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EMERGENCY SERVICES COMMUNICATIONS MODERNIZATION

Universal Broadband as Foundation, Federal Standardization, and FirstNet Realignment

A Civic Infrastructure Companion Document

Jason Robertson

v1.0 · Created May 6, 2026 for v2.25

Ohio · 2026

Why This Document Exists

The Civic Infrastructure pillar's Universal Broadband Access commitment has been substantiated as a guaranteed national service for citizens, framed primarily around economic opportunity, civic participation, telehealth access, and rural-urban parity. The substantiation document has not engaged with what universal broadband means for emergency services communications: 911 call routing, public safety answering point (PSAP) operations, the public-safety wireless network (FirstNet), tribal nation emergency services, and the federal cybersecurity framework that all of these depend on. The Civic Infrastructure architectural framing document explicitly excluded public safety from federal scope, noting that police, fire, and emergency services governance is primarily state and local. That framing remains correct for operational authority. But the framing missed an architectural opportunity: universal broadband infrastructure, deployed for general civic purposes, becomes the foundation that solves several active problems in emergency services communications without the platform displacing local accountability for public safety operations.

This document addresses that gap. It documents the current state of US emergency services communications (which is in active crisis), the platform's commitments at the infrastructure and funding level, and the renegotiation framework that universal broadband leverage creates with respect to the existing FirstNet contract. Tribal nation sovereignty in emergency services is treated as a first-class concern rather than an afterthought. National standardization benefits are identified explicitly. Cybersecurity is grounded in existing federal frameworks (Cybersecurity and Infrastructure Security Agency (CISA), NIST, NENA) rather than treated as something the platform must invent.

The document is offered as a companion to the Universal Broadband Access Substantiation and the Civic Infrastructure Architectural Framing, not as a replacement for either. The platform's commitment expressed here is consistent with the broader principle: federal infrastructure, local operations.

The Current State of US Emergency Services Communications

An honest description of the current state is the necessary foundation for any reform proposal. The current state is not stable; it is in active transition with multiple concurrent crises. A reader unfamiliar with the public safety communications landscape will encounter terminology and acronyms that are second nature to professionals in the field but opaque to citizens. This section establishes the baseline.

Legacy 911 Architecture

The 911 system was created in 1968 and operates today as an aging mix of analog telephony, selective routers, and per-jurisdiction call centers (Public Safety Answering Points, or PSAPs). When a citizen dials 911, the call routes through the originating service provider (the citizen's phone carrier) to a selective router operated by an incumbent local exchange carrier, which directs the call to the appropriate PSAP based on the caller's billing address (for landlines) or cell tower location (for wireless calls). Approximately 6,000 PSAPs operate across the United States, governed primarily by counties and cities, funded primarily through 911 fees on telephone bills (collected by states), and operating with wide variation in capability, staffing, and technology. Wireless calls represent more than 80 percent of all 911 calls but are routed based on cell tower location, not caller location, which produces routing errors when callers are between towers or in the boundary of two jurisdictions. The legacy architecture also cannot natively handle text, photos, video, or telemetry, which the modern citizen reasonably expects from any digital service.

NG911 Transition: Status, Cost, Fragmentation

Next Generation 911 (NG911) is the IP-based replacement for the legacy 911 system, defined by the National Emergency Number Association's i3 standard and supported by Emergency Services IP Networks (ESInets) that carry 911 traffic between originating service providers and PSAPs. NG911 supports text-to-911, multimedia (photos, video), geospatial routing based on actual caller location rather than cell tower location, cross-jurisdictional call transfer with accompanying data, and real-time information sharing with first responders. The architecture is mature and proven; deployment is the problem.

The National Telecommunications and Information Administration (NTIA) released an updated NG911 cost study in April 2026 estimating the remaining nationwide implementation cost at $5.8 billion to $9.27 billion over a seven-year period. This is down 30 to 40 percent from the 2018 estimate of $9.5 to $12.7 billion, primarily because the market has shifted from equipment-based capital expenditures to software-driven subscription models with lower upfront costs. Approximately $4.5 billion has already been invested through 911 fees and state and local sources. But Congress has not enacted the federal funding bills that have been introduced repeatedly since 2019; the most recent attempt (Spectrum Innovation Act, House passed) made $10 billion contingent on a future spectrum auction whose timing remains uncertain.

Deployment is fragmented and uneven. Illinois completed its statewide NG911 transition in March 2026 after nearly four years of work. California, by contrast, has spent more than $400 million over five years and migrated only 23 of 440 PSAPs; the state's revised plan targets completion by 2030 under a new statewide-vendor model. Most states are in a hybrid state running NG911-capable call handling systems on top of legacy infrastructure that still depends on copper-wire backup paths. Each state procures its own ESInet vendor through its own competitive process, producing duplicate procurements, inconsistent technical standards, and barriers to cross-jurisdictional interoperability.

The POTS (Plain Old Telephone Service) Retirement Crisis

The most acute current problem is not NG911's slow deployment but the retirement of the underlying copper-wire infrastructure (POTS, plain old telephone service) that PSAPs still depend on for backup, administrative lines, alarm circuits, and interagency tie lines. The FCC has established a framework allowing carriers to retire legacy copper infrastructure with advance notice, and carriers including AT&T have begun grandfathering TDM services in many regions. As of 2026, fire alarm communicators and elevator emergency phones that rely on analog POTS lines are losing dial-tone connectivity. PSAPs that depended on POTS for redundancy are being forced to migrate without the federal funding to do so cleanly. The FCC's Federal Register notices in early 2026 acknowledged that 'lack of notice at this time could significantly impact the provision of 911 services' but the underlying retirement is proceeding regardless.

FirstNet's Contractual Structure

FirstNet (the First Responder Network Authority) is the public-safety wireless broadband network created in 2012 in response to communications gaps identified after the September 11 attacks. FirstNet is a public-private partnership: the Federal Communications Commission allocated dedicated 700 MHz Band 14 spectrum, the FirstNet Authority oversees the network, and AT&T was selected as the contractor to build, operate, and maintain it under a 25-year contract signed in 2017 (running through 2042). AT&T owes the FirstNet Authority $18 billion in sustainability payments over the contract term. A March 2026 renegotiation between Commerce Secretary Lutnick and AT&T added another approximately $2 billion in value, including roughly $1 billion in cost reductions for FirstNet operations. More than 30,000 public safety agencies use FirstNet as of 2026.

FirstNet is the cellular layer for first responders. It provides wireless data and voice service across AT&T's network with public-safety priority access on Band 14. It is fundamentally separate from fixed broadband and from 911 call routing. Coverage is good in metropolitan areas and along major highways, but gaps remain in rural areas, on tribal lands, and in remote terrain. The FirstNet Authority itself sunsets in February 2027 unless Congress reauthorizes it; the House passed reauthorization in early 2026 but Senate action remains pending as of this document's drafting.

ESInet Procurement Fragmentation

Each state procures its own Emergency Services IP Network (ESInet) vendor independently. Some states use a single statewide vendor (Illinois selected AT&T; California's revised plan selects Atos as primary with a second vendor in procurement). Others use regional vendors or per-PSAP procurements. The result is a patchwork of incompatible technical standards, duplicate engineering, varied cybersecurity postures, and barriers to cross-jurisdictional call routing. A 911 call that needs to be transferred from a Cleveland PSAP to an Akron PSAP — across the boundary of two ESInet vendors — frequently loses caller data or fails the transfer entirely. The fragmentation is not a feature; it is the consequence of fifty-plus separate state procurements.

Tribal Nation 911 Inadequacies

Tribal nation 911 services are among the most underserved in the country. Many of the 570-plus federally recognized tribes lack their own PSAPs and route 911 calls through neighboring county PSAPs that may have inadequate staffing, jurisdiction confusion, or language gaps. Broadband infrastructure on tribal lands is dramatically below national averages: 71 percent of households on tribal lands have broadband access compared to 90 percent nationally, with some specific reservations far below that average (the Navajo Reservation's broadband subscription rate was 33 percent in the 2017-2021 American Community Survey, against 88 percent for Arizona statewide). Tribal cellular coverage is similarly inadequate, and FirstNet's Band 14 deployment on tribal lands is incomplete. The result is that the populations whose 911 needs are often most acute — rural, remote, often isolated from neighboring services — receive the worst 911 service in the country.

What the Current State Implies

The current state is not stable equilibrium. POTS retirement is forcing migration without federal funding. NG911 transition is happening unevenly, state by state, at high duplicated cost. FirstNet's wireless coverage is good but not complete. Tribal services are structurally underserved. The federal funding mechanism has been stalled in Congress for five years. Each individual problem has been the subject of policy attention; the integrated problem has not been addressed at federal infrastructure scale.

Universal Broadband as the Foundation

The platform's universal broadband commitment, as substantiated in the Universal Broadband Access Substantiation, deploys fiber infrastructure to every household and institution in the United States. That deployment, designed primarily for civic and economic purposes, simultaneously provides the infrastructure foundation that emergency services communications need. Four mechanisms link the two.

NG911 IP Transport Substrate

NG911 is fundamentally an IP-based architecture. ESInets carry 911 traffic over IP transport. The platform's universal broadband infrastructure provides exactly that transport, at federal scale, with consistent technical standards. States no longer need to procure separate ESInet transport vendors; the federal broadband infrastructure includes the transport layer that NG911 requires. PSAPs continue to be operated by counties and municipalities (state and local authority preserved), but the wires connecting them, the IP routing between them, and the cross-jurisdictional call transfer between them ride on federal universal broadband. The fragmentation of fifty-plus state ESInet procurements becomes a single federal transport layer, with corresponding cost savings and interoperability gains.

POTS Retirement Solution

Universal broadband replaces POTS as the underlying carrier for emergency-services-adjacent applications. Fire alarm communicators that currently use POTS migrate to IP. Elevator emergency phones migrate to IP. School panic buttons, building security systems, and interagency tie lines all migrate to the federal broadband infrastructure. The active current crisis where PSAPs are being forced off POTS without funding becomes, instead, a managed transition where federal infrastructure absorbs what POTS used to carry. The platform's broadband commitment is not designed primarily as a POTS replacement, but it functions as one as a byproduct.

Reliability and SLA Considerations

Public-safety-grade reliability requirements exceed typical commercial broadband. Industry standards target 99.999 percent uptime (five nines, equivalent to roughly five minutes of annual downtime per service). Most consumer broadband service-level agreements target 99.9 percent uptime (three nines, roughly nine hours of annual downtime). The gap is real and must be addressed for emergency services traffic to ride on universal broadband.

The platform's commitment is that universal broadband infrastructure carrying emergency services traffic meets public-safety-grade reliability requirements through dedicated logical paths, geographically redundant routing, hardened backup power at PSAP-connected infrastructure, and prioritization protocols that preserve emergency traffic during congestion or partial network failure. The Universal Broadband Access Substantiation document does not currently specify reliability commitments at this level. The reliability specification work is acknowledged as an open question in this document, addressed below.

Federal Cellular Site Co-Deployment

Wireless 911 calls — more than 80 percent of all 911 calls — depend on cellular tower infrastructure that the platform's fiber commitment does not directly address. Rural and remote areas have substantial cellular coverage gaps that universal fiber alone does not fix. But fiber deployment and cellular site deployment have substantial economic synergies, and the platform's fiber program creates the opportunity to address cellular coverage gaps at incremental cost rather than as a separate program.

Coverage Gap Analysis

Federal cellular sites would deploy specifically in coverage gaps where commercial cellular fails to provide adequate wireless 911 service. Rural areas where the nearest cell tower is miles from the population it serves; tribal lands where commercial carriers have not deployed; remote terrain where coverage is technically present but practically unreliable. The FCC's wireless 911 location accuracy requirements (RAY BAUM'S Act and subsequent rulemakings) presume cellular coverage that is in fact missing across a meaningful percentage of US territory.

Fiber Backhaul Economics

Modern cellular sites — particularly 5G — require fiber backhaul to the network core. Backhaul cost is typically the largest single component of cellular site economics. The platform's universal fiber deployment provides backhaul to every potential cellular site location at zero marginal cost (the fiber is already being deployed for civic broadband purposes). This eliminates the primary economic obstacle to cellular site deployment in rural and remote areas, which is not the equipment cost or the spectrum cost but the backhaul cost.

Co-Deployment Cost Savings

Deploying cellular sites simultaneously with fiber rather than in a separate program produces substantial cost savings. One construction crew rather than two; one set of permits and easements rather than two; one set of trenches and conduit rather than two. Industry estimates put the savings at 30 to 50 percent versus separate deployments. The platform's fiber program, if it includes federal cellular site deployment in coverage gaps, deploys cellular at marginal cost substantially below what the same sites would cost as a standalone program.

Federal Infrastructure, Private Operations Model

The platform's commitment is that federal cellular sites in coverage gaps would be deployed as federal infrastructure (the platform funds and builds them) but operated by private carriers under regulated lease rates. FirstNet (AT&T) gets prioritized public safety access on these sites, consistent with the FirstNet Authority's existing role. Commercial carriers lease access for civilian wireless service. The model parallels how municipal water or electric utilities operate: federal infrastructure provides the physical capability, private or quasi-public operators deliver service. This avoids the platform creating a federal wireless carrier from scratch, which would be politically and operationally infeasible.

Full NG911 Transition Funding via Sovereign Fund Disbursements

The NTIA's 2026 cost study identified $5.8 to $9.27 billion in remaining nationwide NG911 implementation cost over seven years. Congress has been unable to pass the federal funding to support this transition for half a decade. The platform's Sovereign Investment Fund, scaled to mature steady-state disbursements of approximately $2.7 trillion per year, can absorb the NG911 transition cost as a small fraction of one year's disbursement.

Funding Profile

The platform commits to full federal funding for the NG911 transition across the seven-year implementation window, structured as a grant program available to states and localities based on demonstrated readiness. Annual federal funding profile: approximately $1 to $1.5 billion per year for seven years, sourced from Sovereign Fund disbursements once the Fund has matured to the point of supporting platform commitments (approximately Year 12 of platform implementation). Until the Fund matures, the NG911 grant program runs against general fund appropriations within the platform's Civic Infrastructure pillar budget.

Grant Program Structure

The grant program is administered jointly by NTIA and the National Highway Traffic Safety Administration's National 911 Program Office, consistent with existing federal coordination structures. Grants are awarded to state 911 authorities (or directly to tribal nations and territorial governments) based on readiness, transition plans, and integration with federal universal broadband infrastructure. The grant program prioritizes states and tribes that have made the least progress to date, on the principle that federal funding should accelerate the laggards rather than reward states that have already invested heavily.

State Autonomy Preserved

Federal funding does not displace state and local authority over PSAP operations. States continue to set 911 fee policies (and continue to be subject to state-level scrutiny over the long-running issue of 911 fee diversion to non-911 purposes). Counties and municipalities continue to operate PSAPs, hire dispatchers, and set local protocols. The federal funding closes the transition gap; the federal infrastructure provides the IP transport substrate; everything else remains under state and local control. The Civic Infrastructure framing principle — federal infrastructure, local operations — applies consistently.

FirstNet Renegotiation

The platform's universal broadband commitment creates leverage for renegotiating the FirstNet contract to deliver more value to first responders and lower costs to PSAPs while honoring the existing AT&T contract. The platform does not propose to replace FirstNet; the contract through 2042 is contractually committed and operationally in service to more than 30,000 public safety agencies. The platform proposes a renegotiation framework that uses universal broadband as a chip in the negotiation.

The 2026 Lutnick Renegotiation as Precedent

The Lutnick/AT&T renegotiation announced in March 2026 demonstrates that the FirstNet contract is amendable. That deal added approximately $2 billion in value to public safety users, with AT&T agreeing to roughly $1 billion in cost reductions. The renegotiation was conducted by the executive branch with AT&T accepting the modifications. This is the template the platform proposes to use.

What Platform-Driven Renegotiation Could Deliver

Several specific renegotiation outcomes would deliver direct value to first responders and PSAPs. First, open interconnection: AT&T agrees that FirstNet network elements interconnect with universal broadband at federal Internet Exchange Points, making FirstNet a layered service over federal fiber backhaul rather than a separate vertical stack. Second, expanded coverage commitments: AT&T agrees to deploy FirstNet sites along universal broadband deployment routes, leveraging the federal fiber backhaul to fill coverage gaps that AT&T would not otherwise serve. Third, reduced sustainability payments: AT&T's $18 billion in sustainability payments, partially offset by federal infrastructure value provided, allow FirstNet user fees to be reduced for PSAP subscribers. Fourth, interoperability with the federal cellular sites described in Section 4: AT&T agrees to lease federal infrastructure for FirstNet purposes at regulated rates, eliminating the parallel-network problem.

2042 Transition Planning

The current FirstNet contract ends in 2042 with no documented successor framework. Re-procurement to a private vendor under similar terms is one option, but a 25-year cycle of private contracts for what is fundamentally public safety infrastructure deserves examination. The platform commits to including 2042 transition planning in the renegotiation framework: an explicit study, conducted during the 2030s, of options including federal ownership of the network with private operations contracts (similar to Amtrak inheriting from private rail), continued private contracting under modified terms, or hybrid models. The point is not to predetermine the 2042 outcome; the point is that 2042 should not arrive without a thoughtful transition plan.

Tribal Nation Sovereignty in Emergency Communications

Tribal nation emergency services are addressed in this document as a first-class concern rather than as a special case appended to the broader analysis. The historical pattern of underserving tribal nations on infrastructure investments — broadband, cellular, 911, and more — has produced predictable outcomes. The platform's commitment is designed to break that pattern while explicitly preserving tribal sovereignty over implementation.

The Trust Responsibility Framework

The federal government's Trust Responsibility doctrine establishes the federal obligation to provide services that protect and enhance tribal lands, resources, and self-government. The Indian Self-Determination and Education Assistance Act of 1975 establishes the framework where federal funds flow but tribal authorities make implementation decisions. The platform's tribal nation commitments operate within these existing frameworks rather than creating new ones.

Free Service Commitment

Universal broadband basic-tier service is free to all US households under the platform's broader broadband commitment. For tribal nations, this commitment carries a stronger form: deployment of federal broadband infrastructure on tribal lands, at federal cost, with no tribal cost-share required, and free service to tribal households at the basic tier. The structural inequality where tribal households pay the same broadband fees as urban households despite having lower incomes and worse service is replaced by federal provision without conditioning on tribal financial contribution.

Sovereign Choice Over Implementation

Each tribal nation chooses whether and how to participate. Options include: accepting federal deployment with commercial provider operations (the default model elsewhere); operating the local broadband network directly under federal funding (parallel to how some tribes operate their own utilities); integrating with existing tribal communications infrastructure; opting out of federal deployment in favor of preserving existing arrangements. The federal commitment is to provide options; tribal authorities choose among them. Each tribal nation is consulted as a sovereign entity, not as a community within a state, consistent with federal Trust Responsibility.

Tribal 911 Options

Tribal nations choose among three primary models for 911 services. First, operate a tribal PSAP directly with federal funding, federal training support, and federal IP transport infrastructure. Second, route 911 calls through an existing neighboring county PSAP under federal-supported service agreements that ensure adequate staffing, language support, and jurisdictional coordination. Third, hybrid arrangements where some emergency types route to tribal services and others to county services. Each model is supported with federal infrastructure and federal funding; the choice belongs to the tribal authority.

Federal cellular site deployment under Section 4 is prioritized on tribal lands where commercial cellular has failed to deploy or where coverage is inadequate. The federal infrastructure model (federal-owned, privately-operated) extends to tribal lands with the additional provision that tribal authorities have meaningful input into cellular site siting decisions and operating practices.

National Standardization Benefits

Federal infrastructure for emergency services communications creates the opportunity to standardize protocols, data formats, training, and coordination practices across the country. Standardization is not the same as centralization: the platform's commitment preserves state and local PSAP operations, but provides the technical substrate where common standards can be applied.

Cross-Jurisdictional Call Routing

The current state where a 911 call across the boundary of two ESInet vendors loses caller data or fails the transfer entirely is a direct consequence of fragmented procurement. Federal IP transport with common technical standards eliminates the boundary problem: any PSAP in the country can transfer calls to any other PSAP in the country with full caller data, location, and incident context preserved. The benefit is largest in metropolitan areas that span state boundaries (the Kansas City and St. Louis metros, the Cincinnati tristate, the New York metropolitan region) and during multi-state disasters where mutual aid is needed.

Common Protocols and Data Formats

Adoption of NENA's i3 standard becomes consistent rather than aspirational. PIDF-LO (Presence Information Data Format - Location Object) location data is delivered uniformly to PSAPs nationwide. Multimedia 911 (text, photos, video) operates with common formats and protocols rather than vendor-specific implementations. The common protocol layer means that originating service providers — wireless carriers, VoIP providers, future communication modalities — can deliver 911 traffic to any PSAP in the country without per-vendor integration.

Mutual Aid Coordination

Federal IP transport with common protocols enables genuine mutual aid coordination during regional disasters. When a hurricane disables PSAPs across multiple states, neighboring states' PSAPs can absorb call traffic with full data continuity. When a mass casualty incident overwhelms a single PSAP, neighboring PSAPs can take overflow calls with the same ability to dispatch local resources. The current state where each PSAP's call handling is trapped in its own state's ESInet limits mutual aid to voice-only fallbacks.

Common Training Standards

The platform commits to federal investment in common 911 dispatcher training standards, available to PSAPs at no cost, supplementing rather than replacing state and local training programs. Common standards make it easier for dispatchers to support neighboring jurisdictions during overflow events and create a more consistent floor of dispatcher capability across the country. Federal training is available; state and local PSAPs choose whether to use it.

Cybersecurity Framework Adoption

Public safety communications are a high-value target for cybersecurity threats: ransomware against PSAPs, telephony denial-of-service against 911 call delivery, data breaches against Computer-Aided Dispatch and Records Management Systems. The platform's commitment is not to invent new cybersecurity standards but to adopt existing federal frameworks and apply them at federal infrastructure scale.

Existing Federal Standards Adopted

The platform commits to meeting or exceeding the following existing federal standards for any infrastructure carrying emergency services traffic. NIST Cybersecurity Framework as the foundational risk-based approach, consistent with CISA's recommendation for NG911 systems. NENA's NG-SEC standard for Next Generation 911 security baselines. CISA's NG911 Cybersecurity Primer (developed jointly with the Department of Transportation) for operational guidance. Criminal Justice Information Services (CJIS) Security Policy (currently version 5.9) for systems accessing law enforcement data, including the multifactor authentication mandate. The Cybersecurity Information Sharing Act (CISA, 2015) framework for threat intelligence sharing through Information Sharing Analysis Centers. The Cyber Incident Reporting for Critical Infrastructure Act (CIRCIA, 2022) for mandatory incident reporting. CISA's specific PSAP-focused guidance including the 'Two Things Every 911 Center Should Do to Improve Cybersecurity' standards.

Federal ESInet Standardization

The current state where each state's ESInet has its own cybersecurity posture, vendor mix, and incident response procedures has been identified by cybersecurity researchers as a structural vulnerability. The platform's commitment to consolidate ESInet transport into federal universal broadband enables consistent cybersecurity across all emergency services transport. State-by-state security gaps that today create attack opportunities for cross-state ransomware campaigns are closed at the transport layer. PSAP-level cybersecurity remains a state and local operational concern, but the transport substrate no longer multiplies state-level vulnerabilities into national exposure.

Specific Operational Commitments

Federal infrastructure carrying emergency services traffic implements: multifactor authentication for all administrative access, consistent with CJIS Security Policy. Software Bill of Materials (SBOM) tracking for all components, consistent with CISA's supply chain guidance. Annual penetration testing by independent third parties. Continuous monitoring with real-time threat detection. Incident response within timelines mandated by CIRCIA. Network segmentation that isolates emergency services traffic from civilian broadband traffic. These are not novel commitments; they are existing best practices applied at federal infrastructure scale.

Cost Analysis

The cost analysis is offered with appropriate uncertainty bands. NG911 transition costs are well-grounded in the NTIA 2026 cost study. Federal cellular co-deployment costs are less well-grounded because the specific deployment specification (how many sites, where, at what density) has not yet been defined. The cost analysis below identifies what is known with reasonable confidence and what remains an open estimation problem.

One-Time Costs (Seven-Year Implementation)

NG911 nationwide transition: $5.8 to $9.27 billion total over seven years per the NTIA 2026 study, distributed approximately $1 to $1.5 billion per year. This includes ESInet deployment, PSAP modernization, training, and core service activation. State and local investments to date ($4.5 billion already invested) are credited; federal funding closes the remaining gap. Federal cellular site deployment in coverage gaps: estimation pending specification of site density and coverage targets. A first-order estimate at 5,000 federal sites at $300,000 marginal cost per site (above the fiber co-deployment baseline) is $1.5 billion. This is acknowledged as an open estimation problem in this document.

Ongoing Annual Costs (Mature Steady State)

ESInet transport absorbed into universal broadband: zero marginal federal cost (the broadband infrastructure is already deployed for civic purposes). Federal cellular site operations: not directly federal cost; sites are leased to operators (FirstNet, commercial carriers) at regulated rates that recover federal investment over the asset's useful life. Federal grant program administration: approximately $50 million per year, consistent with existing federal grant program overhead. Cybersecurity operations and federal ESInet monitoring: approximately $200 to $400 million per year, depending on the depth of federal monitoring services provided to state and local PSAPs.

Avoided Costs

States avoid duplicate ESInet procurements (estimated $200 to $400 million per year in aggregate when fully operational under fragmented procurement). PSAPs avoid ongoing legacy selective router and POTS subscription costs (estimated $300 to $500 million per year in aggregate). Public safety subscribers avoid a portion of FirstNet sustainability payments to the extent the renegotiation produces cost reductions (estimated $100 to $300 million per year in aggregate, depending on renegotiation outcome). Net avoided costs at mature steady state: approximately $600 million to $1.2 billion per year, partially offsetting the federal operational costs above.

Net Federal Cost Commitment

Net federal commitment, net of avoided costs to states and PSAPs and net of operating revenue from federal cellular site leases, is approximately $1 to $1.5 billion per year during the seven-year transition window, declining to approximately $200 to $500 million per year at mature steady state. This is small relative to the platform's $4.2 trillion in annual mature-state commitments. The case for this addition to the platform is not primarily about cost savings; it is about delivering an emergency services communications modernization that has been blocked for half a decade by federal funding inaction.

Implementation Sequence

The platform's emergency services communications commitments deploy on a timeline aligned with the broader Civic Infrastructure pillar, with specific milestones at the federal infrastructure layer and at the state and local operational layer.

Years 1-3: Foundation

Universal broadband fiber deployment proceeds per the Civic Infrastructure pillar plan. NG911 grant program is launched; first-round grants flow to states with the most pressing POTS retirement timelines. FirstNet renegotiation begins; framework agreement targeted by Year 3. Federal cybersecurity standards are codified into federal infrastructure specifications. Tribal nation consultations begin; first-round tribal infrastructure deployments are scoped.

Years 4-7: Buildout

Federal cellular site deployment begins in identified coverage gaps, prioritizing tribal lands and rural areas with worst current 911 service. NG911 grant program reaches steady state; states without prior NG911 investment receive accelerated funding to catch up. FirstNet renegotiated terms take effect; PSAP cost reductions begin to flow. Federal ESInet transport replaces state-by-state ESInet vendor procurements as state contracts expire. POTS retirement is managed transition rather than crisis.

Years 8-10: Completion and Standardization

NG911 nationwide implementation is complete. Legacy 911 selective routers are decommissioned along with associated POTS infrastructure. Cross-jurisdictional call routing operates uniformly. Common cybersecurity posture is operational across federal infrastructure. Federal cellular sites in coverage gaps are operational; rural and tribal 911 service approaches parity with metropolitan service. 2042 FirstNet transition planning is underway with multiple options under formal study.

What This Document Does Not Address

Several emergency services communications topics are intentionally outside this document's scope. Each is acknowledged here for transparency.

Land Mobile Radio Replacement

Land Mobile Radio (LMR) systems — the P25 networks police, fire, and EMS use for tactical radio communications — operate on dedicated public-safety spectrum bands and have reliability and coverage characteristics that consumer broadband cannot replicate. LMR replacement is a separate decades-long process. The platform's commitment does not displace LMR; LMR remains the tactical voice channel for first responders, FirstNet provides the data and supplementary voice channel, universal broadband provides the fixed transport. LMR replacement is acknowledged as a future federal policy domain but is not included in this document's commitments.

PSAP Operations and Staffing

PSAP operations remain under state and local authority. The platform funds infrastructure and supports training; staffing levels, dispatcher hiring, local protocols, and operational decisions remain with the operating jurisdiction. This is consistent with the broader Civic Infrastructure pillar principle and with the public safety governance pattern that the Civic Infrastructure framing document explicitly preserved.

911 Fee Reform

State 911 fees on telephone bills have been a long-running source of policy controversy, particularly the practice of states diverting 911 fee revenue to non-911 purposes. The platform does not address state 911 fee policy. State legislatures continue to set fee levels, exempt categories, and use of revenues. The platform's federal funding mechanism operates independently of state fee revenue.

International and Cross-Border Coordination

Coordination with Canadian and Mexican emergency services across border regions is outside this document's scope. The State Department and the FCC have existing bilateral frameworks; the platform's commitments do not modify those frameworks.

Specific PSAP Consolidation Decisions

Whether specific PSAPs should consolidate, regionalize, or remain as small standalone operations is a state and local decision. The platform's commitments support whatever operational structure local jurisdictions choose; the platform does not propose forced PSAP consolidation.

Open Questions

Several questions in this document's analysis are not fully resolved. They are documented here in the Provenance discipline established by the platform's broader documentation: transparent identification of what has been analyzed and what remains open. These questions should be added to the Open Issues Registry as research items.

Federal Cellular Co-Deployment Marginal Cost Estimation

Section 10's cost estimate of $1.5 billion for federal cellular sites in coverage gaps is first-order arithmetic (5,000 sites at $300K marginal cost). The actual specification — how many sites, at what density, in which gap-defined locations — has not been developed. Producing a substantive cost estimate requires (a) a coverage gap analysis using current FCC and FirstNet coverage data, (b) a site-level cost model accounting for variation in terrain and existing infrastructure, and (c) a deployment sequence that prioritizes the highest-impact sites. This work is identified as a future analytical document or as an extension to the Universal Broadband Access Substantiation.

Reliability SLA Specification

The Universal Broadband Access Substantiation does not currently specify reliability service-level agreements at the level needed for emergency services traffic. Five-nines uptime, geographic redundancy, hardened backup power, and emergency traffic prioritization all need to be specified as federal infrastructure commitments. This work is identified as a future revision to the Universal Broadband Access Substantiation.

FirstNet Reauthorization Political Timeline

The FirstNet Authority sunsets in February 2027 unless Congress reauthorizes. House passed reauthorization in early 2026; Senate action remains pending as of this document's drafting. The platform's commitments here assume FirstNet continues as a legal entity through the 2042 contract. If Congress allows the FirstNet Authority to sunset, the contractual framework changes substantially and this document's renegotiation framework would need revision.

Tribal-Specific Consultation Requirements

The 570-plus federally recognized tribal nations have varying capacities for consultation, varying internal governance structures, and varying relationships with federal agencies. Substantive consultation at scale is itself a significant administrative undertaking. The platform's commitment here does not specify the consultation process in detail. Resolution would benefit from coordination with the National Congress of American Indians, the Bureau of Indian Affairs Office of Tribal Self-Governance, and existing tribal consultation frameworks.

Spectrum Allocation for Federal Cellular Sites

Federal cellular sites described in Section 4 require spectrum to operate. The platform's commitment does not specify whether the sites use FirstNet's Band 14, leased spectrum from commercial carriers, federal spectrum allocations not currently in commercial use, or some combination. Each option has different policy implications. Resolution requires engagement with the FCC's spectrum management framework and likely requires legislation.

Cost Recovery Model for Federal Cellular Site Leases

Section 4's federal-infrastructure-private-operations model leases federal cellular sites to FirstNet and commercial carriers at regulated rates. The specific rate structure is not specified. Should rates recover federal investment over a defined useful life? Should FirstNet (public safety) lease rates differ from commercial lease rates? Should rural sites be subsidized by metropolitan sites? These are substantive policy decisions that this document defers.

Tribal Consultation Protocols for Emergency Communications

This section addresses a consultation-protocol-missing finding from the v3.1.0 tribal-infrastructure-officer persona simulation. The preceding sections describe emergency communications infrastructure deployment without specifying tribal consultation protocols for tribal-jurisdiction emergency communications. Tribal infrastructure officers reading the platform expect explicit acknowledgment of tribal authority over emergency communications on tribal lands, with consultation processes for federal infrastructure that touches tribal jurisdiction. This section provides that acknowledgment and protocol specification.

Tribal sovereignty over emergency communications

Tribal nations exercise sovereignty over emergency communications infrastructure on tribal lands as an extension of their broader sovereignty over essential services. This includes 911 dispatch operations on tribal lands, emergency-alert systems for tribal communities, and coordination with neighboring jurisdictions for incidents crossing tribal boundaries. The platform's federal emergency communications modernization recognizes tribal sovereignty as the controlling authority for emergency communications on tribal lands; federal infrastructure operates in tribal jurisdictions only with tribal consent and within tribal regulatory frameworks.

Government-to-government consultation requirements

Federal emergency communications infrastructure that touches tribal lands or tribal jurisdictions requires formal government-to-government consultation with affected tribal nations before deployment. Consultation occurs at the level of tribal governments rather than tribal communities or community organizations, and is conducted on a government-to-government basis consistent with the federal trust responsibility under Executive Order 13175 and Department of the Interior consultation policies. Specific consultation triggers include: federal emergency communications infrastructure deployment on tribal lands; federal infrastructure deployment on lands adjacent to tribal lands where tribal-jurisdiction emergency response may be affected; federal rule-making affecting tribal authority over emergency communications; and federal-tribal coordination mechanisms for incidents crossing tribal boundaries.

Consultation timing and process

Consultation occurs at three points in federal emergency communications infrastructure development. First, at the planning phase: federal entities consult with affected tribal governments before finalizing infrastructure designs that touch tribal jurisdictions, with tribal input shaping designs rather than responding to fixed designs. Second, at the deployment phase: federal entities work through tribal governments rather than directly with tribal communities for deployment activities on tribal lands. Third, at the operations phase: federal-tribal coordination mechanisms operate continuously, with tribal governments retaining authority over emergency response on tribal lands and federal infrastructure providing technical capabilities rather than overriding tribal authority. The three-phase consultation process is designed to ensure tribal sovereignty is preserved throughout the infrastructure life cycle, not just at the planning step.

Tribal-government emergency communications operators

Tribal-government-operated emergency communications infrastructure (tribal-jurisdiction 911 dispatch, tribal emergency-alert systems) qualifies for federal infrastructure-modernization funding under the same criteria that apply to non-tribal public safety answering points and emergency communications operators. The platform's position is that tribal-operated emergency communications infrastructure is treated as functionally equivalent to other public-safety operators for federal-funding purposes, with explicit recognition that tribal sovereignty supports the presumption that tribal entities are the appropriate operators of emergency communications on tribal lands rather than candidates for replacement by federal-direct operations.

Closing

Emergency services communications modernization has been stalled at the federal level for half a decade. The Next Generation 911 transition is technically mature but funding-blocked. Tribal nation 911 service is structurally inadequate. POTS retirement is forcing migration without federal support. FirstNet operates well in metropolitan areas but has gaps that the current contract does not address. Each of these problems has been the subject of policy attention without comprehensive resolution.

The platform's universal broadband commitment, designed primarily for civic and economic purposes, simultaneously provides the federal infrastructure foundation that solves these problems as a byproduct. Federal IP transport replaces fragmented state ESInet procurements. Federal funding closes the NG911 transition gap. Federal cellular sites deployed alongside fiber address the wireless coverage gaps that wireless 911 requires. FirstNet renegotiation, leveraging the federal infrastructure, delivers more value to first responders and lower costs to PSAPs. Tribal nation sovereignty is preserved while federal investment closes the historical infrastructure deficit.

The platform's commitment expressed in this document is consistent with the broader Civic Infrastructure principle: federal infrastructure, local operations. PSAPs continue to be operated by counties and municipalities. State 911 authorities continue to make their operational decisions. Tribal authorities choose how to participate. The federal role is to provide the infrastructure and the funding that enables better emergency services communications, not to operate emergency services itself.

Several questions remain open, identified explicitly in Section 13. Federal cellular co-deployment cost estimation, reliability SLA specification, tribal consultation process, spectrum allocation, and federal cellular lease rate structure all need further work. This document is offered as a substantive starting point that establishes the platform's commitments at the level where they can be debated, refined, and improved, rather than as a finished design.