Minnesota's emergency system: At what cost?

Minnesota and Wisconsin face similar challenges preparing for tornadoes, major traffic accidents and the unlikely terrorist event.

But as the two states face billion-dollar deficits, they are taking radically different approaches to upgrading their emergency radio systems to meet new federal standards.

Minnesota is spending at least $250 million on a state-of-the-art communications system, a figure that may rise to $450 million once costs to counties are included. Wisconsin intends to spend far less -- it has earmarked $43 million so far -- for its system.

Proponents of the Minnesota system say it will provide clear communication throughout the state in an emergency and make Minnesota "a model for the rest of the country." The system has won the support of Gov. Tim Pawlenty and legislators from both parties.

But critics of Minnesota's more elaborate approach have persisted in waging their case that it's just more than many cities and towns really need.

"It's the Minnesota way," joked Tony Murphy, Beltrami county administrator. "We've never found a federal mandate yet that we can't improve upon."

Murphy is not a fan of the upgrade. "It's too expensive," he said. "It's going to be very hard for us to justify that cost." A study done for Beltrami County showed that it faced substantially higher longterm costs with the 800 megahertz state-of-the-art option than upgrading with the VHF system Wisconsin is using outside its metro areas.

Ronald Vegemast, the emergency communications expert who designed the 800 megahertz system now used in the Twin Cities, is actually one of the most ardent critics against taking it statewide.

"Can Minnesota risk paying far more than necessary for a public safety two-way radio system in these times of great stress on public budgets?" he asks. He hopes to have a meeting soon with state officials who deal with technology concerns.

Post-9/11 push

After the Sept. 11, 2001, terrorist attacks, Minnesota law enforcement pushed to take the more sophisticated system outstate.

Critics and proponents agree that the system has worked well in the Twin Cities. The big test came in August 2007, with the collapse of the Interstate 35W bridge. Rescue workers from multiple agencies used the Twin Cities system to communicate smoothly.

But that system's value in rural areas is in dispute.

Vegemast and others say the new system would be more costly to build in rural Minnesota because it requires more broadcast towers than would an upgraded VHF emergency system.

A Wisconsin analysis comparing the two systems concluded that the 800 megahertz system might require "three to four times as many tower sites" and concluded it was "cost prohibitive." The $43 million it is spending is federal money.

Scott Wiggins, director of Minnesota's emergency communication networks, acknowledged that $250 million in state funds "is a staggering number," but said that "the way we are building this system and making it available for local ... government is the most cost-effective way."

About half of Minnesota's 87 counties already have agreed to join the new system, which is being financed with revenue from the 911 fees added to phone bills.

Wiggins contends that upgrading with VHF could well end up costing more than with 800 megahertz to meet the new federal standards, which are effective in 2013.

Signals, towers and terrain

In Cook County, commissioner Bob Fenwick worries that heavy forest and rugged hills would interfere so much with 800 megahertz signals that "you couldn't build enough towers to have good communication."

Wisconsin's system combines state-of-the-art 800 megahertz in the Milwaukee area with VHF in the rest of the state.

"They're patching things together so people can talk back and forth," Wiggins said. "You can do it that way, but when a big event occurs ... if you don't have the frequencies in place to handle that increased level of communication, you will immediately have communication breakdown."

He cited a recent Oregon study indicating that 800 megahertz operated as effectively as VHF did in rural areas.

But Vegemast said the study dealt with terrain different from that in Minnesota. He also disagrees with Wiggins' assertion that there will be a shortage of VHF frequencies for rural Minnesota.

Vegemast believes Minnesota state and local governments could end up spending $600 million to complete the system, compared with perhaps $200 million to $250 million if they adopted Wisconsin's approach. Wisconsin officials haven't estimated their system's cost to local governments.

Wisconsin satisfied

Wisconsin officials say they are comfortable with their balance of price vs. efficiency.

"We feel that's a better choice for the balance of the state where there isn't a compelling case to be made for 800 megahertz," said Dave Steingraber, executive director of the Wisconsin Office of Justice Assistance and a past president of the National Criminal Justice Association.

"Cost was a major consideration for us," said Greg Engle, Wisconsin's Homeland Security program director. "We didn't have a large amount of state funding available."

Pat Doyle • 651.222.1210