Several technical factors specifically limit interoperability of public safety  wireless communications systems. Nature and Scope of Interoperable Communication Problems Nationwide Are Unknown

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. SAFECOM officials said development of a national architecture will take  time because SAFECOM must first assist state and local governments to  establish their communications architectures. Converting SAFECOM’s Functions To A Long-Term Program

In 2001, the Office of Management and Budget (OMB) established  SAFECOM to unify the federal government’s efforts to help coordinate  work at the federal, state, local, and tribal levels in order to provide  reliable public safety communications and achieve national wireless  communications interoperability. In  addition, the roles and responsibilities of various federal agencies within  and outside DHS involved in communications interoperability have not  been fully defined, and SAFECOM’s authority to oversee and coordinate  federal and state efforts has been limited in part because it has been  dependent upon other federal agencies for cooperation and funding and  has operated without signed memorandums of understanding negotiated  with various agencies. DHS, where SAFECOM now resides, announced in May 2004 that it had  created an Office for Interoperability and Compatibility within the Science  and Technology Directorate, to coordinate the federal response to the  problems of wireless and other functional interoperability and  compatibility. As of June 2004,  the exact structure and funding for the office, including SAFECOM’s role  within the office, were still being developed. State and Local Governments Can Play a Central Role

States, with broad input from local governments, can serve as focal points  for statewide planning to improve interoperable communications. The  FCC has recognized the important role of states. In its rules and  procedures, the FCC concluded that because states play a central role in  managing emergency communications and are usually in control at large  scale-events and disasters, states should administer the interoperability  channels within the 700 MHz band of communications spectrum. However, states are not required to  establish a statewide management structure or to develop interoperability  plans, and there is no clear guidance on what should be included in such  plans. However, the federal funding assistance programs to state and  local governments do not fully support regional planning for  communications interoperability. Conclusions

A fundamental barrier to successfully addressing interoperable  communications problems for public safety has been the lack of effective,  collaborative, interdisciplinary, and intergovernmental planning. No one  first responder agency, jurisdiction, or level of government can “fix” the  nation’s interoperability problems, which vary across the nation and often  cross first responder agency and jurisdictional boundaries. We  recommend that the Secretary of DHS:  in coordination with the FCC and National Telecommunications and  Information Administration, continue to develop a nationwide database of  public safety frequency channels and a standard nationwide nomenclature  for these channels, with clear target dates for completing both efforts;   establish requirements for interoperable communications and assist states  in assessing interoperability in their states against those requirements;  through DHS grant guidance encourage states to establish a single,  statewide body to assess interoperability and develop a comprehensive  statewide interoperability plan for federal, state, and local  communications systems in all frequency bands; and   at the appropriate time, require through DHS grant guidance that federal  grant funding for communications equipment shall be approved only upon  certification by the statewide body responsible for interoperable  communications that grant applications for equipment purchases conform  with statewide interoperability plans.
Why GAO Did This Study

Lives of first responders and those whom they are trying to assist can be lost when first responders cannot communicate effectively as needed. This report addresses issues of determining the status of interoperable wireless communications across the nation, and the potential roles that federal state, local governments can play in improving these communications.

What GAO Found

In a November 6, 2003, testimony, GAO said that no one group or level of government could "fix" the nation's interoperable communications problems. Success would require effective, collaborative, interdisciplinary and intergovernmental planning. The present extent and scope nationwide of public safety wireless communication systems' ability to talk among themselves as necessary and authorized has not been determined. Data on current conditions compared to needs are necessary to develop plans for improvement and measure progress over time. However, the nationwide data needed to do this are not currently available. The Department of Homeland Security (DHS) intends to obtain this information by the year 2005 by means of a nationwide survey. However, at the time of our review, DHS had not yet developed its detailed plans for conducting this survey and reporting its results. The federal government can take a leadership role in support of efforts to improve interoperability by developing national requirements and a national architecture, developing nationwide databases, and providing technical and financial support for state and local efforts to improve interoperability. In 2001, the Office of Management and Budget (OMB) established the federal government's Wireless Public Safety Interoperable Communications Program, SAFECOM, to unify efforts to achieve national wireless communications interoperability. However, SAFECOM's authority and ability to oversee and coordinate federal and state efforts has been limited by its dependence upon other agencies for funding and their willingness to cooperate. OMB is currently examining alternative methods to implement SAFECOM's mission. In addition, DHS, where SAFECOM now resides, has recently announced it is establishing an Office for Interoperability and Compatibility to coordinate the federal response to the problems of interoperability in several functions, including wireless communications. The exact structure and funding for this office, which will include SAFECOM, are still being developed. State and local governments can play a large role in developing and implementing plans to improve public safety agencies' interoperable communications. State and local governments own most of the physical infrastructure of public safety communications systems, and states play a central role in managing emergency communications. The Federal Communications Commission recognized the central role of states in concluding that states should manage the public safety interoperability channels in the 700 MHz communications spectrum. States, with broad input from local governments, are a logical choice to serve as a foundation for interoperability planning because incidents of any level of severity originate at the local level with states as the primary source of support. However, states are not required to develop interoperability plans, and there is no clear guidance on what should be included in such plans.