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Testimony
of
Mr. Gary Grube
Corporate Vice President & Chief Technology Officer
Commercial Government and Industrial Solutions Sector
Motorola
Before the US House of Representatives
Subcommittee on Telecommunications & the Internet
June 23, 2004
Good afternoon,
Chairman Upton, Ranking Member Markey and Members of the Subcommittee.
My
name is Gary Grube, and I am the Chief Technology Officer of Motorola's
business sector that serves state and local public safety and Federal law
enforcement customers. I have
worked with the 1st responder community for nearly 25 years.
I
want to express my appreciation to you, Mr. Chairman, for scheduling this
hearing to address such an important issue as improving interoperability for our
nation's Police, Firefighters, Emergency Medical Personnel and Federal agents. It is an honor to be here
with you today to discuss mission critical interoperable communications
capabilities.
I
would be remiss if I did not thank you, Chairman Barton, and Ranking Member
Dingell for the excellent work you undertook earlier this month in marking up
the Select Committee on Homeland Security's DHS authorization bill.It now addresses the need for the deployment of communications equipment
based on national voluntary consensus standards.As you know, a standard called "Project 25" is the open standard that
has been endorsed by every major law enforcement organization in the country.And, because it delivers true interoperability, the FCC has set P25 as
the interoperability standard in the 700 MHz band.
This
hearing also follows quite nicely the one you held on June 2nd on the
DTV transition.You heard testimony
from Mr. Ferree on the FCC's Media Bureau Plan to advance the DTV transition
and thereby provide needed spectrum to public safety by the start of 2009.Motorola is highly encouraged by this initiative.At that hearing, the Committee leadership sent a real message that change
is afoot and that the American public and their heroes can look forward to date
certain availability for spectrum for critical interoperable communications.Chairman Barton's powerful words and proposal resonated with us and the
public safety community, and we'd like to express our deep appreciation for
the positive direction he is setting for this debate.
I
also want to thank the other Members of this Committee, notably Congressmen
Fossella, Stupak, and Engel who have been exploring ways to usher in new 1st
responder high-speed communications and to find additional funding mechanisms to
enable them.
Meeting
these communications needs is critical to the safety and well being of our first
responders and the entire American public they serve.I am pleased to be with you today to support your efforts to
achieve our shared goal of meeting public safety's communications needs.
I'd
also like to note that it is good to be at the witness table with David Boyd,
who heads the SAFECOM program at the DHS.Mr.
Boyd works very closely with State and local 1st responders and is
very supportive of their interoperable communications equipment needs.
Motorola is a leading provider
of communications and information solutions, with more than 65 years of
experience in meeting the mission critical needs of our public safety customers.
We offer an extensive portfolio of
solutions specifically designed to meet the rapidly evolving safety and security
needs of these customers.Our
solutions include interoperable mission-critical radio systems based on the P25
public safety interoperability standard; command and control solutions;
identification and tracking solutions; information management for criminal
justice and civil needs; and physical security and monitoring solutions.
In 2002, my
business sector in Motorola received the Malcolm Baldrige National Quality
Award, the nation's premier award for performance excellence and quality
achievement.We continually strive
to translate the quality processes upon which this award was based into high
quality and reliable communications systems for our public safety customers.Motorola works very closely with our customers to help them implement
communications capabilities needed for both every day mission critical needs and
catastrophic events.
Public
Safety Requires Dedicated Mission Critical Systems
Our partnership
with the public safety community over the years has taught us that first
responders need systems designed specifically for mission critical operations to
get the job done.As with most of
the Northeast and Midwest, the State of Michigan was confronted with a
large-scale emergency during the August 2003 blackout.Despite the failures experienced by various commercial carrier networks
in Michigan and surrounding states due to these power outages, Michigan's
nearly 12,000 public safety radios experienced no interruptions in
communications.Police officers,
firefighters and EMS providers worked as a team in real time to serve the
public.Michigan had control over
its communications because it had created a statewide critical network designed
specifically for catastrophic situations and events, including the disruption of
normal power sources.While many
public safety entities also use public carrier networks for less critical
communications, there is no substitute for mission critical systems when the
safety of first responders and the public they serve is at risk.
True
Interoperability Requires a Sustained Focus
Ask
any firefighter, police officer or EMS provider and they will tell you that the
ability to communicate reliably, instantly and securely is one of the most
critical factors in managing a crisis situation.For almost all first responders, a handheld radio device is their
communications lifeline - giving them the ability to communicate during a
crisis situation.While the most
visible part of the communications system to first responders and the public,
these handheld devices must be supported by communications network
infrastructure.Together the system of infrastructure and radios must be
designed to provide the necessary coverage, capacity, reliability and features
required for mission critical operations.Yet,
despite the Federal prioritization of homeland security, a large number of first
responder radio systems are not yet truly interoperable and simply cannot talk
to each other in a crisis situation.While
public safety agencies are making progress on improving communications
capabilities and interoperability, much more remains to be done.This problem will not be solved overnight.There is no "quick fix" solution for true interoperability. Providing true interoperability for the nation's first responders will
require a multi-year dedication and focus on the part of Congress, the public
safety community and industry.
There
are four key foundation blocks to achieving improved public safety
communications capabilities and interoperability.These are 1) sufficient spectrum, 2) adequate funding, 3) use of
standardized mission critical technology, and 4) operational planning and
practice.
I'll address
these briefly, and then in more detail.
Spectrum that could
significantly improve interoperability of public safety communications has been
allocated but is not yet accessible in most major markets.Additional spectrum allocations are also needed.The Administration and the Congress have begun to fund the various grant
programs administered by the Departments of Justice and Homeland Security and to
set interoperability as a high priority for these funds. However, the level of funding in general and the amounts set aside for
interoperable equipment purchases must be increased significantly and sustained
over multiple years to deliver on this goal.
Interoperability
standards that meet public safety needs and are open to all manufacturers have
been established for voice and data communication and for wideband services.A broadband standards development initiative is also underway.Communications technology meeting the Project 25 (P25) voice and data
interoperability standard developed by the public safety community and industry
is available from multiple equipment vendors.Wideband and broadband technologies capable of meeting public safety's
increasing need for high speed data and imaging have been developed and are
being trialed.
Finally, Pubic
safety users realize now, more than at any time in history, the value of
planning and practice among multiple agencies, jurisdictions, and levels of
government.
The remainder of my
testimony addresses in more detail the four foundation blocks and what Congress
can do to help public safety improve communications capabilities and
interoperability.
REAL ACCESS
TO MORE PUBLIC SAFETY SPECTRUM IS ESSENTIAL.
As discussed above,
effective mission critical mobile and portable communications systems are
absolutely essential to public safety operations.Police officers, firefighters, emergency medical personnel and their
departments use mobile and portable communications to exchange information that
can help protect public safety officials and the citizens they serve.Traditionally, this information was mostly exchanged by voice.Increasingly, as public safety entities strive to increase
efficiency and effectiveness in today's world, they also need the capability
to transmit and receive high performance data, still images and video reliably.Spectrum is the road upon which such communications travel, and increased
communications requirements lead to the need for more spectrum.
Based
on a thorough justification of need, Congress and the Federal Communications
Commission dedicated 24 MHz of spectrum in the 700 MHz band to State and local
public safety in 1997.The FCC
established specific nationwide interoperability channels within this spectrum
allocation, as well as both narrowband and broadband channels to support a
variety of identified public safety communications requirements.
However,
seven years later, incumbent television stations operating on channels 62, 63,
64, 65, 67, 68 and 69 prevent public safety access to this essential resource in
most major urban areas where the demand for more spectrum is the greatest.The recent focus on increased interoperability and Homeland Security make
availability of this public safety spectrum nationwide even more critical.
These
channels are critical to public safety for two reasons:
(1) Together, the new 700 MHz and current 800 MHz bands provide the best
opportunity to integrate interoperable communications.The 700 MHz band's proximity to the 800 MHz band allows public safety
agencies to expand their current 800 MHz narrowband voice and data systems for
interoperability and regional coordination on an "intra" as well as
"inter" agency basis.Equipment
operating in these combined frequency bands on the FCC endorsed Project 25
interoperability standard is commercially available today.The FCC has granted each state a license to operate such narrowband
communications in the 700 MHz band. Localities
throughout the country are actively engaged in spectrum planning at 700 MHz, a
prerequisite for obtaining their own FCC licenses. For example, after a yearlong review by the FCC, the
Southern California regional plan was recently approved, but TV incumbency
prevents actual use of the spectrum in much of that area.
(2) 700 MHz is the only dedicated spectrum allocation where public safety can
implement advanced mobile wide area systems that bring high-speed access to
databases, the intranet, imaging and video to first responders out in the field.
This
technology offers a whole new level of mobile communications capabilities, which
is far beyond today's voice and low speed data applications. For example:
a. An officer or agent could transmit video of a potential bomb, or
biological weapon and get real time counsel from an expert in another location.
b. Local or state police could instantly send or receive a photograph of a
missing or abducted child.
c. Crime scene investigators can transmit live video of footprints,
fingerprints and evidence to speed analysis and apprehension of perpetrators.
d. Firefighters can access building blueprints, hydrant locations hazardous
material data and other critical information.
e. Paramedics can transmit live video of the patient to doctors at the
hospital that would help save lives.
Motorola
previously conducted wideband trials together with public safety entities in
Pinellas County, Florida and the City of Chicago, and we are currently
participating in the District of Columbia's broadband trial.As to the Chicago trial, we greatly appreciate Chairman Upton leading a
delegation of Committee Members, including Congressmen Bass, Rush, and Terry to
participate in a demonstration last year with the Chicago Police Department.We would like to encourage a similar delegation to see the outstanding
broadband trial that is being led by Robert LeGrande on behalf of the DC
Government.We are proud to be
working with him on an innovative solution that will deliver powerful
applications to the frontline 1st preventers here in our Nation's
Capitol. All
of these trials operate under experimental 700 MHz licenses from the FCC. The
capabilities demonstrated are the emerging powerful multi-media applications
that will bring public safety communications into the Twenty-First Century.
Public
safety users and industry finalized the wideband interoperability standard,
TIA902, through the Telecommunications Industry Association (TIA). Public safety has recommended that standard to the FCC
for the 700 MHz wideband channels, and we are anxiously awaiting FCC action on
that request.Right now, actual
product development could proceed as soon as we know with certainty that this
spectrum will be available nationwide to the public safety community.
Unfortunately,
most metropolitan area public safety operations cannot use this spectrum today,
nor can they predict with any certainty when they might have access to these
frequencies because of incumbent TV operations.Therefore, public safety users in most cities cannot deploy, or firm up
plans for the actual deployment of, improved interoperability and advanced
capabilities that will improve their effectiveness and safety.
Current law and
policies set December 31, 2006 as the date for clearing television from the
band.However, this is not a firm
date.Broadcasters do not have to
clear the band until 85% of the households in their service areas have the
capability to receive digital TV, an environment unlikely to be met in most
markets by yearend 2006 under the current rules.Under current law, while TV incumbents are
required to vacate this spectrum at the end of 2006, they can receive an unlimited
extension of this deadline based on the state of the transition in their
particular market.So, in reality,
there is no "hard date" when the transition will end and the spectrum will
really be accessible to public safety everywhere.This is not the optimal situation for the public safety
community and those they serve.We
commend and encourage efforts by this Subcommittee and the FCC to ensure that
this spectrum is cleared nationwide for public safety use no later than yearend
2006.
The reality is that
5% of this country's TV stations are blocking improved public safety
communications for 84% of the population in the largest cities, those over
200,000.Of that 84%, more than
two-thirds have no access to the spectrum, while the remaining third have only
limited access. When we look at all
areas of the country, rural as well as urban, 54% of our country's population
is totally blocked by this relatively small number of TV stations from receiving
any benefits of public safety communications in this band.
In a hearing before
this Subcommittee in June, 2003, Greg Brown of Motorola testified about the need
for access to the 700 MHz spectrum. During
that hearing, Subcommittee Members acknowledged this need, but also discussed
the potential impact on some TV operations of setting a firm date for
broadcasters to finally return their analog TV channels in the 700 MHz band.
The concerns
expressed at that hearing spurred us to perform a study to determine the impact
on the viewing public of clearing that spectrum.That study "700 MHz TV Clearing and its Impact on TV Viewership" is
attached in its entirety.As shown in this study, the potential harm to the viewing
public is limited.And the benefit
to public safety is dramatic.
First, only 75
stations, equaling less than 5% of the more than 1500 U.S. TV stations, affect
public safety's availability of its Congressionally mandated 700 MHz band
frequencies.Second, Motorola's
analysis of independent television industry data shows that, on average, only
14% of the TV households who have the option to view these stations actually do
so at all, and that of those viewing, 82% watch by cable.This means that, on average, only 3% of the TV households within these
stations' coverage areas actually tune to these stations over-the-air sometime
during an average week.
The Committee is also
aware of an FCC plan that would complete the analog to digital TV transition by
January 1, 2009.We applaud the FCC
for taking the leadership and initiative to move the debate toward a successful
conclusion.While 2009 may be an
appropriate date by which all 1500 or more TV stations would complete the
transition, the public safety community has stated that its needs justify
clearing the 5% of stations blocking its 700 MHz band channels by 2007.By yearend 2006, public safety will have waited almost ten years to
access this spectrum.
As noted above, very
few TV households would notice any significant impact of clearing this spectrum
for public safety.Those that do
could be provided with an inexpensive digital-to-analog over-the-air converter
box.Motorola is a TV set-top box
provider.That business unit is
presently completing its analysis, and we expect to place on the record at the
FCC a sub-$100 estimate per unit for an over-the-air digital-to-analog converter
that would help to facilitate a Berlin Model-type solution in the US.We understand the Committee and the GAO are already reviewing the actions
undertaken in Berlin, Germany to ensure a seamless and pain-free crisp analog to
digital TV transition.This was
achieved through the provision of converter boxes to some TV consumers who did
not subscribe to cable or satellite service and maintained an analog TV set.We believe this is a positive step that could provide a real
path forward on how to solve the transition here in the U.S.
Congressional
action is required to ensure that TV incumbents return this critically needed
spectrum, without exceptions, by a firm date -- which should be no later than
yearend 2006.
We urge the Committee
not to be deterred from setting this goal because it has been hard to achieve to
date.Rather, once it has been set,
the affected parties, including the public safety community, the FCC and NTIA,
the involved broadcasters and other affected parties, including our company,
should be called upon to devote our energies to making it happen.
As you know, the 24
MHz of spectrum in the 700 MHz band is allocated for State and local public
safety use. That spectrum, if
cleared, would only partially satisfy the spectrum need documented by the public
safety community.No comparable
spectrum exists for meeting the Homeland Security requirements of Federal
agencies or critical infrastructure entities.Such interoperability among State and local first responders,
Federal agencies and critical infrastructure entities will best be achieved
through the availability of comparable spectrum resources.Therefore, we recommend that Congress consider meeting these additional
needs by reallocating the remaining 30 MHz of commercial spectrum in the 747-762
MHz and 777-792 MHz portions of the band which are presently targeted for
auction.This spectrum should be
reallocated as a Homeland Security band to support State, local, Federal and
critical infrastructure (such a utilities and nuclear facilities) communications
needs.
We also note that a
spectrum coalition headed by Mr. LeGrande, in the District of Columbia Office of
the Chief Technology Officer (OCTO), has requested that 10 MHz of additional
spectrum at 700 MHz be designated for broadband use.Since that 10 MHz falls within the 30 MHz recommended for reallocation
here, we believe that request and reallocation of the 30 MHz are complementary
to one another. Motorola is
quite pleased to be one of the partners with OCTO in trialling 700 MHz broadband
systems and public safety applications.
As part of this
reallocation, Congress should charter a committee of key representatives from
major public safety associations, Federal agencies and critical infrastructure
entities to determine how that additional 30 MHz of spectrum should be
distributed among State, local, Federal and critical infrastructure entities.
Should
the government wish to pursue this important reallocation of spectrum,
anticipated auction revenue from these 30 MHz of spectrum would no longer be
available.However, we believe substitute spectrum that could provide
potentially stronger auction receipts can be identified to replace this
anticipated revenue and could be used to support a Berlin Model-type subsidy
solution domestically. Motorola greatly appreciates this Committee's continued
policy thrust to find ways to reinvest spectrum auction revenues in ways to
advance technology deployment and economic development, whether it is the
Commercial Spectrum Enhancement Act that this body passed last year and is under
active consideration in the Senate, or the Chairman's proposal to use auction
revenue to help support the return of the analog TV frequencies for other
valuable services - including interoperability.
Project
25 is The U.S. Interoperability Standard for Mission Critical Operations
In addition to
spectrum access, standardized technology is critically important to achieving
interoperability.Fortunately, the
public safety community and multiple manufacturers have partnered to develop a
suite of standards for interoperability known as Project 25.
Public safety users
adopted the P25 standard in order to implement an open standard that promotes
interoperability and system migration, and enables more competitive procurements
for digital radio systems and radios -- thereby eliminating dependence on one
vendor for radios, even after their systems have been installed.
P25 is actually a
full suite of standards that, when built into communications equipment, provides
the basis for interoperable digital radio voice and low-speed data
communications among multiple public safety users, departments and agencies.These standards were developed under the auspices of, and are published
by, the Telecommunications Industry Association (TIA), and accredited by the
American National Standards Institute (ANSI).Public safety users led the development of the standard and have the
option to choose Project 25 products from multiple vendors.
Unlike many other
communications standards and technologies in the broader wireless industry, the
unique mission critical requirements of public safety users drove the
development of the P25 suite of standards. High priority was given to public
safety's operational and tactical requirements.For reasons of cost effectiveness, the Project 25 standards permit a
graceful migration path from aging analog to new digital systems.These standards promote improved spectral efficiency, and, as intended,
allow for multi-vendor equipment offerings. Radios that meet the P25 standards
incorporate backward compatibility with conventional analog systems. Project 25
radios communicate in analog mode to analog radios, and either digital or analog
modes with other P25 radios.
Public safety users
at all levels of government have embraced Project 25.For example, P25 has received the endorsement of the National Association
of State Telecommunications Directors (NASTD), the Association of Public Safety
Communications Officials - International (APCO), the International Association
of Chiefs of Police (IACP), the International Association of Fire Chiefs (IAFC),
the Major Cities Chiefs (MCC), the National Sheriffs' Association (NSA), and
the Major County Sheriffs' Association (MCSA).
Project 25 has
received broad support at the Federal level as well.Based on public safety user recommendations, the FCC endorsed the Project
25 suite of standards for voice and low-speed data interoperability in the new
nation-wide 700 MHz frequency band.Every
700 MHz radio must include Project 25 compatibility defined by this TIA/ANSI
standard, and the FCC set P25 as the required mode of operation on the 700 MHz
interoperability channels.The U.S.
Department of Defense mandated P25 for new land mobile radio systems.The Department of Homeland Security has also endorsed P25 as the
preferred standard for digitally trunked radio systems as part of its Federal
grant guidance.
Interoperability
Funding Should Be a National Priority
Full public safety
communications interoperability within the decade should be a national goal.This is an ambitious goal, but a very worthy and doable one.Our nation has the necessary technology, the standards and equipment.After spectrum, what is lacking are the economic resources to acquire the
equipment and deploy the systems, particularly at the state and local level, and
we will not achieve this goal at the present pace of system upgrades.Instead, it will require a commitment lead by determined champions.Mr. Chairman, I urge this Committee to assume this important role.
There
are several reasons why the Federal government must take the lead.As we all know, homeland security is a Federal, State and local
responsibility, but national planning begins at the Federal level.This is one of the reasons why the Congress and the President created the
new Department of Homeland Security.
While
we cannot predict future terrorist attacks, we must prepare for the real
possibility and threat.Also, we do
know that we will face natural disasters such as hurricanes, tornados,
wildfires, and earthquakes and other threats such as hostage takings, hazardous
materials spills, and train wrecks.Interoperable
public safety communications are critical to effective response in all these
cases.
The
states face a staggering $80 billion aggregated deficit in FY2004 alone, and
this puts serious limits on their spending.As a result, they cannot be expected to accomplish this goal without
substantial Federal support. Accordingly, we
need a well-funded, multi-year Federal program that guarantees that this
communication problem is fixed, once and for all.
Consequently,
we must work aggressively to increase the funds devoted to interoperable
communications now and until the job is done.Nothing should be allowed to delay or impede this funding effort.In FY 2004, approximately
$4.4 billion was appropriated for Federal equipment grant programs for State and
local first responders. However, wireless communications is only one of a
large number of allowed uses for these funds.Only about $85 million or 2% of the total was designated in the
legislation specifically for wireless communications enhancements. We
would ask for your help to increase the sums designated for wireless
communications in light of the broad consensus that exists for improving the
status of wireless communications interoperability among government entities.If we are going to fix the interoperability problem we must have a
well-defined goal, a program to achieve that goal, and a way of measuring
programs that is visible to the Congress.
We
certainly cannot afford the human costs associated with delaying achievement of
full interoperability.
Planning
and Practice are also Essential for Interoperability
Planning
for interoperability at the operational level is also a key element of improving
interoperability. In
situations where multiple agencies and jurisdictions have planned operational
procedures and practiced that plan, interoperability has improved.For example, multiple agencies can decide in advance how best to organize
communications groups to support the various responders at an incident scene.Practice drills help public safety responders become familiar with these
procedures so they can be more easily implemented at an actual emergency
incident.
Planning
and practice are supplements to, not substitutes for, adequate spectrum, funding
and technology.All elements of the
foundation need to be in place to improve public safety mission critical
interoperability and capability.While
Congress has the greatest influence over the interoperability building blocks of
spectrum and funding, public safety agencies are the focal point for planning
and practice.
Mr. Chairman,
ensuring that our nation's public safety officials have the tools they need to
protect our citizens in the years ahead is a sound investment for the entire
country.We urge this Committee to
clear spectrum for public safety and to champion investments in interoperability
for all public safety radio users.Motorola
pledges its support to our public safety customers and to this Committee to help
you make this happen.
Thank you.
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