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Public Safety Communications Evolution

January 2019

Public Safety Communications Evolution The Cybersecurity and Infrastructure Security Agency (CISA) developed this brochure in collaboration with SAFECOM and the National Council of Statewide Interoperability Coordinators (NCSWIC), with the support and input of public safety officials at multiple levels of government across the country. The Public Safety Communications Evolution brochure: 1. Helps educate the public safety community and elected and appointed officials about the technologies and services to support the future of public safety communications 2. Describes the evolution of public safety communications and how legacy land mobile (LMR) communications used today continues to be the primary voice communications pathway for public safety personnel while the First Responder Network Authority’s (FirstNet) Nationwide Public Safety Broadband Network (NPSBN) concurrently brings enhanced broadband capabilities through the deployment of a nationwide data network 3. Discusses some of the most important requirements necessary to achieve the desired future long-term evolution of LMR technology networks and whether a transition is beneficial and operationally effective for the public safety community The public safety community continues to make great strides in improving public safety communications operability and interoperable capabilities while also strengthening responsiveness and preparedness at all levels of government. In February 2012, the Middle-Class Tax Relief and Job Creation Act (Public Law 112-96) authorized the development and implementation of the NPSBN. The law also established the FirstNet Authority as an independent body governing the NPSBN; set aside $7 billion for network development, deployment, and operation; and assigned the use of the 700 MHz D Block to the FirstNet Authority for the public safety community. As envisioned, the network will incorporate open, commercial wireless technology standards. On March 30, 2017, the FirstNet Authority announced a 25-year public-private partnership As promulgated by statute, the FirstNet agreement with their successful vendor who would be responsible for the deployment and Authority is led by a 15-member Board, which operations of the much anticipated NPSBN with Long Term Evolution (LTE), a worldwide includes the Secretary of Homeland Security, standardized broadband cellular technology. The agreement was the culmination of protracted the Attorney General of the , efforts by the public safety community to bring forth a nationwide public safety interoperable and the Director of the Office of Management network recommended by the 9/11 Commission after the terrorist attacks of September 11, 2001. and Budget. The additional 12 members have The FirstNet Authority’s commercial partner provided a unique approach to meeting the NPSBN’s broad experience in public safety, technology, requirements, in which not only would they develop and deploy the network using the dedicated and networks 700 MHz 14 spectrum licensed to FirstNet, but also provide access for public safety users to all development. In addition, the statute requires the commercial carrier’s existing LTE spectrum to expand network access and capacity far beyond more representation of States, tribes, the 20 MHz of dedicated D block spectrum. The network configuration was augmented with priority territories, or rural and urban areas. and preemption services to ensure unfettered access to the NPSBN resources. http://www.ntia.doc.gov/page/about-firstnet On December 29, 2017, after the release and review of FirstNet’s State Plans provided to all 56 states and territories, each Governor had “opted-in,” agreeing to have FirstNet and its commercial partner deploy the new network. The public safety community is continuing its use of commercial broadband services through agreements with FirstNet’s commercial partner or other commercial wireless carriers to access different data applications and services (e.g., National Crime Information Center/State Criminal Justice Information Systems queries, Computer-Aided Dispatch calls for services information, Records Management System queries, location-based information, picture, video, and image transmission), but not for mission critical voice communications. These data applications and the opportunities to wirelessly connect to other sources of information not previously available are vital and can dramatically improve emergency response, provision of public safety services, and the safety of public safety personnel. Today, LTE broadband technology provides cellular voice services through the incorporation of Voice over LTE (VoLTE) and commercial carrier offered voice Push-To-Talk (PTT) Over Cellular services (POC). Additionally, other PTT voice services applications are offered in the form of Over the Top (OTT) solutions, via third party vendors, which can provide a degree of PTT interoperability with LMR systems and LTE networks and devices. However, these presently offered voice capabilities do not operate in the same manner or to the same level of robustness and resilience as what is offered in public safety LMR. Additionally, an OTT solution offered by one vendor may not be interoperable with other OTT solutions operating on other commercial LTE networks. Various standards development organizations (SDO) continue to collect requirements and engage in processes to craft accredited technical standards for envisioned new equipment and services. Once these standards are ratified by the SDO, manufacturers will produce new equipment and services and commercial carriers will incorporate these new standardized capabilities to be consistent with their technology roadmap for individual networks. The public safety community will continually need to evaluate and test offered equipment and services to determine operational readiness and compliance in the challenging public safety environment. Until broadband technology is physically and technically capable of supporting public safety voice communications capabilities, consistent with or better than current LMR offerings, public safety agencies at all levels of government will need to continue using current LMR networks for their mission critical voice communications. Wireless broadband voice services will continue to complement and co-exist with LMR, but not replace it. Commercially available wireless broadband voice services do not currently meet all the requirements for public safety voice communications; therefore, LMR will remain as the primary voice communications service for public safety in the foreseeable future. Public safety’s use of LMR systems will also continue for the foreseeable future, as there is no defined timeframe when LTE broadband technology may provide the same level of mission critical voice services available today.

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Public Safety Communications safety standards and practices for Emergency Medical Technicians (EMT) Today robustness and resiliency, and do not or even a virtual physician in the back of incorporate high availability network the ambulance to expedite proper The public safety community has relied components to enhance immediate and lifesaving treatment. on LMR systems since the 1930s to consistent accessibility. support mission critical voice The Advanced Automatic Crash communications. These radio systems What is Wireless Broadband? Notification example demonstrates how provide a reliable means for personnel wireless broadband applications could Wireless broadband provides high- provide instant, actionable knowledge to in the field to communicate with each speed data communications in a mobile other, with public safety answering public safety personnel. The right environment. Because of public safety’s information (such as weather reports, points (PSAPs), and public safety unique mission, public safety responders communications centers. As LMR wanted persons and vehicles, hazardous require wireless broadband services and material information, drivers’ licenses systems evolved and additional devices with prioritized access and the spectrum bands became available, and photos, criminal history records, highest levels of reliability, coverage, incident scene pictures/video) provided varying and often disparate technologies and security. These capabilities are now were developed and deployed in new to the right people at the right time will becoming mainstream offerings by result in more effective responses and and upgraded systems across the nation. FirstNet’s commercial partner and other As a result, the public safety community the provision of timely and efficient commercial broadband network systems public safety services. These and other has struggled with interoperability and operators. the ability to facilitate communications public safety applications are only across jurisdictional and agency lines. The Nationwide Public Safety possible with high-speed wireless broadband. In addition, public safety agencies Broadband Network continue to use a combination of low By providing highly available mobile While the public safety community has LMR data systems and high- access to a plethora of public safety long recognized the importance of speed commercial broadband data purpose built application services and wireless broadband services, they also services to support response efforts and information sources, the goal of the recognize certain challenges must be perform wireless data access functions NPSBN is to drastically improve the overcome and requirements must be such as digital dispatch, license plate public safety community’s ability to met for this technology to meet all their queries, , and communicate with agencies, regardless communications needs. It will require a transmission/receipt of images and of jurisdiction or level of government, in continual effort to address these video. While significant progress is being an effort to access vital information. For requirements and integrate wireless made with the implementation of the example, public safety can watch video broadband into public safety operations. NPSBN by the FirstNet Authority, many images of a crime in progress, download As these requirements are met, the current wireless broadband data building plans of a burning building to a NPSBN will dramatically enhance the solutions are limited in their ability to handheld device, or connect rapidly and capabilities of public safety now and in support public safety responders securely with personnel from other the future. effectively as they remain non- jurisdictions. Just as smart phones have interoperable, do not embrace public changed the way society communicates, The Nationwide Public Safety Broadband these technology advancements are Network will allow first responders to match a subject’s photograph (taken There are a number of applications being dramatically changing the way public with a mobile device) against Driver’s developed to support public safety, including: safety responders communicate and operate. License or Criminal History databases to  Automatic Vehicle Location (AVL), verify identity. Automatic Resources Location (ARL) and in Advances in wireless data vehicle navigation communications are increasing mobile  Incident Command Situational Awareness access to applications, facilitating access What about the SAFECOM  Real-time fixed and to more and varied information Interoperability Continuum? resources, and providing near real-time (receipt and transmission) The five critical success elements in the information needed by public safety.  Shared video and real time camera SAFECOM Interoperability Continuum resources available from non-government Whether used in routine, daily activities (Governance, Standard Operating entities, such as alarm companies, security or large-scale responses, these new Procedures, Technology, Training and offices, complexes, building and facilities, capabilities are improving public safety Exercise, and Usage) are important to and other commercial and private communications and response consider when planning and establishments, etc. effectiveness. For example, Advanced implementing interoperability solutions  Mobile Data Computing Automatic Crash Notification provides for all public safety communications  Patient, Evacuee, and Deceased pre-arrival information to hospitals and technologies. The Continuum will Persons Tracking enables responders to make faster and continue to be used as a guiding  Monitoring and Manipulation (M2M) well-informed decisions about resources framework for interoperability planning  Geographic Information System (GIS) access to send to a scene. This allows for faster for the NPSBN. diagnosis and treatment of patients by

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Figure 1: This graphic illustrates public safety communications evolution by describing the long-term transition toward a desired converged future. For more information, please reference “Mission Critical Voice Requirements for Public Safety” published by the National Public Safety Telecommunications Council at http://www.npstc.org/npstcReports.jsp.

Public Safety Communications critical voice communications offered by Evolution traditional LMR systems. At the same time, Land Mobile Radio Networks agencies will continue to implement The vision of public safety communications emerging wireless broadband services Mission critical voice communications as it transitions from today’s technology and applications. During the transition have historically been delivered using to the desired long-term evolution is period, the FirstNet Authority, in conjunction LMR systems built to public safety shown in the graphic above (Figure 1). with public safety, is building out the requirements and operated by individual This graphic outlines a conceptual NPSBN and public safety organizations agencies or jurisdictions. framework for deploying nationwide will begin to transition to the FirstNet wireless broadband communications partner’s public safety network from Mission Critical Voice while maintaining LMR networks to existing commercial broadband service. If support mission critical voice communications. Reliable voice communications are essential and when the technical and non-technical for day-to-day operations, large-scale This section of the brochure describes the requirements are met and are proven to elements of this framework in more detail, responses, and other tactical situations. achieve mission critical voice capability, it Voice communications provide public including a description of the desired is anticipated agencies may migrate environment and requirements which safety responders with highly available, partially or entirely to this broadband always on, reliable, and continuous must be met to achieve the desired technology. Since wireless broadband evolution. connectivity between dispatch agencies technology does not currently support a and public safety users as well as among In the current state of communications, mission critical voice capability (i.e., talk multiple agencies’ users. Presently, dedicated LMR networks and commercial broadband around/simplex/direct mode), there will be a LMR networks provide highly available networks are evolving in parallel. As significant period of time where wireless voice services. The ability to talk user-to-user communications evolve, public safety will broadband networks and LMR systems or one user to many while not connected continue to use the reliable mission are both necessary. to infrastructure is a critical feature.

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Mission Critical Data available, public safety agencies are using Planning: It is critical public safety these services to complement their stakeholders continually engage in The public safety community uses wireless current LMR communications. Agencies nationwide, statewide, regional, and data communications to complement will use their LMR networks for critical tactical planning. Planning and mission critical voice communications. voice communications and will coordination among entities, such as Public safety currently uses wireless data increasingly use commercial wireless Statewide Interoperability Coordinators, services for many functions, such as broadband for critical data Statewide Interoperability Governing dispatch; local, regional, state, and national communications. Over time, reliable Bodies, Regional Interoperability and international license, vehicle, wanted public safety broadband networks based Councils, and federal partners form an person, criminal history database queries, on LTE technology will be built to public essential foundation for achieving messaging, and transmission of video and safety requirements. As the NPSBN is statewide communications images. Public safety agencies have achieved implemented, critical broadband interoperability goals and initiatives. wireless data capabilities by either applications will be developed and Partnerships: As wireless broadband building their own systems, subscribing deployed to the network as responders communications evolve, partnerships will to commercial wireless service providers, validate their capabilities. or combinations of both. continue to be critical, particularly with respect to developing and deploying the Although functional, many legacy LMR- Requirements NPSBN, which aligns and leverages based public safety wireless data services existing governmental and commercial are generally limited in speed, coverage, infrastructure and services. Further, the and capacity and do not support advanced, General and technical requirements must development of the NPSBN will require real-time applications needed by public be met for the desired evolution to be close coordination and partnering safety. achieved. between the FirstNet Authority, its commercial partner, and the government. General Requirements Continuing to invest in the sustainment Public safety agencies need to evaluate of current LMR networks and deployment Funding their governance bodies to ensure they include those stakeholders who rely on of the NPSBN will need to be done Emergency response agencies continue to simultaneously. and deliver communications during face the challenge of funding their current emergencies as well as communications mission critical voice systems while subject matter experts. The partnerships Nationwide Public Safety planning for the deployment of emerging built through governance provide technologies, including wireless broadband. Broadband Network agencies with access to knowledge (e.g., FirstNet has developed a business plan best practices and lessons learned) and which identifies, defines, and delineates resources previously unavailable. Public safety envisions the NPSBN as a the costs associated with the implementation dedicated network built to public safety and sustainment of the NPSBN as well as a Policy: It is critical for all levels of requirements using dedicated and user fee structure for subscribing agencies. government to proactively and collaboratively allocated spectrum. With recent decisions develop policies and plans for emerging by FirstNet regarding its commercial As a part of PL 112-96, Congress allocated emergency communications technologies. partner, agencies across the United States $7 billion in overall funding for the In the example of FirstNet, there is a are considering whether to maintain development, construction, operation, nationwide governance structure which their current contracts with other and management of the envisioned NPSBN, collaborates with F/S/L/T/T agencies to commercial services or to make the which was secured in spectrum auctions develop new initiatives, strategies, and transition to FirstNet. As capability is in 2015. timeframes related to investments and built using LTE Advanced technology, Governance–Planning, Partnerships, deployment of the NPSBN. The FirstNet public safety will continue to work with and Policy Authority’s Public Safety Advisory Committee industry and all levels of government to assists FirstNet in carrying out its duties advance the technology and address the Coordination and collaboration among and responsibilities through the provision requirements necessary to reach the interoperable communications stakeholders of subject matter expertise from desired evolution. During the transition makes the success of any governance representatives of the public safety period, public safety will continue using structure possible. As provided in PL 112- community and its industry organizations. LTE for wireless data applications. 96, FirstNet is collaborating with the Public Safety Communications Research Research, Development, Testing, and Commercial and Unlicensed lab and the National Institute of Standards Evaluation (RDT&E) Wireless Broadband Networks and Technology to explore LTE services RDT&E efforts will ensure emergency and the applications of LTE technology to responders have reliable, effective, public safety. The public safety community is standardized, and interoperable wireless increasing the use of commercial critical In addition to FirstNet’s technical and broadband capabilities and applications. voice communications. Although not built managerial efforts for the NPSBN, effective Research and development is critical to to public safety standards, commercial governance requires the active engagement determine how systems will meet networks are valuable because they of emergency communications stakeholders emergency response requirements and if complement reliable public safety LMR operating at the Federal, State, Local, Tribal, these capabilities will sustain reliability and voice networks. As commercial wireless Territorial (F/S/L/T/T) levels, across functionality in the harsh environments in broadband capabilities are made jurisdictions and disciplines. which emergency responders often work.

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Technical Requirements Spectrum Efficiency and Capacity Talk Around/Simplex/Direct Mode CISA continues to work closely with the The rapid growth of wireless broadband Talk around, also known as simplex or public safety community to establish and enabled applications and services has direct mode, is the capability to refine a set of technical and operational placed constraints on available spectrum communicate device-to-device when out requirements and priorities for public capacity in the commercial marketplace, of range of a safety wireless broadband systems. sometimes rendering commercial infrastructure or when working in an These elements were developed by networks slow and unresponsive. This area where direct unit-to-unit stakeholders with the understanding that has major implications for emergency communications is required. In the LTE as the NPSBN evolves, the public safety responders who require rapid and Advanced standard, this is often referred community will increasingly leverage the reliable access to information to to as Proximity Services (ProSe). It is an capabilities of the NPSBN to support their successfully accomplish their missions. In important capability for public safety operations. To achieve a converged addition, FirstNet will be working to operations as it allows a group of evolution end state, the NPSBN will need establish the best available wireless responders to choose to talk directly to to support the following technical coverage to ensure reliable each other without the need to connect to requirements: operations in wide geographic regions, the existing network infrastructure and is including major population centers as a critical capability when the network Priority Access and Pre-Emption well as rural areas. infrastructure has been damaged or destroyed. For example, when firefighters Public safety must have guaranteed Standards access to reliable and instantaneous respond to a wildfire or to an incident in communications at all times to effectively Defining technical standards is critical to a basement of a burning building which respond to emergency incidents. ensuring interoperability and public may be outside of any LMR network Guaranteed access is a critical feature for safety-specific features are built into the coverage area, they may use direct mode public safety, especially when using NPSBN. Standards-based systems will to continue to communicate with each commercial networks. provide backward compatibility, allowing other despite reduced coverage. emergency responders to continue to (QoS) communicate effectively on their current Evolution of Mission Critical Voice and Data Public safety requires a broadband mission critical voice systems as wireless network which will guarantee a high level broadband networks and applications A “converged network” is a dedicated, of performance for critical applications. mature and are integrated into existing public safety wireless broadband As all public safety communications move systems. LTE is a worldwide technology infrastructure capable of offering mission toward a converged broadband wireless standard widely adopted by commercial critical services, which include voice, environment, some data on the network network operators for their next data, and video, to public safety. It is will be more important than others and generation deployments. Difficulties lie in important because it reduces the costs of will need to be prioritized. In a network, public safety’s ability to influence a global developing and maintaining systems and QoS specifies how certain types of data standard, such as LTE, because the public increases the effectiveness of public are handled and how data is prioritized safety community represents a small safety in the field. However, convergence among various users and applications percentage of the LTE consumer market. of LMR and LTE will be a long-term while ensuring reliable performance. In addition to remaining aware and proposition and gradual transition as engaged with the 3rd Generation agencies integrate new technologies, Reliability Partnership Project (3GPP) standards rather than replace existing systems. The For public safety to be able to rely on the developments for LTE Advanced, the pace of convergence will vary from NPSBN for mission critical public safety community must also agency to agency and will be influenced communications, it must be designed to remain aware of continuing progress of by operational requirements, existing minimize capacity loss and service (P25) Telecommunications systems, wireless broadband coverage, degradation. Industry Association (TIA) 102 LMR and funding levels. During the migration standards developments and revision. period, solutions for connecting Resiliency Primarily, the community should remain traditional LMR with broadband systems Systems supporting public safety must be abreast of developments regarding LMR will be necessary. Even when the NPSBN developed with resiliency in mind. Highly and LTE internetworking standards is capable of meeting all public safety reliable and redundant power, which will provide the physical and voice and data requirements, some components, infrastructure, and logical accredited technical standard(s) agencies may need or choose to operate communication paths must be included which will mirror 3GPPs efforts to separate LMR systems. Broadband to reduce the possibility of disruption in provide mission critical push-to-talk technology to support mission critical service. services across the two technologies. voice is not currently available and it Additionally, the community should remains too early to define the timeframe reference the P25 Phase 2 standards, for the availability of such technology. To perform their jobs efficiently, public which provide for Console Subsystem safety requires the ability to seamlessly Interface (CSSI) and Inter-RF subsystem Interface as these two standards define It is necessary for public safety to continue roam between public safety and investing in LMR in order to: commercial networks, as necessary. equipment and services, which can presently be used to connect an LMR  Sustain existing systems system to an LTE network.  Continue planning for new systems

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Appendix A: Public Safety Communications Evolution Timeline

This appendix illustrates the technological advances, historical emergency incidents, legislative actions, and established committees which have contributed significantly to the evolution of public safety communications. Each milestone in the timeline, indicated by a black arrow, includes a description and the year it was enacted, occurred, or began. Milestones without a specific year attached to it are assumed to have occurred or were adopted over the decade to which it is assigned (by column). The black outlined boxes, located at the bottom of the graphic, represent specific noteworthy events and accomplishments.

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Appendix B: Public Safety Communications Evolution Timeline - Continued

This appendix provides additional milestones not included in the Timeline Graphic in Appendix A. The rows highlighted in grey represent historical events while all other rows represent specific public safety communications technologies and efforts.

Date/Year/Decade Description

The use of Telemetry Applications by Emergency Medical Services from field to hospital 1970 was introduced.

Establishment of Enhanced 911 (E911) services including 911 selective routing, 1970s Automatic Location Information (ALI), and Automatic Number Identification (ANI).

1980s Cellular Network was developed and deployed.

The Air Florida Flight 90 Crash used Washington Area Fire Mutual Aid Radio System and January 13, 1982 Police Mutual Aid Radio System networks, Washington Area Warning Alert Systems were used but insufficient.

Project 25 (P25) suite of digital standards for conventional and trunked public safety 1989 radio systems developed, promulgating a variety of requirements which enhance operations and interoperability.

1990s Cellular Network was developed and deployed.

Geographic Information System (GIS) began to be incorporated to support 911, CAD, 1990s RMS, and Tactical Mapping requirements in communications centers and PSAPs.

Federal Communications Commission (FCC) issued the Wireless Enhanced 911 Rules to address the new technologies that had to be created in order to provide E911 services to all wireless callers. Implemented in two phases:  Phase 1: Within six months of a valid request by a PSAP, wireless carriers had to deliver the 911 caller’s voice and originating location to the most appropriate PSAP. 1996  Phase 2: Phase II required wireless carriers, as of October 1, 2001 and within six months of a PSAP request for location information, to improve the location information used for call routing and caller location by providing the 911 system with the latitude and longitude of callers. Carriers were allowed to choose handset- based location technology using Global Positioning Systems (GPS)—or similar technology within individual wireless phones—or networked-based location technology using cell-tower triangulation.

Mobile Broadband/Data was created. It allows wireless access through a 1991 portable .

Nextel launches their iDEN (push-to-talk) network; a concept that would lay the foundation 1996 for mission-critical communications over cellular networks instead of the traditional LMR systems.

Emergency Alert System (EAS) was created. This replaced the legacy EBS as noted for the 1997 Cuban Missile Crisis, moving from analog to digital alerting capabilities and Common Alerting Protocol.

Wireless and Machine-to-Machine (M2M) capabilities (i.e., border control & 1998 security/central stations alarm systems) were implemented.

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Date/Year/Decade Description

1999 Portable Fingerprint Scanners were invented, primarily for Law Enforcement.

Public Safety Act of 1999 officially established 911 as the nation’s emergency calling 1999 number.

2000s Cellular Network was developed and deployed.

2000s Cellular Data Networks roll out vs. their traditional voice networks.

The Northeast Blackout was a reminder to have backup communications systems in place August 14, 2003 and has influenced continuity measures for emergency response personnel.

The transition from Public Switched Network (PSTN) to Internet Protocol 2005 (IP) begins.

Hurricane Katrina saw the use of Public Safety Wireless Network Program audio August 29, 2005 systems in Baton Rouge and New Orleans.

2006 Inter RF Subsystem Interface (ISSI) Connectivity was implemented.

Smart Building Systems with on scene accountability tactical applications began to be 2009 developed and integrated to interact with jurisdictional CAD systems.

2010s Cellular Network was developed and deployed.

Video to include Mobile and Airborne uses with Video Switching (surveillance, video 2010s analytics) increasing over the decade.

2010s Augmented Intelligence Tools starting to be developed and implemented.

The Deepwater Horizon Oil Spill led to the development of the Gulf Coast Wireless Information Network (Gulf WIN), a 700/800 MHz interoperable featuring April 20, 2010 fingertip roaming throughout the Gulf Coast region, this connected the U.S. Coast Guard with state and local responders.

During the Boston Marathon Bombing, public safety personnel maintained interoperable April 15, 2013 communications by using cache and building a super patch from six radio networks.

The Washington Navy Yard Shooting showed a use for during an incident. September 16, 2013 Multiple entities (the U.S. Navy, local public safety agencies, DC Mayor’s office, etc.) used platforms such as and Facebook to provide updates on the evolving situation.

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