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PPDR Radiocommunications Interoperability Working Group

Report to the e-GIF Management Committee13 March 2007

Version 6.0 6 December 2006 of 52

CHANGES TO THIS DOCUMENT CAN BE AUTHORISED ONLY BY THE PPDR RADIOCOMMUNICATIONS INTEROPERABILITY WORKING GROUP

Contents

Glossary...................................................................................................................4Introduction............................................................................................................5Executive summary...............................................................................................5Mandate..................................................................................................................6

Cabinet decision..................................................................................................6The Working Group.............................................................................................6

Process...................................................................................................................6Consultation.........................................................................................................6Communications..................................................................................................6Risk management................................................................................................6

APCO P25 System Requirements........................................................................6APCO P25 Service Capability...............................................................................6Evaluation of Land Mobile Radio Network (LMRN) interoperability standards6

Evaluation............................................................................................................6Commentary........................................................................................................6Summation..........................................................................................................6Conclusion and recommendations......................................................................6

Draft NZ e-GIF radiocommunications interoperability standard.......................61.0 The P25 system model..........................................................................62.0 Common Air Interface (CAI)....................................................................63.0 Inter Sub-System Interface (ISSI)...........................................................64.0 Fixed station interface (FSI)....................................................................65.0 Data peripheral interface.........................................................................66.0 Fixed host data interface.........................................................................67.0 Telephone Interconnect (PSTN) Interface..............................................68.0 Network Management Interface..............................................................69.0 Console subsystem interface..................................................................610.0 Analogue FM Transceivers.....................................................................611.0 Digital P25 Phase 1 Transceivers...........................................................6Technical Summary of Recommendations..........................................................6

Governance............................................................................................................6Implementation......................................................................................................6Appendices............................................................................................................6

Appendix A: CBC MIn (06) 16/21 minutes...........................................................6Appendix B: Terms of Reference........................................................................6Appendix C: Communications Plan.....................................................................6Appendix D: APCO P25 service capability comparison.......................................6Appendix E: APCO P25 standards documentation recommended for inclusion in the New Zealand e-GIF.......................................................................................6



Attachment F: Initial Briefing Paper.....................................................................6



GlossaryAES Advanced Encryption StandardANSI American National Standards InstituteAPCO Association of Public Safety Communications OfficialsCAFSI Conventional Analogue Fixed Station InterfaceCAI Common Air InterfaceCBC Cabinet Business CommitteeCDFSI Conventional Digital Fixed Station InterfaceCSSI Console Sub-System InterfaceDTMF Dual Tone Multi-Frequencye-GIF e-Government Interoperability frameworkETS (SG) Emergency Telecommunications Services (Steering Group)FDMA Frequency Division Multiple Access, a telephony standardFM Frequency ModulationFSI Fixed Station InterfaceGCSB Government Communications Security BureauGPS Global Positioning SystemIP Internet ProtocolISSI Inter Sub-System InterfaceKHz KilohertzLMRN Land Mobile Radio NetworkMCDEM Ministry of Civil Defence and Emergency ManagementMDT Mobile Data TerminalMED Ministry of Economic DevelopmentOTAR Over The Air KeyingPOL Cabinet Policy CommitteePPDR Public Protection and Disaster ReliefPSRFMG Public Safety Radio Frequency Management GroupPSTN Public Switched Telephone NetworkRFP Request for ProposalRFSS Radio Frequency Sub-SystemSDH Synchronous Digital HierarchySONET Synchronous Optical NetworkSSC State Services CommissionSU Subscriber UnitTDMA Time Division Multiple Access, a telephony standardTETRA Terrestrial Trunk Radio (a European interoperability standard)TIA Telecommunications Industry AssociationTSB Technical Service BulletinUHF Ultra High FrequencyVHF Very High FrequencyWG1 PPDR Interoperability Standard Working Group



IntroductionThis paper recommends the adoption of the APCO P25 Radiocommunications Standards into the New Zealand all of government interoperability framework (e-GIF) for Public Protection and Disaster Relief (PPDR) land mobile radio networks.

The paper covers:

1) the establishment and processes followed by an interagency Working Group under the leadership of New Zealand Police as the lead agency for the initial implementation

2) the recommendations of the Working Group as to the components of radio standards to be adopted

3) their relevant compliance category in terms of the e-GIF; the reasoning behind the adoption of this standard over its competitors and

4) a description of the standard and the interoperability framework enabled by its implementation.

The appendices contain:

1) the mandate for this Working Group

2) a detailed terms of reference

3) the working party’s communications plan

4) the complete listing of relevant APCO P25 documents to be incorporated into e-GIF and

5) the initial briefing paper provided to the working group by NZ Police.

Business Need/OpportunityThe Police/Fire Land Mobile Radio Network (LMRN) must be replaced as the equipment is operating beyond its economic life and will become increasingly unreliable and expensive to maintain.

Police have consulted with all Public Protection and Disaster Relief (PPDR) agencies regarding their requirement for an APCO P25 digital network. All have agreed that na APCO P25 digital network will provide a suitable platform that can be used by all agencies in either digital or analogue mode, and both with and without encryption.

Police, Fire, and Customs have all indicated that they would be willing to share a PPDR P25 network as soon as it is available. Ambulance and Fisheries will also join once their respective contractual arrangements with other network service providers have expired. Other agencies have also indicated that they may also join the network in due course.

Recent large scale international disasters have highlighted the need for governments to check that their emergency services responses are not hampered by ineffective or non-interoperable communications systems, including communications between international agencies.



Executive summaryThe APCO P25 standard has been investigated for its suitability for use for an all of government PPDR application in New Zealand. The investigation was conducted by an interagency working group established under a mandate from the Cabinet Business Committee [CBC Min (06) 16/21 refers.], under the leadership of NZ Police as the lead agency for the initial introduction of the standard.

The APCO P25 Standard was chosen for this purpose over its competitors because it is the only suite of standards which meets all the following criteria:

Is an open standard Equipment is available from a range of suppliers. Allows communication with legacy conventional FM analogue systems. Supports an orderly migration from existing systems. Allows interoperability between PPDR agencies. Offers security in accordance with GCSB1 requirements. Allows interoperability with PPDR networks in neighbouring countries. Is compatible with NZ’s current VHF and UHF frequency plans. Is efficient in its use of spectrum.

The service capability of the APCO P25 standards suite has been investigated. The standards meet the initial and long term requirements of Police, and although the future requirements of other agencies have yet to be defined, it is expected the standards suite will meet agency requirements.

Interoperability between agencies will initially occur through the use of the P25 Common Air Interface for Frequency Division Multiple Access (FDMA) conventional digital systems. Compliance with this standard provides the basic mechanism for allowing legacy analogue FM radios to communicate with P25 radios. This is provided they both use compatible frequencies and can tune to the same frequency. It also provides the mechanism for P25 radios to communicate directly with each other, again providing they both use compatible frequencies and can tune to the same frequency. The Common Air Interface is already in use with Police and Customs and has been proven as interoperable with partner agencies in Australia and East Timor.

The P25 Standard documents recommended for inclusion in the New Zealand e-GIF Standard with the compliance status of ADOPTED will form the standards for the initial implementation. These cover not only the Common Air interface and the radio transceivers themselves, but also the performance testing methods and performance requirements for analogue and digital radio transceivers to meet the APCO P25 Standard.

The approach to developing PPDR capabilities in New Zealand has yet to be clarified, and as requirements for different agencies become firmer and the overall architecture of future PPDR networks become clearer, it is probable that other forms of interconnection and other interfaces from within the APCO P25 standards suite are going to be required. These interfaces, with those identified

1 Government Communications Security Bureau (NZ)Version 6.0 6 December 2006 of 52


by Police as being required in future for their own purposes have been recommended for inclusion in the New Zealand e-GIF Standard with the compliance status of FOR FUTURE CONSIDERATION.It is recommended that the e-GIF Management Committee:

note that a government interoperability Working Group was established to review and recommend a suitable set of standards for the NZ Government Land Radio Mobile Networks

note that a robust consultation process was followed

note that an evaluation of PPDR standards has been completed and the APCO P25 standards are the most suitable

note that the APCO P25 standards suite has standards at various levels of compliance status (Adopted and Future Consideration)

note that the agencies can implement the APCO P25 set of standards with a status of Adopted as respective contractual arrangements with service providers expire and as their needs dictate

approve the adoption of the recommended APCO P25 standards with a status of adopted and future consideration

MandateCabinet decisionOn 29 September 2006, the Cabinet Business Committee [CBC Min (06) 16/21 refers – see Appendix A]:

agreed to interagency work to develop a technical interoperability standard to strengthen the reliability of public protection and disaster relief radiocommunications [PPDR] under the process provided by the e-Government Interoperability Framework [e-GIF];

agreed to the development of a PPDR spectrum allocation plan, noting that the immediate operational needs of the NZ Police will be met through an interim spectrum allocation;

The Working GroupThe PPDR Radiocommunications Interoperability Working Group (WG1) was formed in response to the first of these decisions. Led by the NZ Police, it is required to draft, by 22 December 2006, a NZ radiocommunications interoperability standard under the e-GIF Framework.

WG1 was inaugurated at a meeting of the Public Safety Radio Frequency Management Group (PSRFMG) held on 4 October 2006. PSRFMG represents the majority of PPDR agencies. In attendance were representatives of the Ministry of Economic Development (radio spectrum allocation) and the State Services Commission (e-GIF).

Membership of WG1 is:

Bill Deverall (Chair) AVA/NZ Police



Peter Methven (Secretary) MED2

Sanjeewa Athuraliya NZ PoliceKaren Burns SSC3

David Coetzee MCDEM4

Andrew Eades CustomsKen Eccles CustomsHugh Fulton NZ PoliceRichard HarkettNZ PoliceGrahame Love NZ Fire ServiceAlex Orange MEDIan Rae Ambulance New Zealand

The initial meeting of WG1 was held on 11 October 2006 at the Royal NZ Police College.

ProcessMinuted meetings of WG1 were held on 11 October 2006, 25 October 2006, 7 November 2006, 23 November 2006, and 19 December 2006.

ConsultationTerms of reference (refer to Appendix B) for WG1 were agreed with PSRFMG and signed off by the Chief Executives of the departments and agencies represented.

A letter was sent on 22 December 2006 to the Chief Executives of all Government departments and agencies outlining the WG1 brief.

The Public Safety Radio Frequency Management Group (PSRFMG) was identified as the WG1 Reference Group.

Copies of the draft report were circulated to the PSRFMG for review and comment on 5 December. Feedback has been sought and discussions will be held with the reference group before December 18th.

It was agreed that the wider WG1 Consultation Group consist of all state sector agencies.

Copies of the final draft report were circulated to the WG1 Consultation Group on 22 December 2006 for review and comment on by 31 January 2007.

CommunicationsThe Minister of Communications, the Hon David Cunliffe, has been authorised to make press statements on the commencement of work by the Emergency Telecommunications Services Steering Group, in accordance with the CBC minutes [CBC Min (06) 16/21 refers]. Press releases have been submitted mentioning the work of this working group but as yet no announcement has been made.

A Communications Plan for this project is attached as Appendix C

2 Ministry of Economic Development3 State Services Commission4 Ministry of Civil defence and Emergency Management



Following its approval by the e-GIF Management Committee, the e-GIF PPDR Radiocommunications Interoperability Standard will be published. This will take the form of publishing the recommendation and its appendices on the e-GIF website together with the complete list of standards documents recommended for adoption and their compliance category in relation to the New Zealand e-GIF Standard, together with a reference to the international body (and its website) where the documents can be purchased. The documents themselves are covered by copyright and as such are not publicly available without payment. The New Zealand Police, acting as lead agency for the introduction of the APCO P25 Standard are maintaining a complete set of standards documents.

Risk managementRisk Likelihood Impact Mitigation Activities Who

Working group unable to meet timelines

Med High Advise Group timelines ahead of timeProactively contact members for status of workload well before deadline

SSC Liaison Rep

Working group members consistently unable to attend meetings

Low Med Ensure group members have a backup repContact agency for new resource

SSC Liaison Rep

Working group unable to reach a consensus about its conclusions

Med High Intervene and escalate to e-GIF manager for direction

ChairpersonSSC Liaison Rep

Working group lack of familiarity with broader context of e-GIF and the requirement for compliance with e-GIF.

Low High Provide suitable induction with a broadly focussed briefing


Broadening the scope. E.g. some agencies may wish to prioritise packet data communications and applications

Med Med Full discussion of scope during induction & review of Common Air InterfaceCareful scoping of any effort required & management of timelinesPrioritisation of outputs to meet deadlines

Chairperson

Who = Person accountable to manage risk mitigation activities and contingency plan:

System RequirementsThe following requirements of a standard for a PPDR network are considered mandatory. Any significant shortfall in meeting these requirements is



considered to be sufficient grounds for excluding the standard from use in New Zealand.

Compliant equipment currently available Operates in UHF and VHF spectrum5 available in New Zealand and used by

PPDR agencies. Communicates with legacy conventional analogue systems – providing

backwards compatibility with existing equipment and networks. Supports a progressive migration from analogue FM systems, where the

legacy system operates in the same or an adjacent band. This will accommodate all agencies with the exception of some Fisheries services which are provided by a commercial operator using a trunked analogue network. Although Fisheries mobile and portable radios are themselves compatible with APCO P25 the migration of these services will require the development of a coordinated plan.

Operates in trunked and conventional modes. (Trunked systems share a limited number of pooled channels across multiple users, use common control channels, require some scale to gain efficiencies and rely on traffic engineering principles to minimise congestion. Telephone exchanges operate in a similar manner sharing resources and trunks across many users. Conventional systems dedicate users to channels and carry less risk of congestion.)

Supports encryption with access to supportable and secure encryption algorithms (Advanced Encryption Standard (AES) preferred). Encryption is used to code signals between terminals. Signals can be decoded using a preset digital key. Unencrypted radiocommunications are inherently insecure. Although specialist groups in Police, Customs and Fisheries already use encryption on APCO P25 portable handsets, the wider deployment of encryption using algorithms that are not controlled by foreign governments is seen as the highest priority.

Interoperability with neighbouring countries PPDR systems

The following requirements of a PPDR system are considered desirable

Narrowband data capable Open standard or publicly available standard Not proprietary Wide range of suppliers Efficient in use of spectrum Range and performance similar to legacy analogue equipment Current Regional presence and support available

Evaluation of Land Mobile Radio Network (LMRN) interoperability standards

An evaluation of the most widely used LMRN standards against the criteria listed above has been performed, and is summarised in the table below.

5 UHF spectrum is more suited to relatively short range and high penetration of buildings, and in New Zealand is used largely in urban areas. VHF spectrum is better suited to New Zealand’s relatively sparsely settled rural areas and is used there and in urban areas by all PPDR agencies.



Mandatory and desirable criteria were selected, and although these were not weighted, any standard’s significant non-compliance against mandatory criteria would prevent its adoption for PPDR networks in New Zealand.

Standards were assessed against the criteria as follows.

3 Satisfies the relevant criterion in all respects2 Partially satisfies the relevant criterion1 Partially satisfies the relevant criterion but with some significant shortfalls0 Fails to satisfy the relevant criterion00 Information not available



Evaluation

Criterion

APC

O P25

TETRA

6

Tetrapol 7

M/A

CO

M

ProVoice8

M/A

Com

O

penSky9

Mandatory

Compliant equipment currently available 3 3 3 3 3

Operates in VHF frequencies available in NZ likely to be available for PPDR

3 0 3 3 0

Operates in UHF frequencies available in NZ (482 – 512 MHz)

3 0 3 3 0

Communicates with legacy conventional analogue systems

3 0 0 3 0

Supports a progressive migration from analogue FM systems, where the legacy system operates in the same or an adjacent band

3 0 0 3 0

Operates in trunked and conventional modes

3 1 1 1 0

Encryption with access to supportable and secure encryption algorithms (AES10 preferred)

3 3 1 2 3

Interoperability with regional neighbours’ PPDR systems

3 1 0 0 1

Desirable

Narrowband data capable 3 3 3 00 00

Open standard or publicly available standard

3 3 3 0 0

Not proprietary 3 3 2 0 0

Wide range of suppliers 3 3 1 0 0

Spectrally efficient 2 3 2 2 3

Range & performance similar to current analogue systems

3 1 3 1 00

Current Regional presence & support 3 1 0 2 00

Total score (adjusted for 00 scores) 44 25 25 25 16

A commentary on the evaluation follows.

6 Terrestrial Trunked Radio, a European interoperability standard7 A French cellular trunking standard8 US radio modulation standard, based on technology similar to P259 US radio standard based on VOIP10 Advanced Encryption Standard



CommentaryCriterion Comment

MandatoryCompliant equipment currently available

No comment

Operates in VHF frequencies available in NZ and which are likely to be available for PPDR

Tetra and OpenSky not available in VHF band,

Operates in UHF frequencies available in NZ (482 – 512 MHz)

Tetra is limited in UHF bands, OpenSky is only available in the 700/800 MHz band

Communicates with legacy conventional analogue systems

Tetra and Tetrapol will not communicate with existing analogue systems. OpenSky will only communicate with analogue UHF systems.Fisheries is currently operating on a commercial trunked analogue UHF network that will not be interoperable with a P25 network. However Fishery mobiles are compatible if removed from the trunked network.

Supports a progressive migration from analogue FM systems, where the legacy system operates in the same or an adjacent band

Tetra, Tetrapol and OpenSky do not support progressive migration from FM analogue systems (no VHF capability).

Operates in trunked and conventional modes

Tetra and Tetrapol have very limited conventional capability. ProVoice is based on a trunked system but the extent of its conventional capability (if any) is unclear.

Encryption with access to supportable and secure encryption algorithms (AES preferred)

Tetrapol encryption algorithms are controlled by the French Government. ProVoice claims DES11 algorithm capability only.

Interoperability with regional neighbours’ PPDR systems

P25 is widely deployed in the region, and is operational with key Australian Federal Authorities and some State Authorities. P25 is interoperable with other States’ PPDR systems.

DesirableNarrowband Data capable No commentOpen standard or publicly available standard

No comment

Not proprietary ProVoice and OpenSky are proprietary standards. Tetrapol is publicly available but is not an open standard.

Wide range of suppliers Full range of Tetrapol, ProVoice and OpenSky equipment each available from one supplier only.

Spectrally efficient No commentRange & performance similar to current analogue systems

Tetra, Tetrapol and OpenSky’s lack of VHF capability means it is not suitable for the NZ rural environment. An earlier version of ProVoice was evaluated and found wanting with poor audio performance

Current regional presence & support

No comment

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SummationIn summary, the APCO P25 Standard was the only one which meets all of the following criteria.

Is an open standard. Equipment is available from a range of suppliers. Allows communication with legacy conventional FM analogue systems. Supports an orderly migration from existing systems. Allows interoperability between PPDR agencies. Offers security in accordance with GCSB12 requirements. Allows interoperability with regional partner PPDR networks. Is compatible with NZ’s current VHF and UHF frequency plans. Is efficient in its use of spectrum.

APCO P25 Service CapabilityAgencies represented in WG1 have confirmed that the APCO P25 standards can meet their PPDR service requirements.

The development of the APCO P25 standards is occurring in two phases. Equipment conforming to Phase 1 is currently available. Phase 1 standards encompass the following parameters:

12.5KHz channel bandwidths, half of that required by legacy systems in New Zealand.

Frequency division multiplexing as opposed to utilising different time slots for channels over the same frequencies.

Phase 2 standards which are to encompass 6.25 KHz channel bandwidth are not currently available.

A detailed comparison of APCO P25 service capabilities with initial and future PPDR requirements is summarised and attached as Appendix D.

Conclusion and recommendationsIt is concluded that the APCO P25 standard for radio communications is the most appropriate for use for PPDR networks in New Zealand and that it should be adopted into the New Zealand e-GIF Interoperability Framework.

It is recommended that the APCO P25 interfaces required for interoperability, listed here and described in the following section be incorporated into the New Zealand e-GIF with their respective compliance categories as shown. The reasoning for each recommendation is also contained in the following section (refer to the Glossary for information on technical acronyms).

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Draft NZ e-GIF radiocommunications interoperability standard

This section describes the APCO P25 Standard and its applicability to State Sector PPDR.

1.0 The P25 system modelThe APCO P25 general system model is depicted below The system model shows a series of interfaces around a radio frequency subsystem (RFSS), which must support the Common Air Interface and contains all the necessary logic to manage intersystem interfaces and call processing. It has a similar role to a telephone exchange, and is the building block for wide area network construction.

Radio transceiver

Data peripheral

Telephone systems

Network management systems

Data systems

Common Air

Interface

Inter Sub-System

Interface

Radio Frequency Sub-System (RFSS)

Common Air

Interface

Fixed Station

InterfaceFixed station

Other RF Sub-Systems

Radio repeater

2.0 Common Air Interface (CAI)The P25 Common Air Interface documentation defines the technical interoperability standard for communications between P25-compliant radios. It is the core element of the P25 Standard, and assures the ability of one P25 radio to communicate with another, in either trunked or conventional mode. Conventional systems dedicate users to channels and carry less risk of congestion than trunked systems. Trunked systems operate in a similar manner to telephone exchanges sharing a limited number of pooled radio channels across multiple users while using common control channels. They require some scale to gain efficiencies in the use of radio spectrum and rely on traffic engineering principles to minimise congestion. A basic compatibility framework is depicted below.



CAICAI CAI

Analogue wireless linkDigital wireless link

Analogue base

P25 base

Analogue handheld

P25 handheld

P25 mobile P25 repeater

Compliance with the CAI standard will enable any P25 portable, mobile or repeater equipment to communicate in the following modes.

P25 mobile or portable (regardless of manufacturer) to and from a standard analogue FM radio, provided they use and can switch to compatible frequencies.

P25 mobile or portable (regardless of manufacturer) to and from any P25 repeater in either analogue or digital mode, provided they use and can switch to compatible frequencies.

P25 repeater (regardless of manufacturer) to any P25 fixed station, provided they use compatible frequencies.

The CAI has been agreed and documented by ANSI/TIA13. Although there is some ongoing work with vendors over further clarification of this standard, it is stable. The CAI is already in use with NZ Police, Customs and Fisheries specialist teams operating in conventional digital mode. It has been proven operationally in New Zealand and with regional partners in East Timor and Australia.

Accordingly it is recommended that the Common Air Interface for FDMA Conventional Digital Systems be incorporated into the NZ e-GIF Standard with the compliance category of ADOPTED.In addition to that for the CAI there is related documentation defining a similar interface for FDMA trunked digital systems. Trunking being a likely requirement in future it is recommended that the CAI for FDMA Trunked Digital Systems be incorporated into the New Zealand e-GIF Standard with the compliance category of FOR FUTURE CONSIDERATION.

3.0 Inter Sub-System Interface (ISSI)Overview and protocol documentation for the P25 ISSI has only recently been finalised and published. The remaining voice compliance and data services documentation is expected to be published during 2007.

The ISSI permits multiple RFSS to be connected into wide area networks, even where the RFSS run on different technology platforms (eg, Time Division Multiple Access (TDMA), FDMA, micro cell) and frequency bands. The interface need only be employed when interconnection between the RFSS of the same or different LMRN networks is desired.

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While a P25 radio may operate freely only among systems with the standard P25 CAI, the ISSI allows networks to be interconnected, provided the participating networks support this interface. This in turns gives all compatible equipment on those networks access to the entire wide area network. Interconnection of this type is depicted below.

Inter Sub-system inferface (ISSI)

Agency 1 mobile

Agency 1 Radio Frequency Sub-System (RFSS)

Agency 2 RFSS

Agency 1 mobile

The P25 ISSI standard is unlikely to be required for early implementations of a PPDR networks in New Zealand, and it is not currently proposed for the Police. The deployment of multiple interconnected RFSS is a future possibility, however. Consequently, the P25 ISSI is recommended for incorporation into the e-GIF Standard with the compliance category of FOR FUTURE CONSIDERATION.

4.0 Fixed station interface (FSI)The Fixed Station Interface connects fixed equipment such as repeaters to RFSS. The standard has recently been finalised for conventional (ie, non-trunked) services and its protocols published, although compliance documentation is not expected until late in 2007, or early 2008.

The FSI enables linking in both directions between P25 networks and analogue networks. The basic framework for this is depicted below. The FSI also provides for trunked digital and digital telephone interconnect, and for the transmission of circuit and packet data.

It is not anticipated that the FSI will be required for interoperability in the first instance. It is recommended for inclusion in the e-GIF Standard with the compliance category of FOR FUTURE CONSIDERATION.

5.0 Data peripheral interfaceThis interface is required to allow terminals to connect with such data peripheral equipment as mobile data terminals that support, for example, staff callout and dispatch, and mobile status reporting. This interface is not envisaged as being required for the initial PPDR network, although it is clear that some agencies will eventually require its implementation.

The Data Peripheral Interface is recommended for inclusion into the e-GIF Standard with the compliance status of FOR FUTURE CONSIDERATION.

6.0 Fixed host data interfaceThe status of this interface is similar to that of the Data Peripheral Interface described above and it is covered by the same document set. This interface is required for connectivity between an RF Subsystem and a data network, to support such business applications such as the tracking of users from channel



to channel, site to site and RFSS to RFSS. It is not anticipated that it be implemented with the initial PPDR network, although it is clear that agencies will need it in the long term. The Data Network Interface is recommended for inclusion in the e-GIF Standard with the compliance status of FOR FUTURE CONSIDERATION.

7.0 Telephone Interconnect (PSTN14) InterfaceThis interface was originally developed to provide connectivity between wireline and land mobile services, and is restricted to voice only. The use of mobile phones has increased since, to the extent that the demand for its continuing development has diminished. The interface does not accommodate IP based telephony, and it does not appear to be the target of any other current work.

The initial PPDR network plan envisages PSTN interconnection as being provided on an as-needed basis using manual patching. PSTN interconnection to a trunked network is a mandatory requirement for long term implementation. It is recommended that the interface be included in the e-GIF Standard with the compliance status of FUTURE CONSIDERATION.

8.0 Network Management InterfaceThe Network Management Interface is under development. The overview has been published but no other documents. Provided that any proposed network management system can support commonly recognised network management capabilities, it is anticipated that they could generally be expected to encompass APCO 25 standard radio systems. The choice of a network management system for the initial PPDR implementation is not expected to influence any subsequent decisions made by other agencies establishing their own PPDR networks, so therefore there does not appear to be a need to incorporate this interface into the e-GIF Standard.

9.0 Console subsystem interfaceThe Console Sub-System Interface is under development, with the overview and protocol about to be published and the remainder of the documentation expected from 2007 to early 2008. It defines a multi-channel digital interface between an RFSS and a console subsystem capable of supporting such functions as dispatch. This interface could be integrated into the RF Subsystem in the future. It is not envisaged that this standard will have any impact on interoperability and it is not intended to include it in the initial PPDR network. There may, however, be a need to utilise it in future. As no detailed investigation of this interface has been undertaken, it is recommended that it be included in the New Zealand e-GIF Interoperability Standard with the compliance status of FUTURE CONSIDERATION.

10.0Analogue FM TransceiversThe P25 standards documentation includes compliance assessment documents for the mandatory P25 Phase 1 Analogue FM Transceiver Standard. These provide for backward compatibility with non-P25 radio systems and cover the relevant performance measurement methods and performance

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recommendations. They have been approved and published by ANSI/TIA as a part of the Common Air Interface. It is recommended that they be included in the New Zealand e-GIF interoperability Standard with the compliance status of ADOPTED.

11.0Digital P25 Phase 1 TransceiversP25 standards documentation includes compliance assessment documents for the mandatory Digital P25 Phase 1 Transceiver standard. The documents contain the relevant performance measurement methods and performance recommendations, and have been approved and published by ANSI/TIA as part of the Common Air Interface. It is recommended that they be included in the New Zealand e-GIF interoperability Standard with the compliance status of ADOPTED.

Technical Summary of RecommendationsThe complete list of documents recommended for inclusion in the New Zealand e-GIF Standard, together with their compliance recommendation and the website and organisation where they can be purchased is included in Appendix E.

Governance It is proposed that the PSRFMG maintain the role of providing technical oversight for the ongoing development of the APCO P25 Standards, together with provision of oversight of the compliance status for its various components within the New Zealand e-GIF Standard.

The initial standards recommended for adoption by e-GIF will allow a basic interoperable capability that is expected to allow agencies with legacy conventional analogue FM radios to communicate with the initial APCO P25 network (s). As the need for further interoperable capability develops it is recommended that the PSRFMG should be able to establish further working groups under the leadership of a lead agency to re-examine the standards and determine changes that may be required to the New Zealand e-GIF Standard.

In performing this role the PSRFMG will report to both the e-GIF Management Committee and to the ETSSG. It is anticipated that any need for further PPDR capability will be raised through the ETSSG, and that the PSRFMG would recommend any subsequent changes required to the standard to the e-GIF Management Committee.

ImplementationNZ Police are the lead agency for the initial development and implementation of the APCO P25 set of Standards. An RFP has been issued for equipment meeting this standard on the basis of Police’s dimensioned requirements. The RFP has been prepared on the basis that any subsequent contract will be made available to any other government agency wishing to use it. Evaluation of vendor responses is in progress.

On approval from the e-GIF Management Committee the APCO P25 adopted set of standards will form the standards for the initial implementation.



As those agencies using commercial radiocommunications services reach the end of their current contracts, they can implement APCO P25.

Agencies which use their own legacy analogue networks will be able to communicate with the initial APCO P25 network through the Common Air Interface. The PSFRMG will investigate using a common set of radio channels and frequencies to facilitate interagency operability.

Agencies wishing to migrate to PPDR APCO Networks, whether they be their own or shared networks, will be able to develop a plan for such a migration that allows interoperability between users on their legacy network and those on the APCO P25 network.

A process will be documented that will clarify the tasks and equipment agencies will require in order to complete implementation.

As other forms of interconnections and interfaces mature, they will follow the same process that was used to develop this initial set of APCO P25 standards



AppendicesA CBC MIn (06) 16/21 minutes (transcribed from Copy No 41)

This appendix contains the Cabinet Business Committee minutes that provide the mandate for this Working Group.

B Terms of Reference

This appendix contains the Terms of Reference for the PPDR Radiocommunications Interoperability Standard Working Group.

C Communications Plan

This appendix contains the draft communications plan for the work covered by the Radiocommunications Interoperability Standards Working Group

D APCO P25 Service Capability & Requirements

Appendix D contains the APCO P25 Service Capability Summary and compares it to Police PPDR immediate and long term (Post 2009) requirements. This was used as the basis for agencies in the working group to assess the suitability of the APCO P25 standard for their own needs.

E APCO P25 Standards Document List and Compliance Recommendations

Appendix E contains the set of documents describing the APCO P25 standards recommended for inclusion in the New Zealand e-GIF with their e-GIF compliance category recommendation.

APCO 25 Standards can be purchased in the form of TIA 102 Series Documents from the TIA’s Global Document Publisher at http://www.global.ihs.com

AttachmentF Briefing

This attachment contains the initial briefing paper provided to the members of the PSRFMG on the adoption of a radio communications interoperability standard and its incorporation into the New Zealand e-GIF



http://www.global.ihs.com/

Appendix A: CBC MIn (06) 16/21 minutes(transcribed from Copy No 41)

Cabinet Business Committee (CBC Min (06) 16/21)Minute of DecisionRadiocommunications for Public Protection and Disaster ReliefOn 25 September 2006, the Cabinet Business Committee (CBC):

1 noted that public protection and disaster relief (PPDR) agencies include front-line and public safety services (eg Police, Fire, Ambulance, Fisheries Protection, Customs), those likely to be involved in civil emergencies and natural disasters (Civil Defence and Emergency Management, Defence Force, Conservation, regional and territorial local authorities) and voluntary organisations supplementing both (Maori Wardens, Coastguard, civilian search and rescue);

2 noted that PPDR agencies need the ability to communicate by radio effectively and in real-time to meet public protection and disaster relief outcomes;

3 noted that a co-ordinated approach to communications standards and interoperability is necessary to ensure efficient future use of government resources, and reliable communications under adverse conditions;

4 noted that a whole-of-government approach is needed to ensure that that the technological and organisational benefits of collaborative operation can be obtained by all PPDR agencies in central and local government;

5 noted that a government technical interoperability standard will encourage the convergence of individual agencies’ radiocommunications towards full interoperability on common platforms;

6 agreed to interagency work to develop a technical interoperability standard to strengthen the reliability of public protection and disaster relief radiocommunications under the process provided by the e-Government Interoperability Framework;

7 agreed to the development of a PPDR spectrum allocation plan, noting that the immediate operational needs of the NZ Police will be met through an interim spectrum allocation;

8 noted that terms of reference for the Emergency Telecommunications Services Steering Group approved by CBC [CBC Min (06) 16/20], provides that the ETS Steering Committee will oversee and co-ordinate the PPDR radiocommunications work programme;

9 invited the Minister of Communications to report to the Cabinet Policy Committee (POL) on ETS Steering Group progress on proposed technical interoperability standards and a related spectrum allocation plan within three months so that operational priorities of New Zealand Police can be met;

10 invited the Minister of Communications to report to POL by 30 June 2007 on the ETS Steering Group’s development of a strategy for strengthening the effectiveness of PPDR radio communications;

11 agreed that the start of work for strengthening the effectiveness of PPDR radio communications be announced by the Minister of Communications;

12 noted that the Minister of Communications indicated that consultation is not required with the government caucuses or other parties represented in Parliament.



Appendix B: Terms of Reference

State Services Commission

Information and Communication Technologies Unit

Terms of Reference

PPDR Radiocommunications Interoperability

Standard

Working Group



Contents1.......Purpose and Related Documents................................................................6

1.2 Objectives...............................................................................................61.3 Related Documents................................................................................6

2.......Introduction...................................................................................................62.1 What is the e-GIF?..................................................................................62.2 Standards Categories.............................................................................6

3.......Background to Standard for Assessment...................................................63.1 What is a Public Safety Land Mobile Radio Network?............................63.2 The Business Need for a technical interoperability standard..................6

4.......Scope.............................................................................................................64.1 Included in the scope..............................................................................64.2 Excluded from scope..............................................................................64.3 Related Work..........................................................................................6

5.......Approach........................................................................................................66.......Working Group Membership and Key Roles..............................................6

6.1 Skill Mix...................................................................................................66.2 Resource Effort and Time.......................................................................66.3 Roles and Responsibilities – all Members..............................................66.4 Chairperson............................................................................................66.5 State Services Commission (SSC) Liaison representative.....................66.5 Secretariat and Communications............................................................66.6 Relationship Structure.............................................................................6

7.......Policy Considerations...................................................................................67.1 Consensus..............................................................................................67.2 Media......................................................................................................67.3 Conflicts of Interest.................................................................................67.4 Confidentiality.........................................................................................67.5 Escalation Process.................................................................................67.6 Copyright................................................................................................67.7 Timeline..................................................................................................6

8.......Governance....................................................................................................68.1 Risk identification and minimisation activities.........................................68.2 Deliverables and timetable......................................................................6

9.......Terms of Reference sign-off by Public Safety Radio Frequency Management Group.......................................................................................6

10.....Terms of Reference sign-off by Agency Leaders.......................................6



Appendix I: Working Group Representatives.....................................................6



1 Purpose and Related Documents1.1 PurposeThe purpose of this document is to provide prospective Public Safety Radio Communications Working Group (PSRFMG) members a framework to appreciate the role they are being invited to undertake. The document will:

Outline the background to the PPDR Radiocommunications Interoperability Standard project and the role and context of the initiative.

Detail the scope, roles, responsibilities of the members of the related Working Group together with the desired outputs.

Outline the mix of skills in a typical Working Group. Overview the process that the Working Group will follow.

1.2 ObjectivesThe PPDR Radiocommunications Interoperability Standard Working Group is to:

Agree and document a suitable Radio Interoperability Standard as meeting Government interoperability objectives when deployed as the base standard for Public Safety narrowband voice communications networks.

Agree and document the mechanisms by which deployment of the interoperability standard will achieve interoperability amongst public safety agencies and lead to more effective and resilient delivery of services relating to public safety.

Agree and document a governance framework for the standard within which such interoperable networks can be developed and managed.

Agree an approach to acquiring sufficient spectrum with the Ministry of Economic Development.

1.3 Related DocumentsThis document is one of a developing family of e-GIF document sets related to standards development. This document is placed in context to the following. Prospective Working Group members are urged to familiarise themselves with them if they have not already done so. e-GIF Version 3.0

http://www.e.govt.nz/standards/e-gif/e-gif/e-gif-V-3/

2 Introduction2.1 What is the e-GIF?The e-GIF (e-Government Interoperability Framework) is a document containing a set of policies, technical standards and guidelines (and a governance approach) covering technical components, data and ways of linking the components.

The purpose of the e-GIF is:



http://www.e.govt.nz/standards/e-gif/e-gif/e-gif-V-3/

To define the elements of a platform for the delivery of integrated electronic services for e-government in New Zealand.

To ensure that technological barriers do not prevent government agencies from co-operating, through endorsing technical standards.

To reuse knowledge and experience gained when choosing and implementing standards in the state sector; and:

To reduce the burden on individuals and businesses using e-government by improving consistency of approach.

All people and organisations that make use of the e-government facilities of the New Zealand government will use this platform. Public service departments are required to adopt the e-GIF; other state sector agencies are encouraged to do so (CAB Min (02) 18/2C refers). In practice this means that departments should participate in the processes to place standards within the e-GIF, and are required to use e-GIF standards (or show a good reason why they are not) when relevant to new implementations.

It is understood that adopting standards, and where applicable its associated schema, does not automatically produce a solution enabling data exchange. The standard needs to be incorporated into a business service/process with coded business rules to achieve truly useful interoperability.

2.2 Standards Categories It is recognised that proposals for e-GIF standards under Working Group assessment fall into one of the following categories:

Category 1: Recognised International standards from applicable standards bodies such as W3C, OASIS etc with supporting documentation and implementation. These may or may not be already in use in New Zealand.

Category 2: Standards in use overseas by an industry sector or group, which may or may not be ratified by an international standards body. These may or may not be already in use in New Zealand, but are expected to have supporting documentation and where appropriate, schema, from which the NZ government can draw.

Relevant standards that fall within this category are:

- TETRA – Terrestrial Trunked Radio, a European interoperability standard designed primarily for public safety applications;

- Tetrapol - a standard based on the TETRA concept, developed exclusively by France;

- APCO P25 – a standard developed by the US Association of Public Safety Communications Officials (APCO);

- ProVoice and OpenSky – standards developed privately by an American manufacturer, M/A COM.

All of these standards have been deployed successfully in the field, and will be considered by the Working Group for adoption as the New Zealand standard.

Category 3: Standards which are used internally by an Agency in New Zealand with no international recognition but which the Agency would like to propose as a standard for all agencies in New Zealand to follow. These



are expected to have supporting documentation, and where applicable, schema from which the NZ Government can draw.

Category 4: A proposal where no standard exists overseas or in New Zealand, for a standard to be developed.

3 Background to Standard for Assessment3.1 What is a Public Safety Land Mobile Radio Network?A public safety land mobile radio network is a radio network that enables agencies with first responder responsibilities to communicate internally and between themselves so as to coordinate and operate effectively in the event of emergencies requiring public protection and disaster recovery activities.

3.2 The Business Need for a technical interoperability standardThe Police/Fire Land Mobile Radio Network (LMRN) must be replaced as the equipment is operating beyond its economic life and will become increasingly unreliable and expensive to maintain.

Police have consulted with all Public Protection and Disaster Response (PPDR) agencies through the PSRFMG. All have agreed that a digital network will provide a suitable platform that can be used by all agencies in either digital or analogue mode, and both with and without encryption.

Encrypted radio communications was ranked by Police users as top priority in the Information, Communications and Technology Strategic Plan 2005-2010.

Police, Fire, and Customs have all indicated that they would be willing to share a PPDR network as soon as it is available. Ambulance and Fisheries will also join once their respective contractual arrangements with other network service providers have expired. Other agencies have also indicated that they may also join the network in due course.

The basic requirement for technical interoperability standard is for radio equipment that complies with the standard has reliable backward compatibility with standard analog FM radios, so that the present Very High Frequency (VHF) and Ultra High Frequency (UHF) terminals used by Ministry of Civil Defence and Emergency Management (CD&EM), Ambulance, Department of Conservation (DOC), Defence, and Fisheries would all immediately be able to use the network in a basic analog conventional mode if required and if authorized to do so. If they subsequently decided to change to digital technology, the process would be relatively straight forward with minimum impact on their day to day operations. If necessary the migration could be phased over a number of years.

4 Scope4.1 Included in the scopeThe work of the e-GIF PPDR Radiocommunications Interoperability Standard working group is to assess the available technical interoperability standards for potential suitability with government agencies’ radiocommunications requirements and recommend whether or not a particular standard, amended or not, be adopted.



The objective of the Working Group is to take the standard and process to a point where individual government agencies can implement the standard.

It will also create a future governance process around the standard, should it be adopted.

The scope of the Working Group includes:

Agreeing, developing and adapting the technical interoperability standard to make it suitable for the New Zealand government use.

Narrowband voice communications capability as a first priority. Narrowband data communications capability as a second priority. (Although

the Police see no immediate need for their use of narrowband data communications over their LMRN, some security functions such as Over The Air Rekeying may use the low speed data capability).

Identifying and assessing the suitability of the technical interoperability standard within the New Zealand government environment.

Agreeing and confirming forecast quantities of Radio Frequency (RF) channel requirements for public safety land mobile radio networks.

Reporting a recommendation for a technical interoperability standard to the e-GIF Management committee for inclusion in the e-GIF, together with compliance status which may be required for each key element and interface described by the standard.

- Future Consideration.

- Under Development.

- Recommended.

- Adopted.

- Deprecated.

Development and implementation of a communications plan. Developing and identifying a process for the continued governance and

monitoring of the recommended technical interoperability standard as it continues to develop.

4.2 Excluded from scope Acquisition and implementation of the network. Establishing RF spectrum assignments, which is a function performed by the

Ministry of Economic Development. Narrowband data communications capability and applications, other than

those which are required to support voice communications. Other applications may be addressed in a subsequent phase, where the role of lead agency may be taken by another organisation. (Police are only interested in using LMRN for voice. Other agencies may want to use this capability – if they do it will have to be implemented after the Police voice network and still require some adaptation and oversight.)

Broadband data communications capability and applications. Detailed design and implementation of governance and operational

management processes for the PPDR LMRN.

4.3 Related Work



Establishing and assigning the frequencies to be used in the interim by Police. This will be performed by the Ministry of Economic Development.

Establishing and assigning the frequencies to be used by PPDR Agencies. This will be performed by the Ministry of Economic Development.

Development of a strategy for Government PPDR radio communications to achieve interoperability and reliability of services across all Sate Sector agencies in all conditions.

5 ApproachThe approach to be taken by the Working Group to the incorporation of the recommended technical interoperability standard into the e-GIF Framework is as described below. This approach envisages that a submission will be made to Cabinet for approval to replace the Police LMRN, and that the timeline for the work to be undertaken by this Working Group will be driven by the date on which cabinet approval is received. The standard will need to be agreed and accepted by the e-GIF Management Committee within three months of Cabinet’s approval for the concept of extending e-GIF to incorporate PPDR radio communications.

Step Activity1 Draft initial paper on public safety LMRNs, covering proposed standard,

mechanisms for governance, forecasts of spectrum requirements, a view of how they can be achieved, the mechanisms for interoperability between agencies and how this standard will achieve the e-GIF objectives.

2 Establish issues that Agencies may have with the draft initial paper together with plans for addressing them. Resolve issues.

3 Review the relevant Standard Documentation; determine any issues with the standard that may impact implementation in New Zealand; establish whether there is likely to be a need for adaptation to meet PPDR and e-GIF requirements for interoperability and resilience in New Zealand; recommend any further work that may be required in the event that adaptation is needed.

4 Review and confirm forecast channel and RF quantities.Review and agree quantities with MED.

5 Prepare a submission to the e-GIF Management Committee recommending the APCO 25 standard and related governance processes and mechanisms.Recommend e-GIF compliance status for each of the standard’s interfaces.

6 Undertake public consultation process.7 Incorporate feedback from public consultation process and submit

recommendation to e-GIF Management Committee.



6 Working Group Membership and Key Roles6.1 Skill Mix Chairperson who will be from Police, the lead agency appointed by the State

Services Commission. State Services Commission (SSC) Liaison representative (appointed by SSC.) Those representatives from agencies who currently comprise the Public

Safety Radio Frequency Management Group (PSRFMG). Consultation on the development of a proposed public safety network has been conducted through the PSRFMG, whose representation comprises:

PSRFMG Members Other Agencies Whose Interest is Represented by PSRFMG Members

NZ Defence ForceMinistry of Civil Defence and Emergency Management

Local Authorities

NZ Police Search & RescueNZ Ambulance Board Ministry of Health, Regional Health

Boards, St John's AmbulanceDept. of Conservation Regional Parks Service, Maritime NZNZ Fire Service Rural Fire Service, Aerial Fire fightingNZ Customs ServiceMinistry of Economic Development NZ Fisheries

It is proposed that the membership of the e-GIF Working Party on Public Safety Radio Communications comprise the agencies that are members of the PSRFMG.

6.2 Resource Effort and TimeWorking Group (Core Group)

Full participation as a working group member. Involved in regular group discussions, and attendance at formal minuted

meetings.

The date for the first Working Group meeting is scheduled for 4th October 2006.The expected time commitment by Group members is as follows:

3-4 hour meeting each week for a period of 1 month. Reading required between meetings.

6.3 Roles and Responsibilities – all MembersThe Working group is open to public sector agencies, IT vendors as nominated by professional bodies, professional bodies and other stakeholders. It is recognised that public sector agencies may prefer IT vendors to represent their interests.



The principles guiding the work of each member of the group are to:

Commit to being active in the Working group including the participation in, and use of, electronic communications provided within the shared workspace environment (if required). Regular attendance at meetings and timely completions of all assigned tasks is a pre-requisite.

Commit to working collaboratively with the group. Contribute to the development of a detailed work plan for the Group. Carry out tasks in an open and transparent manner, which will include a

detailed review and assessment of standards documentation, their suitability for deployment; and whether there is a need for adaptation.

Gain widespread support from your respective organisations. Ensure critical timeframes are met. Ensure best practice criteria are applied based on international standards and

guidelines. Commit to checking the outputs and being satisfied that they are of a sufficient

quality and clarity that they can be followed by others not involved in the project.

Actively contributing to reaching consensus. Keeping to the scope of the project. Reviewing the literature in relation to this topic as appropriate; and within the

time frames required by the project. Ensuring widespread opportunity for comment on drafts. Fully considering the cost and benefit implications associated with any

recommended changes and additions prior to making final recommendations.

Signing off the documentation for QA and integrity; and: Amending draft documents as desirable and approving the final Report and

Recommendation document once complete.

6.4 ChairpersonThe Chairperson will be from the NZ Police Department. The Chairperson chairs and moderates the meetings and facilitates consensus. The Chairperson together with the State Services Commission Liaison representative retains responsibility for identification, selection and continued involvement of Group members.

6.5 State Services Commission (SSC) Liaison representativeThe Sate Services Commission will appoint the Liaison representative.

The SSC Liaison representative is responsible for:

Issue/risk identification and escalation to e-GIF management team. Reporting key discussion points, agreements and issues to the Information,

Communications and Technology unit together with any recommendations agreed by the Groups.

Facilitation of the production of the submission and presentation to the e-GIF management Committee.

Ensuring that the consultation process is robust. Ensuring that a “whole of government” approach is taken.



Overseeing Technical Audit and QA of outputs and reports for usability and readability given the range of future readership familiarity of the subject.

Preparing weekly status reports for e-GIF Manager.

6.5 Secretariat and CommunicationsThe Ministry of Economic Development will provide the Secretariat. The Police as the lead agency will provide any media relations support for the development of the communications plan which will be coordinated with the SSC as outlined below.

6.6 Relationship StructureThe Sponsor of the Police Replacement LMRN and the adoption of the APCO P 25 Standard is Lyn Provost, Deputy Commissioner, who is a member of the Emergency Telecommunications Services Steering Group.

The following diagram describes the relationship structure for the Working Group:

RELATIONSHIPS

Cabinet

Minister of Communications

e-GIF Management Committee

ETSSG - Emergency Telecommunications

Services Steering Group

WG1 - PPDR Radiocommunications

Interoperability Standard Working Group

WG2 - PPDR Radiocommunications

Spectrum Allocation Group

WG3 - Government Radiocommunicatiosn

Startegy Working Group

[Emergency call system project] [Other projects]

NZ Police LMRN Replacement Steering

CommitteeState Sector CEOs

Acountibility and reporting

Functional

PSRFMG - Public Safety Radio frequency Management Group

e-GIF Manager

Note: The e-GIF Management Committee is the decision-making body.

7 Policy Considerations7.1 ConsensusIt is highly desirable that the group reach consensus about its conclusions since the output must be acceptable to the wider community of Agency stakeholders. The chair should advise the e-GIF Management Committee if this is not possible. The e-GIF Management Committee may accept a final report endorsed by a substantial majority of the group provided that minority viewpoints are reflected in the comments section. The Management Committee will take the unanimity of the group or otherwise into account when deciding whether to accept the report’s recommendations.

7.2 Media



Media contact is co-ordinated through the chairperson, Jason Ryan, the SSC Communications Advisor, and Hugh Fulton, the Police Communications Advisor. A communications plan will be developed in conjunction with the communications teams.

7.3 Conflicts of InterestIt is noted that the Working Groups are a combination of both government and non-government members. In the interests of safety for all members, the group members should perform their functions in good faith, honestly and impartially and avoid situations that might compromise their integrity or otherwise lead to conflicts of interest. Proper observation of these principles will protect the Advisory and Working groups and its members and will enable public confidence to be maintained.

When Working Group members believe they have a conflict of interest on a subject which will prevent them from reaching an impartial decision or undertaking an activity consistent with the Working group’s functions, they must declare a conflict of interest, to the Working group, and withdraw themselves from the discussion and/or activity.

7.4 ConfidentialityAlthough members are naturally free to express their own views within the context of Working group meetings, or the general business of the Working group, members should publicly support a course of action decided by the Working group. If a member is unable to support a majority course of action, it is that member’s responsibility not to publicly comment on decisions.

Working group members may want to discuss issues and/or decisions with peers, nominating organisations and representative groups in order to gain feedback and measure consensus. It is not the purpose of this confidentiality clause to prevent this from occurring, but to protect individual members from being quoted out of context and undermining the project integrity.

7.5 Escalation ProcessIf a Working group member believes their input or views are not being considered adequately by their group or the chair they should escalate their concerns to the e-GIF Manager Trudy Rankin by email to [email protected] or postal delivery to PO Box 329, Wellington.

7.6 CopyrightWork produced relating to the Working group output or activities commissioned by SSC will remain the property of the Crown. SSC will hold all copyright and other intellectual property rights in respect of such work on behalf of the Crown. Individuals wishing to publish work commissioned by SSC must first seek prior written approval from SSC to do so.



mailto:[email protected]

7.7 Timeline

Key Milestones DeadlineInitial Brief Drafted 22 September 2006Attendance at Working Group Meetings Weekly meetings from 4th October.Submission to Cabinet of a paper recommending incorporating an all of Government technical interoperability PPDR standard in e-GIF

25 September 2006

Development of draft Version of e-GIF Submission

5 weeks prior to publication to the e-GIF Management Committee.

Review & incorporate feedback from Working Group

4 weeks prior to publication to the e-GIF Management Committee

Publish to an “All of Government” audience for Public Consultation

4 weeks prior to publication to the e-GIF Management Committee

Review and incorporate feedback from Public Consultation

1 week prior to publication to the e-GIF Management Committee

Publish to e-GIF Management Committee

Monday prior to the presentation to the e-GIF Management Committee

Present to e-GIF Management Committee

Within 3 months from the date of Cabinet approval for the development of the standard.

Publish Within 3 months from the date of Cabinet approval for the development of the standard.

8 GovernanceThis Working group will follow the standard State Services Commission group procedures and utilise the following templates:

8.1 Risk identification and minimisation activitiesUse this table to identify and manage risks specific to the working group

Risk Likelihood Impact Mitigation Activities WhoWorking group unable to meet timelines

Med High Advise Group timelines ahead of time

Proactively contact members for status of workload well before deadline

SSC Liaison Rep

Working group members consistently unable to attend meetings

Low Med Ensure group members have a backup rep

Contact agency for new resource

SSC Liaison Rep

Working group unable to reach a consensus about its

Med High Intervene and escalate to e-GIF manager for direction




Risk Likelihood Impact Mitigation Activities WhoconclusionsWorking group lack of familiarity with broader context of e-GIF and the requirement for compliance with e-GIF.

Low High Provide suitable induction with a broadly focussed briefing


Broadening the scope. E.g. some agencies may wish to prioritise packet data communications and applications

Med Med Full discussion of scope during induction & review of Common Air Interface

Careful scoping of any effort required & management of timelines

Prioritisation of outputs to meet deadlines

Chairperson

Who = Person accountable to manage risk mitigation activities and contingency plan:

This list is not exhaustive and will continue to evolve throughout the Project

8.2 Deliverables and timetableUse this table to outline deliverables and timetable to the working group

Deliverable TimelineRegular working group meeting schedule agreed, distributed and attended

4 October through November 2006

Develop draft interoperability standards paper for eGIF Management Committee

5 weeks prior to publication to e-GIF Management Committee

Review and update 4 weeks prior to publication to e-GIF Management Committee

Public Consultation review 1 week prior to publication to e-GIF Management Committee

Publish Within 3 months of Cabinet approval for the development of the standard.



9 Terms of Reference sign-off by Public Safety Radio Frequency Management GroupThe signing of this Terms of Reference, signifies agreement on the Terms of Reference.

Richard Harkett Trudy RankinNew Zealand Police State Services Commission

Bruce Emirali Graeme LoveNew Zealand Defence Force New Zealand Fire Service

Ken Eccles Ian RaeNew Zealand Customs Service Ambulance New Zealand

Harry Orr Justin DownsMinistry of Civil Defence and Emergency Management

Ministry of Agriculture and Forestry

Colin Hopkinson Brian MillerDepartment of Conservation Ministry of Economic

Development



10 Terms of Reference sign-off by Agency LeadersThe signing of this Terms of Reference, by agency Chief Executive or second in charge signifies a formal agreement on the part of the participating agency to commit resources to this project.

Designation Designation New Zealand Police Ministry of Economic Development

Designation Designation New Zealand Defence Force New Zealand Fire Service

Designation Designation New Zealand Customs Service Ambulance New Zealand

Designation Designation Ministry of Civil Defence and Emergency Management

Ministry of Agriculture and Forestry



Designation Designation State Services Commission Department of Conservation

Appendix I: Working Group RepresentativesName Agency Email Phone

Sanjeewa Athuraliya

Police [email protected] 027 296 0408

Karen Burns SSC [email protected] 029 483 3789

Harry Orr MCDEM [email protected] 027 283 0548

Bill Deverall (Chair) AVA/NZ Police [email protected] 021 831 435

Justin Downs MAF [email protected]

Andrew Eades Customs [email protected]

Ken Eccles Customs [email protected] 029 543 2738

Hugh Fulton NZ Police [email protected] 04 238 3470

Richard Harkett NZ Police [email protected] 04 238 3469

Chris Juriss NZ Fire Service

[email protected] 04 496 3639

Grahame Love NZ Fire Service

[email protected] 027 448 5294

Peter Methven (Secretary)

MED [email protected] 021 147 8878

Alex Orange MED [email protected] 04 474 2657

Ian Rae Ambulance NZ [email protected] 027 433 7656
















Appendix C: Communications Plan

Public Protection Disaster Relief(PPDR) APCO25 Radiocommunications Communications plan

November 2006

DRAFT VERSION 1.00



CONTENTS1.......INTRODUCTION.............................................................................................62.......BACKGROUND..............................................................................................6

2.1 Overview.................................................................................................62.2 Situation Analysis...................................................................................6

3.......COMMUNICATIONS STRATEGY..................................................................63.1 Overview.................................................................................................63.2 Communications Objectives...................................................................63.3 Key Audiences and Communications Vehicles.......................................63.4 Key Messages........................................................................................63.5 Risks and Issues.....................................................................................63.6 COMMUNICATIONS PRINCIPLES........................................................63.7 Communication Strategies......................................................................6

4.......IMPLEMENTATION PLAN.............................................................................64.1 Communications Plan.............................................................................64.2 Communications Vehicles.......................................................................64.3 Media Management................................................................................6

5.......MEASURING SUCCESS................................................................................65.1 Overview.................................................................................................65.2 Success Measures.................................................................................6



1 INTRODUCTIONThis document is the Communications Plan for the Public Protection Disaster Relief (PPDR) APCO 25 Radiocommunication standards project.

The PPDR APCO 25 Radiocommunication standards project is an initiative being lead by Police.

The purpose of the project is to assess the suitability of the APCO 25 suite of standards for use by government agencies during public protection disaster relief operations. This also includes governance and a process for individual government agencies to adopt and implement the standard when required.

This Communications Plan aims to provide a strategy for promoting the APCO 25 standard to Government Agencies with a view to increasing awareness and a process for participating in its development.

2 BACKGROUND2.1 OverviewPolice have consulted with all Public Protection and Disaster Response (PPDR) agencies regarding their requirement for an APCO P2515 digital network. All have agreed that an APCO P25 digital network will provide a suitable platform that can be used by all agencies in either digital or analogue mode, and both with and without encryption.

2.2 Situation AnalysisThe Police/Fire Land Mobile Radio Network (LMRN) must be replaced as the equipment is operating beyond its economic life and will become increasingly unreliable and expensive to maintain.

Police, Fire, and Customs have all indicated that they would be willing to share a PPDR P25 network as soon as it is available. Ambulance and Fisheries will also join once their respective contractual arrangements with other network service providers have expired. Other agencies have also indicated that they may also join the network in due course.

15 Project 25 (P25) was established in the USA by joint efforts of the Association of Public Safety Communications Officials International (APCO). It was established to address the need for common digital public safety radio communications standards for First Responders and Homeland Security/Emergency Response professionals.

P25 compliant systems are now deployed globally. The standards have been submitted to the International Telecommunications Union’s ITU-R Study Group 8, Working Party 8A. The ITU-R is charged with determining technical characteristics and operational procedures for wireless services.



http://www.apcointl.org/

3 COMMUNICATIONS STRATEGY3.1 OverviewThis Communications Plan is the framework for ensuring that all state sector agencies and key stakeholders are informed about or have access to the APCO 25 standards development.

3.2 Communications ObjectivesIncrease awareness of the APCO 25 and associated standards

Encourage PPDR agencies to actively participate in the ongoing development of the APCO 25 standard and in the development of an interoperable capability between agencies involved in public protection and disaster recovery operations.

Create a community of advocates who will actively promote and champion APCO 25 and associated standard throughout the state sector

3.3 Key Audiences and Communications Vehicles

Target Audiences VehiclesPPDR Governance

Public Safety Radio Frequency Management Group (PSRFMG)

Status report from chairperson monthly

Key Stakeholders

Minister of State ServicesMinister of Police(Hon Annette King)Minister of Communications(Hon David Cunliffe)

Joint update from SSC/MED/Police ICTJoint update from SSC/MED/Police ICT

State Services Commissioner Weekly Meetings with Deputy Commissioner ICT

All Agency CEO’s Monthly CEO ForumTreasury TSY RM Meetings

Content Contributors (consultation)

Local Government New Zealand

Through the involvement of Ministry of Civil Defence and Emergency Management

Wider Public Sector Personal letter with link to e-GIF website

Internal (PPDR staff)

Staff involved in PPDR managementSSC relationship managersSSC ICT

Internal consultation via working group representative



3.4 Key MessagesThe key messages for the APCO25 and associated standards are:

A robust process to investigate other LMRN standards has been carried out APCO25 has reliable backward compatibility with standard analog FM radios

provided they use compatible frequencies and can tune to the same frequencies.

the initial implementation will involve a conventional LMRN network for Police. implementation of the APCO25 standards will be at agency discretion and cost The APCO25 standard suite has standards that are at various stages (i.e.

recommended, under development, future consideration) Narrowband voice communications capability is a first priority Narrowband data communications capability are a second priority There is believed to be sufficient UHF spectrum available to accommodate

forecast PPDR requirements. Any additional channel requirements above those that can be met from allocated spectrum arising in the short to medium term will be addressed by:- improved network management techniques, which will be materially

assisted by migration to digital technologies; and if necessary- investigating the use of trunking in regions of high traffic density.

Subject to further technical analysis, it appears that the VHF channel requirements might be accommodated in the ESB band (138 - 144 MHz) and the UHF requirements in the ESC band (494 – 502 MHz), with any UHF overflow being accommodated in UHF F band allocations held by Police.

3.5 Risks and IssuesIdentifying potential issues ensures any negative impacts can be carefully managed.

Issue 1Situation: The VHF channel forecast for PPDR agencies exceeds the

spare spectrum shown in the ESB Band. PPDR Agencies VHF spectrum is currently provided in the ESA and ESB bands. Manufacturers of APCO P25 equipment do not generally produce equipment at frequencies as low as the ESA Band. (75.2 – 79.2 MHz). Only one manufacturer is believed to claim that they do so.

Mitigation: Agencies in the Interoperability Standards Working Group have agreed that on implementation of the APCO P25 Standard they will over time migrate from the ESA Band thus freeing it for other purposes. In addition users of the ESB Band do use it for other than PPDR purposes. MED has agreed to undertake further technical analysis to determine the extent to which these particular frequencies can be shared.

Issue 2:Situation:Mitigation:



Issue 3:Situation:Mitigation:Issue 4:Situation:Mitigation:

3.6 COMMUNICATIONS PRINCIPLESPPDR communications should be:

Open and honest Simple and concise Relevant and targeted (tailored for the relevant audience) Regular and timely They should also: Have consistent messages Enable key audiences to filter information appropriately

(key messages easily identified) Be accessible (in terms of language and physical access) Have feedback mechanisms

3.7 Communication StrategiesStrategy 1

Position the APCO25 standard with Agency CEO’s as a key communications deliverable

Agencies must be able to communicate with other key agencies during an emergency situation, regardless of radiocommunications technology

It is important to create a consistent and easily understood set of messages which can be used to build awareness about APCO25

Tactics Engage CEO’s in the importance of understanding the APCO25 standard Engage CEO’s and key staff of implications when implemented by police

and other key agencies (backward and forward capability) Gain commitment from Agency CEO’s to assign a resource for developing

the standard

Strategy 2Develop a communications framework to promote and champion APCO25

It is important to create a consistent and easily understood set of messages which can be used to build awareness about APCO25

Tactics Create a communications framework which takes into account the needs of

the key audiences in terms of relevance of message, timeliness and accessibility (language and channel)



Strategy 3Engage a community of content contributors from across the state sector

Key stakeholders involved in PPDR activities must have a process to contribute to the development of the standard

Tactics Contact key stakeholders and invite them for consultation of APCO25

standard Provide mechanism for to offer input / feedback

4 IMPLEMENTATION PLAN4.1 Communications PlanThe Communications framework should:

Outline a clear set of key messages to be used Integrate and streamline communications channels Manage the frequency and priority communications to agencies

4.2 Communications Vehicles

Vehicle ParticipantsAgency CEO’s SSC Commissioner CEO ForumRadiocommunications contacts

Through involvement of Public Service Agencies and their CIOs.

Public Consultation Public Service and non Public Service departments, wider state sector

Meetings One-on-one or group meetings with key audiences & stakeholders as required

About APCO25 website (e-GIF)Information and the frequently asked questions pages

News Notifications through key agencies websites

4.3 Media Management1 Messages should be in line with the Government agencies media policy.

All releases should be managed through a consultation process between the State Services Commission, Ministry of Economic Development and Police communications team.

2 Messages should be planned and preparations made to counter negative external coverage.

5 MEASURING SUCCESS5.1 OverviewTo measure the success of the development of the APCO25 standard and the communications programme the following measures are proposed.

5.2 Success Measures

No Criteria Measure



https://psd.govt.nz/gateway/aboutNZDirectory.php

1. Engagement of Agency CEO’s

CEOs appoint dedicated resource

2. Engagement of content contributors

High number of engaged content contributors

3. e-GIF approval Approval to proceed with implementation of standard

4.



Appendix D: APCO P25 service capability comparison

Key: M= Mandatory; SO = Standard Option; SO-R = If offered as a standard option, then this service is required

P25 Statement of Requirements Service Specifications Phas

e 1,

12.

5 K

Hz,

FD

MA

Imm

edia

te P

PDR

R

equi

rem

ents

Long

Ter

m (P

ost

2009

) PPD

R

Req

uire

men

ts

Inter-RF Subsystem Interface (ISSI)Multiple RFSSs regardless of air interface must be capable of interconnecting into other RFSSs which may be on the same WACNs or P25 Systems SO-R Optional MSupport for roaming of SUs among P25 RFSSs SO-ROperational modesTrunked: The ISSI shall support 2 or more RFSSs operating in trunked mode SO-R MConventional: The ISSI shall support 2 or more RFSSs operating in conventional mode SO-R Optional MMixed Mode: Support for combinations of RFSSs operating elements in both trunked and conventional modes SO-R MNetwork configurations supportedPoint to point SO-RMultipoint SO-RDedicated links SO-RT1, E1, & fractional E1 & T1 & SDH/SONET SO-RIP based networks (IPV4, IPV6) SO-R MControl elements:Management & location tracking of subscribers SO-R Optional MAuthentication of subscribers SO-R Optional MSetup, teardown & maintenance of calls SO-R Optional MOver the air control and over the air rekeying of subscriber terminals SO-R Optional M

Network ManagementConfiguration management, Fault management, Security management, Performance Management, Accounting management SO-R M MElement management SO M MSingle point of entry SO-RLimited set of database field assignment SO-RUpdate a limited set of database fields in multiple data bases SO-RVertical partitioning SO-R

Console Subsystem Interface (CSSI)Vocoded & encrypted audio SO-R M MPacket data SO-R MTelephone patching SO-R MControl of advanced capabilities including conventional, trunking, simulcast, receiver comparators (voting), encryption SO-R MExchange of Unit ID SO-R MTime synchronisation SO-RChannel status information SO-RDesignated talk group recording SO-R MPrivate & group call support SO-R MAudible tone signalling to SUs SO-RCrypto key fill support SO-R M M

APCO P25. Service Specifications Comparison With PPDR Requirements



Key: M= Mandatory; SO = Standard Option; SO-R = If offered as a standard option, then this service is required

P25 Statement of Requirements Service Specifications Phas

e 1,

12.

5 K

Hz,

FD

MA

Imm

edia

te P

PDR

R

equi

rem

ents

Long

Ter

m (P

ost

2009

) PPD

R

Req

uire

men

ts

Fixed Station Subsystem Interface (FSSI)Conventional Analogue Fixed Station Interface (CAFSI)Transport of clear audio between fixed station & its host encompassing full-duplex, half -duplex, & simplex at the discretion of the fixed station SO-R M MTransport of E&M Control Signalling SO M MTone remote control signalling for support of legacy analogue fixed stations SO-R M MIntercom capability SOSupport for conventional FM operation SO M MConventional P25 digital (CAI) operation SO M M

Conventional Digital Fixed Station Interface (CDFSI)Supoport for IP based capabilities equivalent to those provided via CAFSI when digital station is operating in analogue mode SO-R M MEncrypted audio SO-R M MTransport of caller ID SO-R M MTransport of talk-group information SO-R M MTransport of NAC code information SO-R M MTransport of emergency alert SO-R M MTransport of emergency indications SO-R M MTransport of received votor identification SO-R M MAdvanced control of fixed station SO-R M MIntercom audio SOEthernet base T SO M M

Other System FeaturesLocation Services via GPS SO M MEncryption M M MElectronic Serial Number M M MDispatcher interrupt of individual calls M

APCO P25. Service Specifications Comparison With PPDR Requirements



Appendix E: APCO P25 standards documentation recommended for inclusion in the New Zealand e-GIFAPCO P25 Interface or Component

Relevant APCO Standard Documents E-GIF Compliance Category Recommendation

Common Air Interface (CAI)

FDMA Conventional DigitalOverviewP25 FDMA CAI Operational Description for Conventional ChannelsTIA-102 BAAD (Dec 2003)ProtocolP25 FDMA Common Air InterfaceANSI/TIA-BAAA-A (Sep 2003)P25 FDMA Link Control Word Formats & MessagesANSI/TIA – 102.BF-A (Dec 2004)P25 Conventional Control MessagesTSB-102.AABG (Jul 1996)P25 Conventional Control Messages, Addendum 1, Individual Telephone CallsTSB-102.AADG-1 (May 2006)Compliance Assessment DocumentsConformance Test ProceduresP25 Common Air Interface Conformance TestTIA-102.BAAB-B (March 2005)Performance Measurement MethodsDigital C4FM/CQPSK Transceiver Measurement MethodsANSI/TIA-102.CAAA-BPerformance RecommendationsP25 Land Mobile Radio Transceiver Recommendations C4FM/CQPSK ModulationANSI/TIA-102.CAAB-B

Adopted

Common Air Interface (CAI) cont:

Interoperability Test ProceduresP25 Test Procedures Conventional Voice Equipment TSB-102.CABA (Feb 2002)FDMA Conventional AnaloguePerformance Measurement Methods and Performance RecommendationsLand Mobile FM or PM Communications Equipment Measurement & Performance StandardsANSI/TIA-603-C (December 2004)

Adopted

Vocoder ProtocolP25 Vocoder DescriptionANSI/TIA-102.BABA (Dec 2003)

Adopted



APCO P25 Interface or Component

Relevant APCO Standard Documents E-GIF Compliance Category Recommendation

Conformance Test ProceduresP25 Mean Opinion Score Conformance TestANSI/TIA.102-BABB (April 1999)P25 Vocoder Reference TestANSI/TIA.102-BABC (April 1999)

General Common Air Interface

CAI Reserved Values ANSI/TIA-BAAC-A (Dec 2003

Adopted

Common Air Interface

FDMA Trunked DigitalOverviewP25 Trunking OverviewANSI/TIA-102.AABA-A (Jun 2004)P25 Trunking ProceduresTSB-102.AABD (Oct 1997)Protocol DocumentsANSI/TIA-102.AABB-A (Jan 2005)ANSI/TIA-102.AABB-A (March 2005)ANSI/TIA-102.AABF-A (Dec 2004)TSB-102.AABG (Jul 1996)TSB-102.AABG-1 (May 2006)Interoperability Test ProceduresTIA-102.CABC (Publication expected late 2006)

Future Consideration

Intersystem Interface (ISSI)

Overview TSB-102.BACC-A (Dec 2003)ProtocolTIA-102.BACA-A (Aug 2006)Overview Scope 2 ServicesTSB-102.BACC-A (Dec 2003)


Fixed Station Interface

ProtocolTIA-102.BAHA (Jun 2006)


Data Peripheral Interface & Fixed Host Data Interface

P25 Data OverviewANSI/TIA-BAEA-A (June 2004)ProtocolP25 Packet Data Specification ANSI/TIA-102.BAEB-A (March 2005)P25 Radio Control Protocol ANSI/TIA-102.BAEE-A (Sept 2004)


Telephone Interconnect Interface

OverviewANSI/TIA-102.BADA-1 (March 2000, April 2006)Protocol – none planned


Console Subsystem Interface

Documents yet to be approved or published Future Consideration



Attachment F: Initial Briefing Paper



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