Speaking the Same Language

A strategic plan for interoperable emergency communications. By Chris Essid, Director, Office of Emergency Communications, Department of Homeland Security

Following the attacks on September 11 2001, the National Commission on Terrorist Attacks upon the United States (9-11 Commission) underscored the importance of interoperable communications during response activities. “High-risk urban areas such as New York City and Washington, D.C., should…ensure communications connectivity between and among civilian authorities, local first responders, and the National Guard. Federal funding of such units should be given high priority by Congress.”
   
The August 29, 2005 landfall of Hurricane Katrina along the Louisiana coast made clear that interoperable communication were needed well beyond the confines of “high-risk urban areas.” Consequently, to address these issues, Congress established the Office of Emergency Communications (OEC) within the US Department of Homeland Security (DHS). Congress created the OEC to be the federal focal point for improving emergency communications operability and interoperability across the nation.

OEC’s charge is both vital and complex. Estimates are that over 50,000 emergency response agencies exist across the nation, working in diverse disciplines, geographical locations, and under various jurisdictions.

To complicate matters further, 90 percent of the emergency communications infrastructure is owned at the state and local level with the vast majority of emergency responders being state and local employees. This means that improving communications interoperability is impossible absent the cooperation and consent of local first responders. As a result, OEC takes a ‘stakeholder-driven’ approach to its mission. Rather than issuing mandates, OEC supports states and localities by providing the tools, guidance, and coordination necessary for them to enhance emergency communications.

The cornerstone of OEC’s efforts is the National Emergency Communications Plan (NECP), issued in July 2008. The NECP is the first-ever national roadmap for improving  emergency communications. The NECP provides a comprehensive strategic plan for emergency responders and government officials at all levels, and is designed to guide them in making measurable improvements in emergency communications.

Developed with input from more than 150 emergency response experts and government officials, the NECP truly is a national plan. OEC created the NECP using information gleaned from the statewide communication interoperability plans of all 56 states and territories, national-level disaster after-action reports, and feedback from stakeholders from numerous disciplines and jurisdictions.

The plan outlines three goals (see Key objectives), supported by seven objectives that are further broken down into related initiatives and milestones. Together, the goals and objectives comprehensively address the primary issues affecting emergency communications operability and interoperability.

OEC developed the NECP with the awareness that communication gaps can exist for a wide variety of reasons. Sometimes the issue is technology-related – agencies use different radio frequencies, or have incompatible proprietary communication systems and infrastructure. But just as often, the roadblock is a lack of coordination and peer-level working relationships that prevent the development of standard operating procedures and cross-jurisdictional, cross-disciplinary collaboration.

Recognizing this, the NECP addresses the full range of emergency communications capabilities needed by emergency responders and maps those to the SAFECOM Interoperability Continuum. NECP milestones range from the development of technology standards, to developing a catalog of federal level technical assistance and establishing best practices for emergency communications coordination with international partners.

Over the past year, OEC has worked diligently, along with its partners at all levels of government and the private sector to complete the NECP milestones in several areas. One key initiative is the establishment of governance structures that provide the necessary leadership, coordination, and accountability for emergency communications efforts. OEC accomplished this milestone by sponsoring  workshops, working groups, technical assistance, and grant funding. As a result, more states now have a comprehensive statewide interoperability governing body that brings together officials and emergency responders across all levels of government to collaboratively enhance interoperability throughout a state or territory.

OEC also has supported the establishment of statewide interoperability coordinators  as an important element of effective emergency communications governance. Coordinators act as the point person and champion for emergency communications interoperability efforts in their state or territory. To support the coordinators in their work and share best practices, OEC created the Statewide Interoperability Coordinators Council (SICC) as a forum for information exchange and collaboration.

To help fund state and local efforts, OEC also provided grants coordination through the Interoperable Emergency Communications Grant Program (IECGP). The IECGP provides funding to states for implementing key activities in the NECP including governance, common operational protocols, standard operating procedures, training, and exercises. Also, OEC helped develop the SAFECOM grant guidance that provides the guidelines necessary to align federal grant programs with NECP initiatives.

The NECP also calls for cross-border emergency response collaboration. To accomplish milestones in this area, OEC is working closely with Mexico and Canada to improve cross-border communications and interoperability through a variety of initiatives, including workshops and working groups.

For example, in May 2009, OEC partnered with Public Safety Canada to co-host the inaugural US–Canada Cross Border Interoperable Communications Workshop in Niagara Falls, New York. The workshop is part of OEC’s ongoing efforts to assist law enforcement, border protection, customs enforcement, and emergency management agencies along the northern border to more effectively share information and coordinate. OEC also co-chairs the Security Communications Task Group (SCTG), part of the US and Mexico High Level Consultative Commission on Telecommunications (HLCC) that works to improve cross-border communications to combat border violence and improve border security.

By supporting state and local efforts and enhancing federal coordination, OEC is working hard to ensure that the NECP is a living document that can periodically be updated and revised. Moreover, in these challenging economic times, it is more important than ever that emergency communications efforts are focused, unified and coordinated. The NECP provides the framework so that, working together with a shared vision, federal, state, local and international partners can move emergency communications to the next level of interoperability.

Chris Essid was appointed in December 2007 as the first Director of the Office of Emergency Communications, within the Department of Homeland Security. In his position, Director Essid guides OEC policies, programs and activities promoting emergency response communications for Federal, State, local, and tribal governments, including the implementation of the National Emergency Communications Plan. Director Essid previously served as the first Interoperability Coordinator for the Virginia Governor’s Office of Commonwealth Preparedness. 

Key objectives
The National Emergency Communications Plan outlines three goals:
1. By 2010, 90 percent of all high-risk urban areas designated within the Urban Areas Security Initiative (UASI) can demonstrate response-level emergency communications within one hour for routine events involving multiple jurisdictions and agencies.
2. By 2011, 75 percent of non-UASI jurisdictions can demonstrate response-level emergency communications within one hour for routine events involving multiple jurisdictions and agencies.
3. By 2013, 75 percent of all jurisdictions can demonstrate response-level emergency communications within three hours of a significant event, as outlined in the department's national planning scenarios.