APCO Government Affairs

The APCO International Homeland Security and Preparedness Committee presents this executive summary in an effort to objectively review the progress made toward the topic areas presented within the initial APCO Homeland Security White Paper (2002). Since 2002, our nation has had to overcome the devastation caused by Hurricanes Katrina and Rita on the Gulf Coast. These disasters in conjunction with the events of 9/11 revealed the operational vulnerability of critical emergency communications systems. The issue was not only interoperability but also operability. Due to the lack of operable emergency communications systems, command and control of the disasters was almost non-existent. An extensive power blackout and recent tragic events at a large educational institution also exposed new weaknesses.

Six years after September 11, 2001 APCO International finds that, while there have been significant accomplishments to report on issues affecting public safety communications, there is also a disturbing lack of progress. Multiple nationwide surveys indicate there are significant shortfalls in communications operability and interoperability in many regions and locales with many contributing factors. The lessons learned from 9/11 and Hurricanes Katrina and Rita for emergency communications are simple. Be prepared and diversify. Preparedness, planning and training are the key elements to achieving operability and interoperability during day-to-day activities and disasters.

Preparedness involves planning and implementing current and effective technology solutions. Preparedness involves coordination and mutual aid agreements with surrounding local jurisdictions, as well as state and federal government agencies. Preparedness involves making sure your personnel and equipment are able to function during any emergency and meet the unexpected challenges that may arise. Preparedness is making sure the daily operations of the emergency communications centers are adaptable to any unexpected situation. Preparation also includes adequate funding for planning and operations.

The purpose of this white paper is to provide a framework for discussion that highlights the need for Continuity of Operation Plans (COOP) for all emergency communications functions, including resilience of the 9-1-1 infrastructure and operations of public safety answering point. The primary goal of the white paper is to identify the status of public safety communications in relation to providing essential communication services in support of everyday public expectations. A secondary goal is to assess the expanded role of public safety communications as cited within the DHS National Preparedness Goal, Uniform Task List and Target Capabilities. Effective continuity of operation planning must be developed for every communications center, regardless of size and service area.

The original APCO Homeland Security White Paper began a process of examination and review of communications systems five years ago. This new report will expand upon many of the initial findings and includes new elements, clearly recognizing the impact of all hazards (e.g. man-made and natural disasters, etc.) and their applicability to every public safety communications center and community regardless of size.

During 2006, APCO International offered members an opportunity to participate in a survey that sought to obtain feedback of the perceived preparedness level at local public safety communications centers (PSCCs). APCO International has also been involved in many meetings focused on developing the fundamental requirements of effective COOP, which must be developed to provide meaningful local risk assessment and mitigation strategies to assure survivability and sustainability of mission critical services.

The primary conclusion derived from this report is that, despite substantial activity during the past six years, the level of adequate preparedness for a major incident at every public safety communications center continues to need improvement. The most successful models of interoperability planning and implementation are based upon strong leadership and true collaboration. The public has a heightened expectation that public safety communications will be provided effectively when needed. Elected and appointed officials have made similar promises and commitments to the public. Responders have no less of an expectation of communications. Given these expectations, we must not fail.

This report explores new topics that demonstrate the role of public safety communications as it continues to expand consistent with the most appropriate level of preparedness. Finally, this report recognizes and highlights the critical need, still unresolved in much of the country, to maximize the survivability of essential services amidst all classes of hazards. Improving public safety communications for preparedness and response requires sustained attention and action. Given the complexity and the variety of the public safety mission, there is no quick and easy fix.

This white paper is only the beginning of a long process because the road to responsibly improving our nation’s public safety communications capabilities. This process will require knowledge and input from many participants. It will also require significant funding to upgrade and prepare our current public safety infrastructure. The White Paper is intended to be a living document and subject matter experts associated with APCO’s Homeland Security and Preparedness Committee will update it as technology changes and circumstances warrant. To paraphrase Winston Churchill at the start of World War II, we could say that with this white paper, “We are not at the end, nor at the beginning of the end, but we are at the end of the beginning.”


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