SDR Forum Report: Interoperability Expensive, Difficult to Achieve

     What would it would cost to deploy a public-sector communication system that is able to serve all U.S. public-safety agencies? According to a report issued by the nonprofit SDR (Software Defined Radio) Forum titled The U.S. Public Safety Market (a.k.a. the USPSM Report) and prepared by market researcher/technology consultant Jim Gunn, the cost would be $46.5 billion. The report methodically details the costs of such a system using data gleaned from numerous interviews with U.S. public-safety agencies.

     "The $46.5 billion would be split roughly 50/50 between terminals and infrastructure," says Gunn. "The estimate covers a national system that would address digital migration, FCC-mandated narrowbanding requirements and interoperability, among others."

     Gunn isn't necessarily advocating such a system. Rather, he puts a realistic price tag on it while delving into the challenges still hampering U.S. public-safety radio interoperability.

     Overall, post-9/11 and Katrina, public-safety communications remain "very fragmented," says Gunn's USPSM Report. Besides the fact that public safety agencies at local, state and federal levels continue to insist on going their own way in radio communications, the quest for interoperability remains hobbled by many real constraints.

     In particular, "The National Task Force on Interoperability identified five issues that are challenges for interoperability of public-safety communication systems," notes the report. These challenges are incompatible and aging communication equipment and limited and fragmented budget cycles, funding, planning, coordination, spectrum and equipment standards.

     "The slowness of P25 and related standards development has been an issue," says Gunn in the report. "There have been continuing problems achieving multi-vendor interoperability in public-safety communications. Funding is a significant problem for most states to upgrade their public-safety communication systems. The economic downturn of the early 2000's [sic] exacerbated the problem, although the current situation is improving. Many states have completed planning projects, but are unable to fund deployments."

     As for the notion that cellular carriers can fill the interoperability gap, "Commercial cellular service problems and inadequacies in emergency situations have been well documented in post-9/11 reports and other emergencies," the USPSM Report says. "Commercial cellular systems are typically not designed for five-9's reliability or increased capacity requirements that emergency situations create. Cellular is particularly vulnerable compared to legacy wireline systems because cellular access is by shared RF links, while wireline has dedicated copper access links."

     This said, many states are tackling interoperability head-on by purchasing their own statewide radio systems. The results of these efforts as detailed in the USPSM Report show that results have been mixed.

     In Colorado, for instance, the statewide Digital Trunked Radio System (DTRS) started in 1998 is nearing completion. "In early 2006, the DTR system had 107 sites on the air that provide approximately 75% geographic coverage and 80% population coverage," says the Report. "The project is funded for an additional 64 sites that are estimated to be completed in the fall of 2007. This achieves a total of 171 sites statewide and targets 90% geographic coverage and 95% population coverage."

     In contrast, California's efforts in the 1990s to establish the PRISM (Public Safety Radio Integrated System Management) statewide voice/data system were torpedoed by the state's subsequent budget crisis. "As a result, the PRISM program lost its funding support and the program was formally abandoned due to its high price tag (estimated $3.5 billion over 15 years) and the state's fiscal constraints," says the USPSM Report. Since then, state agencies like the California Highway Patrol are pursuing independent efforts to update their radio systems.

     The U.S. Public Safety Market report is the fourth in a series of studies being prepared by Gunn for the SDR Forum. "A fundamental goal of this work is to provide clarity and guidance for the SDR community on 'Where are we, where do we need to be, and how do we get there?' based on market opportunities and requirements," Gunn explains. "However, these are not static conclusions and positions with final end points, but ongoing opportunities that will be enhanced and improved as we progress through these studies, as well as afterwards based on lessons learned and technology advancements."

     From a big-picture standpoint, the SDR Forum should point the way to an interoperable future for U.S. public-safety radio. However, as the USPSM Report details, the road ahead will be hard, long and full of pitfalls. For more, visit www.sdrforum.org/.

James Careless is a freelance journalist with extensive experience covering public-safety communications issues.