Furthermore, LMR  systems provide public safety agencies “mission critical” voice  capabilities—that is, voice capabilities that meet a high standard for  reliability, redundancy, capacity, and flexibility. FCC has  issued a series of orders and proposed rulemakings and adopted rules  addressing how to develop a public safety broadband network, some of  which are highlighted:   In September 2006, FCC established  In 2007, FCC adopted an order to create a nationwide broadband  network with the 10 MHz of spectrum designated for a public safety  broadband network and the adjacent 10 MHz of spectrum––the Upper  700 MHz D Block, or “D Block.” As envisioned by FCC, this  nationwide network would be shared by public safety and a  commercial provider and operated by a public/private partnership. Even With Investment of Significant Resources, Current Public Safety Communication Systems Provide Mission Critical Voice Capabilities but Are Not Fully Interoperable

		Public Investment

Congress has appropriated billions in federal funding over the last decade  to public safety in grants and other assistance for the construction and  maintenance of LMR voice communication systems and the purchase of  communication devices. Currently, emergency response personnel rely exclusively on  their LMR systems to provide mission critical voice capabilities. These channels allow only restricted  data transfer speeds, thus limiting capacity to send and receive data such  as text and images, or to access existing databases. One reason for the lack of  interoperability is the fragmentation of spectrum assignments for public  safety, since existing radios are typically unable to transmit and receive in  all these frequencies. Broadband Network Could Improve Incident Response

With higher data speeds than the current LMR systems, a public safety  broadband network could provide emergency responders with new video  and data applications that are not currently available. Absent mission critical voice capabilities on a broadband network,  emergency responders will continue to rely on their current LMR voice  systems, meaning a broadband network would supplement, rather than  replace, LMR systems for the foreseeable future. To avoid a major shortcoming of the LMR  communication systems, it is essential that a public safety broadband  network be interoperable across jurisdictions and devices. DHS, in  conjunction with its SAFECOM program, developed the Interoperability  Continuum which identifies five key elements to interoperable networks— governance, standard operating procedures, technology, training, and  usage—that waiver jurisdictions and other stakeholders discussed as  important to building an interoperable public safety broadband network,  as shown in figure 4. Creating a governance structure. Pending legislation, the  Middle Class Tax Relief and Job Creation Act of 2012, establishes a First  Responder Network Authority as an independent authority within NTIA  and gave it responsibility for ensuring the establishment of a nationwide,  interoperable public safety broadband network. Furthermore, public safety agencies may be unable to negotiate lower  prices for handheld LMR devices because they cannot exert buying  power in relationship with device manufacturers. Because public safety agencies contract for handheld LMR devices in this  independent manner, they sacrifice the quantity discounts that come from  placing larger orders. We have repeatedly  recommended joint procurement as a cost saving measure for situations  where agencies require similar products because it allows them to  combine their market power and lower their procurement costs. Given  that DHS has expertise in emergency communications and relationships  with local public safety representatives, we believe it is well-suited to  facilitate opportunities for joint procurement of handheld communication  devices. Recommendation for Executive Action

To help ensure that public safety agencies are not overpaying for  handheld communication devices, the Secretary of Homeland Security  should work with federal and state partners to identify and communicate  opportunities for joint procurement of public safety LMR devices. Commerce, DHS, the Department of Justice, and FCC provided technical  comments on the draft report, which we incorporated as appropriate. Specifically, we reviewed (1) the resources  that have been provided for current public safety communication systems  and their capabilities and limitations, (2) how a nationwide public safety  broadband network is being planned and its anticipated capabilities and  limitations, (3) the challenges to building a nationwide public safety  broadband network, and (4) the factors that influence competition and  cost in the development of public safety communication devices and the  options that exist to reduce prices. To determine the plans for a nationwide public safety broadband network  and its expected capabilities and limitations, we reviewed relevant  congressional testimonies and academic articles on services and  applications likely to operate on a public safety broadband network, the  challenges to building, operating, and maintaining a network. Homeland Security: Challenges in Achieving Interoperable  Communications for First Responders.
Why GAO Did This Study

Emergency responders across the nation rely on land mobile radio (LMR) systems to gather and share information and coordinate their response efforts during emergencies. These public safety communication systems are fragmented across thousands of federal, state, and local jurisdictions and often lack interoperability, or the ability to communicate across agencies and jurisdictions. To supplement the LMR systems, in 2007, radio frequency spectrum was dedicated for a nationwide public safety broadband network. Presently, 22 jurisdictions around the nation have obtained permission to build public safety broadband networks on the original spectrum assigned for broadband use. This requested report examines (1) the investments in and capabilities of LMR systems; (2) plans for a public safety broadband network and its expected capabilities and limitations; (3) challenges to building this network; and (4) factors that affect the prices of handheld LMR devices. GAO conducted a literature review, visited jurisdictions building broadband networks, and interviewed federal, industry, and public safety stakeholders, as well as academics and experts.

What GAO Found

After the investment of significant resourcesincluding billions of dollars in federal grants and approximately 100 megahertz of radio frequency spectrumthe current land mobile radio (LMR) systems in use by public safety provide reliable mission critical voice capabilities. For public safety, mission critical voice communications must meet a high standard for reliability, redundancy, capacity, and flexibility. Although these LMR systems provide some data services, such as text and images, their ability to transmit data is limited by the channels on which they operate. According to the Department of Homeland Security (DHS), interoperability among LMR systems has improved due to its efforts, but full interoperability of LMR systems remains a distant goal.
Multiple federal entities are involved with planning a public safety broadband network and while such a network would likely enhance interoperability and increase data transfer rates, it would not support mission critical voice capabilities for years to come, perhaps even 10 years or more. A broadband network could enable emergency responders to access video and data applications that improve incident response. Yet because the technology standard for the proposed broadband network does not support mission critical voice capabilities, first responders will continue to rely on their current LMR systems for the foreseeable future. Thus, a broadband network would supplement, rather than replace, current public safety communication systems.
There are several challenges to implementing a public safety broadband network, including ensuring the networks interoperability, reliability, and security; obtaining adequate funds to build and maintain it; and creating a governance structure. For example, to avoid a major shortcoming of the LMR systems, it is essential that a public safety broadband network be interoperable across jurisdictions and devices by following five key elements to interoperable networks: governance, standard operating procedures, technology, training, and usage. With respect to creating a governance structure, pending legislationthe Middle Class Tax Relief and Job Creation Act of 2012, among other thingsestablishes a new entity, the First Responder Network Authority, with responsibility for ensuring the establishment of a nationwide, interoperable public safety broadband network.
The price of handheld LMR devices is highoften thousands of dollarsin part because market competition is limited and manufacturing costs are high. Further, GAO found that public safety agencies cannot exert buying power in relationship to device manufacturers, which may result in the agencies overpaying for LMR devices. In particular, because public safety agencies contract for LMR devices independently from one another, they are not in a strong position to negotiate lower prices and forego the quantity discounts that accompany larger orders. For similar situations, GAO has recommended joint procurement as a cost saving measure because it allows agencies requiring similar products to combine their purchase power and lower their procurement costs. Given that DHS has experience in emergency communications and relationships with public safety agencies, it is well-suited to facilitate joint procurement of handheld LMR devices.

What GAO Recommends

The Department of Homeland Security (DHS) should work with partners to identify and communicate opportunities for joint procurement of public safety LMR devices. In commenting on a draft of this report, DHS agreed with the recommendation. GAO also received technical comments, which have been incorporated, as appropriate, in the report.