Interoperable communications is not an end in itself. Rather, it is a necessary means for achieving an important goal—the ability to respond effectively to and mitigate incidents that require the coordinated actions of first responders, such as multi-vehicle accidents, natural disasters, or terrorist attacks. Public safety officials have pointed out that needed interoperable communications capabilities are based on whether communications are needed for (1) “mutual-aid responses” or routine day- to-day coordination between two local agencies; (2) extended task force operations involving members of different agencies coming together to work on a common problem, such as the 2002 sniper attacks in the Washington, D.C. metropolitan area; or (3) a major event that requires response from a variety of local, state, and federal agencies, such as major wildfires, hurricanes, or the terrorist attacks of September 11, 2001. A California State official with long experience in public safety communications breaks the major event category into three separate types of events: (1) planned events, such as the Olympics, for which plans can be made in advance; (2) recurring events, such as major wildfires and other weather events, that can be expected every year and for which contingency plans can be prepared based on past experience; and (3) unplanned events, such as the September 11th attacks, that can rapidly overwhelm the ability of local forces to handle the problem. Interoperable communications are but one component, although a key one, of an effective incident command planning and operations structure. As shown in figure 1, determining the most appropriate means of achieving interoperable communications must flow from an comprehensive incident command and operations plan that includes developing an operational definition of who is in charge for different types of events and what types of information would need to be communicated (voice, data, or both) to whom under what circumstances. Other steps include: defining the range of interoperable communications capabilities needed for specific types of events; assessing the current capabilities to meet these communications needs; identifying the gap between current capabilities and defined requirements; assessing alternative means of achieving defined interoperable developing a comprehensive plan—including, for example, mutual aid agreements, technology and equipment specifications, and training—for closing the gap between current capabilities and identified requirements. Interoperable communications requirements are not static, but change over time with changing circumstances (e.g., new threats) and technology (e.g., new equipment), and additional available broadcast spectrum. Consequently, both a short- and long-term “feedback loop” that incorporates regular assessments of current capabilities and needed changes is important. In addition, the first responder community is extensive and extremely diverse in size and the types of equipment in their communications systems. According to SAFECOM officials, there are over 2.5 million public safety first responders within more than 50,000 public safety organizations in the United States. Local and state agencies own over 90 percent of the existing public safety communications infrastructure. This intricate public safety communications infrastructure incorporates a wide variety of technologies, equipment types, and spectrum bands. In addition to the difficulty that this complex environment poses for federal, state, and local coordination, 85 percent of fire personnel, and nearly as many emergency management technicians, are volunteers with elected leadership. Many of these agencies are small and do not have technical expertise; only the largest of the agencies have engineers and technicians. In the past, a stovepiped, single jurisdiction, or agency-specific communication systems development approach prevailed—resulting in none or less than desired interoperable communications systems. Public safety agencies have historically planned and acquired communications systems for their own jurisdictions without concern for interoperability. This meant that each state and local agency developed communications systems to meet their own requirements, without regard to interoperability requirements to talk to adjacent jurisdictions. For over 15 years, the federal government has been concerned with public safety spectrum issues, including communications interoperability issues. A variety of federal departments and agencies have been involved in efforts to define the problem and to identify potential solutions, such as the Department of Homeland Security (DHS), the Department of Justice (DOJ), the Federal Communications Commission (FCC), and the National Telecommunications and Information Agency (NTIA) within the Department of Commerce (DOC), among others. Today, a combination of federal agencies, programs, and associations are involved in coordinating emergency communications. DHS has several agencies and programs involved with addressing first responder interoperable communication barriers, including the SAFECOM program, the Federal Emergency Management Agency (FEMA), and the Office for Domestic Preparedness (ODP). As one of its 24 E-Gov initiatives, the Office of Management and Budget (OMB) in 2001 created SAFECOM to unify the federal government’s efforts to help coordinate the work at the federal, state, local, and tribal levels to establish reliable public safety communications and achieve national wireless communications interoperability. The SAFECOM program was brought into DHS in early 2003. In June 2003, SAFECOM partnered with the National Institute of Standards and Technology (NIST) and the National Institute of Justice (NIJ) to hold a summit that brought together over 60 entities involved with communications interoperability policy setting or programs. Several technical factors specifically limit interoperability of public safety wireless communications systems. First, public safety agencies have been assigned frequencies in new bands over time as available frequencies become congested and as new technology made other frequencies available for use. As a result, public safety agencies now operate over multiple frequency bands—operating on these different bands required different radios because technology was not available to include all bands in one radio. Thus, the new bands provided additional capabilities but fragmented the public safety radio frequency spectrum, making communications among different jurisdictions difficult. Another technical factor inhibiting interoperability is the different technologies or different applications of the same technology by manufacturers of public safety radio equipment. One manufacturer may design equipment with proprietary technology that will not work with equipment produced by another manufacturer. The current status of wireless interoperable communications across the nation—including the current interoperable communications capabilities of first responders and the scope and severity of the problems that may exist—has not been determined. Although various reports have documented the lack of interoperability of public safety first responders wireless communications in specific locations, complete and current data do not exist documenting the scope and severity of the problem at the local, state, interstate, or federal levels across the nation. Accumulating this data may be difficult, however, because several problems inhibit efforts to identify and define current interoperable communications capabilities and future requirements. First, current capabilities must be measured against a set of requirements for interoperable communications, and these requirements vary according to the characteristics of specific incidents at specific locations. Who needs to talk to whom, when they need to talk, and what set of communications capabilities should be built or acquired to satisfy these requirements depends upon whether interoperable communications are needed for day- to-day mutual aid, task force operations that occur when members of different agencies come together to work on a common problem such as the National Capitol Region sniper investigation, or major events such as a terrorist attack. Requirements for interoperable communications also may change with the expanding definition of first responders—from the traditional police, fire, and emergency medical providers to include such professions as health care providers and other professions—and the evolution of new technology. Establishing a national baseline for public safety wireless communications interoperability will be difficult because the definition of who to include as a first responder is evolving, and interoperability problems and solutions are situation specific and change over time to reflect new technologies and operational requirements. In a joint SAFECOM/AGILE program planning meeting in December 2003, participants agreed that a national baseline is necessary to know what the nation’s interoperability status really is, to set goals, and to measure progress. However, at the meeting, participants said they did not know how they were going to define interoperability, how they could measure interoperability, or how to select their sample of representative jurisdictions; this was all to be determined at a later date. SAFECOM has embarked on an effort to establish a national baseline of interoperable communications capabilities by July 2005, but SAFECOM is still working out the details of the study that would be used to develop the baseline. At the time of our review, SAFECOM officials acknowledged that establishing a baseline will be difficult and said they are working out the details of their baseline study but still expect to complete it by July 2005. DHS also has other work under way that may provide a tool for such self- assessments by public safety officials. An ODP official in the Border and Transportation Security Directorate of DHS said ODP is supporting the development of a communications and interoperability needs assessment for 118 jurisdictions that make up the Kansas City region. The official said the assessment will provide an inventory of communications equipment and identify how the equipment is used. He also said the results of this prototype effort will be placed on a CD-Rom and distributed to states and localities to provide a tool to conduct their own self assessments. SAFECOM officials said they will review ODP’s assessment tool as part of a coordinated effort and use this tool if it meets the interoperability requirements of first responders. Second, technical standards for interoperable communications are still under development. Beginning in 1989, a partnership between industry and the public safety user community developed what is known as Project 25 (P- 25) standards. According to the Public Safety Wireless Network (PSWN) program office, Project 25 standards remain the only user- defined set of standards in the United States for public safety communications. DHS purchased radios that incorporate the P-25 standards for each of the nation’s 28 urban search and rescue teams. PSWN believes P-25 is an important step toward achieving interoperability, but the standards do not mandate interoperability among all manufacturers’ systems.