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Recommended Federal Grants Guidance 

Public Safety Communications & Interoperability Grants 

May 2004 

I. Introduction

One of the major issues facing the Emergency Services Sector is the inability of emergency service 

workers including traditional “first responders” to communicate with one another when the need 

arises. These emergency first responders have long been defined as the “first arriving organized 

responders with the capability and mission to contain, mitigate, and resolve the emergency at 

hand.”1

 Their effective and efficient emergency response requires coordination, communication, 

and sharing of vital information among numerous public safety agencies. As recognized in the 

National Strategy for the Physical Protection of Critical Infrastructures and Key Assets, “most 

systems supporting emergency response personnel, however, have been specifically developed and 

implemented with respect to the unique needs of each agency.”2

 Such specification without regard 

to the need for interoperability tends to complicate the ability of those agencies to effectively 

communicate with others in the future. This fact is echoed by the public safety community in the 

National Task Force on Interoperability’s report Why Can’t We Talk? Working Together To Bridge 

the Communications Gap To Save Lives.3 

In line with the needs of public safety and the National Strategy cited above, Federal Fiscal Year 

2004 Appropriations make available grant funding to improve the effectiveness of public safety 

communications systems and to resolve interoperability issues. By definition, communications 

interoperability refers to the ability of public safety agencies to talk across disciplines and 

jurisdictions via radio communications systems- to exchange voice and/or data with one another on 

demand, in real time, when needed, and as authorized. The federal program offices recognize that 

many law enforcement, fire service, emergency medical service, and other emergency response 

personnel currently lack effective and modern communication systems within their respective 

organizations. The programs support the need to improve those systems so long as the 

improvement planning includes a vision for improved interoperability with other agencies. 

In an effort to coordinate the way in which funding is allocated and to maximize the prospects for 

interoperable communications, some general grant criteria has been developed in concert with 

representatives of the public safety community. What follows is an outline of who is eligible for the 

grants, purposes for which grant funds can be used, and eligibility specifications for applicants. 

 

1

 “Emergency First Responder Report.” Federal Emergency Management Agency, U.S. Fire Administration. January 

1981. 

2

 “National Strategy for the Physical Protection of Critical Infrastructures and Key Assets,” The White House. February 

2003, page 43. 

3

 “Why Can’t We Talk? Working Together To Bridge the Communications Gap To Save Lives,” AGILE Program. 

February 2003. 
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II. Grant Criteria

II.A. Who Should Be Involved with Public Safety Communications Interoperability

Federal funds that are allocated for improving public safety communications and interoperability 

should only be provided to public safety agencies or organizations at the local, tribal, regional, or 

state level. This includes: 

• Law Enforcement agencies 

• Fire Service agencies 

• Emergency Medical Service agencies 

• An organization representing the aforementioned agencies 

II.B. Lifecycle of Public Safety Communications Projects 

While applying for equipments grants, applications should capable of addressing each of the 

following aspects within the lifecycle of public safety communications: 

• Planning for public safety communication systems 

• Building public safety communication systems 

• Upgrading/enhancing public safety communication systems and equipment 

• Replacing public safety communication systems and equipment 

• Maintaining public safety communication systems and equipment 

• Training public safety staff on issues related to emergency response communications 

• Managing public safety communications projects 

II.C. Common Public Safety Communications Goals 

Grants will be awarded to applicants that aim to achieve the following goals identified and 

supported by the public safety community and each grant making agency. 

1. Applicants should demonstrate how funds would be used to upgrade or enhance "Mission 

Critical" networks with interoperable communications equipment for everyday use to ensure the 

safety and well being of First Responders and the public they serve. 

2. Applicants should provide a clear and demonstrated plan for accomplishing improved 

interoperability between First Responders of local, tribal, regional, and state public safety agencies, 
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or other partnering agencies or organizations from local, tribal, regional, state, and federal 

jurisdictions; particularly in times of natural disaster and major criminal or terrorist acts. 

II.D. Common Criteria for All Grant Applicants

In order to receive funding, the applicant must be able to convey an understanding of the first 

responder needs and a clear path towards interoperability. Each grant application must explain how 

the proposed project would fit into an overall effort to increase interoperability. Even if the funding 

sought is only for a piece of an interoperability endeavor (i.e., training for staff, procurement of new 

equipment), an executive summary should be provided to illustrate to the funding agency the 

broader context of the agency/jurisdiction’s interoperability plans. Such an explanation could 

include information on the governance structure overseeing the effort; a communications system 

plan; a deployment plan; an operations, maintenance, and training plan; and a financial plan. 

At a minimum, the applicant must: 

• Define the vision, goals, and objectives of what the applicant is ultimately trying to 

accomplish and how the proposed project would fit into an overall effort to increase 

interoperability. 

• Describe the specific problems or needs that are to be addressed. 

• Identify any potential partners and their roles and staffing requirements, and provide 

information on any existing agreements such as a Memorandum of Understanding (MOU) 

or Mutual Response Agreement. 

• Propose a detailed budget and timeline. 

• Include an operational plan that addresses how the effort will be funded now and in the 

future. 

Section IV of this document provides a thorough list of questions that applicants can use to help 

ensure that they have taken into account the needs of public safety, potential partners, and 

considered short- and long-term goals. 

II.E. Standards 

When procuring equipment for communication system development and expansion, a standardsbased approach should be used to begin migration to multi-jurisdictional and multi-disciplinary 

interoperability. Specifically, all new systems should be compatible with the ANSI/TIA/EIAA-102 

Phase 1 (Project 25 or P25) suite of standards. This recommendation is intended for government 

owned or leased land mobile public safety radio equipment and its purpose is to make sure that such 

equipment or systems are capable of interoperating with other public safety land mobile equipment 

or systems. It is not intended to apply to commercial services that offer other types of 

interoperability solutions and does not exclude any application if it demonstrates that the system or 

equipment being proposed will lead to enhanced interoperability. With input from the user 

community, these standards have been developed to allow for backward compatibility with existing 
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digital and analog systems and to provide for interoperability in future systems. The FCC has 

chosen the P25 suite of standards for voice and low-moderate speed data interoperability in the new 

nationwide 700 MHz frequency band and the Integrated Wireless Network (IWN) of the U.S. 

Justice and Treasury Departments has chosen the Project 25 suite of standards for their new radio 

equipment. P25 has also been endorsed by the US Department of Defense for new LMR (Land 

Mobile Radio) radio systems. 

However, the first priority of federal funding for improving public safety communications is to 

provide basic, operable communications within a department with safety as the overriding 

consideration. Funding requests by agencies to replace or add radio equipment to an existing nonP25 system will be considered if there is an explanation as to how their radio selection will allow 

for improving interoperability or eventual migration to interoperable systems. This guidance does 

not preclude funding of non-Project 25 equipment when there are compelling reasons for using 

other solutions. Absent these compelling reasons, SAFECOM intends that Project 25 equipment 

will be preferred for digital systems to which the standard applies. 

II. F. Governance

There needs to be consistent leadership and management to ensure that the planning, equipment 

procurement, training, and funding are in place when developing a public safety communications 

improvement or interoperability project. A common governing structure should improve the 

policies, processes and procedures of any major project by enhancing communication, coordination, 

and cooperation; establishing guidelines and principles; and reducing any internal turf battles. This 

group should consist of local, tribal, state, and federal entities as well as representatives from all 

pertinent public safety disciplines. Frequently when multiple agencies/jurisdictions are involved, 

this management is in the form of a governing body that makes decisions, solicits funding, and 

oversees the implementation of an interoperability initiative. 

III.Criteria for Public Safety Communications Equipment Grants

Building, Upgrading, Enhancing, Replacing and Maintaining Public Safety Communications 

Systems and Equipment

Public safety interoperable communication grants can be used to build, upgrade, enhance or replace 

communications equipment. Communication systems and equipment are expensive, and before a 

procurement decision is made, there must be an assessment of the current communication system 

and future needs. 

The following questions provide guidance for fulfilling public safety communications goals. 
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Has the applicant already completed a plan that illustrates the agency’s/jurisdiction’s commitment 

to the aforementioned public safety priorities? 

• Please provide an executive summary that clearly illustrates how the proposed effort will 

lead to enhanced public safety communications interoperability. 

• What type of multi-jurisdictional or multidisciplinary agreements does the agency possess 

(i.e., MOUs, interstate compacts, mutual response agreements)? 

Has the applicant considered public safety’s operational needs of the communications equipment? 

• In what type of topography/terrain does the agency operate? 

• In what types of structures does the agency need to communicate? (i.e., tunnels, high-rise 

buildings) 

• What methods of communication does the agency use? (i.e., email, paging, cellular calls, 

portable radio communications) 

• What is the process for dispatching calls? 

• Is the communications center independently owned and operated by the agency? Does it 

serve several public safety agencies in the jurisdiction? Is it a multi-agency, multijurisdictional facility? 

• Does the agency have the ability to patch across channels? If so, how many patches can be 

simultaneously set up? Is a dispatcher required to set up and break the patches down? 

• What is the primary radio language used by the agency when communicating with other 

agencies or organizations? (i.e., ‘plain’ English, code) 

• What types of equipment can immediately be deployed to provide short-term solutions for 

improved communications? 

Has the applicant considered the system requirements to ensure interoperability with systems used 

by other disciplines or other levels of government? 

• What type of equipment is currently used by the agency? 

• Is there a regional, multi-jurisdictional, or statewide system in place that requires 

interoperability in order to communicate with other agencies? If so, how do you plan on 

interoperating/connecting to that system? 

• Is the equipment compatible with the Project 25 suite of standards? 

• For data-related systems, is the applicant using XML standards? 

• How scalable is the system? Can it be used locally between agencies and jurisdictions, 

statewide, and at a multi-state or national level? 

• What internal and external security requirements exist in the architecture to secure 

information and maintain privacy levels for data as required by law? 

• Is the infrastructure shared with any other agency or organization? Is it owned or leased? 

• Does the agency use analog or digital radio systems or both? 

• Is the system conventional or trunked? 

• Which radio frequencies are used to communicate with other public safety agencies? 

• How many channels does the agency have solely designated for communicating with other 

agencies? 
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IV. Supplemental Criteria for Public Safety Equipment Grants

Planning for, building, upgrading, enhancing, replacing, maintaining, training staff, and managing 

projects for a public safety communications system are arduous tasks that require both short- and 

long-term strategies. Whether it is the development of a technical plan, training exercise, or system 

upgrade, any effort that ultimately leads to improved interoperability must include participation 

from all of the relevant agencies, jurisdictions, or other organizations that contribute to an effective 

emergency response. 

This participation is frequently exhibited through a governing structure that improves the process of 

any major project by enhancing communication, coordination, and cooperation; establishing 

guidelines and principles; and reducing any internal turf battles. This group should consist of local, 

tribal, state, and federal entities as well as representatives from all pertinent public safety 

disciplines. 

Answers to the following questions will help provide the applicant with a fuller vision of how its 

proposed project or effort will ultimately improve interoperability. 

IV.A. Planning for public safety communication systems

There are two types of planning for public safety communications, technical and governance. 

Technical planning for public safety communications projects may include needs and requirements 

assessments, developing the network architecture of a system, propagation studies, and similar 

technical proposals. Governance planning for public safety interoperability projects may include 

development of needs assessments, strategic plans, and financial plans. Questions that an applicant 

for communication systems planning funds should address are listed below. 

The following questions will provide the grant making agencies with an understanding of the 

applicants planning efforts. 

Has the applicant considered the communication needs and requirements of its public safety 

community? 

• With whom does the agency/jurisdiction need to communicate? 

• How does the agency/jurisdiction need to communicate? 

• What information needs to be exchanged? 

• When does the agency/jurisdiction need to communicate and exchange information? (i.e., 

daily, weekly, infrequently) 

• Under what circumstances does the agency need to communicate? (i.e., frequently occurring 

emergencies, major crimes or incidents, large-scale disasters) 
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Does the applicant plan to include nearby agencies/jurisdictions from other disciplines, or other 

local, tribal, state or federal partners in its planning effort? 

• Who are the stakeholders that need to be involved in the planning? 

• Which decision makers should be involved in planning? 

• What type of technical and field expertise will be needed to develop the plan? 

• Will outside expertise be needed to develop this plan? 

• What are the roles and responsibilities of all agencies that are involved? (Include a list of 

partnering agencies) 

• Are there any mutual response agreements in place? 

• What type of governing structure exists to improve the processes involved in executing any 

planned project? 

Does the potential plan taken into account both short- and long-term goals? 

• What should be done in the first phase (most critical)? 

• How many phases will the plan require? 

• How much time is needed to accomplish the plan? 

• What are the technical solutions available to address the problem? 

• What funding is available to address the problem? 

 Grant funds (federal, state, local, private), General funds 

IV.B. Training public safety staff on issues related to emergency response communications

In order for equipment to be used properly and effectively in emergency situations, Emergency 

Service personnel must be trained through joint exercises that afford them the ability to practice 

standard operating procedures, become familiar with the equipment, and enhance their capacity and 

preparedness to respond to all types of emergencies. Eligible applicants should exhibit 

multidisciplinary and multijurisdictional training in their overall public safety communications plan. 

Do the applicant’s training plans include exercises with other agencies/jurisdictions? 

• Do the agency’s training plans include participation from all levels and functions of 

emergency response? (i.e., local, state, federal, fire, law enforcement, emergency medical 

services) 

• How often will training take place? 

• Who will conduct the training? 

• Where will the training be held? Will it be on-site or at a specified training facility? 

• What maintenance efforts will exist to keep personnel up-to-date with changes in procedure, 

equipment functions, or other relevant policies? 

• How will lessons-learned from training exercises be applied to operational procedures? Will 

there be post-exercise evaluations or analyses? 
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IV.C. Managing public safety communications projects

There needs to be consistent leadership and management to ensure that the planning, equipment 

procurement, training, and funding are in place when developing a public safety communications 

improvement or interoperability project. Frequently when multiple agencies/jurisdictions are 

involved, this management is in the form of a governing body that makes decisions, solicits 

funding, and oversees the implementation of an interoperability initiative. Organizations that 

govern such projects must be comprised of the relevant law enforcement, fire, and emergency 

agencies in order to qualify for grant awards. 

Is the communications project consistent with similar efforts in the region? 

• Does the applicant have agreements in place with other agencies/jurisdictions that illustrate 

the cooperative and interoperable approach to managing the communications improvement 

or interoperability project? 

Does the project have the support of the relevant governing body (local or state authority)? 

• What other funding sources has the applicant sought for the ongoing administrative costs of 

program management? 

V. Generic Examples of Linking Disparate Public Safety Communications Systems

Applications may request funding for technologies not listed in Section V, as long as applicants 

demonstrate how the technology selected clearly improves multi-jurisdictional multi-disciplinary 

interoperability. 

There are multiple approaches for linking disparate networks. Descriptions of common 

technologies are provided below. 

Although there are more robust solutions available today, repeaters still provide improved 

interoperability for agencies needing to link disparate systems. 

♦ Cross band Repeaters retransmit signals input from one frequency band to an output in a 

different frequency band. Cross band repeaters range from simple devices supporting frequency 

transfers across two bands (e.g., ultra high frequency [UHF] and very high frequency [VHF]) to 

more complex devices capable of bridging multiple frequency bands (e.g., UHF, VHF Low 

Band, VHF High Band, and 800 MHz). 

Numerous initiatives are already underway to implement short-term integration technologies that 

provide a reasonable level of interoperability among disparate networks. 
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♦ Network-to-Network Gateways – provide radio interoperability during missions requiring 

communications between diverse organizations using different radios and different frequencies. 

Network-to-network gateways offer a standard way to link wireless infrastructures. Within 

minutes after arriving on the scene of an incident, a portable gateway can be quickly 

programmed to support the frequencies of participating agency radios. Many of these solutions 

also allow disparate networks to share data and provide a bridge to the public switched 

telephone network (PSTN). Although gateways can be either fixed or mobile, this program 

promotes the purchase of mobile, deployable devices. 

Minimum specifications have been developed for instances where network-to-network solutions 

are to be implemented. Where such interconnect devices are to be used, the following 

specifications should be followed: 

A. OPERATING MODES

• The device must be able to retransmit the audio of radios that operate in different parts 

of the radio spectrum, use different modulation and access techniques, and use analog or 

digital encoding. The audio shall be distributed or switched throughout a shared audio 

distribution bus where it can be presented to and shared amongst all or a selected subset 

of radios interfaced to the device. 

B. CAPACITY

• The device must support a minimum of four LMR radios in different operating modes. 

The ability to support cellular phones and connection to the public switched telephone 

network (PSTN) is desirable. 

C. POWER AND PHYSICAL

• The device must be capable of being powered either from vehicular power, battery 

power, or portable AC power sources. 

• The device must accommodate being rack mounted or standing alone in a portable 

enclosure. The device must be able to withstand shock and vibration typically 

encountered in field operations activity. 

• The device must include documented cable specifications for audio (speaker and 

microphone) and control (push-to-talk - PTT) in order to interface with the basic audio 

and transmit controls for standard off the shelf LMR radio manufacturers’ subscriber 

units that are typically employed by public safety. 

• The device must have input mechanisms or modules that can support balanced or 

unbalanced 2 or 4-wire circuits. 

• The device must have input mechanisms or modules that can transmit (TX) Audio, 

receive (RX) Audio, PTT, and Carrier Operated Relay/Carrier Operated Squelch 

(COR/COS) signaling. Ability for supporting tone remote control (TRC) and Voice 

Operated Transmit (VOX) signaling is desirable. Some form of adjustable automatic 

gain control should be provided for each device interface. 
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D. CONTROL AND ADMINISTRATION

• The device must provide local control to establish two or more talk groups of the 

radios/phone interfaces that are provided. 

• The device must provide adjustable audio/PTT delay to the radio interfaces, in order to 

allow the supported radios and associated infrastructure to reach full transmit power and 

to accommodate unknown repeater operating parameters such as hang times and squelch 

trails. 

• The device must be easily configurable with short set up times. 

Similar to fixed network-to-network gateways, some consoles provide similar support either 

manually or electronically. 

♦ Console Interfaces (i.e., “patches”) route audio signals from one console to another console, 

either by dispatcher intervention or by a pre-wired configuration through the console 

electronics; thereby, supporting direct connections between disparate systems. 

Many states and regions have significant investments in large scale, shared networks, briefly 

described below. These networks offer a high degree of interoperability within their geographic 

coverage areas and can be linked to other networks through network-to-network gateways. Some of 

these networks meet the ANSI/TIA/EIAA-102 Phase 1 (Project 25) suite of standards. 

Shared Networks - have common backbone infrastructures and interfaces. These are often single 

vendor solutions covering large geographic areas and/or commercial networks. The typical model 

calls for participating jurisdictions to purchase subscriber radios compatible with the network, and 

pay a monthly service fee. 
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VI. Resources 

Additional information for applicants to use when constructing their grant applications and for 

seeking additional funding sources can be obtained at the following websites. 

AGILE Program The AGILE Program within the Office of Science and Technology at the National 

Institute of Justice has a mission to assist state and local law enforcement agencies to effectively 

and efficiently communicate with one another across agency and jurisdictional boundaries. It is 

dedicated to studying interoperability options and making valuable information available to law 

enforcement, firefighters, and emergency technicians across the country. 

http://www.agileprogram.org/

Association of Public Safety Communications Officials – International, Inc. (APCO) APCO is the 

world’s oldest and largest not-for-profit professional organization dedicated to the enhancement of 

public safety communications. 

http://www.apcointl.org/

 

Bureau of Justice Assistance Local Law Enforcement Block Grants (LLEBG) Funds from the 

LLEBG program may be used for procuring equipment, technology, and other material directly 

related to basic law enforcement functions. 

http://www.ojp.usdoj.gov/BJA/

Federal Emergency Management Agency (FEMA) This site offers information on federal disaster 

assistance and funding. 

http://www.fema.gov/

Justice Technology Information Network (JUSTNET) The official web site for the National Law 

Enforcement and Corrections Technology Center system, JUSTNET lists many grants and funding 

sources in the Virtual Library. It also contains various publications on communications 

interoperability issues. 

http://www.justnet.org/

COPS Interoperable Communications Technology Program. This grant program, administered by 

the U.S. Department of Justice, Office of Community Oriented Policing Services (COPS), provides 

equipment funding to law enforcement agencies to enhance multi-jurisdictional public safety 

interoperable communications and information sharing across the nation. 

http://www.cops.usdoj.gov/ 

National Institute of Justice (NIJ) NIJ is the research and development agency of the U.S. 

Department of Justice and is the only federal agency solely dedicated to researching crime control 

and justice issues. This page lists the most recent solicitations issued by NIJ. 

http://www.ojp.usdoj.gov/nij/
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National Public Safety Telecommunications Council (NPSTC) NPSTC is a federation of 

associations representing public safety telecommunications. NPSTC serves as a resource and 

advocate for public safety telecommunications issues. 

http://www.npstc.du.edu/

National Task Force on Interoperability (NTFI) Recognizing that solutions to the national problem 

of public safety communications interoperability could only be achieved through cooperation 

between all levels of government, 18 national associations representing state and local government 

and public safety officials formed a task force to address this issue. NTFI’s recommendations have 

been published in the form of a brochure, guide, and supplemental resources. 

http://www.agileprogram.org/ntfi/

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

Department of Commerce, works to spur innovation, encourage competition, help create jobs, and 

provide consumers with more choices and better quality telecommunications products and services 

at lower prices. 

http://www.ntia.doc.gov/

Office for Domestic Preparedness (ODP) Equipment Grant Program The goal of the ODP 

Equipment Grant Program is to provide funding to enhance the capacity of state and local 

jurisdictions to respond to, and mitigate the consequences of, incidents of domestic terrorism 

involving the use of a Weapon of Mass Destruction (WMD). Communications equipment is 

included on the authorized equipment purchase lists for these ODP grants. 

http://www.ojp.usdoj.gov/odp/

Office of Justice Programs (OJP) Information Technology Initiatives The OJP Information 

Technology Initiatives web site offers access to timely and useful information on the information 

sharing process, initiatives, and technological developments. The funding section of this site 

provides information on both federal and private funding sources, examples of innovative funding 

ideas, and tips on researching funding legislation. 

http://www.it.ojp.gov/

Office of National Drug Control Policy, Counterdrug Technology Assessment Center (CTAC) 

Technology Transfer Program The CTAC Technology Transfer Program assists state and local law 

enforcement agencies in obtaining the necessary equipment and training for counterdrug 

deployments and operations. 

http://www.whitehousedrugpolicy.gov/ 

SAFECOM Program SAFECOM was established as the federal umbrella program to help local, 

tribal, state, and federal public safety agencies to improve public safety response through more 

effective and efficient interoperable wireless communications. The SAFECOM website provides 

additional SAFECOM documents. 

http://www.safecomprogram.gov/
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Technology Opportunities Program (TOP) The Technology Opportunities Program (TOP) from the 

National Telecommunications and Information Administration gives grants for model projects 

demonstrating innovative uses of network technology. 

http://www.ntia.doc.gov/top/

U.S. Department of Homeland Security (DHS) A cornerstone of the DHS philosophy revolves 

around a commitment to partner closely with other federal agencies, state and local governments, 

first responders, and law enforcement entities to ensure the security of the United States. Its 

website explains hoe DHS and local governments can work together. 

http://www.dhs.gov/

U.S. Department of Justice (DOJ) DOJ offers funding opportunities to conduct research, to support 

law enforcement activities in state and local jurisdictions, to provide training and technical 

assistance, and to implement programs that improve the criminal justice system. 

http://www.usdoj.gov/

U.S. Fire Administration Assistance to Firefighters Grant Program The purpose of the program is to 

award one-year grants directly to fire departments of a state to enhance their abilities with respect to 

fire and fire-related hazards. 

http://www.usfa.fema.gov/fire-service/grants/afgp/grants.shtm