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P6G;XP7nC:,D4Xn4  pG;X]oc, PE37PD\oc,&c_ pi7s-_5/,_ PE37P8wC;,Xw PE37XP<G?,  PE37PKYO,q  PE37 P          2\ ;Zhz `F#O P7JP#January 26, 1995, Drafth-   R-#?yxP7i&?P# PUBLIC SAFETY SPECTRUM NEEDS` (#PAGE  ă  yxdddy @@ՊX(## P7BP# #L P7LP# T T0-"0*0*0*"ԒT J ddx !ddxx J  &  }(   ;Z T  ;ZReport and Plan  tK# P7BP#  tKI7# P7BP#Of the  aB<# P7 ܼP#  "Lhi#  P7 zP#uFederal Communications Commission   hi  "hi  Meeting State and Local AGovernment Public Safety Agency 6 Spectrum Needs Through  "hiThe Year 2010# Xw P7XP# ă  %;Z# P7 zP# # L P7LP#February 9, 1995# P7 zP# S   U ԃԃSԃ"%0*''&"& }( hiT  P`(## Xw P7XP#FCC 9555# P7 zP#у T  ab<+# ^\  P6QCP# Before the  klK}v#  P7q P#FEDERAL COMMUNICATIONS COMMISSION # P7 ܼP#  a<L# XP\  P6QXP# # P7 ܼP#Washington, D.C.# Xw P7XP# T TP In the Matter of: Report and Plan for Meeting State and Local Government Public Safety Agency Spectrum Needs Through the Year 2010 T T T  };Z # P7P#REPORT and PLAN#Xw P7XP# TP  X-Adopted: February 9, 1995hh@Released: February 9, 1995  Xr-By the Commission:  l-K #  P7q P#Table of Contents# P7 ܼP# TTP   XxPI. EXECUTIVE SUMMARY p"(#F 4 XxX` ` xA. Objective ` p"(#F 4 XxX` ` xB. Approach ` p"(#F 5 XxX` ` xC. Summary of Comments from Public Safety Community ` p"(#F 6 XxX` ` xD. Summary of Analysis and Conclusions ` p"(#F 7 XxX` ` xE. The Commission Plan ` p"(#F 8 XxPII. BACKGROUND p!(#C 11 XxX` ` xA. Public Safety Communications ` p!(#C 11 XxX` ` xB. Current Public Safety Frequency Allocations ` p!(#C 14"&0*''("ԌXxX` ` xC. Previous Commission Actions To Meet Spectrum Demand ` p!(#C 19 XxX` ` xD. Pending Commission and Industry Actions ` p!(#C 21  b<XX` ` X ` ` 1. Refarming p!(#m 21  b<XX` ` X ` ` 2. New York City Public Safety Petition p!(#m 22  b(<XX` ` X ` ` 3. Advanced Technologies and APCO25  p!(#m 22 XUIII. PROJECTED PUBLIC SAFETY  SPECTRUM REQUIREMENTSp!(#m 24 XX` ` A. Spectrum Requirements Projected by Public Safety Community ` p!(#m 24  bZ <XX` ` X ` ` 1. Conventional Voice and Data Spectrum Requirements p!(#m 24  bd <XX` ` X ` ` 2. New Wideband Technologies p!(#m 27 XX` ` B. Analysis of Projected Spectrum Needs ` p!(#m 27  bx <XX` ` X ` ` 1. Conventional Voice and Data p!(#m 27  b <XX` ` X ` ` 2. New Wideband Technologies p!(#m 30 XUIV. THE COMMISSION PLAN p!(#m 32 XX` ` A. Data Collection Proceeding ` p!(#m 32 XX` ` B. Public Safety Liaison Officer ` p!(#m 33 XX` ` C. Options for Efficient Spectrum Use ` p!(#m 34  b<XX` ` X ` ` 1. Technical Options p!(#m 34  b<XX` ` X X a. Refarming Proceeding p!(#m 34  b<XX` ` X X b. Digital Technologies/Access Techniques p!(#m 35  b<XX` ` X X c. Sectored Antenna Systems p!(#m 36  b<XX` ` X ` ` 2. Economic Options p!(#m 36  b<XX` ` X X a. Use of Commercial Service Providers p!(#m 37  b<XX` ` X X b. Exclusivity p!(#m 37  b<XX` ` X X c. Leasing of Excess Public Safety Spectrum Capacity p!(#m 38  b <XX` ` X X d. New Spectrum Allocations  p!(#m 38  b-<XX` ` X ` ` 3. Regulatory Options p!(#m 39  b7<XX` ` X X a. Consolidation of Smaller Services into Broader  bD<Service Pools p!(#m 39  bQ <XX` ` X X b. Federal/NonFederal Sharing p!(#m 39  b^!<XX` ` X X c. Increased State Role in Spectrum Planning p!(#m 40 XX` ` D. Other Actions ` p!(#m 42 "u#0*&&--%"ԌXU<V. ADMINISTRATIVE MATTERS p!(#m 44 XUAPPENDIX  Private Radio Bureau Letters To APCO and PSCCp!(#m< 45 l   lFKl# XP\  P6Q[hXP##  P7G P#"F0*&&--;"  a<l#X` hp x (#%'0*,.8135@8: T -ԍ#&m P7#{&P# Omnibus Budget Reconciliation Act of 1993, Pub. L. No. 10366, Title VI,  6001(a)(3), 107  T -Stat. 312 (enacted Aug. 10, 1993).#c P7P#  Title VI of the Budget Act requires the Commission to determine (1) the extent to which issuing licenses through competitive bidding can be used to increase Federal revenues; (2) the future spectrum requirements for public and private uses, including State and local government public safety agencies; (3) the spectrum allocation actions necessary to accommodate those uses; and (4) the actions necessary to promote the efficient use of the spectrum, including spectrum management techniques to promote increased shared use of the spectrum that does not cause harmful interference as a means of increasing commercial access. Section 6002 of the Budget Act specifically addresses the needs of the public safety services and mandates that the Commission, by February 9, 1995, submit to Congress a study of current and future spectrum needs of state and local government public safety agencies through the year 2010, and develop a specific plan to ensure that adequate frequencies are made available to public safety licensees. The Budget Act also requires that, at least biannually, NTIA and the Commission conduct joint spectrum planning with respect to the future spectrum requirements for public safety agencies and spectrum allocation actions  Y-necessary to accommodate those needs.>@B> T-ԍ #&J\  P6Q#{&P#Commission staff members have met with National Telecommunications and Information Administration (NTIA) staff members several times since the inception of this study specifically to discuss public safety needs and spectrum allocations. > "0*&&--"Ԍ X- B. Approach  In conducting its study of public safety spectrum requirements the Commission  Y-solicited comment from the major public safety communications associations.8:B> T4-ԍ#&m P7#{&P# See letters from Ralph A. Haller, Chief, Private Radio Bureau (subsequently reorganized into the Wireless Telecommunications Bureau) to James R. Rand, Executive Director, Association of PublicSafety Communications Officials and to L. Miller, American Association of State Highway and Transportation Officials, on behalf of the Public Safety Communications Council (Apr. 4, 1994),  T-contained in the Appendix to this Report. #c P7P#8 These organizations were asked to: (1) review licensing data by band and geographic area and  Y-compare the results with the projections from a 1985 studyB> T -ԍ#&m P7#{&P# See PR Docket No. 84232, Order, FCC 85329, 50 FR 32239 (adopted June 21, 1985). #c P7P# of future public safety licensing and spect rum needs; (2) identify factors, such as increases in population, increased mobility, increased crime, and new services like mobile video and the Intelligent Transportation System (ITS), that may affect future needs; (3) develop spectrum needs projections to the year 2010, by geographic area and band, based on historical data and identified growth factors; and (4) discuss the potential to increase the channel capacity of existing allocations as a result of increased technical flexibility and more stringent spectrum efficiency standards. The following associations contributed to this Report through submissions on the record: The Association of PublicSafety Communications Officials International, Inc.  Y -(APCO), the Public Safety Communications Council (PSCC), lB> T-ԍ#&m P7#{&P# PSCC membership is comprised of AASHTO, the American Association of State Highway and Transportation Officials, FCCA, the Forestry Conservation Communications Association, IMSA, the International Municipal Signal Association, IAFC, the International Association of Fire Chiefs, and PCIA, the Personal Communications Industry Association (formerly NABER, the National Association of Business and Educational Radio). These organizations provide coordination of radio frequency assignments and use for all types of public safety disciplines at the state and local government levels, and for emergency medical services by nongovernment operators for licensees in the Fire, ForestryConservation, Highway Maintenance, Emergency Medical, and Special Emergency  T-Radio Services.#Xw P7[hXP#ю the American Public Transit  Y-Association (APTA),B> T -ԍ#&m P7#{&P# APTA represents the interests of public transit providers and suppliers of goods and services to the transit industry. and the ITS AMERICA Advanced Public Transit Systems Committee  Yy-(ITS).%yDB> Tn#-ԍ#&m P7#{&P# APTA and ITS supplied comments in response to the letter to PSCC from Ralph Haller. ITS AMERICA Advanced Public Transit Systems Committee was formerly called IVHS AMERICA Advanced Public Transit Systems Committee.% "y0*&&--,"Ԍ X-ԙ C. Summary of Comments from Public Safety Community   Y-#XN\  P [hXP#Public safety requirements can be separated into two categories. The first category consists of channels for the conventional oneway and twoway voice and data communications requiring relatively narrow spectrum bandwidth per channel. The second category consists of future systems that will offer advanced applications such as highspeed transmission of full motion video and transmission of high resolution images, such as mug shots and fingerprints, that may require substantially wider spectrum bands. We refer to these future systems as ``new wideband technologies.'' APCO contends that for conventional voice and data communications alone, the public safety community needs a new spectrum allocation of 6 megahertz for nationwide use, plus an additional spectrum allocation of 12 megahertz for use in metropolitan areas. APCO projects that for new wideband technologies the public safety community will need an allocation of at least 25 megahertz by the year 2000, and an additional 50 megahertz by the  Y -year 2010. B> T -ԍ#&m P7#{&P# APCO Comments at i.#Xw P7[hXP#ъ APCO's total projected spectrum need of 75 megahertz for new wideband technologies is in addition to the total 18 megahertz projected for conventional voice and data communications. In its comments, PSCC provided a substantial amount of public safety licensing statistics as well as anecdotal evidence of spectrum shortages in particular geographic areas. The PSCC comments, however, did not focus on quantitative projections  Y4-of additional spectrum allocation needs. 4hB> TM-ԍ#&m P7#{&P# PSCC filed its comments at or about the same time as APCO and neither refuted nor expressed  T%-support for APCO's projections.#c P7P# APTA stated that the demand for public transit services is growing and it anticipates the spectrum requirements for communications essential to operating our nation's public transportation systems will increase by as much as a factor of 2 in the 450 MHz and 800  Y-MHz bands. B> TR-ԍ#&m P7#{&P# APTA Comments at 3.#Xw P7[hXP#ъ APTA did not specify whether these needs could be met by simply obtaining licenses for additional channels using current spectrum resources or if an additional spectrum allocation would be needed. ITS also indicated a doubling of required spectrum capacity due to growth in use of public transportation and adoption of ``intelligent transportation system  Ye-technologies.'' eB> T"-ԍ#&m P7#{&P# ITS Comments, Appendix A, at 3.#c P7P#і ITS stated that at least 50 percent of this increased capacity would be accommodated by technological improvements. It is unclear from ITS's filing whether these needs could be met by obtaining additional licenses to use currently available spectrum or whether an additional spectrum allocation would be required."   0*&&--<"Ԍ X-ԙ D. Summary of Analysis and Conclusions  Y- The public safety community representatives submitting comments in this proceeding all maintain that their communications needs are increasing. We agree that communications play a vital role in the services provided by public safety agencies, and we recognize that the increasing demands placed on these agencies' communications systems will pose difficult challenges in coming years. We have concluded that the Commission must address these challenges and have developed a Plan to ensure that adequate spectrum capacity is available to meet the needs of the public safety community. A summary of this Plan is presented in the next Section of this Report. Our review of the comments filed in this proceeding, however, leads us to conclude that more information from public safety agencies and other interested parties is necessary to enable us to formulate with any precision the scope of the public safety community's spectrum needs. With regard to conventional voice and data communications, for example, APCO has provided evidence of spectrum shortages in particular areas of the nation, but has not submitted technical analyses to support its projected need for additional conventional voice and data spectrum allocations. With regard to wideband communications, we agree with APCO that additional spectrum may be needed for new wideband technologies, but we conclude that specific, quantified assessments of the scope of this need have yet to be undertaken. As discussed below, the Commission concludes that spectrum needed for the new wideband technologies could be shared with Federal users who will be using similar equipment for identical  Y-applications.B B> TQ-ԍ#&m P7#{&P# The Budget Act requires that the Secretary of Commerce identify at least 200 megahertz of spectrum currently allocated for use by Federal Government agencies for transfer to the Commission for use by the private sector. In addition, the Budget Act requires that 50 megahertz of the spectrum identified be recommended for immediate reallocation, with the remaining 150 megahertz to be made  T-available by January of 2004. See note 1, supra. The Department of Commerce released a  T-Preliminary Spectrum Reallocation Report (Preliminary Report) on February 10, 1994, see NTIA Special Publication 9427, making a preliminary identification of 200 megahertz of spectrum for reallocation. The Commission prepared a report in response to the Preliminary Report that discusses possible alternative bands of spectrum, and presents a supplemental spectrum reallocation plan that the Commission believes would enhance the viability of the reallocated spectrum for commercial and local  T -government use. See Report from the Federal Communications Commission to Ronald H. Brown, Secretary, U.S. Department of Commerce, Regarding the Preliminary Spectrum Reallocation Report, FCC 94213, Aug. 9, 1994. B Our study of the current and future spectrum needs of state and local government public safety agencies, which has been undertaken pursuant to the Budget Act and which" 0*&&--_" forms the basis for this Report, has led us to conclude that two principal steps should be taken to ensure that these spectrum needs are addressed. First, we plan to initiate a proceeding in the near future that will be targeted to the development of the type of specific, quantified data necessary to enable us better to evaluate the spectrum needs of public safety agencies. In this connection, we intend to work closely with all interested parties involved in public safety communications issues in order to ensure that the necessary information and data are developed in a comprehensive and systematic manner, so that these materials form a sufficient record upon which our future decisions can rely. Upon the completion of this data collection proceeding we will take the formal step of deciding whether to initiate a spectrum allocation proceeding. Second, we have identified several technical, economic, and regulatory alternatives that the public safety community should consider utilizing to increase the communications capacity of current spectrum allocations. We conclude that implementation of these alternatives by public safety agencies may meet at least some of the public safety agencies' requirements.  Xb- E. The Commission Plan  Part of the Commission's mandate under Title VI of the Budget Act is to develop a specific plan to ensure that adequate frequencies are made available to public safety licensees. The Commission will take the following steps to ensure that the public safety community's spectrum needs are met through the year 2010. These steps are discussed in greater detail in Section IV of this Report.  44 X` hp x (#%'0*,.8135@8: T'-ԍ#&m P7#{&P# 47 U.S.C.  151 et seq.#c P7P#ї established the Commission and gave it authority to assign frequencies to radio stations in the United States, its territories and possessions, except for those frequencies allocated to the Federal Government. The NTIA, an administration within the Department of Commerce, assigns frequencies to Federal Government stations under delegated authority of the President. The Commission allocates and assigns frequencies for use by entities other than the Federal Government. The public safety community is one of the most important users of the nonFederal radio spectrum. Sufficient mobile communication capacity for agencies charged with protecting the public welfare is of critical importance to the overall wellbeing of this nation. Every person in the country is dependent, directly or indirectly, on the many services provided by public safety and emergency medical entities. Wireless communication provides a vital component in the nation's public safety and emergency medical infrastructure. Agencies involved in the protection of life and property are able to do their jobs effectively and efficiently only by making extensive use of a wide array of wireless communications options available to them. Full use of these options requires that sufficient spectrum capacity be available and that spectrum use be well planned and coordinated to assure that the diverse needs of public safety entities can be satisfied. The public safety services considered in this Report include the Local Government, Police, Fire, Highway Maintenance, ForestryConservation, Emergency Medical, and Special  Y-Emergency Radio Services.jB> T-ԍ #&J\  P6Q#{&P#The public safety services are licensed under Part 90 of the Commission's Rules, 47 CFR Part 90. These services were created over a number of years as individual public safety groups petitioned the Commission for spectrum allocations, starting with the Police Radio Service in 1937. Each of these services is described briefly below.  YX-The Police Radio Service is used for mobile communications to handle both police  YC-operations such as dispatching vehicular units and coordinating tactical operations (e.g.,  Y.-stakeouts) and administrative matters (deployment of patrols, status of units). Any nonfederal governmental entity or institution authorized by law to provide its own police protection is eligible in this service." 0*&&--!"Ԍ Y-ԙThe Fire Radio Service uses mobile communications for both administrative and operational purposes. In those localities where the fire department has responsibility for providing rescue squad and ambulance service, the Fire Radio Service frequencies are used for the dispatch of ambulances, the communication of medical information to personnel at the site of an emergency, and the transmission of biomedical telemetry from the emergency site or the ambulance to hospital emergency room personnel. Any nonfederal governmental entity (typically a firefighting organization) is eligible in this service with the permission of the local government having jurisdiction over the area to be served.  Y3-The Highway Maintenance Radio Service provides communications related to the highway activities of any nonfederal governmental entity requiring communications essential to its official highway activities. Licensees use this service in performing a wide range of functions, including road maintenance and paving operations. Frequencies in this service are also used for communications related to ice and snow removal, removal of disabled vehicles, and patrol of tunnels, bridges and turnpikes. Twoway mobile radio is often used in this service to recall or reroute highway crews and vehicles to meet changing priorities due to highway and weather emergencies.  Yf-The ForestryConservation Radio Service has responsibility for law enforcement (e.g., park police and rangers who enforce fish, game, and environmental statutes), fire prevention control, and emergency medical service. Licensees in this service provide fire detection and control for onehalf billion acres of nonfederal forest lands. Any nonfederal governmental entity is eligible in this service. Also, persons or organizations charged with specific forestryconservation activities are eligible to operate in this service with the support of the local government having jurisdiction over the area to be served.  Y-The Local Government Radio Service is for communications involving the daytoday operations of governmental entities other than the Federal Government. Entities eligible to operate in this service include states, U.S. territories and possessions, counties, cities, towns,  Ym-and many other types of specialized governmental districts and authorities (e.g., flood control, water, sanitation) for a variety of public safety and welfare uses. All public safety entities are permitted to use this service and often include law enforcement, fire protection, highway maintenance, lifeguard and rescue service users.  Y-The Emergency Medical Radio Service provides radio communications for the actual delivery of emergency medical treatment including (1) transmission between rescuers at the scene of an accident or disaster and physicians at a hospital; and (2) the dispatch of emergency medical providers transporting injured persons to hospitals and trauma centers. Persons or entities engaged in the provision of basic or advanced lifesupport services on an ongoing basis are eligible to operate in this service. "t$0*&&--%"Ԍ Y-The Special Emergency Radio Service may be used by medical services, rescue organizations, veterinarians, handicapped persons, disaster relief organizations, school buses, beach patrols, communications standby facilities, and emergency repair of public communications facilities. Entities not meeting these eligibility criteria may also be licensed in this service solely to provide service to Special Emergency Radio Service eligibles on oneway pagingonly frequencies below 800 MHz, as specified in Sections 90.33 and 90.53(b)(4) or (26), 47 CFR  90.33 and 90.53(b)(4) or (26). Mobile radio communications have become vital tools for all aspects of public safety operations. The most wellknown example of the use of radio communications for public safety is in the police service. Over a halfcentury ago, police officers patrolled city neighborhoods on foot. To communicate with headquarters, they walked to special callboxes that were dedicated telephone circuits to headquarter dispatchers. Improvements in technology led to mobile radios becoming standard equipment in police and other public safety vehicles. Initially, the radio equipment was of a size and weight that made it suitable only for vehicular use. The use of such radio equipment in police vehicles enabled police to respond more quickly to requests for help, and cover larger areas with fewer officers. A significant change in law enforcement communications over the last ten years has been the widespread use of portable radios made possible by the development of microminiaturization. New portable radios enable local authorities to go back to ``neighborhood policing'' on foot and bicycles; this trend has received renewed interest due to its effectiveness in crime prevention and community awareness and involvement. Portable radios provide officers on foot or on bicycles with instant command and control ability as well as  Y-the capability to call for assistance from other officers at any time.B> YS-#XP\  PQ[hXP#э#&m P7#{&P# APCO Comments at 3.#Xw P7[hXP#ѻ Portable radios have also become essential for firefighters for onscene coordination, forestry conservation personnel addressing forest fires and other emergencies in remote locations, highway maintenance agencies coordinating emergency road repairs and snow removal, and for EMS teams communication with hospitals. For all of these public safety services, radio communicating is a vital tool which enables them to fulfill their obligations to protect the safety of life and property in a modern society. A critical element of public safety communications systems is the need to accommodate peaks in service demand that occur during multiple emergencies. There must be sufficient capacity to handle not only normal daytoday communications needs, but also large scale emergencies such as civil disturbances, storms, major fires, earthquakes, and other natural and manmade disasters. ""y0*&&--#"ԌThe demand for land mobile wireless communications, including that used for the public safety services, has grown rapidly in recent years. There are several factors that reflect the growth in demand for public safety wireless communications. These factors include the increasing reliance on wireless communications by public safety personnel, rising demands on public safety services as measured by increases in crime and other factors, and anticipated growth in the number of public safety personnel. Another factor that is leading to an explosive demand in all communications services, including public safety, is the improvement in semiconductor technology that has led to the introduction of increasingly advanced, economically viable information access and communications services. In the near future, the content of public safety communications will include not just voice, but also fingerprints, mug shots, building diagrams, full motion video, and a host of other high speed  Y -data applications. B> T| -ԍ#&m P7#{&P# Id. at i.#c P7P#ц These new services will require additional radio spectrum and, in some cases, wide bandwidths to facilitate high speed transmission. These new technologies and their spectrum requirements are discussed in greater detail later in this Report. Radio spectrum, a valuable but limited resource, has become vitally important to the nation's economic wellbeing. Advances in telecommunications technologies are spurring economic growth and generally improving the quality of life. Some of these technological advances could assist the public safety community significantly in performing its functions.  X4- B. Current Public Safety Frequency Allocations א  Public safety mobile service operations, other than radio paging, are usually twoway communications between a base and mobile station or between mobile stations. A mobile station is intended to be used while in motion or during stops at unspecified locations. The equipment used for mobile service includes base, repeater, vehicular, and handheld, portable stations. Public safety land mobile systems are sometimes multipurpose systems; for example, law enforcement, natural resource, medical, and fire control services may be supported by the same radio system or network. The radio systems are purchased from commercial vendors and are often similar to those employed by federal entities for similar purposes. Conventional voice and data systems use a single frequency or a pair of frequencies. Typically, a base station with a tall tower and an omnidirectional antenna is used to cover a large area. The base station uses a transmitter power of 50 to 100 watts. The Commission's licensing staff reports that the mobile units installed in vehicles typically use transmitter power of 100 watts and smaller antennas. Portable, handheld units have very small antennas and use typically only 2 to 6 watts. Users communicate in a dispatch/supervisory mode (onetomany) or communicate in a onetoone mode while other users sometimes monitor""j0*&&--#" communications and take action as appropriate. Typical communications messages from mobile sources are of relatively short duration and typical channel hold times are quite short, usually less than one minute. Under these circumstances, one or more channels can often be shared by several independent users. Specific audio or subaudio tones known as ``tonecoded squelch'' are used to permit any combination of the mobile radios to receive the radio  Y-transmission. A more advanced and efficient system is a trunked system that uses several frequency pairs integrated into a single system. When a user wants to transmit a message, the trunked system will automatically select a currently unused channel pair and assign it to the user. The user has the immediate use of a channel whenever any one of the trunked channel pairs is available. The following table describes the specific frequency bands allocated to the public safety radio services, including the number of channels and approximate quantity of spectrum in each band. Immediately following this table are two charts. The first chart illustrates the various frequency bands allocated to the public safety radio services. The second chart illustrates the amount of spectrum allocated to each of the various wireless radio services, including public safety."0*&&--" @ !ddxx Addxx @ &        az<d#^\  P6Q ,P# CURRENTLY ALLOCATED PUBLIC SAFETY RADIO SPECTRUM ă  J Addxx addx( ( (  J      a6<v~ Frequency Band  a@<z(MHz)  `DT0 b6<MN Number dof  aK<JChannels ăU  b6< MHz  aA<0(Approximate) ă     b<  2550  b <Y30 # XP\  P6Q[hXP#(VHF low band)#^\  P6Q ,P#уF 0 b<Ea 315F   b<h 6.3  U 9   b < V 150174  b <  # XP\  P6Q[hXP#(VHF high band)#^\  P6Q ,P#уL90 b <Ea 242L9  b <h 3.6  F  99   b< / 220222  b<  # XP\  P6Q[hXP#(220 band)#^\  P6Q ,P#уR90 b<e 10R9  b<h 0.1  L 99   b< / 450470  b< # XP\  P6Q[hXP#(UHF band)#^\  P6Q ,P#уX90 b< e 74X9  b< h 3.7  R 99   b<  | 806821/851866  b <  # XP\  P6Q[hXP#(800 bands)#^\  P6Q ,P#у^90 b<e 70^9  b<h 3.5  X 9   b<  | 821824/866869  b&<h}3 # XP\  P6Q[hXP#(800 public safety bands)#^\  P6Q ,P#ѐ `Db0 b<Ea 230b  b<  6   ^    a<  TOTAL* ă$0 b<E_ 941 ă%  b<. 23.2  b<   b Y/-# XP\  P6Q[hXP#  Y-   * #XP\  P6Q[hXP# Various amounts of spectrum have also been allocated in the 470512 MHz band in 11 markets: Boston, Chicago, Dallas, Houston, Los Angeles, Miami, New York, Philadelphia, Pittsburgh, San Francisco, and Washington, D.C., ranging from 6 to 18 MHz. Microwave spectrum in the bands above 1000 MHz is also available for public safety use. "!0*&&--r$"  ,wiԆ#xP7&P#?NOTE: Graph in original version of this document not available in  ,bwiwordperfect format #&xP7&P#"b0*&&--"  ,wi#&xP7+aJP#NOTE: Graph in original version of this document not available in wordperfect format; information contained in  [<graph is included below: #+xP7&P# ALLOCATED LAND MOBILE  ,'wi $SPECTRUM#&xP7'P#у  l K ` ` SERVICEhh,VppMHZ  lYK` ` CELLULARhh,Vpp 50  lK` ` SMRhh,Vpp 19  lK` ` PCShh,Vpp123xx-  l'K` ` PUBLIC SAFETY*pp23.2  lK` ` OTHER PLMR*Vpp36.5 * Various amounts of spectrum have also been allocated in the 470512 MHz band in 11 markets, Boston, Chicago, Dallas, Houston, Los Angeles, Miami, New York, Philadelphia, Pittsburgh, San Francisco, and Washington, D.C., ranging from 6 to 18 MHz. Figure 1  Figure 1 ' Figure 1 ' Figure 1 '")$0*&&--%&Y"  S-  #'X~xP7qXP# The VHF low and high bands and the UHF band are used primarily for nontrunked, conventional, dispatch voice communications. The VHF low band is subject to ionospherically propagated interference from distant stations during periods of high sun spot levels, and manmade noise, especially in urban areas, and is therefore not the most desirable band. The VHF high band and the UHF bands are more popular due to better noise and propagation properties. The 800 MHz bands are used for conventional and trunked systems. In the UHF and 800 MHz bands, channels are paired to allow use of repeater stations. Signals from a control station or mobile unit are transmitted on one frequency. The repeater retransmits the communication on another channel for reception by other control or mobile units. This system can provide greater geographic coverage than land mobile systems not employing repeaters. Public safety entities also use fixed services to provide communications between specified fixed points. These are usually pointtopoint systems operating in the microwave bands where the transmission of a radio frequency signal involves a single fixed transmitting location and a single fixed receiving location. A more complex type of fixed service is the pointtomultipoint system in which multiple transmitting or receiving fixed stations are involved. Fixed microwave services are licensed and regulated under Part 94 of the Commission's Rules, 47 CFR Part 94. The microwave spectrum is shared with other Part 90 private land mobile users, Part 74 and Part 78 broadcast service users, Part 21 and Part 22 common carrier users, and Part 80 and Part 87 aviation and marine service users.  S- C. Previous Commission Actions To Meet Spectrum Demand    S- The Commission has consistently been responsive to public safety spectrum  S-needs. For example, in response to a 1983 congressional mandateJ T -ԍ#&m P7#{&P# FCC Authorization Act of 1983, H.R. Report No. 356, 98th Cong., 1st Sess. 27 (1983).#c P7P# to study public safety spectrum needs, the Commission took a number of actions. We issued a Notice of Inquiry to solicit public comment on public safety spectrum  SN-needs.NhJ Tg-ԍ#&m P7#{&P# PR Docket No. 84232, Notice of Inquiry, 49 FR 9754 (Mar. 15, 1984).#c P7P#ѻ We subsequently released a Private Radio Bureau report entitled Future  S7-Public Safety Telecommunications Requirements7J T!-ԍ#&m P7#{&P# See PR Docket No. 84232, Order, FCC 85329, 50 FR 32239 (adopted June 21, 1985).#c P7P# that projected growth of public safety communications requirements through the year 2000, estimated the impact of new technologies on these projections, and presented a number of alternative means to meet future communications needs of the public safety radio services. "0*&&-- "Ԍ S-Prior to the August, 1985 release of the Future Public Safety  S-Telecommunications Requirements report, the Commission adopted a Notice of  S-Proposed RulemakingJ TK-ԍ#&m P7#{&P# GEN Docket No. 841233, Notice of Proposed Rule Making, FCC 84575, 50 Fed Reg 1582,  T#-(adopted Nov. 21, 1984).#c P7P# (NPRM) in response to 1) a petition filed by the Land Mobile Communications Council (LMCC), and 2) an August, 1983 study by the Commission's Private Radio Bureau of the need for additional private land mobile spectrum through the year 2000, that proposed to allocate 32 megahertz of land mobile reserve spectrum and to apportion it among the Public Safety, Industrial/Land Transportation, Business Radio, and Specialized Mobile Radio  SH-Services.H@J T9 -ԍ#&m P7#{&P# See id. at para. 1.#c P7P#і The public safety community argued that the 3.6 megahertz of spectrum proposed in the NPRM was inadequate to meet its needs. Therefore, in  S -the Report and Order J T-ԍ#&m P7#{&P# See GEN Docket No. 841233, Report and Order, 2 FCC Rcd 1825 (1986). #c P7P# in this proceeding, the Commission allocated six megahertz of spectrum exclusively for public safety use anywhere in the nation. Twenty two megahertz of spectrum was divided among the Cellular, Private Land Mobile (other  S -than public safety), and General Purpose Mobile Radio Services. J T -ԍ#&m P7#{&P# Four megahertz was not allocated in this proceeding, but was subsequently allocated for use in  T-an airtoground mobile telephony service.#c P7P# The six megahertz reallocation to public safety in the GEN Docket No. 841233 and the 1985 Public Safety Study converged in a subsequent proceeding (National Plan proceeding) that developed and established rules and technical standards for the implementation of the national plan incorporating this six  SK-megahertz of public safety spectrum.KJ T-ԍ#&m P7#{&P# See GEN Docket No. 87112, Report and Order, 3 FCC Rcd 905 (1986). The National Plan proceeding established an advisory committee to develop a national public safety plan to govern the use of  S-the six megahertz allocation, and defined 55 public safety regions in the U.S. J Tl-ԍ#&m P7#{&P# See GEN Docket No. 87112, Report and Order, 3 FCC Rcd 905 (1987). See GEN Docket No. 87112, Memorandum Opinion and Order, 3 FCC Rcd 2113 (1988) for a description and list of the  T!-55 regions. The national plan provides a regulatory framework for the 55 regional plans.#c P7P#ѝ The National Plan was intended to facilitate interoperability among communications systems to permit local, state, and federal agencies to coordinate their activities and to ensure efficient use of the spectrum allocated for public safety radio systems. While it is the Commission's belief that certain technical" 0*&&--" concerns must be addressed at the national level, the great diversity of needs in different areas of the country demand that input also be obtained at the state and local levels. Therefore, the National Plan focussed on general spectrum management issues while providing a framework that allowed regional public safety planning committees to develop plans tailored to their own particular communications needs. By using a twopronged approach of regional and national planning, the Commission hoped to provide spectrum for all the country's public safety and special emergency entities, while also providing sufficient flexibility to allow regional planners to develop efficient and effective solutions to local public safety problems. The last of the 55 regional safety plans, for the state of Idaho, was approved on August 3, 1993. While a few regions that completed their plans several years ago have made significant progress in implementing their plans, most of the regions are still in the very early stages of implementing their plans. Therefore, it is still too early to judge how well these plans are working to satisfy the spectrum needs of the public safety community.  S- D. Pending Commission and Industry Actions  There are several pending proceedings under the Commission's jurisdiction and one industry standardsetting effort whose outcomes may influence greatly the ability of public safety users to use the current spectrum more efficiently. Within the Commission, the Refarming rule making proceeding could, if implemented,  S-greatly increase channel capacity for public safety services.!J T-ԍ#&m P7#{&P# See PR Docket No. 91170, Notice of Inquiry, 6 FCC Rcd 4126 (1991); PR Docket No. 92 TY-235, Notice of Proposed Rule Making, 7 FCC Rcd 8105 (1992).#c P7P#! The Commission is considering a petition filed by the New York City Public Safety Agencies to use UHFTV Channel 16 in New York City, which would also enable them to implement spectrum efficient technologies in current frequency allocations. The APCO Project25 industry standardsetting effort may also have a positive impact in improving channel capacity. These efforts are discussed in detail below.  Se-1. Refarming  S7-In July of 1991, the Commission released a Notice of Inquiry (NOI)7BJ T*!-ԍ#&m P7#{&P# See id.#c P7P#ъ that sought information on any new technical, operational, or regulatory techniques that could promote more efficient use of the frequency bands below 512 MHz used by the private land mobile radio services, including the public safety services. The"0*&&--"  S-Commission used this NOI to adopt a Notice of Proposed Rule Making (NPRM)J Ty-ԍ#&m P7#{&P# See id.#c P7P#ф proposing certain spectrum efficiency standards that require systems to be at least as efficient as some narrowband technologies, while providing technical flexibility. This NPRM also proposed to phase out type acceptance of, and thereby ultimately prohibit, spectrum inefficient technologies. Refarming proposals include plans to narrow channel bandwidths over time; to provide for exclusive channel use below 470 MHz; to encourage technical flexibility and spectrum efficiency; to reduce maximum allowable power levels and antenna heights; and to allow trunking in bands below 800 MHz. One aspect of the refarming proposal that is of special interest for purposes of future public safety needs is the possibility of doubling or even tripling the present communications capacity by migration from 25 kHz channel bandwidth to 12.5 kHz, 6.25 kHz and 5 kHz channel bandwidths. Refarming of the private land mobile spectrum by implementing narrowband channels appears to be readily achievable from an engineering prospective. Implementation of narrowband technologies would result in at least a two to threefold increase in available voice channels for existing public safety systems. We emphasize, of course, that the refarming rulemaking proceeding currently remains pending and no final action has been taken. Our discussion here seeks to illustrate the implications of the proposals in the NPRM, but is not intended to suggest any particular outcome in the rulemaking proceeding.  S-2. New York City Public Safety Petition On April 6, 1992, the New York City Public Safety Agencies (Agencies) filed a Request for Waiver with the Commission, seeking waiver of Parts 2 and 90 of the Rules to permit the use of UHFTV Channel 16 for public safety operations in New York City. The agencies filed a supplement to the original request on April 14, 1994, and a new Conditional Waiver Request on November 21, 1994. The latest request includes a comprehensive agreement reached between a coalition of television broadcasters operating in the metropolitan New York area, and a coalition of metropolitan New York public safety agencies. The agreement calls for the use of UHFTV Channel 16 in the metropolitan New York area by public safety agencies for at least five years while these agencies work to convert their existing radio systems to more spectrum efficient technologies and modes of operation. The Commission solicited public comment on the latest waiver request on"!j0*&&--"" December 14, 1994, with final comments due by January 20, 1995, and we expect to take prompt action on this request.  S-3. Advanced Technologies and APCO25  On September 7, 1988, the Commission released a Notice of Inquiry  Sv-(Notice)vJ T-ԍ#&m P7#{&P# See GEN Docket No. 88441, Notice of Inquiry, 3 FCC Rcd 5399 (1988).#c P7P# to obtain comment on trunking compatibility protocol standards for radio equipment operating in the 821824/866869 MHz public safety bands. In that  SH-Notice, the Commission examined the possibility of establishing standards to increase interoperability among licensees using different types of trunked radio  S -systems. jJ T5 -ԍ#&m P7#{&P# See GEN Docket No. 88441, Memorandum Opinion and Order, 4 FCC 3874 (1989).#c P7P# The Commission concluded that trunking standards were not necessary to permit interoperability because users of analogbased radio systems can communicate with one another if they transmit on the same frequency and operate in the nontrunked (conventional) mode. We also recognized, however, that the next generation of radios is likely to use digital modulation and transmission techniques, and that digital systems may require some degree of standardization to enable system interoperability. The Commission initiated a Further Inquiry to explore the important issue of standards as well as the many other technical, economic, and regulatory issues that relate to the use of advanced technologies in  S-the public safety services.  J T-ԍ#&m P7#{&P# See GEN Docket No 88441, Further Notice of Inquiry, 4 FCC Rcd 8519 (1989).#c P7P# APCO formed a working group (APCO Project 25) to explore the issues raised by the Commission in the Further Notice and to develop technical standards for the next generation of public safety radios. The benefits that public safety agencies anticipate from the standards being developed by APCO Project 25 include interoperability between agencies and between different levels of government, and competitive procurement of radio equipment. Other issues being discussed are how to achieve a graceful migration to digital technology and how to make more efficient use of public safety radio spectrum. According to APCO, when Project 25 technology is implemented, it will initially provide twice as many"7 0*&&--=" channels in the 450512 MHz and 800 MHz bands by halving channels from their current 25 kHz bandwidth to 12.5 kHz. APCO also asserts that in the VHF high band, a reduction from the current 15 kHz channels to 12.5 kHz channels will provide at least a sixforfive gain, in addition to allowing use of adjacent channels in the same geographic areas. Project 25's ultimate goal is 6.25 kHz channels, or a  S-fourtoone gain over current 25 kHz channels.!J T-ԍ#&m P7#{&P# J. Powell, ``Project 25: An Overview of its Inception and Progress,'' APCO Bulletin, June  T-1994, at 38.#c P7P# The outcome of Project 25 may increase channel capacity for certain users and should be considered in future spectrum planning. "HB!0*&&--"  a<  # P7 ,P#III. PROJECTED PUBLIC SAFETY  a <X` hp x (#%'0*,.8135@8:M N T-ԍ #&m P7#{&P#Our rules governing use of the 800 MHz band channels allocated for public safety already provide for substantial technical and operational flexibility. Not only may licensees use trunking to enhance the use of these channels, but they may also operate with a variety of bandwidths and modulation techniques as long as they do not exceed the prescribed emission mask for their authorized  T&-bandwidth. For example, a licensee could use a digital access technique like TDMA or CDMA to significantly increase the communications capacity of their radio channels. Alternatively, they could increase their communications capacity by creating several narrowband channels out of each existing  T-25 kHz channel.#c P7P#^ If adopted, the spectrum efficiency standard proposed would lead to an eventual doubling or even tripling of the current communications channels by migrating from 25 kHz channel bandwidth to 12.5 kHz, 6.25 kHz and 5 kHz channel bandwidths. In addition, the proposal to permit trunking on existing public safety channels in the bands below 512 MHz could result in at least a tripling  Y-of the present communications capacity.?P N T-ԍ#&m P7#{&P# See NTIA Report 94311, ``A Survey of Relative Spectrum Efficiency of Mobile Voice  T -Communication Systems,'' July 1994.#c P7P# Finally, the proposal to restrict more tightly system coverage to the smallest possible geographic area should enable more public safety agencies to obtain licenses. "% ?0*&&--n"Ԍ Y-` ` xb. Digital Technologies/Access Techniques Digital voice systems are rapidly being deployed in mobile services such as SMRs and cellular. Radios that operate on 12.5 kHz channels and use digital technology are becoming available for public safety applications. Two promising digital technologies are currently available, Time Division Multiple Access (TDMA) and Code Division Multiple Accessx (CDMA). The cellular industry has adopted a standard for each of these technologies and enhanced SMR systems have deployed TDMA systems in several major markets. TDMA is a technology that increases the number of communications channels by dividing each available channel pair into multiple time slots. The TDMA system being used by many cellular licensees splits the 30 kHz channel into three time slots, potentially enabling as many as three users to share the channel at any one time. The TDMA system being implemented by enhanced SMR licensees splits the 25 kHz channel into six time slots, potentially enabling as many as six users to share the channel at any one time. Besides increasing capacity, TDMA has the advantage of allowing complete privacy through digital encryption, as well as facilitating access to advanced digital data services. CDMA is a technology that employs spread spectrum modulation techniques and coding schemes to permit many separate communications to share a single wideband communications channel. With CDMA, each radio transmission is spread over a large band of spectrum at relatively low power. Each transmission is uniquely coded so that CDMA receivers can extract the correct message. The wider the communications channel the greater the advantages of CDMA in increasing communications capacity. The current cellular CDMA standard specifies a 1.25 megahertz channel scheme. CDMA systems being used in cellular systems have the potential to provide 7 to 10 times the capacity of existing analog systems. CDMA has a theoretical potential to provide up to 20 times the capacity of current analog systems. Both TDMA and CDMA technologies continue to develop and are becoming more robust and reliable. These technologies could be employed to increase the communications capacity of wireless public safety communication systems significantly. As discussed above in Section II (D) (3), APCO Project 25 is developing standards for the use of digital technology in the public safety radio services. The digital standards being developed by APCO Project 25 could, among other things, ultimately provide for interoperability among public safety agencies using digital technology, and encryption for secure communications.  We anticipate that the efficiency and operational advantages of digital technology will contribute significantly to the ability of public safety agencies to meet their wireless communications needs. "#&?0*&&--$"Ԍ Y-` ` ?c. Sectored Antenna Systems Cellular and enhanced SMR licensees routinely use sectored antenna systems to expand the capacity of their current channels. This technology uses phased antenna arrays to  Y-divide the base station coverage area into three independent 120$ sectors or even smaller 60?$ sectors. Each sector has an individual dedicated antenna array that receives and transmits communications only within its sector. The overall antenna system is designed to prevent  Ya-interference and overlap from adjacent sectors. By employing a 120$ sectored antenna system the capacity of the system is increased by a factor of three. Adoption of this technology by public safety licensees could increase the capacity of these systems as well.  Y -2. Economic Options  Historically, forecasting demand for spectrum has been extremely problematic. Most licensees have not paid for spectrum and, therefore, do not experience the full costs  Y -associated with using that spectrum.@ N T"-ԍ #&m P7#{&P#Licensees of cellular, SMR, and paging systems that have been purchased on the secondary  T-market are notable exceptions.#c P7P# If a licensee has a choice between spending $1 million for a new radio system or $2 million for a system with equivalent features that uses onethird as much spectrum, it clearly would choose the less expensive system as long as it could freely obtain access to the necessary spectrum. The result is that many users may not be motivated to utilize spectrum efficiently. The Commission clearly recognizes that the public safety community has certain unique characteristics that distinguish it from other users of the electromagnetic spectrum. First, public safety entities typically must satisfy clearly defined public interest obligations and do not seek to maximize profits. Second, state and local public safety radio users have significant requirements for immediate channel access because of their primary responsibility to protect life and property. Finally, public safety radio users typically face a much longer planning cycle to acquire new systems with public funding, as compared to other nonFederal radio users. These factors may conflict with the Commission's responsibility to ensure efficient spectrum use, particularly when increased spending may be required to improve spectrum efficiency. In light of these distinguishing characteristics, we recognize that public safety radio users need certain concessions to make sure they can satisfy their radio communications requirements. For example, over the years the Commission has attempted to satisfy public safety needs by allocating additional spectrum and by providing public safety licensees with additional time to plan and implement new radio systems. However, as unoccupied spectrum becomes more valuable, and as demand for a broad array of wireless communications"!'@@0*&&--"" services rapidly grows, it is clear that it will be increasingly difficult for the Commission to allocate or reallocate spectrum to satisfy expanding spectrum needs of existing users while at the same time satisfying the needs of new users and services. There are several ways in which economic incentives can be used to encourage state and local public safety agencies to seek more spectrum efficient means of satisfying their growing wireless communications requirements. Four options are discussed below greater use of commercial service providers; providing exclusive rights to spectrum space; allowing the leasing of excess public safety spectrum capacity for other wireless services; and allocating spectrum to public safety use on an exclusive basis only for spectrum efficient technologies.  Y -` ` a. Use of Commercial Service Providers  Y -One#XN\  P [hXP# option to reduce the demand of state and local public safety agencies for dedicated spectrum is to encourage greater use of current and future commercial wireless radio systems by providing commercial operators with incentives to provide public safety  Y{-agencies with priority access.#XN\  P [hXP# For example, the Commission could offer new PCS licensees the option to obtain additional blocks of spectrum, either free or at a significant discount from their true market value. In return, the PCS licensee would commit to provide service to public safety agencies in its market area. This service would have to be tailored to meet all the requirements of public safety agencies such as priority access and the ability to stay on the air at all times. Such an approach may provide a viable wireless communications option for many public safety agencies throughout the country. It would enable them to use a cuttingedge technology, obtain relatively inexpensive radios, and have access to a very costly and sophisticated wireless communications infrastructure that in all likelihood they could not afford to implement on their own. In addition, if service were obtained from a PCS licensee, the public safety agency would generally have wireless communications access over a wide geographic area. As more users migrated to PCS systems, interoperability problems would be reduced as such users could easily communicate with each other, given compatible system  Y"-technologies.  a  Y-` ` b. Exclusivity Exclusivity is another option by which the Commission could create economic incentives for licensees of this spectrum to use their assigned channels more efficiently. By this mechanism, licensees of systems of a specified minimum size would be able to apply to the Commaission to stop licensing new users on their channels, and thereby create a more stable and predictable operating environment. We anticipate that licensees would then be able to rely on exclusive channel use to make mutually beneficial arrangements with cochannel"U%(@0*&&--p&" licensees in their geographic area. These arrangements could include such things as establishing a new radio system that all current licensees could use, or dividing the channel into several smaller channels that could be used on an exclusive basis by each of the current licensees. Our experience with exclusive channel assignments in the 800 and 900 MHz private land mobile bands and in the Cellular Radio Service suggests that, with the appropriate incentives like exclusive use and technical and operational flexibility, public safety licensees with exclusive channel assignments would be likely to make more intensive use of the increasingly scarce spectrum resources in the bands below 470 MHz.  Y1-` ` c. Leasing of Excess Public Safety Spectrum Capacity In addition to granting exclusive licenses for public safety spectrum, we may want to consider allowing licensees to lease excess capacity on their systems for other wireless services. Revenue from leasing could be used to offset the cost of implementing more efficient technology in currently allocated spectrum. Also, by permitting the leasing of public safety spectrum capacity for other uses, any concern about the opportunity cost of additional public safety allocations would be reduced. This, in turn, would reduce the need for detailed spectrum requirements projections and justifications for such allocations. This option may be particularly attractive if combined with the option, discussed below, in which public safety spectrum would be licensed in blocks to the states.  Y-` ` xd. New Spectrum Allocations   Y- Although we do not at this time have the information necessary to initiate a nationwide allocation proceeding for additional public safety spectrum, we would consider an allocation for the express purpose of encouraging more efficient spectrum use. The Commissioxn recognizes that any migration of public safety radio users to new, more efficient technologies will take many years to accomplish, both because of the significant number of licensees on current public safety channels, and because of the need to provide sufficient time for licensees to amortize equipment purchased prior to any rule changes. One way to help speed up the introduction and implementation of new, more efficient technologies would be to make available a band of vacant spectrum that could be used for such technologies. Such a band would be reserved for public safety licensees that will use technologies that meet or exceed a Commission spectrum efficiency standard. Licensees would be given exclusive rights to use their assigned channel(s) as an incentive to invest in new equipment. The reservation of such a band for innovative technologies should encourage and accelerate the introduction of new, more efficient radio equipment. It should also make it easier for public safety agencies that may be operating under severe spectrum constraints to migrate to the new band under a transition that they themselves determine. The obvious difficulty in implementing such an approach is that there is no spectrum controlled by the Commission that is both available for allocation and adjacent to or quite"U%)@0*&&--p&" close to existing public safety radio bands. Nevertheless, if there is sufficient interest in this option by the public safety community, the Commission will work with NTIA to attempt to identify spectrum that could be shared by NTIA and the Commission.  Y-v3. Regulatory Options   Yv- There are several options to help meet public safety's wireless communications needs through the year 2010 that require structural changes in Commission regulation of the Public Safety Radio Services. These options consolidating the six public safety services into broavder service pools; increasing federal/nonfederal spectrum and system sharing; and increasing the role of the states in planning and managing spectrum use, are discussed below.  Y -` ` a. Consolidation of Smaller Services into Broader Service Pools  X -  Y - One option for helping meet public safety wireless communications needs is to consolidate many of the smaller radio services into broader service pools. With respect to the Public Safety and Special Emergency Radio Services, we could, for example, consolidate the six component radio services into a single Public Safety Radio Service. The rationale for this proposal is twofold. First, in its allocations of 800 and 900 MHz spectrum for land mobile services, the Commission used broad service pools, including one in which all agencies eligible in the public safety and special emergency radio services could obtain licenses. This approach has successfully blended eligible public safety service entities into common pools of frequencies.  Y- Second, the number of channels allocated to each radio service may not reflect the current demand for radio channels by a particular category of public safety agencies. Most spectrum allocations to the individual public safety services were made over 25 years ago. Typically, the size of the allocations to each service was a function of the perceived relative importance of that service at the time of the spectrum allotment. Although we have implemented rules to permit applicants to be licensed to use channels in a radio service for which they are not eligible, a more flexible approach involving broader eligibility pools may be a preferable solution. Our favorable experience with such pools in the 470512 MHz and 800 MHz bands certainly argues for strong consideration of such an approach. Although the radio service consolidation proposal has received mixed reviews in the refarming comments,  Y-there is wide support for at least some level of consolidation. A consolidated Public Safety Radio Service pool should help ensure that all public safety agencies have equal access to available public safety radio channels.  Y"-` ` b. Federal/NonFederal Sharing An alternative to additional allocations for public safety wireless communications services would be spectrum and/or system sharing among Federal, state and local public"U%*@0*&&--p&" safety entities. The functions of many Federal, state and local public safety services are similar. Examples of similar services include law enforcement, fire protection, and rescue services. Indeed, in emergency situations such as natural disasters, Federal and nonFederal public safety groups work sidebyside, often using identical equipment. These types of joint activities could be enhanced through the use of common wireless communications spectrum  Y-or systems. In fact, this type of sharing has already been proposed in a report accompanying the National Performance Review that proposed the establishment of a National Law  Y_-Enforcement/Public Safety Wireless Network.+A_ N T-ԍ #&m P7#{&P#Office of the Vice President, Reengineering Through Information Technology, Accompanying  T -Report of the National Performance Review, Sept. 1993, at 3134.#c P7P#+ This new network would enable Federal, state and local officials to communicate with each other over tactical mobile radio systems to share resources and better coordinate investigations. Also, the Federal Law Enforcement Wireless Users Group (FLEWUG), a joint TreasuryJustice Department initiative, has been  Y -formed to study interoperability problems and other obstacles to developing such a network.B D N T-ԍ#&m P7#{&P# L. Corbin, ``Wireless Wonders,'' Government Executive, Oct. 1994, at 61. A likely use of such a network would be access by Federal, state, and local law enforcement groups to the National Crime Information Center's NCIC 2000, a system that will, for example, enable instantaneous fingerprint identification and transmission of stolen property descriptions. APCO has estimated that 75 megahertz of spectrum will be required to implement new wideband technologies, like access to NCIC 2000. We believe that all law enforcement agencies should use the same frequencies to implement future systems that require significantly wider bandwidths than traditional voice and lowspeed data systems. Spectrum to implement such wideband wireless communications systems might be found within the spectrum to be transferred by NTIA to private sector use or in other spectrum found suitable for Federal and nonFederal sharing. This approach should have the dual benefits of conserving scarce spectrum while promoting cooperation and coordination among Federal, state, and local public safety agencies, thus enhancing the ability of all public safety agencies to meet their obligations to the American public.  Y-` ` c. Increased State Role in Spectrum Planning Another means of increasing access to spectrum is to encourage public safety agencies in the same or neighboring geographic areas to develop consolidated wireless communications systems. For example, many small agencies that could not individually purchase a sophisticated and spectrum efficient trunked radio system could combine their resources to jointly purchase and implement a trunked system. This type of cooperation was encouraged by the Commission in the Report and Order in Gen. Docket No. 87112 (3 FCC Rcd 905 (1987) at para. 51), the proceeding that implemented a National Public Safety Plan. In response to this encouragement, a growing number of public safety agencies have invested" +B0*&&--!" considerable time and money to develop widearea multiagency trunked public safety radio  Y-systems.C N Tb-ԍ#&m P7#{&P# For example, statewide trunked radio systems have been implemented in Arkansas and Utah.#c P7P# We will continue to encourage all public safety agencies to consider this option to help them better meet their wireless communications requirements. Although voluntary cooperation among public safety agencies to create larger consolidated radio systems has been increasing, the Commission may need to take a more active role in this process by changing the way it assigns radio channels to public safety agencies. One approach would be to assign all the channels within the existing Public Safety, Special Emergency and Emergency Medical Radio Services to each state. Under such a licensing scheme, no additional licenses would be granted by the Commission to individual  Y -public safety agencies.D h N T3 -ԍ #&m P7#{&P#All existing public safety licensees would be grandfathered under such an approach.#c P7P# Each state would then be able to act as the public safety spectrum manager and work to get the maximum communications capacity out of the limited spectrum resource available. With the exception of the Emergency Medical Radio Service, current Commission rules for public safety services do not recognize any role for state governments distinct from  Y-the role of state and local agencies as radio users.E N TI-ԍ #&m P7#{&P#See  90.27(a), 47 CFR  90.27(a).#c P7P#ѥ Greater state participation in public safety spectrum management could have several benefits from the Federal and state perspective. It could promote autonomous decisionmaking by state and local governments on questions of their daytoday operation. Such a licensing approach would enable the public safety users closest to the specific communications problems being faced, to develop and implement solutions to those problems. Another benefit is that it should facilitate  Y-interoperability and coordination among the various public safety agencies within each state.F N Ta-ԍ #&m P7#{&P#We would also encourage states to work cooperatively to resolve any interstate coordination  T9-problems. #c P7P# Wellcoordinated statewide systems could be developed to efficiently and effectively meet a broad range of wireless communications needs. This licensing approach could also help ensure that the spectrum allocated to the Public Safety Radio Services is used as efficiently and effectively as possible by providing state and local authorities greater latitude to implement spectrum saving technologies. Finally, this approach should give state and local public safety agencies easier access to spectrum necessary for system architecture redesign, while still accommodating current needs. A potential problem with this approach is that some local communications needs could be subordinated to state needs. Even though this approach would give local governments less" ,"F0*&&--<" control over access to the radio spectrum, we believe that, on balance, it could improve use of scarce public safety spectrum as the state determines how this spectrum should be used to best protect the lives and property within the state.  Y-#XN\  P [hXP# Although increased state participation in spectrum management could provide many benefits, there are many complex issues to be addressed before the Commission could proceed with this concept. Changes that may be required in the current Rules and in the Communications Act of 1934 concerning spectrum management roles and other legal constraints would have to be studied. The public costs and benefits in terms of service quality and other important considerations would also have to be studied before proceeding with this concept. As this section demonstrates, there is a wide range of possible options to ensure that the public safety community has adequate wireless communications capacity. Implementation of these options could increase current public safety wireless communications capacity dramatically. Many of the options presented here are already available to the public safety user community. Therefore, if public safety agencies can improve their wireless communications systems by adopting options now available to them, they should do so. They should also carefully review the other options presented. As part of the data collection proceeding discussed in Section IV(A) of this report, we will solicit public comment on this report to assist the Commission to identify those options that it should pursue.  X- vD. Other Actions  In addition to initiating the data collection proceeding discussed in Part A of this Section and pursuing the options discussed in Part B of this Section, we propose to take the following specific shortterm and longterm actions to ensure that spectrum allocated for vpublic safety is sufficient to serve the public interest through 2010. X` hp x (#%'0*,.8135@8: