As a companion measure to the upgrading of the "point-to-point" system, the Wisconsin State Patrol, in conjunction with the Wisconsin Council on Criminal Justice, the division of highway safety coordination, and the Wisconsin Chapter of APCO (Association of Police Communications Officers), has established a high band statewide police emergency channel of 155.475 MHz, otherwise known as WISPERN (Wisconsin Police Emergency Radio Network). At the present time funds have been allocated by the division of highway safety for the establishment of the sites and base stations throughout Wisconsin. This statewide police emergency frequency (WISPERN) will allow isolated mobile units the capability of communicating anywhere in the State and provide for mobile-to-mobile communication in times of emergencies. In addition to the WISPERN frequency, the State is also establishing a coordinating frequency of 155.340 MHz for emergency medical services.

The following represents a synopsis of the basic requirements of law enforcement's needs in the State of Wisconsin :

1. Transmit and monitor capability between dispatch center and every police officer in the field, within a given jurisdiction. (Local-routine frequency.)

NOTE. A dispatch center is a location receiving and sending messages, information, or assignments to a single jurisdiction or multiple coordinating jurisdictions. 2. Ability for each field officer to transmit and monitor other field officers of common jurisdiction. (Local-routine car-to-car frequency.)

3. Transmit and monitor capability between various dispatch centers of different jurisdiction. (Point-to-point 155.370, 45.86, 39.46.)

4. In emergencies, statewide capability for law enforcement field units of different jurisdictions to transmit and receive each other. (WISPERN frequency 155.475.)

RECOMMENDATIONS

On the basis of the foregoing description of current problems and needs, the following recommendations are submitted as suggested guidelines for the development and funding of communications programs by the Wisconsin Council on Criminal Justice:

1. Replacement equipment without any systems improvement should not be considered.

2. No system renovations should be considered without conversion to high band frequencies. However, additions to existing low band systems may be considered where a systems improvement will result, and particularly where the equipment may eventually be converted to a high band system. Utilization of the high band spectrum is recommended on the basis of expert opinion which includes the results of FCC and Bell Laboratories studies.

3. The funding of radio mobile units, or improvements thereto, should be based upon consideration of the following points:

(a) To allow for coordination, mobile radio units should have the capability of tone-coded squelch and multichannel transmit/receive. Such coordination in urban areas should be according to need and may be intradepartmental or regional. Where necessary, wide-spaced transmission capabilities are recommended for the utilization of the statewide police coordinating frequency.

(b) For the implementation of the statewide coordination channel of 155.475 it is recommended that:

I. If the agency concerned has a low band or UHF system and plans to continue to use that system, it then may choose to install a separate high band unit (VHF) on the coordination channel. This does not mean that every vehicle need be so equipped. As a practical matter it would apply to those vehicles which are used for business out of the local area. Such implementation would allow vehicles transporting prisoners or command vehicles in mutual aid situations the coordination channel capability.

II. Existing high band systems which have multichannel capabilities and are within crystal switching distance (normally 600 kHz) of the coordination channel could add the channel by installing a crystal for the frequency. High band systems not within crystal switching distance may choose to phase in wide-spaced multichannel mobile radio units. 4. Handie-talkies should be considered for funding on the basis of established need and with the understanding that the type chosen should have the same technical capabilities as mobile equipment. The established ratio of one handie-talkie per five sworn officers should be followed unless conclusive evidence justifying an exception to this policy is presented.

5. A permanent policy board should be established to insure good discipline and avoid overloading and unnecessary traffic on statewide systems such as the pointto-point and the WISPERN frequency (see app. A).

6. Regional planning efforts directed toward area wide communications improvements within the boundaries established in this document should be encouraged.

Mr. ROBERT WALTER,

Wisconsin Council on Criminal Justice,
Madison, Wis.

GENERAL ELECTRIC,

COMMUNICATION SYSTEMS DIVISION,
Lynchburg, Va., January 8, 1971.

DEAR MR. WALTER: I am writing you with respect to the role of the Wisconsin Council on Criminal Justice relating to procurement practices involving LEAA funds.

Our district sales manager, Mr. Burch Falkner, has information with respect to communication procurements, funded with LEAA money, which were awarded to Motorola, Inc. without any effort to receive competitive bids. Lincoln County, which originally awarded a contract without requesting competitive bidding, has since elected to cancel their existing order and to request competitive bids. However, Oconto County, another situation in which there was no competitive bidding, refuses to recognize any obligation to require competitive bidding.

The General Electric Co. is very concerned with the lack of competitive bidding evidenced in the Oconto County procurement. Failure on the part of a municipality to request competitive bids is harmful to both competing manufacturers and to the taxpayers whose money is being expended. The competing manufacturers are foreclosed from an opportunity for business; the taxpayers fail to receive assurance that their money is well spent as their legislatures intended. Failure to require competitive bidding is conducive to favoritism and corrup tion in that a premium is placed on influencing purchasing officials rather than in preparing a bid which is superior in quality and price to anticipated competitive bids. Also, a manufacturer without competition is free to charge inflated prices which absorb public funds that could be beneficially applied elsewhere. Therefore, it is very much in the public welfare that competitive bidding be required in public procurements as a check on officials entrusted with the responsibility of spending public money.

We realize that LEAA is a block grant Federal assistance program in which responsibility for procurement practices has been delegated to the States. The philosophy behind such an approach is that the State is competent to assume the responsibility for seeing that Federal funds are well spent. The program works to the extent that the States accept the delegated authority.

The purpose of this letter is to obtain the formal position of the Wisconsin Council on Criminal Justice on the question of whether LEAA funds will be made available to municipalities that procure equipment without attempting to receive competitive bids. Also, I would like a statement of your views with respect to your responsibility to see that LEAA funds are dispensed by the participating localities in a manner consistent with the traditional use of public funds, that is by good faith competitive procurements. Does the Wisconsin Council on Criminal Justice have procurement guidelines? Are procurement guidelines anticipated? Your cooperation in replying will be appreciated. We would at least hope to clarify some questions about which there seems to be doubt. Very truly yours,

ARTHUR E. JOYCE, Attorney.

DEPARTMENTAL CORRESPONDENCE

Date: January 19,1971.
To: Robert G. Walter.

From: Attorney General Warren.

Subject: General Electric complaint regarding procurement practices involving

LEAA funds.

I would like to receive a copy of whatever response is prepared to Attorney Arthur E. Joyce regarding his letter of January 8 and the problems that he questions in Lincoln and Oconto Counties.

ROBERT W. WARREN.

JANUARY 22, 1971.

To: Robert W. Warren, attorney general.
From: Robert G. Walter, executive director.

As per your request, please find enclosed a photocopy of my letter to Mr. Joyce regarding the council's policy for bidding.

Mr. ARTHUR E. JOYCE,

Attorney, Communications Systems Division,
General Electric, Lynchburg, Va.

JANUARY 21, 1971.

DEAR MR. JOYCE: This is in response to your letter dated January 8, 1971, regarding the procurement policies of the Wisconsin Council on Criminal Justice.

The general conditions applicable to all grants made by the Council of Law Enforcement Assistance Administration (LEAA) funds read as follows: "Procurement of special equipment: The Wisconsin Council on Criminal Justice expects that the grantee will procure such special equipment being purchased in whole or in part with grant funds by that method, authorized by State law or local ordinance, which results in the lowest price for goods of the kind or type required."

This specific quotation was a result of studying BOB circular A-87 and the LEAA guidelines. These two issuances demand adherence to "sound management practices." Neither of the two Federal issuances nor the general conditions cited above requires formal bidding, unless required by State law or local ordinance. On the other hand "sound management practices" are required.

A factor in the decision was that we are dealing with public officials responsible to the citizens. It follows, therefore, that if a jurisdiction does not require formal bidding generally, special requirements in that regard would be rather presumptive.

Another point that should not be overlooked is the expertise in drafting specifications for equipment on which bidding is requested. The point here is that even formal bidding requirements do not insure good management or good faith. The upshot is that the Wisconsin Council on Criminal Justice has recognized the public trust in officials of our State and has dealt with these officials as reasonable men. We have not, and will not, however, wash our hands at this point. As we have informed representatives of your company, any specific evidence of "poor judgment," God forbid fraud, will be dealt with immediately. Furthermore, we will conduct postaudits of every grant to determine the use to which the funds have been devoted.

The results of either course of action will depend on the facts in each case. Reasonable men will differ but in the final analysis, the council on criminal justice has the overriding responsibility. As its chief staff person, I feel this responsibility deeply.

In sum then, we welcome the comments of your company either generally or specifically and you can be assured that action will be taken immediately. The results of any action taken will depend on a review of factors, including: (a) item price, (b) prior experience, (c) compatibility, and (d) service availability and experience.

I thank you for your interest and trust that we've been responsive to your questions.

Sincerely,

ROBERT G. WALTER,
Executive Director.

WISCONSIN DEPARTMENT OF JUSTICE

POLICY PAPER ON COMMUNICATIONS-JANUARY 1970

To insure orderly and improved development of total communications, to meet progressive future needs, requires the consideration of a thorough comprehensive study by communications survey experts. It is the judgment of the staff that the council should consider, as a long-range objective, committing itself to such a comprehensive survey study.

Until such time that an in-depth survey study could be pursued, the fullest use should be made of the communications task force. Having been established to provide technical assistance to the council and staff, the task force should be relied upon for their technical expertise and other evaluated judgments on

matters relating to communications. It is recommended that the task force be charged with these specific objectives:

(1) Development of a phased plan insuring orderly improvements in police communications capability in Wisconsin. Such a plan should generally encompass two concepts.

(a) Insurance that police communications throughout the State would develop as an integrated, coordinated system.

(b) The planning process should include development of police communications model designs relating to various agency level operations. (2) Evaluation of each application pertaining to communications in light of the overall plan for the statewide system of communications and in light of the individual agency requirements as compared to the related model agency design. (3) Review of all applications relating to communications for judgment and recommendations as to the technical competency of the requested assistance and the operational need of the applying agency.

The staff recommends that the council accept the judgments offered by the communications task force and their recommendations relating to technicalities and operational need. The question of assistance need and final approval must, of course, remain as a responsibility of the council.

Prior to the development of a system plan and model designs there are some issues that must be dealt with to improve communications generally and provide present updated needs of police agencies to meet basic communication requirements.

Basic requirements of communications:

(1) Transmit and monitor capability between dispatch center and every police officer in the field, within a jurisdiction—(a dispatch center is a location receiving and sending messages, information or assignments to a single jurisdiction or multiple coordinating jurisdictions).

(2) Ability for each field officer to transmit and monitor for other field officers of common jurisdiction.

(3) Transmit and monitor capability between various dispatch centers of different jurisdiction.

(4) In emergency, statewide capability for field units of different jurisdictions to transmit to and monitor each other.

(5) Input and retrieval capability from dispatch centers to record information and data bank.

Numerous police agencies do not have minimal or updated communication equipment to efficiently perform on a daily basis nor in the event of extraordinary occurrences. Deficiencies vary from the lack of relatively minor equipment such as hand units, mobile units, base units, and teletype equipment, to major systems changes requiring complete renovation of communications operations.

Interagency, station-to-station communications has existed in most agencies for some time, however, the capability to communicate, when required, between field units of various agencies has not been possible. Recently through the efforts of our communications task force and the Wisconsin chapter of APCO (association of police communication operators), Wisconsin established an available frequency as a common, coordinating, emergency communication channel. All police agencies throughout the State have the opportunity to acquire the capability to use this channel. This is a high-band frequency available to all who wish to use it—with strict monitoring controls. It is expected that numerous police agencies, primarily in rural areas where interdepartment dependency and coordination is often called for, will be able to justify a definite need to obtain this capability.

A basic requirement for the capability of general information and record input and retrieval is a teletype machine. It is the requisite instrument to interface with the N.C.I.C., the soon to be developed State central records and information center, as well as other eventual computerized data centers.

Fifteen counties do not have teletype equipment at the present time, but it is most likely they will soon apply. Each county is now required by law to have teletype. Also, it is reasonable to assume that several municipal police agencies now lacking teletype equipment will desire capability of direct access to the crime information center and other police units on the teletype system.

At present, some teletype networks within the State are crowded with message traffic and it will become increasingly difficult to get "on line". With improved record and data information availability, and the resulting added stations to the

networks, "line time" will be at a premium. Therefore, faster input and retrieval equipment will become essential.

With regard to providing assistance to the numerous agency application requests for communication equipment, a very difficult question arises as to the best way to evaluate the applications and provide equitable distribution of a reasonable number of handi-talkies, mobile radio units, base radio units, and system renovations.

Providing assistance on the basis of financial need of the applying agency is most often difficult and generally results in arbitrary judgment.

Operational need for such equipment is basically universal, and can be justified as definitely improving the police efficiency and effectiveness regardless of agency size or location.

The staff recommends that the council consider assigning a reasonable, fixed amount of funds on an annual basis, available to all agencies making application by a given date. Then, by the best means of evaluation of financial and operational need, the staff could assign the funds.

With regard to the present and projected teletype system needs, as expressed previously, the staff and the communications task force recommend that the council:

(1) Encourage automatic (ASR) teletype machine installation and tapecutting equipment. This would permit the operator to put a message on a tape, while off the line, and feed it into the machine at a fast line rate, thus increasing network line availability.

(a) Equipment costs: Manual (KSR), $75 per month; automatic (ASR), $148.50 per month.

(2) Increased numbers of automatic machines on teletype networks will necessitate the use of a scanning system. This is a device that would systematically poll all network terminals in sequence for line use.

Scanning equipment should not be funded until State relay center computer is operational and such a move is recommended by LETS (Law Enforcement Teletype System) committee. (Installation cost, $15 each terminal; cost per month, $15 plus line mileage.)

With teletype networks equipped with fast line-use equipment, automatic machines, tape cutters and scanners, the problem of crowded message traffic would be alleviated for many years. The next step would be faster automatic machines.

WISCONSIN POLICE COMMUNICATIONS GUIDE, 1971

(By Task Force on Communications, Wisconsin Council on Criminal Justice)

INTRODUCTION

Major police communications in the State of Wisconsin consist of two-way police radio and leased-line teletype. Both forms of communications have developed over the years based on individual department needs, resulting in small independent networks, with little consideration of future needs or coordination. Such development is easy to understand because of the local basis of law enforcement with its splintered responsibilities and geographic limitations. Additionally, there is a deficiency in that no specific body is responsible for directing or coordinating such development. This lack of leadership or guidance has resulted in local isolation without regard to potential usage.

The Wisconsin Council on Criminal Justice is committed to improving law enforcement through the planned implementation of technological advancements in the area of police communications of law enforcement's present and future operations. The council, cognizant of the need for effective communication planning, established a communications task force in 1969 to act as an advisory group on technical matters and to develop a communications plan which will assist in establishing priorities for funding by the council. As a result, this document is presented to guide future police communication renovations and improvements allowing for a technically sound systematic advancement of law enforcement communications in the State of Wisconsin.

This document consists of two related parts. The first part addresses law enforcement radio communications and was prepared by the communications task force. The second part addresses law enforcement teletype communications and was prepared for the task force by the Wisconsin Law Enforcement Teletype Users Committee (LETS).