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Our series of Technical Topics to this point has considered interoperability in many different forms and solutions. For this discussion, we will use the terms "interoperability", "mutual aid", and "mutual assistance" interchangeably. Traditionally, interoperability meant operating a radio network with pre-defined procedures and parameters, such as frequency, power, modulation scheme, network management, etc., that were shared among all of the intended operators in the network. Perhaps the most difficult part of coordinating all of these operating parameters though is the management piece, or "governance" in the SAFECOM Interoperability Continuum - remember from Tech Topic #1 where we indicated that interoperability is a "people thing" and not a "technical thing!" Recall also that interoperability is defined in Section 90.7 of the Commission's rules as "[a]n essential communications link within public safety and public service wireless communications systems which permits units from two or more different entities to interact with one another and to exchange information according to a prescribed method in order to achieve predictable results."
In order to encourage interoperability within the public safety community, the FCC has been proactive in predefining a set of non-Federal, or national, interoperability channels in designated public safety spectrum bands. These channels were designed to provide the public safety community with a set of channels with predetermined operational parameters that could serve as a basis for initial on-the-scene coordination and resolution of local interoperability issues. This topic addresses the Federal Interoperability Channels and the non-Federal Nationwide Mutual Aid Channels and reiterates the importance of using these channels for resolving initial interoperability - getting the people to people issues resolved!
Beginning in 1996, the Commission began a series of proposed rule makings and eventual orders that gave guidance and direction for the establishment of a system for public safety coordination and use of designated PS channels across the nation.2This included allocations in the high frequency (HF), very high frequency (VHF), and ultra-high frequency (UHF) bands. Initial allocations were based on narrowband applications for voice-based services only. The proceedings eventually included assignments in the reallocated 700 MHz and 800 MHz bands and included wideband services. Based on narrowband applications, the process eventually led to further narrowbanding from analog 25 kHz voice channels to digital channels of 12.5 kHz and subsequently to 6.25 kHz channels. Project 25 was a follow-on effort on the part of the Association of Public Safety Communications Officials (APCO) to establish various protocols for the use of these redesignated digital narrowband channels.3
In the process, the Commission also established a series of national mutual aid channels. The national mutual aid channels were designed to provide multiple agencies with a common set of operating frequencies and parameters for specific uses in an incident location; for example, common frequencies for fire, police, or emergency medical services. The use of these frequencies is guided by the regulations of the National Telecommunications and Information Administration (NTIA) for frequencies designated for Federal users and the Federal Communications Commission for frequencies designated for non-Federal use.4These rules are intended to provide minimal constraints on the use of the mutual aid frequencies but do provide specific guidelines for the coordination and use of the frequencies. Federal users may use the non-Federal channels only for interoperability with (and at the invitation of) a non-federal entity; non-Federal users may use the Federal channels only for interoperability with (and at the invitation of) a Federal entity.
The Commission has designated interoperability channels in the following frequency bands:
In order to assist Federal and non-Federal agencies and potential users of the mutual aid channels, the Department of Homeland Security has published the National Interoperability Field Operations Guide (NIFOG).5 It contains an organized listing of the national mutual aid channels as well as additional information to assist users in the field. The general use of a frequency is provided along with the NPSTC Channel Identification, the frequency of operation and any other parameter specifications. 6 The NIFOG is available by contacting DHS's Office of Emergency Communications at OEC@HQ.DHS.GOV.
Several sections of the existing rules provide additional guidance and rules for interoperability.
It should be noted that these national mutual aid channels are pre-designated so all agencies and responders may prepare in advance for operations that may be out of their normal region of concern and with other agencies that are not in their normal sphere of operations. While these mutual aid channels may be preprogrammed in radios, the rules that govern mutual operation must be considered prior to any actual use.
These mutual aid channels are integral to the much larger topic of public safety frequency assignments. Coincident with these channel designations is the assistance to the public safety community that is authorized for the amateur radio community. Our next topic will address the important work done by the ham radio volunteers.
1 Much of the work presented in this topic is attributable to Mr. Jeff Cohen, Senior Legal Counsel in the Public Safety and Homeland Security Bureau, Mr. Zenji Nakazawa from the Policy Division of the Bureau, Mr. Thomas Eng, from the Policy Division, and Mr. Tracy Simmons from the Licensing Branch of Policy Division. In addition, we wish to thank Mr. Ross Merlin, from the Office of the Chief Information Officer, U.S. Department of Homeland Security, and the author of the DHS NIFOG, for his assistance. We are very grateful for their contributions.
2 See the list of references and proceedings under FCC WT Docket 96-86; "The Development of Operational, Technical, and Spectrum Requirements for Meeting Federal, State and Local Public Safety Agency Communication Requirements Through the Year 2010" at http://hraunfoss.fcc.gov/edocs_public/result.do?parm=all - enter "96-1492" in the box to the right of "DA/FCC Number" or "96-86" in the box marked "Docket Number". Initially the frequency coordination was done via the National Coordinating Committee (NCC) but was subsequently referred to each state under their State Interoperability Executive Committees (SIECs).
3 "Project 25 is a multi-phase, multi-year project to establish a standards profile for the operations and functionality of new digital narrowband private land mobile radio (LMR) systems needed to satisfy the service, feature, and capability requirements of the public safety communications community for procuring and operating interoperable LMR equipment." See the APCO P25 web site at http://www.apcointl.org/frequency/project25/.
4 See http://www.ntia.doc.gov/osmhome/redbook/redbook.html section 4.3.16 for Federal frequency use under the rules of the NTIA. See http://wireless.fcc.gov/index.htm?job=rules_and_regulations Part 90 for Non-Federal frequency use under the rules of the FCC.
5 See http://www.npstc.org/documents/NIFOG%20v1.2%204-14-2008.pdf.
6 The channel identifications were determined by the National Public Safety Telecommunications Council (NPSTC) as part of the FCC rulemaking process. The Report of the Committee can be viewed at http://www.oes.ca.gov/Operational/OESHome.nsf/PDF/Calsiec021907CNTGReport/$file/Calsiec021907CNTGReport.pdf. See also http://www.npstc.org/channelNaming.jsp. An alternative version of the mutual aid channel listing is also available on the NPSTC web page at http://tsiec.region49.org/ATT2126321.pdf.