GAO: NTIA Planning and Processes Need Strengthening to Promote the Efficient Use of Spectrum by Federal Agencies

This requested report examines 1) how the National Telecommunications and Information Administration (NTIA) is managing spectrum needs of federal agencies, 2) how federal agencies are using and managing assigned spectrum, and 3) what steps NTIA has taken to meet recent initiatives aimed at making spectrum available for broadband.

GAO reviewed NTIA’s spectrum management documents; surveyed the 19 federal agencies comprising the Interdepartment Radio Advisory Committee; and interviewed NTIA officials and industry and academic experts. Federal agencies use spectrum for many purposes such as emergency communications and national defense, and NTIA requires the agencies to periodically evaluate their current and future spectrum needs. Agencies are supposed to ensure spectrum assignments fulfill established mission needs; however, NTIA does not have specific requirements for agencies to justify their spectrum assignments or validate data used for these evaluations. Consequently, NTIA has limited assurance that the data used to make spectrum management decisions are accurate. Federal agencies rely heavily on their program offices to obtain data for the required evaluations and often face challenges, such as resource constraints and staff turnover, when coordinating with field program staff. Given that validating spectrum assignments could require significant agency resources, it would be beneficial for NTIA to consider options for a different approach to obtain and validate critical spectrum assignment information from the agencies, such as requiring agencies to conduct site surveys or attest to the accuracy of data they submit.

In response to recent initiatives, NTIA has taken steps to identify spectrum that could be made available for broadband use. First, NTIA evaluated various spectrum bands and identified 115 megahertz of spectrum that could be made available for broadband within the next 5 years based on criteria it developed. Second, NTIA developed an initial plan and timetable for evaluating and repurposing additional spectrum for broadband use in 10 years. Affected federal agencies—that is, those agencies operating devices in the spectrum bands being evaluated—encountered difficulties providing NTIA with the necessary data and analyses during the most recent evaluation. For example, according to the affected agencies, they were required to analyze and submit a significant amount of detailed impact analyses that were not readily available. Agencies will likely continue to face challenges providing such analyses to NTIA in the future as NTIA begins evaluating a larger number of spectrum bands for possible broadband use in the next 10 years.

“This timely report highlights the enormous challenges confronting the Administration in making more federal spectrum available for commercial wireless broadband use,” said Rep. Henry Waxman (D-CA). “GAO identifies several areas for improvement and I know that the Department of Commerce takes the GAO recommendations seriously. At the same time, NTIA should be commended for its diligent efforts to develop and implement President Obama’s plan to repurpose significant amounts of federal spectrum for commercial wireless broadband use, despite significant resource constraints. The GAO report underlines the urgency for Congress to focus immediately on spectrum policy. We should act promptly in a bipartisan manner to authorize incentive auctions, start the construction of a nationwide public safety broadband network, and conduct vigorous oversight of federal and commercial spectrum utilization. This undertaking will be complex and time consuming, but it is critical to our economic growth and broadband future.”

“I welcome GAO’s report examining the federal government’s use of spectrum today,” said Rep. Anna Eshoo (D-CA). “To reach the President’s goal of freeing up 500 MHz of spectrum for wireless broadband, all options should be on the table, including the repurposing of spectrum currently used by federal agencies. This report helps us understand the complexities involved with how this spectrum is being used and how it may be utilized in the future to support national security, defense and emergency communications.”

[GAO-11-352]