2-1.28 The 902-928 

MHz band is allocated for primary use by 

the Federal Government for radiolocation, 

(shipborne air search radar systems), and by 

users of industrial, scientific, and medical 

(ISM) devices. Use of the spectrum by 

Federal Government fixed and mobile and 

automatic vehicle monitoring (AVM) 

systems is secondary to both of these uses. 

The remaining users of the 902-928 MHz 

band, licensed amateur radio operators and 

unlicensed devices operating under FCC 

Part 15 rules, operate on a secondary basis 

to all other uses, including AVM. Despite 

this complex spectrum allocation structure, 

this band effectively supports a number of 

critical federal requirements and a wide 

array of consumer and commercial 

applications. 

As a result of the large number of 

INDUSTRIAL, SCIENTIFIC & MEDICAL 

(primary) 

9

FEDERAL RADIOLOCATION (Military) 

(primary) 

9

FEDERAL RADIOLOCATION (Non-military)

(secondary)

9

FEDERAL FIXED AND MOBILE 

(secondary)

9

AUTOMATIC VEHICLE MONITORING

SYS. (non-government)-(secondary)

9

AMATEUR RADIO SERVICE

(secondary)

9

NON-LICENSED (FCC Part 15)

Figure 2-1. Allocation Hierarchy of the 

902-928 MHz Band 

diverse users that operate in this band, use by public safety is not seen as a viable option. The 

spectrum congestion seen by these overlapping radio services will probably be the greatest in 

27 NTIA Special Publication 94-31 at 126. 

28 NTIA Special Publication 94-27 at 4-8. 

2-9 
urban areas where the public safety spectrum is most needed. Based on these factors, the 902-

928 MHz band was not considered to contain possible alternative frequencies for state and local 

public safety systems. 

Satellite Communications. The 148-149.9 MHz band is used by many federal agencies 

including law enforcement, transportation, natural resource protection, emergency response, 

utility operation, and for tactical aviation communications. Satellite uplink operations in this band 

are authorized for the National Aeronautical and Space Administration (NASA), Department of 

Energy (DOE), National Science Foundation (NSF), and Department of State. This band is also 

essential to the support of the Civil Air Patrol and the United States Coast Guard (USCG) for 

search and rescue operations. Based on the current use of this band by the Federal Government, 

this band was not considered to be possible alternative frequencies for state and local public safety 

systems. 

The 149.5-150.05 MHz band is one of the few internationally allocated bands to the 

mobile satellite service (MSS) (earth-to-space). Federal Government use of this band is limited to 

earth stations operating with non-government satellites.29 Consequently, this band was not 

considered to be possible alternative frequencies for state and local public safety systems. 

The 406-406.1 MHz band is allocated to the mobile satellite service and is used for the 

Emergency Position Indicating Radio Beacon (EPIRB). The 406-406.1 MHz EPIRB signal 

frequency has been designated internationally for distress use only. The International CospasSarsat Program announced it will terminate satellite processing of distress signals from 121.5 

MHz and 243 MHz emergency beacons. Mariners, aviators, and other persons will have to 

switch to emergency beacons operating at 406 MHz in order to be detected by satellites. The 

Emergency Locating Transmitters (ELT) for aircraft also operate in this band. Based on the 

exclusive use of this band for EPIRB and ELT operations, this band was not considered to 

contain possible alternative frequencies for state and local public safety systems. 

Analysis Summary. As a result of this analysis, Federal Government frequency bands that will 

be considered for identifying alternative frequencies for use by state and local public safety 

systems are the 162-174 MHz and 406.1-420 MHz bands. 

FEDERAL GOVERNMENT FREQUENCY BANDS SELECTED FOR 

CONSIDERATION 

Based on the foregoing analysis, NTIA considered the 162-174 MHz and 406.1-420 MHz 

bands for state and local public safety use. As shown in Table 2-1, these bands also meet the 

established criteria of close proximity to current non-federal public safety frequency bands. 

29 NTIA Special Publication 98-36 at 2-9. 

2-10 
The Public Safety Wireless Network (PSWN) Program performed a study addressing the 

current wireless communications environment of state and local fire and EMS services.30 The 

study identified that 70 percent of the state and local fire and EMS services operated on at least 

one channel in the 150.8-162 MHz band. Of the remaining 30 percent, 31 percent used the 450-

512 MHz band. In a similar study conducted by the National Institute of Justice (NIJ) on 

state and local law enforcement agencies, more than 70 percent currently use the 150.8-162 MHz 

band and just less than 40 percent use the 450-512 MHz band.31 Based on these two studies, the 

majority of state and local public safety agencies extensively use the 150.8-162 MHz and 450-512 

MHz bands or a combination of both. 

SUMMARY 

The results of the PSWN and NIJ studies are consistent with the selection of the 162-174 

MHz and 406.1-420 MHz as the bands to be considered for identifying alternative frequencies for 

state and local public safety use. The bands primarily used by state and local public safety systems 

are comparable to the Federal Government bands selected for consideration for identification of 

alternative frequencies. The Federal Government bands identified are primarily used by Federal 

Government Public Safety for voice communications and are allocated for fixed and mobile usage, 

which is generally consistent with the state and local use. The propagation characteristics are 

identical and equipment used by both federal and state and local agencies are similar. For these 

reasons, this report will concentrate on the Federal Government bands of 162-174 MHz and 

406.1-420 MHz for identifying alternative frequencies for state and local public safety use. The 

feasibility of using these bands and the impact to public benefits will be discussed later in the 

report. 

30 Public Safety Wireless Network (PSWN) Program, PSWN Program Analysis of Fire and EMS 

Communications Interoperability (Apr. 1999) at 15. The PSWN is a federal program jointly sponsored 

by the Department of Justice and the Department of the Treasury created to study, develop strategies, 

and provide direct assistance in improving interoperability among federal, state, and local public safety 

agencies. Detailed information on the PSWN Program can be found on its Web site (www.pswn.gov). 

31 National Institute of Justice, State and Local Law Enforcement Wireless Communications and 

Interoperability: A Quantitative Analysis (Jan. 1998) at 27. The percentages do not add up to 100 

percent because agencies could report more than one type of channel usage. 

2-11 
SECTION 3 

FEDERAL OPERATIONS IN THE 162-174 MHz AND 406.1-420 MHz BANDS 

INTRODUCTION 

The 162-174 MHz and 406.1-420 MHz bands are the two most heavily used bands by the 

Federal Government. More than 40 percent of all federal agency frequency assignments in the 

Government Master File (GMF) are in these two bands.32 They are the primary public safety 

bands of the Federal Government. These bands, like the state and local 150-174 MHz and 450-

512 MHz bands, have the highest concentration of government users of all government bands 

below 512 MHz. The 162-174 MHz band is authorized for use by federal non-military agencies 

on a primary basis and is utilized for mobile and fixed services. The 406.1-420 MHz band is 

divided into two sub bands: the 406.1-410 MHz and 410-420 MHz bands. The 406.1-410 MHz 

band is allocated to fixed, mobile and federal and non-federal radio astronomy services on a 

primary basis. The 410-420 MHz band is allocated exclusively to the Federal Government fixed 

and mobile services on a primary basis. In addition, the 406.1-420 MHz band is the primary band 

for Federal Government trunked radio systems. It is also important to note that all Federal 

Government mobile bands are allocated on a co-primary basis with the fixed service, and these 

bands are used for fixed systems in addition to mobile systems, including fixed point-to-point, 

fixed point-to-multipoint, aeronautical mobile and maritime mobile systems.33 Thus, federal public 

safety mobile operations are shared with other Federal Government services in these bands. 

The Federal Government public safety agencies have similar operational needs as state and 

local agencies in that they both have requirements for basic voice and data communications, as 

well as video and high-speed data requirements. Federal public safety agency responsibilities 

encompass law enforcement, transportation, natural resources, emergency and disaster, and 

medical and administrative duties. While many of these responsibilities are similar to those of 

state and local public safety agencies, there are some additional responsibilities that are unique to 

federal agencies. Among these responsibilities are: protecting the President, other high-level 

officials, and foreign dignitaries; promoting public safety and efficiency in traveling via air, water, 

and land; interdicting entry of illegal persons and substances into the United States; establishing 

communications between disaster areas and relief forces; ensuring the swift search for and rescue 

of human life; protecting the national forests, parks and farmlands; and ensuring the security of 

energy generation and distribution networks. In addition, federal emergency response and public 

safety organizations conduct large scale exercises to prepare for and respond to a wide variety of 

emergencies and disasters, such as hurricanes, earthquakes, and chemical and nuclear power plant 

accidents. Furthermore, with the recent terrorist attacks on the United States, federal public 

32 The GMF is a complete listing of Federal Government frequency assignments and associated technical 

characteristics. 

33 PSWAC Final Report, Vol 1 at 16. 

3-1 
safety communications will be needed for both prevention and response to crises. Since these 

types of operations are often highly mobile, spectrum allocated to the mobile service is necessary 

to support these communications needs. Although most operations are conducted within the 

mobile service, public safety agencies also use fixed point-to-point and point-to-multipoint 

systems under the fixed service allocations. An additional requirement of federal public safety 

agencies is that operations are supported nationwide.34 

FEDERAL PUBLIC SAFETY AGENCY PLANS IN THE 162-174 MHz AND 406.1-420 

MHz BANDS 

The following paragraphs provide a summary of the comments submitted by the federal 

public safety agencies discussing their current and future plans for using the 162-172 MHz and 

406.1-420 MHz bands. A detailed description of the federal public safety agency comments is 

provided in Appendix B. 

Department of Justice 

The Department of Justice (DOJ) has a primary mission to “enforce the law and defend 

the interests of the United States according to the law, provide federal leadership in preventing 

and controlling crime, seek just punishment for those guilty of unlawful behavior, administer and 

enforce the Nation’s immigration laws fairly and effectively and ensure fair and impartial 

administration of justice for all Americans.”35 Wireless communications are critical to meet these 

mission requirements. DOJ uses both the 162-174 MHz and 406.1-420 MHz bands extensively 

for its operations. The 162-174 MHz band is its primary band for land mobile radio (LMR) use to 

successfully meet its growing mission requirements. The Justice Wireless Network (JWN) 

initiative will consolidate all of the DOJ bureaus into a single LMR communications system. This 

new digital narrowband system, which utilizes both the 162-174 MHz and 406.1-420 MHz bands, 

is being developed to increase spectrum efficiency, improve interoperability among all bureaus 

within DOJ as well as other federal law enforcement agencies, and maximize efficiencies and 

savings through shared communications systems. The JWN will consolidate the communications 

needs of the Office of the Attorney General, Federal Bureau of Investigation (FBI), Drug 

Enforcement Administration (DEA), Immigration and Naturalization Service (INS), U.S. 

Marshals Service (USMS), and Bureau of Prisons (BOP). 

Department of the Treasury 

The Department of the Treasury (Treasury) has a primary mission to promote prosperous 

and stable American and world economies, manage the government’s finances, safeguard our 

34 PSWAC Final Report Vol 1, Sec. 4.1.6. at 29. 

35 Letter from Merri Jo Gamble, U.S. Department of Justice, Justice Management Division, Wireless 

Management Office, to William D. Speights, Public Safety Program, National Telecommunications 

and Information Administration (Oct. 30, 2001) at 1 [hereinafter "Justice Letter"]. 

3-2 
financial systems, protect our Nation’s leaders, and pursue a safe and drug-free America.36 

Wireless communications are critical to meet these mission requirements. For example, the U.S. 

Secret Service (USSS) provides protection for the President, Vice President, and political leaders 

of the United States, as well as protection to visiting foreign dignitaries. Treasury uses both the 

162-174 MHz and 406.1-420 MHz bands for 95 percent of its law enforcement and protection 

operations. The vast majority (more than 80 percent) of this equipment operates in the 162-174 

MHz band. The Integrated Treasury Network (ITN) is a consolidated Treasury Wireless LMR 

architecture that will satisfy Treasury’s mission requirements, maximize resource sharing, and 

employ a complementary mix of infrastructure alternatives. The ITN will provide increased 

interoperability and comply with the NTIA narrowband (12.5 KHz) requirement. The Treasury 

Strategic Plan calls for using the 162-174 MHz band to satisfy nationwide or wide-area 

requirements and the 406.1-420 MHz band to satisfy local area or campus communications 

requirements.37 Treasury believes that the ITN will provide cost efficiencies and strong benefits 

for its users.38 In addition, the ITN will be based on narrowband digital technology standards and 

meet Treasury’s communications requirements through consolidation. The design also allows for 

interconnection with the JWN and other Federal Government, state and local public safety 

agencies. The ITN will consolidate the communications needs of the USSS, U.S. Customs 

Service (USCS); Bureau of Alcohol, Tobacco, and Firearms; and the Internal Revenue Service 

into one network. 

United States Coast Guard 

The USCG has a significant presence in the 162-174 MHz and 406.1-420 MHz bands. 

This allows the USCG to interoperate with other federal agencies during joint operations 

involving: search and rescue, counter-narcotics, immigration, and general law enforcement 

operations. These ongoing operations involve the DEA, USCS, INS, Border Patrol, and others 

using LMR applications as well as aeronautical and maritime applications. In addition to federal 

interoperability requirements, the USCG has numerous Memoranda of Understanding (MoU) and 

Memoranda of Agreement (MoA) in place for interoperability with state and local public safety 

agencies. 

One of the most important USCG systems used in their public safety role is the National 

Distress and Response System (NDRS), which consists of approximately 300 antenna sites with 

analog transceivers controlled by 46 regional communication centers. Much of the equipment 

was initially installed in the 1970s and is no longer commercially available or supportable. The life 

expectancy of the electronic equipment installed during this period was 15 years. Equipment that 

failed over the past 30 years was replaced with a mixture of older and newer equipment resulting 

36 Letter from James E. Downes, Department of the Treasury, Assistant Director, Wireless Program 

Management Office, to William D. Speights, Public Safety Program, National Telecommunications 

and Information Administration (Oct. 5, 2001) at 1 [hereinafter "Treasury Letter"]. 

37 Id. 

38 Id. 

3-3 
in a system of non-standard electronics. The National Distress and Response System 

Modernization Project (NDRSMP) plans to replace the antiquated NDRS communications system 

with enhanced functionality.39 These functions include Maritime Safety, Maritime Law 

Enforcement, and Nationwide and Marine Environmental Protection missions. The NDRSMP 

will provide communications between USCG facilities (e.g., Groups, Sections, Air Stations, Port 

Security Units, cutters, boats, aircraft, and selected vehicles). The USCG is entering the second 

phase of the NDRSMP. The project will cost an estimated $525 million, is being developed and 

implemented in two phases, and is designed to meet USCG needs for safety of life at sea and 

coastal law enforcement protection. The design includes a new focus on enhanced 

interoperability with the various federal, state and local public safety agencies that are their 

partners in public safety. 

Other Federal Public Safety Agencies 

Numerous other federal public safety agencies are actively initiating communications 

system replacement programs and are currently maintaining significant systems and infrastructure 

in the 162-174 MHz and 406.1-420 MHz bands. The Department of Agriculture (USDA) has 

various radio communication requirements.40 The USDA includes the Forest Service, which is 

involved in recreational management, law enforcement, fire fighting, incident support, and 

aviation services. USDA also has an Office of Inspector General; Animal, Plant and Health 

Inspection Service; and Food Safety and Inspection Service. All of these divisions have their own 

unique radio communications needs. The Department of the Interior (DOI)41 has radio 

communications requirements in support of the National Park Service, Bureau of Land 

Management, Fish and Wildlife Service, Bureau of Indian Affairs, Bureau of Reclamation, and the 

U.S. Geological Survey. The DOE42 has an important role in the protection of the Nation’s 

electrical resources at the various DOE conventional and nuclear power generating stations. 

DOE also operates the Nuclear Emergency Search Teams that respond to national and 

international incidents that involve numerous federal, state, and local public safety agencies. The 

Transportation Safeguards Division provides communications nationally for escort teams, which 

require real time response communications with local public safety agencies. Most of DOE’s 

communications needs center around DOE sites and laboratories. The DOE also partners with 

39 United States Coast Guard National Distress and Response System Modernization Project at 

http://www.uscg.mil/hq/g-a/ndrsmp. 

40 Letter from Marvin T. Storey, Telecommunications Manager, Wireless Programs Policy & Planning, 

U.S. Department of Agriculture, to William D. Speights, Public Safety Program, National 

Telecommunications and Information Administration (Oct. 30, 2001) at 1 [hereinafter "Agriculture 

Letter"]. 

41 National Telecommunications and Information Administration, U.S. Department of Commerce, NTIA 

Special Publication 01-44, Assessment of Electromagnetic Spectrum Reallocation - Response to Title 

X of the National Defense Authorization Act for FY 2000 (Jan. 2001) at 4-40 [hereinafter "NTIA 

Special Publication 01-44"]. 

42 Id. 

3-4 
the FBI to counter emerging threats to national security and public safety. The Federal Protection 

Service, under the General Services Administration, is responsible for the protection of federal 

properties. Again, each of these divisions or bureaus have their own communications needs to 

support their unique mission requirements. 

Each of these agencies plays a vital role in public safety/law enforcement, be it by 

patrolling campgrounds located on federal lands, monitoring the processing of food consumed by 

Americans, or monitoring environmental operations. The continued integrity of the 162-174 MHz 

and 406.1-420 MHz bands is vital to the ability of these Departments and agencies to perform 

mission critical functions. 

SPECTRUM EFFICIENT TECHNOLOGIES IN THE 162-174 MHz AND 406.1-420 MHz 

BANDS 

There is a growing demand for access to the 162-174 MHz and 406.1-420 MHz bands. 

The NTIA and the federal public safety agencies realize that the primary way to satisfy the 

growing demand for spectrum in these bands is to employ more spectrum efficient technologies. 

The areas in which the Federal Government is implementing spectrum efficient technologies 

include: migration to narrowband technology, integrated wireless networks, receiver performance 

standards, and trunking technology. 

Migration to Narrowband Technology 

In 1992, Congress passed the Telecommunications Authorization Act of 1992.43 Title I of 

this Act required NTIA to develop and implement a plan to make federal LMR systems use more 

spectrum efficient technologies. A report summarizing the plan and its implementation schedule 

was prepared and submitted to Congress as required by the legislation.44 As part of this plan, 

NTIA selected a 12.5 kHz channel width for re-channeling (or re-farming) the federal fixed and 

mobile bands.45 The reduction in channel width from 25 kHz to 12.5 kHz will effectively double 

the number of available channels in the 162-174 MHz and 406.1-420 MHz bands.46 

Federal public safety agencies have also engaged in a long-term standards development 

process known as Project 25 or TIA102. A collective effort by industry, the Telecommunications 

Industry Association (TIA, an ANSI accredited standards developing body) and individual 

members of state and local public safety agencies has resulted in the development of an extensive 

43 Telecommunications Authorization Act of 1992, Pub. L. No. 102-538, 106 Stat. 3533 (1992). 

44 National Telecommunications and Information Administration, U.S. Department of Commerce, NTIA 

Report 93-300, Land Mobile Spectrum Efficiency (Oct. 1993) at 1. 

45 Id. at 8. 

46 After Jan. 1, 2005, all systems in the 162-174 MHz band must conform to this standard. After Jan.1, 

2008, all systems in the 406.1-420 MHz band must conform to this standard. 

3-5 
set of standards for digital public safety wireless communications.47 Phase 1 of Project 25 specifies 

a 12.5 kHz channel width consistent with NTIA’s narrowband mandate. Phase 2 of Project 25 

provides a migration path to a narrower channel width of 6.25 kHz (or equivalent) as technology 

permits. The technology readiness obstacles currently associated with Project 25 Phase 2 include 

battery size and weight and oscillator stability.48 Also, based on information from manufacturers, 

the 6.25 kHz Phase 2 option is likely to be delayed several years due to technical problems with 

encryption techniques in very narrow bandwidths. The federal public safety agencies’ pursuit of 

more spectrum efficient technologies is a necessary tool to satisfy the growing demands for 

wireless communications within the Federal Government. 

Integrated Wireless Networks 

To increase spectrum efficiency and maximize the limited spectrum resources available to 

federal public safety agencies, Treasury and DOJ are each developing Integrated Wireless 

Networks (IWNs) to address the needs of the numerous bureaus and agencies within their 

departments. Treasury’s network, which is in the design stage, is referred to as the ITN. The 

estimated cost of the ITN is $500 million.49 The DOJ is in the process of developing the JWN, 

with an estimated completion cost of $1 billion.50 Both the ITN and JWN require that the limited 

spectrum resources in the 162-174 MHz and 406.1-420 MHz be used efficiently. Moreover, 

continued access to these bands is vital to the design and success of these networks. 

The ITN and JWN will provide nationwide coverage through hybrid LMR systems, which 

will consist of both trunked and conventional digital narrowband equipment. The ITN will be 

based on digital technical standards that maximize the use of the available spectrum. The JWN is 

planned to increase spectrum efficiency and maximize efficiencies through shared infrastructure, 

digital technology, and common procurement strategies.51 With limited spectrum resources in the 

162-174 MHz and 406.1-420 MHz bands, more federal public safety agencies are looking at IWNs 

to maximize the use of spectrum resources to meet the increasing spectrum demands of their 

agencies. 

47 The standards are published in the Telecommunications Industry Association/Electronics Industries 

Alliance (TIA/EIA), and the standards suite is referred to as TIA/EIA-102. These standards are 

developed through an American Standards Institute (ANSI)-accredited process. 

48 Public Safety National Coordination Committee, Recommendations to the Federal Communications 

Commission for Technical and Operational Standards for Use of the 764-776 MHz and 794-806 MHz 

Public Safety Band Pending Development of Final Rules (Feb. 25, 2000) at Appendix G4. 

49 NTIA Special Publication 01-44 at 4-40. 

50 Id. at 4-36. 

51 Id. 

3-6 
Receiver Performance Standards 

NTIA and the federal public safety agencies have long been advocates of technical 

standards for receivers to minimize interference and increase overall spectrum efficiency. State and 

local public safety entities are also recognizing the importance of establishing receiver standards to 

minimize interference.52 As the demand for wireless services continues to grow, straining the 

limited spectrum resources that are available, it is becoming increasingly important to manage the 

resource by considering the total system performance. Thus, both the transmitter and receiver 

performance characteristics must be considered for maximum spectrum efficiency. In the 162-174 

MHz and 406.1-420 MHz bands, NTIA has adopted receiver performance standards (in addition 

to transmitter performance standards) that include: intermodulation rejection, adjacent channel 

selectivity, and spurious response attenuation.53 NTIA and the federal public safety agencies 

believe that receiver performance standards are necessary to reduce interference from adjacent 

channel transmitters. This will allow transmitters and receivers to operate closer to each other in 

the spectrum, improve performance, and increase the overall efficiency of these bands. 

Trunking Technology 

The use of trunking technology as a means of increasing the efficiency and utility of 

spectrum resources is growing rapidly within both the 162-174 MHz and 406.1-420 MHz bands. 

Federal agencies use trunked systems for limited areas with a high concentration of use and for 

campus environments, such as federal prisons, hospitals, laboratories, and training facilities. The 

DoD has the largest number of trunked systems operating and planned within the 406.1-420 MHz 

band. DoD uses these systems to satisfy the important needs of national security, training, 

administration, and emergency preparedness at its various facilities. The planned federal IWNs will 

also use trunked systems in their designs to satisfy some of their requirements, especially in large 

cities. Trunking technology allows all agencies to more efficiently use the limited spectrum 

resources. 

SUMMARY 

The 162-174 MHz and 406.1-420 MHz bands are the most heavily used Federal 

Government frequency bands. Every federal public safety agency requires access to these bands 

for communication systems to meet their mission critical requirements. NTIA and the federal 

public safety agencies recognized the increased demand for access to these bands and took 

measures to implement spectrum efficient technologies. The migration to narrowband technology 

(or equivalent) will make more channels available and satisfy the need for additional spectrum in 

the near future. Integrated Wireless Networks, such as the ITN and JWN, will also utilize the 

limited spectrum resources in the 162-174 MHz and 406.1-420 MHz bands more efficiently. The 

52 Comments of the Association of Public Safety Communications Officials, International-Inc., Fourth 

Notice of Proposed Rulemaking, WT 98-86 (Sept. 25) at 15; Comments of the Public Safety National 

Coordination Committee, Fourth Notice of Proposed Rulemaking, WT 98-86 (Sept. 25) at 13. 

53 NTIA Manual, Section 5.3.5.2.B at 5-18. 

3-7 
receiver performance standards adopted by NTIA are necessary to mitigate the potential for 

interference and more effectively manage the limited spectrum resources in the 162-174 MHz and 

406.1-420 MHz bands and further enhance their utility. 

3-8
SECTION 4 

IMPLICATIONS OF REDUCING THE SPECTRUM AVAILABLE TO FEDERAL 

PUBLIC SAFETY AGENCIES 

INTRODUCTION 

The importance of radio communications to the federal public safety community cannot be 

overstated. In a large-scale disaster such as an earthquake, forest fire, or flood, numerous agencies 

from federal, state, and local governments and thousands of individuals come together to provide 

emergency medical assistance, fire suppression, rescue operations, infrastructure repair, crowd 

control and security, and food and shelter, and to begin the process of rebuilding. At a time when 

other means of communications are likely to be inoperable, public safety radio systems must 

provide reliable, instantaneous, and interference-free communications between the responders and 

their agencies. As discussed in the previous sections, the predominant bands used to support 

federal law enforcement and public safety communications are the 162-174 MHz and 406.1-420 

MHz bands. 

Federal public safety operations have evolved over the years to be critically dependent on 

the use of the radio frequency spectrum as a reliable and effective means for satisfying critical 

communications requirements. Since these types of operations are often highly mobile in nature, 

spectrum allocated to the land mobile service is necessary to support these communication needs. 

Since mobility is a critical factor, the location of these frequencies in the radio frequency spectrum 

is important. Spectrum below 1 GHz is needed because atmospheric and foliage penetration losses 

are relatively low, components are small, and efficient antennas can be used for hand-held 

operations. The lower atmospheric losses that exist in this region of the spectrum are necessary 

for the wide area communication systems that are required to support nationwide federal public 

safety operations. 

IMPACT OF REDUCING THE SPECTRUM AVAILABLE FOR FEDERAL PUBLIC 

SAFETY COMMUNICATIONS 

In accordance with the requirements Title VI of the Omnibus Budget Reconciliation Act of 

1993 (OBRA-93) and Title III of the Balanced Budget Reconciliation Act of 1997 (BBA-97), 

NTIA identified a total of 255 MHz of federal spectrum for reallocation to the private sector.54 As 

part of the response to OBRA-93 and BBA-97, NTIA performed analyses examining the feasibility 

of reallocating spectrum allocated to the federal land mobile service. 

54 In accordance with Section 1062 of the National Defense Authorization Act of Fiscal Year 2000, the 

President reclaimed 8 MHz reducing the total reallocated spectrum to 247 MHz. See National Defense 

Authorization Act for Fiscal Year 2000, Pub. L. No. 106-65, § 1062, 113 Stat. 512, 767-769 (1999) 

(Codified at 47 U.S.C. § 921 note). 

4-1 
The OBRA-93 analysis confirmed that the 162-174 MHz and 406.1-420 MHz bands were 

the most heavily used bands by the Federal Government.55 The analysis determined that the 

reallocation of any portion of this spectrum would result in a loss of federal investment and an 

increase in spectrum congestion in the remaining portions of the bands. Moreover, the resulting 

interference from increased spectrum congestion would have a degrading effect on the quality of 

service of federal public safety communications. It was concluded that because of the extremely 

high federal investment in LMR systems in these bands, the absence of comparable spectrum, and 

the critical use in supporting federal public safety missions, reallocation was not considered to be a 

viable option.56 

The BBA-97 analysis further confirmed that federal public safety agencies rely heavily on 

the 162-174 MHz and 406.1-420 MHz bands to support their missions.57 It was concluded that 

because of the critical public safety and law enforcement functions performed in these bands and 

the benefits such functions provided to the public, reallocation of these bands for non-federal use 

was not considered to be a viable option.58 

In response to Section 1062 of the National Defense Authorization Act for Fiscal Year 

2000, NTIA provided an assessment of the electromagnetic spectrum reallocation from the Federal 

Government to the private-sector in accordance with the requirements of OBRA-93 and BBA97.59 The NTIA assessment concluded that nearly every major federal department or agency 

includes a federal public safety function, with the Departments of Justice, Treasury, Defense, 

Agriculture, Interior, Energy, and the Federal Emergency Management Agency having particularly 

important roles as a result of their mandated missions.60 Most of the radio communications 

requirements supporting these federal public safety agencies are concentrated primarily in the 162-

174 MHz and 406.1-420 MHz bands. This assessment stated that frequency assignments in the 

162-174 MHz band were increasing at a rate of nearly 8 percent per year, while assignments in the 

406.1-420 MHz band were increasing at a rate of nearly 12 percent per year.61 These trends 

clearly showed that federal public safety communication requirements and their reliance on land 

55 National Telecommunications and Information Administration, U.S. Department of Commerce, NTIA 

Special Publication 94-27, Preliminary Spectrum Reallocation Report (Feb. 1994) at 4-22. 

56 Id. at 4-23. 

57 National Telecommunications and Information Administration, U.S. Department of Commerce, NTIA 

Special Publication 98-36, Spectrum Reallocation Report - Response to Title III of The Balanced 

Budget Act of 1997 (Feb. 1998) at 2-12. 

58 Id. at 2-13. 

59 National Defense Authorization Act for Fiscal Year 2000, Supra note 53. 

60 NTIA Special Publication 01-44 at x. 

61 Id. at 4-36 

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mobile communications systems were steadily increasing. Any loss of access to these frequency 

bands would be particularly harmful to federal public safety communications, since there are no 

suitable alternative replacement bands available.62 

As part of the PSWAC final report, an analysis was performed to determine the spectrum 

requirements of federal, state, and local public safety agencies.63 The PSWAC concluded that the 

existing Federal Government spectrum allocations will satisfy federal public safety spectrum 

requirements through the year 2010 provided: 

a) there is no reduction in the spectrum allocations for public safety; 

b) spectrum efficient technologies become available; and 

c) funds are available to implement spectrum efficient technologies.64 

The PSWAC conclusion is consistent with the conclusions reached in the NTIA OBRA-93 and 

BBA-97 analyses. All of the analyses conclude that the current frequency allocations for public 

safety systems cannot be reduced without jeopardizing the ability to perform the mission critical 

functions of the federal public safety agencies. 

FEDERAL AGENCY COMMENTS ON REDUCING SPECTRUM RESOURCES FOR 

PUBLIC SAFETY COMMUNICATIONS 

Several of the major federal public safety agencies have provided specific comments on the 

impact of reductions in the spectrum resources necessary to support their missions. 

Department of the Treasury 

Treasury stated that reallocating any portion of either the 162-174 MHz or 406.1-420 MHz 

land mobile bands would have a devastating effect on its bureaus and negatively impact its ability 

to carry out critical spectrum dependent missions and should be avoided at all costs.65 Treasury 

further stated that the 162-174 MHz band is also being used to replace systems that had 

to be relocated due to the loss of the 216-220 MHz and 1710-1755 MHz bands in compliance with 

OBRA-93 and BBA-97. 

62 Id. at 4-37. 

63 Final Report of the Public Safety Wireless Advisory Committee to the Federal Communications 

Commission and the National Telecommunications Administration, Volume 2 (July 1996) Appendices 

at B. [hereinafter "PSWAC Final Report Vol 2"] 

64 Id. at 643. 

65 Treasury Letter at 1. 

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Treasury further maintains that any loss of spectrum in the 162-174 MHz band will have a 

detrimental effect on its strategic and capital planning efforts to provide secure, effective, and 

efficient communications to support the Department.66 

Treasury’s nationwide build-out of the ITN in the 162-174 MHz band is dependent on 

continued access to the spectrum. Treasury stated that the explosion of wireless systems among 

federal public safety agencies, especially in large metropolitan areas where there is spectrum 

congestion, makes obtaining frequency clearance increasingly difficult with the current spectrum 

allotments.67 A reduction of the available spectrum would make it impossible, endangering the 

lives of federal law enforcement agents and officers.68 Treasury concludes that it is absolutely 

essential that sufficient spectrum in both the 162-174 MHz and 406.1-420 MHz bands be available 

to support the Department’s communication systems and maximize agent and officer safety, 

protect the Nation’s leaders and successfully accomplish Treasury’s diverse missions throughout 

the United States and its possessions.69 

Department of Justice 

The DOJ stated that the proliferation of land mobile systems in the 162-174 MHz and 

406.1-420 MHz LMR bands does not permit additional sharing without the loss of 

communications on the part of the Department and other agencies that already occupy the 

spectrum.70 Similar to the concerns raised by Treasury, the loss of spectrum in either band will 

also impact the implementation and effectiveness of the DOJ’s JWN. DOJ points out that the 

increasing demand for spectrum is an ongoing challenge that the Department faces within its own 

system architecture. To lose access to any portion of the spectrum in the 162-174 MHz and 

406.1-420 MHz bands that it currently has access to would severely impact an already spectrally 

constrained DOJ communications architecture.71 

Department of the Interior 

The DOI stated that it requires accessible land mobile spectrum in the 162-174 MHz and 

406.1-420 MHz bands because of the amount of public safety activities coinciding with the bureau 

missions.72 The DOI has analyzed its LMR systems in terms of priority, location, cost, and 

redundancy. This analysis identified cost savings to make maximum use of infrastructure resources 

66 NTIA Special Publication 01-44 at 4-41.

67 Treasury Letter at 1.

68 Id.

69 Id.

70 Justice Letter at 1.

71 Id.

72 NTIA Special Publication 01-44 at 4-41.

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available to all bureaus in the narrowband transition process. DOI believes that the investment of 

time and money to plan and engineer this effort will be wasted if the current LMR spectrum 

resources are reduced. DOI concludes that any loss of spectrum in the 162-174 MHz 

and 406.1-420 MHz bands will increase cost, disrupt current public safety communications efforts, 

and severely limit the ability of the Department to execute daily operational missions.73 

Department of Agriculture 

The USDA utilizes the 162-174 MHz and 406.1-420 MHz bands for short-range 

communications at fire camps and at operation bases at other incidents where wireline or 

microwave is not cost effective. Spectrum congestion is not the primary concern in these remote 

areas; it is the question of alternative spectrum if the current spectrum resource is reduced. USDA 

concludes that if spectrum access is reduced in the 162-174 MHz and 406.1-420 MHz bands, there 

are no suitable alternative bands that can be used to support its communications requirements.74 

TRENDS IN FEDERAL PUBLIC SAFETY SPECTRUM USAGE 

The number of frequency assignments in the 162-174 MHz and 406.1-420 MHz bands are 

steadily increasing, reflecting the increase of missions in support of the public. Since there are 

limited land mobile spectrum allocations, federal public safety agencies must employ new 

technologies to satisfy future spectrum requirements. Currently, significant effort is being focused 

in these bands to increase their spectral efficiency and capacity in an effort to satisfy the increasing 

user demand. As discussed in Section 3, two of the more important technology trends are 

narrowbanding and integrated wireless networks. Migration to more spectral efficient narrowband 

radios employing digital modulation and implementing integrated communications networks to 

increase spectrum efficiency is necessary if federal public safety agencies are to continue to meet 

their mission requirements using the available limited spectrum resources. 

SUMMARY 

Federal public safety requirements for use of the 162-174 MHz and 406.1-420 MHz bands 

are steadily increasing, as discussed earlier in this section. With this rapid expansion of spectrum 

use and the growing competition for scarce spectrum resources, the current frequency allocations 

for public safety LMR communications systems cannot be reduced without jeopardizing the ability 

to accommodate future spectrum requirements necessary to perform the mission critical functions 

of the federal public safety agencies. 

73 Id. at 4-43. 

74 Agriculture Letter at 1. 

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SECTION 5 

CURRENT FEDERAL INTEROPERABILITY EFFORTS 

INTRODUCTION 

Due to the use of dissimilar communications networks or different frequencies, most 

agencies from different jurisdictions cannot communicate directly with others. First responders 

may have equipment that operates in the same frequency bands. However, if the systems used 

have different receiver standards, modulation techniques, and/or encryption schemes, they will 

continue to have difficulty inter-operating. In order to carry out joint operations, agencies often 

are required to exchange personnel or radios just so they can communicate. 

Interoperability simply refers to the ability of public safety personnel to communicate by 

radio with staff from other agencies, on demand and in real time. There are three distinct types of 

interoperability: day-to-day, mutual aid, and task force. Day-to-day interoperability involves 

typical exchanges of information and coordination during routine public safety operations. 

Interoperability is required, for example, when firefighters from adjoining counties join forces to 

fight a fire or when regional law enforcement agencies must work together during a high speed 

pursuit. Mutual Aid interoperability involves the immediate need for assistance in response to 

large scale emergencies. The initiation of mutual aid assistance requests are generally covered by 

local or regional Mutual Aid Agreements, MoUs or MoAs. Task Force interoperability involves 

all agencies, federal, state and local, coming together for extended periods of time in response to 

large scale incidents such as criminal apprehensions, rescue operations, and large scale narcotics 

operations. 

For many years, federal agencies have shared spectrum and systems to meet the operational 

needs of public safety. Hundreds of agreements and MoUs have been entered into among federal, 

state and local public safety agencies to allow sharing of resources including spectrum, radio 

systems, dispatch facilities, real estate, and communications towers for the purpose of 

interoperability.75 The NTIA Rules and Regulations76 and the FCC Rules77 both allow and 

encourage this type of sharing arrangement. Much of it occurs at a local level, without national 

intervention, except for the recording of such agreements. This process has worked well for many 

years and continues to function today. For most requirements, this sort of arrangement is all that is 

needed for intercommunication or interoperability. 

75 An S160 annotation to an assignment indicates a particular frequency is used for interoperability 

purposes. It is made pursuant to Section 7.12 of the NTIA Manual and is coordinated in accordance 

with Section 8.3.3. 

76 NTIA Manual, Section 8.3.3 at 8-40. 

77 Part 300, Code of Federal Regulations, Title 47 Telecommunications, Part 2, § 2.103 at 373. 

5-1 
NTIA PUBLIC SAFETY PROGRAM 

Since the publication of the PSWAC Final Report, NTIA and federal public safety agencies 

have agreed that more needs to be done to improve federal, state and local interoperability. With 

that goal in mind, NTIA established a Public Safety Program to address the long-range spectrum 

requirements of federal public safety agencies, to develop a strategy to provide sufficient spectrum 

for growth of the current services, advanced technology, and interoperability, and to develop and 

implement a plan to meet these requirements. In its public policy role as advisor to the 

Administration for telecommunications issues, and specifically for public safety issues, NTIA 

expanded its involvement in public safety issues. Through this program, NTIA has strived to 

ensure adequate access to spectrum for public safety communications for the safe, effective, and 

efficient protection of life and property, to increase opportunities for sharing and interoperability 

among federal, state, and local entities, and to provide leadership and a federal liaison with various 

public safety groups. In its role as technology advocate, NTIA is actively involved in technology 

issues. It ensures that domestic and international technical standards are introduced to promote 

the application of advanced technology, enhance interoperability, and provide spectrum savings 

while preserving mission effectiveness. NTIA is also responsible for increasing government, 

industry, and public sector awareness of Administration policies and objectives. In addition, NTIA 

explored, through several single and multi-agency initiatives, methods for providing funding 

assistance to state and local agencies for planning and implementing interoperable public safety 

communications systems.78 NTIA will continue to explore options for funding these initiatives. 

FEDERAL INTERAGENCY PUBLIC SAFETY PROGRAMS AND WORKING GROUPS 

One of the primary efforts of NTIA in promoting the advancement and enhancing the 

importance of public safety communications issues involves direct leadership, policy, and technical 

support to the PSWN Program and the Federal Law Enforcement Wireless Users Group 

(FLEWUG).79 In its first phase, the PSWN program performed detailed studies of public safety 

issues dealing with the primary topics of spectrum, interoperability, funding, case studies, advanced 

technology, and federal, state and local partnerships. The PSWN is governed by the Executive 

Committee, made up of leaders of the public safety community who provide advice and guidance 

to the program. NTIA is an active member of the PSWN Executive Committee and the various 

working groups and task forces of the program. In this way, NTIA can best assist the public safety 

community by providing technical expertise and public policy guidance. 

78 Department of Justice, The Department of the Treasury, Department of Commerce and The Federal 

Law Enforcement Wireless Users Group, Funding of Public Safety Wireless Communications Systems, 

Report of the Interagency Working Group (June 1998). 

79 The FLEWUG is an interagency working group formed to address the common issues and technical 

solutions of federal public safety agencies. The PSWN program provides resources for the FLEWUG. 

5-2 
In coordination with NTIA and the primary federal public safety agencies, the PSWN 

Program is working with the public safety community to develop practical solutions and to lay a 

foundation for improving interoperability at all levels of government. At the end of its first phase 

of operation, the PSWN published its Wireless Interoperability Network Strategy (WINS).80 The 

WINS provides state and local agencies a snapshot of PSWN information resources, the current 

state of interoperability efforts throughout the Nation, and alternative solutions to support agencies 

with different performance, security, and reliability requirements. The second phase of the PSWN 

program consists of direct interoperability assistance services to state and local public safety 

agencies to help them address and resolve interoperability issues. PSWN will assist state and local 

agencies in the development of interoperability solutions that best fit their operational environment. 

Current PSWN projects that NTIA is supporting are shown in Appendix C. 

An example of a pilot interoperability program is the ongoing sharing effort between the 

Department of the Army and the State of Wisconsin. The Department of the Army, in 

coordination with NTIA, signed an MoA with the Wisconsin Department of Transportation 

(WDOT) to establish a shared (federal, state and local) Pilot Trunked Radio System utilizing 

Federal Government allocated frequencies.81 The purpose of the pilot system is to enhance 

interoperability between federal, state and local entities within the state. The pilot is a four site, 

narrowband system with WDOT providing the equipment and sites and the Department of the 

Army providing the spectrum resources. 

Lastly, in an effort to address the common issues and potential solutions to the needs of the 

public safety community at all levels of government, NTIA and the FCC formed a Joint Public 

Safety Working Group immediately after the PSWAC report was published. The dialog 

established during those meetings was an important step in addressing vital issues at all levels of 

government. The re-establishment of this group is appropriate and currently under consideration. 

ONGOING REGULATORY EFFORTS 

One of the most effective means of jump-starting the interoperability of federal, state, and 

local public safety agencies is to provide a spectrum resource for the sole purpose of 

interoperability. NTIA, in coordination with federal public safety agencies within the FLEWUG 

and the IRAC, developed a plan to designate 40 channels in the two primary Federal Government 

public safety bands (162-174 MHz and 406.1-420 MHz) for the purpose of Interagency Law 

Enforcement and Incident Response Operations.82 The PSWAC Final Report identified the need 

80 Public Safety Wireless Interoperability National Strategy at http://www.pswn.gov/pswins.htm. 

81 Memorandum of Agreement Between Assistant Secretary of Defense for Command, Control, 

Communications and Intelligence and Secretary, Wisconsin Department of Transportation (Mar. 

1998) at 1. 

82 NTIA Manual, Section 4.3.16 at 4-201. These are narrowband (12.5 kHz) channels. 

5-3 
for an additional 2.5 MHz of spectrum for federal, state and local interoperability.83 The 40 

channels NTIA designated for federal, state and local incident response and law enforcement 

interoperability represents 0.5 MHz of the 2.5 MHz of this spectrum. 

INTERAGENCY COMMITTEES 

On October 28, 1997, the IRAC established ad hoc committee 214. The objective of this 

ad hoc committee is to address the numerous issues dealing with public safety telecommunications 

and develop recommended plans, policies, procedures, and regulations for the improvement of 

interoperability among federal, state, and local public safety agencies. The committee is currently 

working with the FCC and FLEWUG in developing guidelines for making usage of the law 

enforcement and incident response interoperability frequencies more efficient and timely. 

SUMMARY 

NTIA and the federal public safety agencies have recognized the importance of 

interoperability at all levels of government and have been working to develop policies, 

interoperability channeling plans, rules, strategies, and pilot programs to enhance and improve 

interoperability. Significant gains have been made, but more work must be done. NTIA will 

continue to work with the FCC and public safety organizations to insure interoperability needs of 

the public safety community are addressed. 

83 PSWAC Final Report Vol 1 at 3. 

5-4 
SECTION 6 

SUMMARY/CONCLUSIONS 

INTRODUCTION 

The National Defense Authorization Act of 2001 directs Commerce and the FCC to jointly 

submit a report on alternative frequencies that could be made available for use by public safety 

systems. On behalf of Commerce, NTIA has completed its analysis of Federal Government 

spectrum that could constitute such alternate frequencies. 

SUMMARY 

NTIA’s review of Federal Government spectrum has identified the following: 

• The DoD has begun an engineering study to identify any potential sharing 

opportunities with public safety services in the 138-144 MHz band. It is premature 

to speculate as to the potential for sharing within this band until the engineering 

study is complete. 

• The criteria for determining alternative frequencies to the 138-144 MHz band were: 

1) the portions of the radio spectrum allocated to the Federal Government that are 

in close proximity to existing state and local public safety frequency allocations; 2) 

compatibility of the technical characteristics of the Federal Government bands; 3) 

the feasibility of using Federal Government bands; and 4) public benefits of the 

systems currently operating in the Federal Government bands. This will ensure that 

similar propagation characteristics exist and equipment is readily available. It was 

determined that the federal fixed and mobile bands of 162-174 MHz and 406.1-420 

MHz meet these criteria. 

• The predominant bands used to support federal law enforcement and public safety 

communications are 162-174 MHz and 406.1-420 MHz. Federal public safety 

operations have evolved over the years to be critically dependent on the use of the 

radio frequency spectrum as the primary, robust, reliable, and effective means of 

communications. 

• Federal public safety requirements for use of the 162-174 MHz and 406.1-420 

MHz bands are steadily increasing, reflecting the increase of mission critical 

functions in direct support of service to the public. Since there are limited fixed and 

mobile allocations, federal public safety agencies must employ new technologies to 

satisfy future spectrum requirements. 

6-1
• Through narrowbanding efforts, the Federal Government is using the spectrum 

more efficiently in order to satisfy their congressionally mandated missions. 

• The Treasury and Justice Departments are developing integrated communications 

networks that will rely heavily on the 162-174 MHz and 406.1-420 MHz bands. 

These integrated communications networks will employ spectrum efficient 

narrowband digital technology and are designed to allow for interconnection with 

other federal, state and local public safety agencies to enhance interoperability. 

• NTIA reports in response to OBRA-93, BBA-97, and Section 1062 of the NDAA 

for Fiscal Year 2000, concluded that any loss of access to the 162-174 MHz or 

406.1-420 MHz bands would be particularly harmful to federal public safety 

communications. Furthermore, the PSWAC Final Report concluded that the 

existing Federal Government spectrum allocations will satisfy federal public safety 

spectrum requirements through the year 2010, providing there are no reductions in 

the spectrum allocations. 

• During joint law enforcement and incident response operations, the Federal 

Government has a need to interoperate with state and local public safety agencies. 

NTIA, working with the FLEWUG and the IRAC, established a policy setting aside 

40 channels in the 162-174 MHz and 406.1-420 MHz bands for nationwide 

interoperability between federal, state and local public safety entities. 

• The PSWAC Final Report identified the need for an additional 2.5 MHz of 

spectrum for federal, state and local interoperability. The 40 channels NTIA 

designated for federal, state and local incident response and law enforcement 

interoperability represents 0.5 MHz of the 2.5 MHz of this spectrum. 

• Providing additional spectrum is not a total solution for solving the issue of 

interoperability. Spectrum alone will not achieve interoperability during either law 

enforcement or incident response operations. First responders from different 

jurisdictions may have equipment that operates in the same frequency bands, but 

will not be able to communicate with each other if the systems used are built to 

different technical standards (e.g., modulation, vocoders, encryption schemes). 

CONCLUSIONS 

The federal public safety requirements for use of the 162-174 MHz band and 406.1-420 

MHz bands are steadily increasing. With this rapid expansion of spectrum usage and the growing 

competition for scarce spectrum resources, the current frequency allocations for federal 

public safety communications systems cannot be reduced without jeopardizing the ability to 

accommodate future spectrum requirements necessary for mission critical functions. 

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NTIA recognizes the importance of interoperability with state and local public safety 

agencies and has identified spectrum from the limited resources in the 162-174 MHz and 406.1-

420 MHz bands for this purpose. NTIA will continue to work with the public safety community 

through such entities as the FCC, FLEWUG, ICHIEFS, IACP, PSWN, and other organizations to 

establish policies and programs to enhance interoperability between federal, state, and local public 

safety organizations. 

In its role as public policy advisor on telecommunications to the President, NTIA realizes 

that the interests of the Nation as a whole rest in assuring that public safety agencies at all levels of 

government have the resources they need to do their job effectively and with great resolve. As 

federal spectrum manager, NTIA must provide adequate spectrum resources for the federal public 

safety agencies and protect the ability of these agencies to perform their primary functions of 

protection of life and property, just as the FCC must do for the state and local public safety 

agencies. 

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APPENDIX A 

Floyd D. Spence National Defense Authorization Act for Fiscal Year 2001 

SEC. 1705. REPORT ON PROGRESS ON SPECTRUM SHARING. 

(a) STUDY REQUIRED- The Secretary of Defense, in consultation with the Attorney General and 

the Secretary of Commerce, shall provide for the conduct of an engineering study to identify­

(1) any portion of the 138-144 megahertz band that the Department of Defense can share in 

various geographic regions with public safety radio services; 

(2) any measures required to prevent harmful interference between Department of Defense 

systems and the public safety systems proposed for operation on those frequencies; and 

(3) a reasonable schedule for implementation of such sharing of frequencies. 

(b) SUBMISSION OF INTERIM REPORT - Within one year after the date of enactment of this 

Act, the Secretary of Defense shall submit to the Committee on Armed Services of the Senate and the 

Committee on Armed Services of the House of Representatives an interim report on the progress of 

the study conducted pursuant to subsection (a). 

(c) REPORT - No later than January 1, 2002, the Secretary of Commerce and the Chairman of the 

Federal Communications Commission shall jointly submit a report to Congress on alternative 

frequencies available for use by public safety systems. 

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Page A-2/Blank 

A-2
APPENDIX B 

Federal Public Safety Agency Input 

The contents of this appendix are actual inputs to this report as solicited from various 

federal agencies that have ongoing or pending communication systems upgrades designed to meet 

the narrowband mandate in the 162-174 MHz and 406.1-420 MHz bands. These inputs contain 

information previously published in the NTIA Special Publication 01-44, “Assessment of 

Electromagnetic Spectrum Reallocation, Response to Title X of the National Defense 

Authorization Act for FY2000," published in January 2001. The responding federal agencies 

reviewed and updated the information for inclusion in this report. 

Department of Justice84 

The majority of spectrum use by the DOJ is primarily in the 162-174 MHz band and 

secondarily in the 406-420 MHz band. Both bands are allocated for exclusive government land 

mobile use and are critical for successfully meeting DOJ mission requirements. 

In response to the NTIA narrowband mandate, and a congressional directive to consolidate 

all of the DOJ components into a single land mobile communications system, DOJ has undertaken 

a comprehensive effort to develop the Justice Wireless Network (JWN) concept. The consolidated 

JWN is a department-wide LMR system, which utilizes the 162-174 MHz and 406.1-420 MHz 

bands with current budget estimates of $1 billion. The JWN is planned to fulfill the following 

goals: 

C Increase spectrum efficiency 

C Improve interoperability among all department components, as 

well as other federal law enforcement agencies 

C Maximize efficiencies and savings through a shared infrastructure 

and common procurement strategies 

DOJ engages in a wide range of operations and functions that are supported by LMR 

systems. The utilization of LMR is critical for meeting departmental communications and 

information sharing requirements. DOJ is committed to providing its agents and personnel with 

effective tactical communications systems that are protected from unwanted monitoring and that 

maximize interoperability among components. These unique and essential features require the 

Department to maintain some level of LMR capability to ensure agent safety and to successfully 

accomplish the Department mission. Congress has recognized the necessity of a tactical LMR 

system and validated the DOJ goal to provide compatible and secure communications among all 

DOJ components to support joint missions and to share infrastructure for tactical and safety of life 

uses. Development of the JWN concept included evaluation and application of commercial 

84 Justice Letter at 1-2. 

B-1
services to the maximum extent possible. The new consolidated JWN concept includes a 

commercial services component for administrative uses that are not part of the cost estimate for 

the LMR system portion. The evaluation of commercial services revealed that the DOJ critical 

requirement for 24 hours a day/7 days a week priority tactical dispatch communications support 

could not be met by commercial services. 

The DOJ mission is to “enforce the law and defend the interests of the United States 

according to the law, provide federal leadership in preventing and controlling crime, seek just 

punishment for those guilty of unlawful behavior, administer and enforce the Nation’s immigration 

laws fairly and effectively and ensure fair and impartial administration of justice for all Americans.” 

Wireless communications are critical to successfully meeting mission requirements and in many 

instances provide a lifeline during the conduct of these missions. The proliferation of the 162-174 

MHz and 406.1-420 MHz government exclusive bands does not permit additional sharing without 

the express loss of communications on the part of DOJ and other agencies who already occupy this 

spectrum. The inability of the DOJ to achieve its mission goals by removal of the spectrum must 

be taken into consideration in any spectrum sharing in either the 162-172 MHz and 406.1-420 

MHz government exclusive spectrum bands. The burgeoning demand for spectrum is an ongoing 

challenge that the DOJ faces within its own architecture. To relinquish any portion of what we 

currently use or to submit to sharing would severely impact an already spectrally constrained DOJ 

communications architecture. 

Department of Agriculture (USDA)85 

The Department of Agriculture’s (USDA) radio requirements involve primarily 

conventional land mobile radio systems. These requirements are concentrated in three bands, 162-

174 MHz, 406.1-420 MHz, and 1710-1850 MHz. There is also a small but growing requirement 

in the 30-50 MHz band. Several agencies within the USDA rely heavily on land mobile radio 

systems to accomplish their missions. The USDA has more than 70,000 radios supporting its 

varied missions. More than 60,000 radios, consisting of repeater stations, base stations, mobiles 

and portables, are in the 162-174 MHz band. These systems also support communications with 

the approximate 800 contracted and owned aircraft flying between 50,000 and 100,000 hours each 

year. 

One of the two Federal Response Plan (FRP) Emergency Support Functions (ESF) where 

the USDA has primary responsibility is ESF-4 Firefighting. Within this function, the Forest 

Service provides the primary firefighting detection and suppression of wildland, rural, and urban 

fires resulting from or occurring coincidentally with a major disaster or emergency requiring 

federal response assistance. The National Interagency Fire Center (NIFC) in Boise, Idaho, 

maintains the National Incident Radio Support Cache and the National Fire Supplies and 

Equipment Cache. These caches of radios and equipment are available and regularly used in 

support of the FRP. The Forest Service has secondary support functions in six additional ESFs. 

85 Agriculture Letter at 1-2. 

B-2
Radio communications are a mandatory requirement in each of these activities, in particular, ESF2, where the Forest Service provides radio communications systems support of firefighters, law 

enforcement officers, and disaster response operations. This includes the additional radio systems 

required for the establishment of a Disaster Field Office (DFO) radio net. 

The USDA utilizes the 406.1-420 MHz band to a lesser degree than the 162-174 MHz 

band however, it still plays a major part in USDA’s activities. The NIFC maintains portable 

system caches in this band for short-range communications at fire camps and for operations bases 

at other incidents. Equipment in this band is also used for interconnecting repeaters, base stations, 

or telephone lines where wireline or microwave is not cost effective. 

Forest Service. The Forest Service, in support of its mission, accounts for more than 80 percent 

of the Department’s radio use. The Forest Service’s activities include wildfire firefighting, law 

enforcement, search and rescue, and other normal daily administrative and operational use 

involving the management of 140 million acres of public land. This includes 155 national forests, 

wilderness areas, national grasslands, national primitive areas, national scenic and research areas, 

national wild and scenic rivers, national recreation areas, national game refuge and wildlife 

preserves, national monument areas, national historic areas, and national volcanic monument areas. 

There are many responsibilities included in this management that require reliable radio 

communications. Most of these are in rural areas. 

Recreation Management: Includes over 330 million visitor days per year involving 5,885 

campgrounds, 328 swimming developments, 1,222 boating sites, 250 winter sports sites, 

124,600 miles of rivers, and 369,000 miles of roads. 

Law Enforcement: Communications to support investigation and enforcement of wildland 

arson, archeological theft, timber theft, illegal drug activities, and access and control of 

wildfire areas. Of special interest is the “urban” environment of some national forests 

during recreation season. There is a substantial requirement in law enforcement support of 

vehicle traffic, personal property theft, and domestic violence. 

Incident Support: Communications support for incidents such as wildfires, earthquakes, 

hurricanes, volcanic eruptions, oil spills, and nuclear disasters. In 1996 alone, over 6,000 

radios were issued out at an average of seven times each. 

Aviation: Communications support to coordinate aircraft operations. This includes an 

owned fleet of 42-fixed wing (air tankers, lead planes, air attack, smokejumper, infrared 

scan) and one rotary. A contracted fleet – 39 fixed wing aircraft (air tankers, air attack, 

smokejumper) and 505 rotary wing aircraft. Most are used in support of wildland 

firefighting; however, some are also used to transport personnel and equipment to support 

other incidents. 

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Office of Inspector General. Communications to support special agents conducting their 

investigations of violations of federal law as they pertain to the Department. They also provide 

protection to the Secretary of Agriculture. 

Animal Plant and Health Inspection Service. The Animal Plant and Health Inspection Service’s 

primary activities include inspection and eradication of plant pests, animal diseases, and wildlife 

damage. Radio support for these activities includes air to ground, ground to ground, and 

telemetry. Inspection officers often work with port authorities for the inspection of cargo on 

international arrivals. Field veterinarians work in both local and remote sites to help diagnose 

animal disease in hopes of controlling or preventing disease spread. 

The Food Safety and Inspection Service. Compliance and Investigation Division (CID), 

requires radio support for its investigations of violations involving meat, poultry, and/or egg 

products laws and regulations. CID interests are in the prevention of potential threats to human 

health and safety that could occur when clandestinely slaughtered livestock or adulterated products 

are placed in the human food channels. 

Department of the Treasury86 

The Secretary of the Treasury, as the Chief Financial Officer of the United States, advises 

the President on financial and tax policy matters. The majority (approximately 60 percent) of the 

U.S. Department of the Treasury’s responsibilities relate to promoting prosperous and stable 

American and world economies and managing the government’s finances. The law enforcement 

activities of the department protect our financial systems and our Nation’s leaders, and enable the 

pursuit of a safe and drug-free America. 

Treasury agents and officers are charged with reducing the trafficking, smuggling, and use 

of illicit drugs; suppressing the illegal trafficking, possession, and use of firearms and explosives; 

and combating financial crimes and money laundering. Additionally, the bureaus are responsible 

for protecting our Nation’s leaders and visiting foreign dignitaries; fighting violent crime; providing 

high quality training for law enforcement personnel; and protecting Treasury facilities and securing 

high-value assets. 

The vast majority (almost 95 percent) of Treasury’s law enforcement and protection 

operations is conducted on communications systems using the two federal land mobile bands, 

(162-174 MHz and 406.1-420 MHz). The majority (more than 80 percent) of this equipment 

operate in the 162-174 MHz band. The Treasury Strategic Plan calls for using the 162-174 MHz 

band to satisfy nationwide or wide-area requirements and the 406.1-420 MHz band to satisfy local 

area or campus communications requirements. 

86 Treasury Letter at 1-2. 

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Treasury's Wireless LMR Vision. A consolidated Treasury Wireless LMR architecture, known 

as the Integrated Treasury Network (ITN), that satisfies bureau mission requirements, maximizes 

resource sharing, employs a complementary mix of infrastructure alternatives, provides 

interoperability, and complies with federal requirements and initiatives. 

The ITN will provide Treasury bureaus nationwide coverage through a LMR system that 

will consist of both trunked and conventional VHF digital narrowband equipment. The ITN will 

provide over-the-air-rekeying and over-the-air-programming capabilities to Treasury agents and 

officers thereby saving time and manpower costs. Total estimated cost to study, design, build-out, 

operate, and maintain the ITN through 2005 is about $486 million. 

Treasury believes that the ITN will provide cost efficiencies and high benefit for Treasury 

users. Additionally, the ITN will be based on digital technical standards that address common 

bureau requirements and realize management and resource efficiencies through consolidation, 

sharing, centralization, and targeted use of commercial services. The ITN provides the flexibility 

to support bureau unique mission-critical law enforcement and protective requirements. It not 

only accommodates increased interoperability among Treasury bureaus, but also allows for 

interconnection with the Justice Wireless Network (JWN) and other Federal Government and state 

and local public safety entities. Implementation of the ITN began in Fiscal Year 2001 and, pending 

availability of funds, Treasury plans to have the ITN fully implemented by December 31, 2004, to 

successfully meet NTIA’s narrowband mandate. Additionally, Treasury has negotiated with 

vendors to provide not only LMR systems, but body-worn transmitters and receivers, tactical 

receivers, vehicle and package tracking transmitters and receivers, and video control equipment in 

the 162-174 MHz band. The majority of the equipment will be synthesized, allowing limited 

frequency flexibility. Use of this equipment is not limited to specific regions or areas, but will be 

utilized anywhere in the United States and possessions. 

The department’s nationwide build-out of the ITN in the 162-174 MHz band and use of the 

406.1-420 MHz at various sites throughout the Nation is dependent on use of the spectrum. The 

explosion of wireless systems among the federal agencies, especially in large metropolitan areas, 

makes obtaining frequency clearance increasingly difficult, which endangers the lives of federal law 

enforcement agents and officers. It is absolutely essential that sufficient spectrum in both 162-174 

MHz and 406.1-420 MHz bands be available to support the department’s systems and maximize 

agent and officer safety, protect the Nation’s leaders, and successfully accomplish Treasury’s 

varied missions throughout the United States and possessions. 

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APPENDIX C

Current PSWN Interoperability Pilot and Demonstration Programs

Figure C-1. PSWN Pilots 

Source: PSWN Web site (www.pswn.gov) 

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PSWN INTEROPERABILITY PILOT AND DEMONSTRATION 

PROGRAM DESCRIPTIONS87 

SOUTHWEST BORDER PILOT 

This pilot provides a unique solution for interoperability between proprietary trunked 

systems. The PSWN Program is implementing a fixed site talk group-to-talk group or 

conventional channel-to-talk group interoperability link that will allow subscriber units in each city 

to talk to subscriber units in the other. This pilot is being conducted in Las Cruces, New Mexico 

and El Paso, Texas. 

SOUTH FLORIDA PILOT 

This pilot demonstrates quick system implementation of a discrete, short-term 

interoperability solution for local, state and federal users in different frequency bands. A fixed 

solution and a mobile solution are being implemented. The fixed solution uses leased circuits and a 

shared channel to link designated dispatch consoles and agencies together for interoperability. The 

mobile component uses a package designed to provide interoperability beyond current coverage 

areas by applying a modular interface system that can be mounted on a mobile platform. 

SALT LAKE CITY PILOT 

As the host of the 2002 Winter Olympics Games, Salt Lake City is seeking enhanced 

functionality for current systems through comprehensive radio coverage and seamless 

interoperability with minimal dispatcher intervention. A cross-system interconnect solution is 

being implemented, allowing for wide-area interoperability between local, state and federal public 

safety entities, virtually eliminating jurisdictional obstacles to interoperability. 

WASHINGTON, D.C., AREA PILOT 

This pilot involves providing interoperability in the Washington, D.C., area. The solution 

implements tri-band repeater stacks at six traffic choke points around the D.C. area “Beltway” and 

ties those repeaters into an interconnected network of local 800 MHz systems. The pilot involves 

a large federal presence and addresses the challenges of bringing together many different radio 

networks and systems operating in different bands. 

87 Public Safety Wireless Network Program/Federal Law Enforcement Wireless Users Group PSWN 

Program & FLEWUG Status Report (Jan.-Jun. 2001) at 18-22. 

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NEW ORLEANS MARITIME CASE STUDY 

This program is examining several options as part of the pilot, including developing a 

regional maritime wireless interoperability strategy, implementing a VHF-to-800 MHz link, 

implementing a console-to-console link, conducting a mobile command post upgrade, and 

developing a regional maritime wireless data strategy. 

MONTANA STATE INTEROPERABILITY ASSISTANCE 

This project encourages resource sharing and promotes interoperability among several 

Montana-based public safety agencies from different levels of government. The project collocates 

several public safety agencies’ equipment at a single site. The successful techniques used in this 

project can be applied to other sites throughout the state. 

VERMONT/NEW HAMPSHIRE STATE INTEROPERABILITY ASSISTANCE 

This project involves providing support to public safety representatives in Vermont and 

New Hampshire in the design and implementation of a cross-border interoperability solution. The 

proposed solution involves installing radios with microwave interconnects in Vermont to achieve 

interoperability with New Hampshire. 

METRO WASHINGTON, D.C., FIRE PROJECT 

The PSWN Program worked with the D.C. Fire Department to develop an interoperability 

solution that allows an incident commander to use a switching device to connect radio systems 

operating on three different frequency bands. The switch will allow neighboring fire departments 

to interoperate when responding to fires or emergencies in the subway’s underground tunnels. 

BLAINE, WASHINGTON 

The U.S. Border Patrol in Blaine currently provides dispatch and communications service 

for the Blaine, Lynden, and Sumas Police Departments on a wideband communications system. 

When the Border Patrol transfers to the JWN system, the local police departments will lose their 

dispatch functionality. The PSWN Program assessed the impact of the narrowband conversion on 

local police departments and considered solutions that will allow the U.S. Border Patrol to 

continue providing dispatch services to local agencies. 

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RAINBOW COMMUNICATIONS SYSTEM 

The Rainbow Communications System, located in Hawaii, is a unique example of a shared system 

used by state and federal public safety agencies and serves as a critical communications 

infrastructure for these agencies. PSWN conducted an analysis to determine several viable 

alternatives for replacing the current system, including a privately owned system, commercial 

services, and a hybrid of both. 

PITTSBURGH AREA PILOT88 

The PSWN Program is working with federal agencies to implement a shared federal system 

for the Pittsburgh area. This will be a trunked narrowband 162-174 MHz system that will fully 

comply with the current narrowband digital standard, TIA 102 (Project 25). 

STATE OF ALASKA PILOT PROGRAM 

The State of Alaska has requested assistance from PSWN to help them in developing the 

business case, management structure and technical support for a statewide shared public safety 

system. The system will be jointly sponsored by the State Department of Public Safety and the 

U.S. Air Force. A pilot system consisting of nine sites in the Northern Zone close to Fairbanks 

will be developed first as a proof of concept. PSWN will continue to provide direct assistance to 

the state in developing the concept of a shared federal, state and local infrastructure. To date, this 

assistance consists of organizational support, funding assistance, strategy and operations 

development, and systems planning assistance. 

88 Public Safety Wireless Network Program/Federal Law Enforcement Wireless Users Group, PSWN 

Program & FLEWUG Status Report (Jul.-Dec. 1999) at 12. 

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