Radio Amateur Civil Emergency Service
RACES
What
is RACES?
Founded in 1952, the Radio Amateur Civil Emergency Service (RACES) is a public service
that provides a reserve communications group within government
agencies in times of extraordinary need. During periods of activation, RACES personnel are
called upon to perform many tasks for the government agencies they
serve. Although the exact nature of each activation will be different, the common thread
is communications.
The Federal Communications Commission (FCC) is responsible for the regulation of RACES
operations. Each RACES group is administrated by a local, county,
or state civil defense agency responsible for disaster services. This civil defense agency
is typically an emergency services or emergency management organization,
sometimes within another agency such as police or fire. In some areas, RACES may be part
of an agency's Auxiliary Communications Service (ACS). Some
RACES groups call themselves by other names (often to avoid confusion with similarly
sounding terms such as “racist” or “horse races”), such as ACS, DCS
(Disaster Communications Service), or ECS (Emergency Communications Service)..
The importance of RACES operations cannot be stressed enough. The Amateur Radio
Regulations, Part 97, Subpart F, were created by the FCC to describe
RACES operations in detail. Although no longer issued (but still valid and renewable),
special licenses were issued in the past by the FCC to government agencies
for RACES operations.
RACES provides a pool of emergency communications personnel that can be called on in time
of need. RACES groups across the country prepare themselves for
the inevitable day when they will be called upon. When a local, county, or state
government agency activates its RACES group, that group will use its resources to
meet whatever need that agency has.
Traditional RACES operations involve emergency message handling on Amateur Radio Service
frequencies. These operations typically involve messages between
critical locations such as hospitals, emergency services, emergency shelters, and any
other locations where communication is needed. These communications are
handled in any mode available, with 2 meters FM being the most prevalent.
Other tasks that RACES personnel are involved with may not involve amateur-radio
communications. For example, RACES communicators may become involved
in public-safety or other government communications, Emergency Operations Center (EOC)
staffing, and emergency equipment repair.
Whatever need arises, trained RACES personnel are ready and prepared to help. RACES groups
develop and maintain their communications ability by training
throughout the year with special exercises and public-service events. When that fateful
day occurs, RACES will be there to meet the challenge.
FCC Rules
�97.407 Radio amateur civil emergency service.
(a) No station may transmit in RACES unless it is an FCC-licensed primary, club, or
military recreation station and it is certified by a civil defense organization as
registered with that organization, or it is an FCC-licensed RACES station. No person may
be the control operator of a RACES station, or may be the control
operator of an amateur station transmitting in RACES unless that person holds a FCC-issued
amateur operator license and is certified by a civil defense organization
as enrolled in that organization.
(b) The frequency bands and segments and emissions authorized to the control operator are
available to stations transmitting communications in RACES on a shared
basis with the amateur service. In the event of an emergency which necessitates the
invoking of the President's War Emergency Powers under the provisions of
Section 706 of the Communications Act of 1934, as amended, 47 U.S.C. �606, RACES stations
and amateur stations participating in RACES may only transmit
on the following frequencies:
(1) The 1800-1825 kHz, 1975-2000 kHz, 3.50-3.55 MHz, 3.93-3.98 MHz, 3.984-4.000 MHz,
7.079-7.125 MHz, 7.245-7.255 MHz,
10.10-10.15 MHz, 14.047-14.053 MHz, 14.22-14.23 MHz, 14.331-14.350 MHz, 21.047-21.053 MHz,
21.228-21.267 MHz, 28.55-28.75
MHz, 29.237-29.273 MHz, 29.45-29.65 MHz, 50.35-50.75 MHz, 52-54 MHz, 144.50-145.71 MHz,
146-148 MHz, 2390-2450 MHz segments;
(2) The 1.25 m, 70 cm, and 23 cm bands; and
(3) The channels at 3.997 and 53.30 MHz may be used in emergency areas when required to
make initial contact with a military unit and for
communications with military stations on matters requiring coordination.
(c) A RACES station may only communicate with:
(1) Another RACES station;
(2) An amateur station registered with a civil defense organization;
(3) A United States Government station authorized by the responsible agency to communicate
with RACES stations;
(4) A station in a service regulated by the FCC whenever such communication is authorized
by the FCC.
(d) An amateur station registered with a civil defense organization may only communicate
with:
(1) A RACES station licensed to the civil defense organization with which the amateur
station is registered;
(2) The following stations upon authorization of the responsible civil defense official
for the organization with which the amateur station is registered:
(i) A RACES station licensed to another civil defense organization;
(ii) An amateur station registered with the same or another civil defense organization;
(iii) A United States Government station authorized by the responsible agency to
communicate with RACES stations; and
(iv) A station in a service regulated by the FCC whenever such communication is authorized
by the FCC.
(e) All communications transmitted in RACES must be specifically authorized by the civil
defense organization for the area served. Only civil defense
communications of the following types may be transmitted:
(1) Messages concerning impending or actual conditions jeopardizing the public safety, or
affecting the national defense or security during periods of
local, regional, or national civil emergencies;
(2) Messages directly concerning the immediate safety of life of individuals, the
immediate protection of property, maintenance of law and order,
alleviation of human suffering and need, and the combating of armed attack or sabotage;
(3) Messages directly concerning the accumulation and dissemination of public information
or instructions to the civilian population essential to the
activities of the civil defense organization or other authorized governmental or relief
agencies; and
(4) Communications for RACES training drills and tests necessary to ensure the
establishment and maintenance of orderly and efficient operation of the
RACES as ordered by the responsible civil defense organization served. Such drills and
tests may not exceed a total time of 1 hour per week. With the
approval of the chief officer for emergency planning in the applicable State,
Commonwealth, District, or territory, however, such tests and drills may be
conducted for a period not to exceed 72 hours no more than twice in any calendar year.
FEDERAL EMERGENCY MANAGEMENT AGENCY
CPG 1-15 MARCH 1991
GUIDANCE FOR RADIO AMATEUR CIVIL EMERGENCY SERVICE
Civil Preparedness Guide
Federal Emergency Management Agency
Washington, D.C. 20472
CPG 1-15
March 18, 1991
Guidance for
Radio Amateur Civil Emergency service
Foreword
This Civil Preparedness Guide (CPG) has been prepared as a reference to assist State and
local emergency management officials in establishing and operating
Radio Amateur Civil Emergency Service (RACES) capabilities for use in responding to and
managing emergencies and disasters. This CPG outlines the procedures
for developing a RACES plan and provides an example of a plan format.
(Signed)
Grant C. Peterson
Associate Director
State and Local Programs And Support Directorate
Contents
Chapter 1 - General Information
1-1. Purpose
1-2. Applicability and Scope
1-3. Authority
1-4. Reference
1-5. Background
1-6. Definitions
1-7. State and Local Governments' Role
1-8. FEMA's Role
1-9. Emergency Situations
Chapter 2 - Eligibility and Procedures for RACES
2-1. General
2-2. RACES Eligibility
2-3. Procedures for Establishing a RACES Organization
2-4. Recruitment and Retention
2-5. Training
2-6. Development of a RACES Plan
2-7. RACES Activation
2-8. RACES Unit Records
Chapter 3 - Operations - War Time Emergency Situations and RACES Drills
3-1. General
3-2. List of Frequencies (Wartime Emergency Situations)
3-3. Message Format and Transmission Mode
3-4 General Limitations
3-5. Limitation on the Use of RACES Stations (Wartime Emergency Situations)
Appendix - RACES Service Plan for the Support of Local Government During Emergencies
Chapter 1 - General Information
1-1. Purpose
1-2. Applicability and Scope
1-3. Authority
1-4. Reference
1-5 Background
1-6. Definitions
1-7. State and Local Governments' Role
1-8. FEMA's Role
1-9. Emergency Situations
1-1. Purpose.
This Civil Preparedness Guide (CPG) provides guidance to State and local governments that
utilize Radio Amateur Civil Emergency Service (RACES) as a means
of emergency communications.
1-2. Applicability and Scope.
a. The provisions of this CPG are applicable to State and local Governments that Utilize
RACES in emergencies.
b. In cases of conflict, Federal Communications Commission (FCC) Rules and Regulations
will take precedence over the provisions of this CPG.
1-3. Authorities.
a. The Communications Act of 1934, Section 606, as amended.
b. Executive Order 12472, Assignment of National Security and Emergency Preparedness
Telecommunications Functions.
1-4. Reference.
Title 47 Code of Federal Regulations (CFR), Part 97, Subpart F, and RACES.
1-5. Background.
a. RACES is an organization of amateur radio operators who volunteer to provide radio
communications for State and local governments in times of emergency.
Created in 1952 primarily to serve in civil defense emergencies, RACES provides essential
communications and warning links to supplement State and local
government assets during emergencies.
b. RACES is a special part of the amateur operation sponsored by the Federal Emergency
Management Agency (FEMA). RACES provides emergency
communications for civil preparedness purposes only. RACES is conducted by amateurs using
their primary station licenses or by existing RACES stations. In the
event that the President invokes the War Emergency powers, amateurs officially enrolled in
the local civil preparedness group would become limited to certain
frequencies, while all other amateur operations would be silenced.
1-6. Definitions.
a. RACES is a radio communications service, conducted by volunteer licensed amateur radio
operators, for providing emergency communications support to State
and local governments.
b. RACES Station is an amateur radio station licensed civil defense organization, at a
specific land location, to provide the facilities for amateur radio
communications in the RACES.
c. Amateur Radio Communications is noncommercial radio communications by or among amateur
radio stations solely with a personal aim and without pecuniary or
business interest.
1-7. The Role of State and Local Governments.
a. Local Governments. The role of local governments is to establish and train a RACES
organization designed to provide or supplement essential emergency
communications within their local jurisdiction.
b. State Governments. The role of State governments is to establish and train a RACES
organization designed to provide or supplement emergency communications
between elements of State Government and between State and local governments.
1-8. FEMA's Role.
FEMA's role is to provide planning guidance, technical assistance, and funding for
establishing a RACES organization at the State and local government level.
1-9. Emergency Situations.
The RACES organization provides or supplements communications during emergencies where
normal communication systems have sustained damage. It may be
used in a wide variety of situations, including:
a. Natural Disasters;
b. Technological Disasters;
c. Nuclear Accidents;
d. Nuclear Attack;
e. Terrorist Incidents; and
f. Bomb Threats.
Chapter 2 - Eligibility and Procedures for RACES
2-1. General
2-2. RACES Eligibility
2-3. Procedures for Establishing a RACES Organization
2-4. Recruitment and Retention
2-5. Training
2-6. Development of a RACES Plan
2-7. RACES Activation
2-8. RACES Unit Records
2-1. General.
This chapter provides information on the requirements and procedures for establishing a
RACES organization. Operator privileges in RACES are dependent upon
the class of license held by the amateur.
2-2. RACES Eligibility.
Any United States citizen, who possesses a valid FCC Amateur Radio Operator License,
technician class or higher, is eligible to become a member of RACES.
The services of amateurs who have a Novice Class license may be used, but this is not
recommended due to the privilege limitations.
2-3. Procedures for Establishing a RACES Organization.
The following procedures are to be followed for establishing a RACES organization:
a. To establish a RACES organization, the Director, State or local government Emergency
Operating Center (EOC) or Director of Emergency Management (or
designated representative) should first appoint, in writing, a reliable amateur to serve
as the RACES Officer. This individual serves as a liaison between the RACES
organization and the Director's office and assists in the development of the RACES
organization, recruits members, and keeps the Director, EOC, informed of all
RACES activities, progress, and needs.
b. The RACES Officer is a General Class Amateur, or higher, thoroughly knowledgeable of
FCC Rules and Regulations and familiar with the functions of the
Amateur Radio Relay League (ARRL) and the Amateur Radio Emergency Services of the ARRL.
Individuals with strong organizational abilities, good verbal and
written communications skills, and experience in emergency center operations are ideal
candidates.
2-4. Recruitment and Retention.
a. Each prospective member completes a RACES Operator Application and returns it to the
RACES Officer. The RACES Officer designs the application to meet
local requirements. The application must not contain information that is protected under
the Privacy Act. The RACES Officer recommends acceptance or
nonacceptance to the Emergency Management Director. Once approval is granted, the Director
prepares a letter designating the applicant as a certified RACES
member. A photograph identification card for each RACES member is highly recommended.
b. In order to serve effectively as a volunteer member of the emergency staff, access to
otherwise restricted areas, such as the EOC or the jurisdiction's
communications center, may be associated with RACES participation and assignments. To the
extent that similar requirements exist for other members of the
emergency staff with access to restricted areas, a limited background check for RACES
applicants is also recommended. This should be performed in accordance
with the jurisdiction's regulations and procedures.
c. RACES members are responsible for:
(1) Participating in the training sessions;
(2) Briefing the RACES Officer of any changes in equipment or amateur status that may
affect operation in the RACES program;
(3) Developing a strong background in emergency procedures, FCC Rules and Regulations, and
network procedures;
(4) Being available when emergency communications are required by the appointing Director;
(5) Helping strengthen the organization by offering suggestions and positive feedback to
correct deficiencies;
(6) Complying with volunteer standards established by the jurisdiction; and,
(7) Notifying the RACES Officer, in writing, when terminating membership.
d. Membership participation should be evaluated every 2 years. If a member's participation
is lacking, membership terminates; if deemed adequate, membership
continues for another 2 years.
2-5. Training.
a. Training sessions should be scheduled to exercise the efficiency of the emergency plan
and the proficiency of the RACES members. On the average 1 hour per
week should be devoted to RACES activities and training.
b. RACES organizations may be utilized during drills and exercises in order to train
members and exercise the emergency plan. RACES exercises will help with
updates or revisions to the RACES plan. Special RACES drills and exercises serve as a
mechanism for honing skills in emergency communications procedures in
general and for training in any specific or unusual protocols used by the jurisdiction.
Periodic participation in full scale exercises is also beneficial in promoting
familiarity with other elements of the jurisdiction's emergency plans and procedures the
communications function must support.
c. All training must be recorded in the participant's and RACES unit's files.
2-6. Development of a RACES Plan.
a. Once membership reaches a strength that is considered adequate by the RACES Officer,
bylaws and an emergency plan that meet local requirements must be
written.
b. Development of a RACES plan is vital to the organization and its importance cannot be
overemphasized. A plan must be prepared in accordance with the local
area needs and the facilities available within that particular area. Written plans must
clearly describe each area to be covered. All local government RACES plans
are forwarded to the State disaster preparedness communications officer for coordination
and retention. All State Government RACES plans are forwarded to the
FEMA Regional Communications Officer for coordination and retention.
c. The following items should be addressed, at a minimum, within the plan and provisions
made to cover them:
(1) Identify the community or area where coverage is required;
(2) Identify the type of support needed, i.e., shelter, communications, hospital, etc.
(3) Identify the network to be used to provide each type of support, the operating
frequency, mode of operation, and location of the network control station for
each network;
(4) Establish the RACES Unit's chain of command, identifying the emergency management
organization's communications officer (or other official) to whom the
RACES unit reports;
(5) Identify frequencies--high frequency and very high frequency--to be used by the
mobile, portable, repeater, and fixed stations;
(6) Provide the addresses of all known fixed station locations required to support each
network;
(7) Define the areas of operation of mobile stations required to support each network;
(8) Describe, briefly, the communications equipment required for portable, mobile, and
fixed operations;
(9) Describe, briefly, the communications equipment, antenna, and power source required
for portable, mobile, and fixed operations;
(10) Include a statement that states, "FCC Rules and Regulations apply to the
operation of a radio in the amateur service and therefore apply to the RACES
organization."
d. A checklist unique to the local requirements may be developed and incorporated into the
plan. Testing and drills may be scheduled but must not exceed a total
time of 1 hour per week.
e. The appendix provides an example of a local plan which may aid in the development of a
local plan.
2-7. RACES Activation.
a. RACES may be activated by the appointed Director of an Emergency Management Office, or
authorized representative, for a particular area. The activation is in
accordance with an approved civil defense communications plan in any emergency concerning
the following:
(1) Safety of life;
(2) Preservation of property;
(3) Alleviation of human suffering and need;
(4) Any disaster endangering the public;
(5) Act of sabotage; or
(6) Testing and drills.
b. RACES stations and operators supplement surviving communications facilities, or provide
emergency communications requirements.
2-8. RACES Unit Records.
It is recommended that the Emergency Management organizations provide appropriate space
and maintain custody of these records. The following records should
be maintained by the RACES Unit:
a.The jurisdiction's current RACES plan;
b. Records of all RACES Unit activation, drills, and training;
c. Individual RACES Unit member files, including application form, copy of license, and a
record of participation in activation, drills, and training;
d. Equipment manuals, with additional operating instructions, where appropriate. This
includes equipment owned by RACES Unit members, but made available for
common use (e.g., equipment including personal equipment on loan and installed in the
EOC); and
e. Additional records or other documentation, as required by the Emergency Management
Office.
Chapter 3 - Operations - War Time Emergency Situations and RACES Drills
3-1. General
3-2. List of Frequencies (Wartime Emergency Situations)
3-3. Message Format and Transmission Mode
3-4 General Limitations
3-5. Limitation on the Use of RACES Stations (Wartime Emergency Situations)
3-1. General.
This chapter provides information on the use of frequencies in emergency situations when
the War Emergency Powers, under the provisions of the Communications
Act of 1934, Section 606, as amended, have been invoked by the President.
3-2. List of Frequencies (Wartime Emergency Situations).
a. The frequency bands listed below are available to stations transmitting communications
in RACES on a shared basis with the amateur service. In the event of an
emergency that necessitates the invoking of the President's War Emergency powers under the
provision of Section 706 of the Communications Act of 1934, as
amended, only RACES stations and amateur stations participating in RACES may transmit on
the following frequencies:
Frequency or Frequency Bands
KHz :
1800-1825
1975-2000
3500-3550
3930-3980
3984-4000
7079-7125
7245-7255
10100-10150
14047-14053
14220-14230
14331-14350
21047-21053
21228-21267
MHz :
28.55-28.75
29.237-29.273
29.45-29.6
50.35-50.75
52-54
144.50-145.71
146-148
2390-2450
b. In addition, 1.25 cm (220.0-225.0), 70 cm (420.0- 450.0), and 23 cm (1240-1300 MHz) are
available.
c. Frequencies at 3.997.0 MHz and 53.30 MHz are used in emergency areas to make initial
contact with a military unit and for communications with military stations
on matters requiring coordination.
3-3. Message Format and Transmission Mode.
a. The RACES message format should parallel other communications services such as ARRL,
United States Army Military Affiliated Radio System and/or FEMA.
b. Each message element should be defined to minimize confusion. In emergency
communications, most messages are assigned immediate transmission precedence.
The emergency communication individual must understand the order of transmission and the
precedence governing its sequence. The following defines message
precedence:
(1) IMMEDIATE precedence messages are processed ahead of all other precedence messages and
sent or delivered in the order of receipt.
(2) PRIORITY precedence messages are processed in the order of receipt and processed after
IMMEDIATE precedence messages and ahead of all ROUTINE
precedence messages. PRIORITY precedence messages are sent or delivered in the order of
receipt.
(3) ROUTINE precedence messages are processed in the order of receipt and after the
IMMEDIATE and PRIORITY precedence messages.
c. The mode of transmission should be selected to suit the emergency situation and to
utilize the available communication resources. The mode must remain flexible
in the emergency plan. To eliminate confusion, list modes in order of preference. The
following are several recommended modes:
(1) Voice Communications (telephone)-In most situations, voice fulfills the communications
requirement. Use voice communications when a printed copy is not
necessary.
(2) Radio Teletype (ASCII/BAUDOT)-When printed copy is essential, select one of these.
(3) Packet (High Frequency/Very High Frequency (VHF))- VHF Packet operation is synonymous
with the transfer of information between amateur stations
throughout the United States. Packet is an extremely accurate mode that could be used for
most local emergency communications. Information may be passed
between packet stations at high speed with complete accuracy. Packet is highly recommended
when an accurate printed copy is required for an emergency
operation.
d. Many other modes are available that could be used for emergency communications;
however, the modes listed in subparagraphs 3-3c(1), (2), and (3) should be
considered before other modes. Mode selection must be within the boundaries of FCC Rules
and Regulations and the authorized modes for the frequencies listed in
this plan. VHF frequency modulation could provide a reliable voice link between mobile
units, pedestrians, and the EOC.
3-4 General Limitations.
a. RACES stations operating in any of the frequency bands listed in this plan shall not
cause harmful interference to other services that might share the frequencies.
b. All messages transmitted by a RACES station must be authorized by the emergency
organization for the affected area.
c. All messages transmitted in connection with drills or tests are plainly identified as
such by use of the words drill or test in the body of the messages.
3-5. Limitation on the Use of RACES Stations (Wartime Emergency Situations).
a. While performing duties as a RACES operator, members may not communicate with amateurs
who are not RACES members. Only emergency communications
may be transmitted as defined in FCC Rules and Regulations. No amateur radio station shall
be operated in the RACES unless it is certified as registered in a
disaster service organization.
b. No RACES station shall be used to transmit or receive messages for hire, nor for
communications for compensation, direct or indirect, paid or promised.
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