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. SAFECOM plans to conduct a nationwide survey to assess current  capabilities of public safety agency wireless communications. However, SAFECOM officials said they lack  current nationwide information on the interoperable communications  problems of first responders. In addition, the roles and responsibilities of the various  federal agencies—the FCC, DOJ, and others—involved in communications  interoperability have not been fully defined and SAFECOM’s authority to  oversee and coordinate federal and state efforts is limited. 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 and compatibility. The exact structure  and funding for the office, which will include SAFECOM, are still being  developed. A national architecture has not yet been prepared to guide the creation of  interoperable communications. SAFECOM’s oversight authority and responsibilities are dependant upon  its overall mission. State and Local Governments’ Roles in Statewide Interoperability Planning and Communications

In our November 6, 2003,testimony, we identified three barriers to  improving public safety wireless interoperable communications: problem  definition, establishing interoperability goals and standards, and defining  the roles of federal, state, and local governments and other entities. Although no one level of government can successfully address  interoperability communications challenges, the federal government can  play a leadership role developing requirements and providing support for  state efforts to assess their interoperable communications capability and  develop statewide plans for transitioning from today’s capability to  identified required capability. States, with broad input from local governments, are a logical choice to  serve as a foundation for interoperability planning. As recognized by the  Federal Communications Commission, states play a central role in  managing emergency communications, and state level organizations are  usually in control at large-scale events and disasters or multiagency  incidents. As a result,  there is no assurance that federal funds are being used to support a well- developed strategy for improving interoperability. Recommendations for Executive Action

To improve interoperable wireless communications for first responders,  we recommend that the Secretary of the Department of Homeland  Security ensure that the following actions are taken:  In coordination with the FCC and the NTIA, continue development of a  nationwide database of all interoperable public safety communications  frequencies, establish a common nomenclature for those frequencies, and  establish clear timeframes to complete both efforts; In consultation with state and local governments, determine the current  status of wireless public safety interoperable telecommunications across  the nation by assessing interoperability in specific locations against  interoperability requirements that can be measured, and assist states in  assessing interoperability in their states against those requirements;   Through DHS grant guidance encourage states to establish a single  statewide body responsible for interoperable communications and that  this body shall prepare a single comprehensive statewide interoperability  plan for federal, state, and local communication systems in all frequency  bands. SAFECOM officials said  that they are trying to develop this type of model in the Commonwealth of  Virginia.
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, and 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.