Alternate Communications

This page provides information about alternate communications.

Background

Civil Defence Emergency Management (CDEM) Groups use VHF radios to provide alternative communications capability in an emergency. CDEM Groups use an Emergency Services (ES) Band that was created in the early 1990’s (ESB 138 to 144MHz) that is administered and managed by the Ministry of Business, Innovation and Employment (MBIE) and Public Safety Radio Frequency Management Group (PSRFMG).   The Ministry of Civil Defence & Emergency Management (MCDEM) is a member of this Group.

The license fees for CDEM Groups to use these frequencies are paid annually by MCDEM and then claimed back from the Groups and their respective councils. Interoperability between agencies is provided via the designated analogue liaison channels ESX39 and ESB164 within the Emergency Services (ES) band and are provided free to all CDEM Groups. It should be noted that as digital radios are also capable of operating in analogue mode, interoperability can be maintained using analogue simplex channels or between radio networks using gateways. 

Many CDEM Groups are finding that their analogue networks and equipment are reaching end of life and they are seeking direction and advice from MCDEM so they can make provisions within local government Long Term Planning processes.  

Future Direction

Most CDEM Groups are operating analogue radio systems however this equipment is being phased out as digital becomes the system of the future. The rules for operating within the ES band currently only allow for organisations to operate in analogue mode or digital P25. The PSRFMG is currently considering allowing another form of digital within the ES band.  Digital Mobile Radio (DMR) is an open digital radio standard defined in the European Telecommunications Standards Institute and used around the world.

Due to the growing complexity in the operating environment, the pace at which technology is changing and the declining number of people with knowledge about maintaining radio networks, organisations and agencies across multiple sectors are moving towards a ‘radio as a service’ capability. This is a contrast to what many do now, where they maintain their own networks and infrastructure creating costly overheads.

The Ministry of Civil Defence & Emergency Management recommends that CDEM Groups consider ‘radio as a service’ capability if you are looking to upgrade your network, as this provides the flexibility of having a 5 year contract until the national strategy is more established. However, you are welcome to maintain your own networks if you see this as more beneficial. Please note that either option does not affect RSM licencing arrangements.

Cost Recovery

As discussed briefly at the National Emergency Management Development Group (NEMDG) meetings in July and October, the Ministry of Civil Defence & Emergency Management (MCDEM) is looking to review the process of how it reconciles licence fees for VHF radios and satellite BGAN units. That will not change the pricing arrangements that MCDEM holds with Radio Spectrum Management (RSM) or Pivotel New Zealand (the new business name of Wright Satellite Connections after 1 December 2018).

MCDEM manages licences on behalf of all local authorities in New Zealand and some partner agencies to take advantage of discounted pricing and plans. This involves creating over 70 invoices and managing over 300 licences and channels. The benefit is over $40,000 in savings spread across the CDEM Groups and agencies involved. Given the complexity of the local government structure, radio spectrum management arrangements and DPMC’s financial capability, this becomes a huge administrative task, which results in substantial delays and inconvenience to stakeholders.

In addition, technology and the way we manage radio networks across the country has changed significantly and with many CDEM Groups either unaware of their capacity or looking to upgrade their aging infrastructure, a review is timely to ensure that we take stock of what we have and that it aligns with the national strategies recently announced by government. Most CDEM Groups also acknowledge that they still have some work to do to update and improve their planning and standard operating procedures relating to alternate communications.

The purpose of the review is to improve efficiencies, reduce costs and ensure future alignment with national strategies such as the Whole of Government Critical Communications Strategy and the Emergency Management System Reforms. We also encourage CDEM Groups to work collaboratively with their stakeholders to review their local networks and develop alternate communications plans to ensure they are resilient and fit for purpose – a learning from the Canterbury earthquakes.

What this means for CDEM Groups is that from March 2020 they will be responsible for the payment of Emergency Services Band (ESB) Radio Licences for their region. CDEM Groups have the option to pay the costs on behalf of the member authorities or recover costs themselves after the invoice from DPMC is paid. The additional costs incurred by paying invoices on behalf of authorities are likely to be relatively low.

Please note that there is no increase in costs as MCDEM is still the overall coordinating authority - but instead of splitting the costs over 70 authorities, it will be split across 16 CDEM Groups and remaining partner agencies. In most cases, there is actually an opportunity to reduce costs across participating agencies.

Whole of Government Critical Communications Strategy

Emergency services radio networks are 20 – 30 years old and are nearing end-of-life. As reliable communications are essential for emergency services to respond quickly and effectively, the government has agreed to fund a business case to invest in Next Generation Critical Communications for Emergency Services.

To develop the business case, Cabinet directed the establishment of the Whole of Government Radio Network Governance Board, which reports directly to Minister of Finance, Minister of Business, Innovation and Employment, and Minister of Police. In October 2016, the Joint Ministers agreed to a staged, two-step approach.

The first step is to establish an initial capability based on the requirements of the emergency services including Police, Fire and Emergency, St John Ambulance and Wellington Free Ambulance and the second step would see other government agencies such as CDEM adopt the capability. The first step is not expected to be completed before 2023 so CDEM Groups will need to maintain existing networks or have a fixed-term arrangement in place until this time.

This business case expands on the dedicated digital land mobile radio (LMR) capacity rolled out by police in 2007 in Auckland, Wellington and Christchurch but recognises the additional capacity that emergency services now require through alternate mobile digital technologies such as Long Term Evolution (LTE) and Satellite. The vision is to leverage existing capacity and provide all government agencies with access to continuous and seamless communications across the range of platforms.

Note: LTE uses 4G and 5G technology and cellular networks to provide high speed wireless communication for mobile devices and data terminals.

Emergency Management System Reform

The changes to radio licences also align with CDEM structure and the, Emergency Management System Reform (or Government’s Response to the Technical Advisory Groups recommendations) where the government intends to make regulations under the CDEM Act to require Groups to establish nationally consistent shared emergency management services agreements.

The agreements will set out how the Group will deliver emergency management across the region, including how the Group will apportion and collect funding. As the regulations are likely to provide some flexibility as to which member authority is responsible for administration and how each Group actually apportions and collects funding; aligning the way MCDEM manages the finances with the CDEM structure will ensure that when the regulations come into force that the arrangements are more adaptable to the Group’s needs.