MGTAOVU1  Version 1.3  3/1/92



RACES MANAGEMENT, AN OVERVIEW , PART 1  [Mgt]
  
RACES HISTORY 
In May, 1951, New York State Radio Officer Vincent T. Kenny,
W2BGO, spearheaded the establishment of the Northeastern United
States Civil Defense Amateur Radio Alliance (USCDARA) in 1955.
This group promoted the adoption of a Standard Operating
Procedure, channelization of the RACES frequency allocations,
uniform message forms.
In 1951 the California Office of Civil Defense felt the need for
supplemental backup communications. The California Civil Defense
Net (CCDN) was established by Ken Hughes, W6CIS, and Herb Bruer,
W6JN. Participants were Amateur Radio operators employed by the
California Department of Agriculture who gave their time on a
voluntary basis. Other volunteer Amateurs were enrolled at
selected locations.
The Federal Communications Commission established the Radio
Amateur Civil Emergency Service (RACES) effective August 15,
1952, to meet the needs of the Federal Civil Defense
Administration (FCDA), state and local governments. RB86-33  
Upon the implementation of RACES in 1952, CCDN formed the nucleus
from which to build. A RACES frequency allocation plan for
California was prepared and is still in use today for the high
frequency spectrum.
California has always been a leader in preparedness and
communications. Our communications problems are unique in that we
are the most populous state in the nation. Our terrain, the most
complex with the highest mountain (14,495 feet) and the lowest
elevation (minus 282 feet), presents extremely difficult coverage
problems. Paradoxically, our Mt. Diablo sees more of the Earth's
surface than any other mountaintop in the western hemisphere.
Some of our counties are larger than many of the 48 contiguous
states.
The RACES was established to provide government with Civil
Defense and disaster emergency communications where no other
means exist and to augment overloaded circuits when called upon
to do so by Civil Defense authorities. RACES will remain in
operation if ever again a national crisis requires the suspension
of Amateur Radio operations.
The word "Amateur" in Amateur Radio means only that an Amateur
Radio operator cannot be paid for his services. It is the same
difference as in amateur and pro in sports. Amateur radio is the
only hobby regulated by international laws.  RB86-34  

AN EARLY DEFINITION OF RACES
RACES-Radio Amateur Civil Emergency Service-simply means Amateur
Radio operators who provide emergency communications for a State
or local government. No more, no less. RACES is not a separate or
detached function, activity or a club. RACES enables Amateur
Radio communications for all elements of a State or a local
government and cannot ever be dedicated to serving only one
department of any given government.
There appears to be some misunderstanding among individual
Amateurs in large metropolitan areas about RACES. The definition
above should erase misunderstandings but not perhaps past
history. State OES welcomes the opportunity to meet with Amateur
groups anywhere in the state on the subject of utilizing Amateurs
for emergency government communications.  RB86-4. 

ANOTHER DEFINITION OF RACES
The term RACES describes any Amateur Radio operator who is
enrolled in a specific government to provide communications via
the Amateur Radio Service. A disaster does NOT have to be
declared to use RACES personnel. The RACES section is usually
attached to that government's emergency preparedness office, or
to the department it designates, such as Sheriff's,
Communications, etc. It may be called something other than RACES
by the jurisdiction but the foregoing definition is the generic
definition. An Amateur may be both a member of ARES and RACES;
this is, in fact, encouraged. The distinction is that RACES
responds to and serves the State or a local government; ARES
supports non-governmental activities and organizations.  RB87-36

WHAT IS RACES? 
The RACES is communications supporting a local government by
Amateur Radio operators. The RACES withered and died in those
areas where they thought its use was limited to a major disaster
or war. RACES survived or is being reestablished in those areas
where it is utilized to support virtually any emergency with as
little as one RACES operator. In short, the use of the RACES is
not limited to a major event that might require the mobilization
of all of the RACES and other civil defense resources.
An old saying goes "It's not what you know, it's who you know."
This goes for the RACES and the ARES as well. Inter-personal
communications between the disaster and emergency responder
agencies can be as important as the actual telecommunications.
Volunteers unfamiliar with the players and how they play their
government game can be a hindrance and their services declined
unless they have received the necessary and required orientation
and training. The same holds true for us hams. A few hours of
orientation and meetings with the government, plus some field
activities, can make a significant difference on how much value
an individual RACES and ARES member can be.  RB088

USES FOR RACES 
RACES is communications supporting a local government provided by
Radio Amateurs. Many have interpreted that there can be no use
for RACES unless there is a major disaster or war. For that
reason RACES withered and died in many areas because they had no
disasters and no war. RACES survived and is being re-established
in those areas where RACES is interpreted and utilized to support
virtually any emergency with as little as one RACES operator. In
other words, the use of RACES is not limited to a major event
that requires the mobilization of all RACES or civil defense
resources. A weekly series of messages will follow that discuss
the many ways in which Amateurs may increase their participation
and readiness in the vital area of emergency government
communications. One old saying goes "It is not WHAT you know, it
is WHO you know." This goes for RACES and ARES as well.
Interpersonal communications between the on-scene disaster or
emergency participants can be as important as the actual
telecommunications. Volunteers unfamiliar with the players and
how they play their government game can be a hindrance and often
a hazard. For these reasons the services of volunteers must often
be declined unless they have received the necessary and required
orientation and training. The same holds true for us Radio
Amateurs. A few hours of orientation and a meetings with
government now and then, plus some field activities, can make all
the difference of how much value an individual RACES and ARES
member can be.  RB86-6.   

The RACES is communications supporting local government provided
by Radio Amateurs.There are innovative ways of employing RACES
today that were not dreamed of when RACES was first created by
the FCC and DOD. They have come about through continuing dialogue
between the Amateurs and their local government. This is usually
done through the RACES Radio Officer and his/her staff. RACES or
any Amateur Radio assistance to government cannot begin or be
maintained without this ongoing liaison. 
The next step is to pre-plan innovative ways those interested
Amateurs can assist government emergency operations. This, in
turn, improves emergency preparedness and successful emergency
response. The innovative ways will vary from community to
community. There is no one checklist for RACES mission support.
That's because some communities are better equipped than others
to tackle local emergencies. Sometimes the political climate
limits the participation of volunteers in a local government's
emergency response plans. There is no panacea for the latter
except for steady, professional performance and constructive
dialogue between Amateur Radio leaders and their local
government. RB86-7. [The following is quoted from the Exercise
After Action Report to the participants in Quake Response
Exercise.]
"The favorable and professional response from Radio Amateurs
during the exercise proved once again the merit of involving
these people and organizations in emergency management operations
at all levels. However, to be totally effective when employed,
they must be integrated into training sessions in order that they
will understand the total operation and be able to detect
problems or inadequate/improper information. This fact was
pointed out by the number of times the Senior Controller was
required to decipher radio transmitted messages. "
RACES operators receive such training from their OES and
underscores the need for both training and participation. 
RB86-8. 

WHO ACTIVATES RACES?
This question was raised by more than a few people following the
recent flood disaster. There was a common misconception that the
State must declare a disaster and/or the State activates RACES.
This is an error. Any local government--State, city or
county--can activate its RACES personnel. This is usually done by
the Radio Officer and others of any particular government's
emergency management office.
We encourage governments to activate a skeleton RACES staff in a
building emergency such as a flood, rather than after it is
either too late to mobilize them or the potential resource has
gone elsewhere. 
Government communications seldom fails gracefully. If and when it
does it is usually catastrophic. Then it is too late to mobilize
the RACES resources in a timely and effective manner.
The Radio Officer is a key staff position on any OES staff. RACES
cannot function properly without one. 
Does your county have a RACES Radio Officer? It is axiomatic that
where a government does not have a Radio Officer there is no
viable RACES program, plan, operations, activities, training,
etc. Counties needing assistance or guidance are urged to contact
your State Office of Emergency Services Manager or Communications
Coordinator.  RB86-13. 

YES, NON-HAMS CAN JOIN TOO!
Most of you know that Amateurs providing communications for the
State or any local government in California must be enrolled as
Disaster Service Workers in the "Communications" classification.
But how many know that you don't have to he a ham to be so
enrolled? That's right. If your spouse, family members or friends
have the interest and skills to serve they, too, can be
registered.
For example, some local governments have pilots who are not hams
but are enrolled to assist communications and the RACES. Other
volunteer skills might include clerks, messengers, technicians,
and even unlicensed operators who can operate under the
supervision of a licensed operator. Any potential volunteer or
government agency having questions should write or call us at.
You can make emergency services a family affair!   RB86-20. 

 WHAT IS A RACES STATION?
This question has been asked by some Amateurs who fear that, if
they sign up in RACES, their equipment may become a RACES station
and thus the property of the government. This is not true.
A RACES station is an Amateur radio station licensed to a civil
defense organization, not an individual. If you have never heard
one it is because there are very few of them left. The FCC has
not issued any RACES station licenses since 1982. Reference FCC
97.171(b). Your personal or club call at an OES EOC is not,
repeat not, a RACES station. Reference FCC 97.163(b). It may be a
station operating in the RACES, however.
The forgoing must be thoroughly understood before reading FCC
97.189 that defines points of communications. The Commission's
intent of 97.189 is when RACES resources are used in a wartime
context and is not meant to detract from the peacetime use of
Amateur radio operators. If one wants to be extremely specific in
regards to section (b)(ii), the State and its subdivisions, to
the best of our knowledge, have no provision for or intention to
register Amateur radio stations repeat stations. Thus, part
97.189 is moot.
Again, we use and will continue to use the term RACES in its
reasonable and accepted interpretation: Amateurs providing
emergency radio communications for a specific local government
office of emergency services. Reference section 97.163a. 
Sgd/S. E. Harter, Vice Chair, FCC SECC California.   RB86-43  

RACES, and the Auxiliary Radio Service,
The 'definition of RACES' has been expanding over the years. An
interesting aspect of this is found in this bulletin extract:
"We are pleased to announce the appointment of CARY R. MANGUM,
W6WWW, as the new Chief State Radio Officer for the State of
California. MANGUM is president of Mangum Realty. He is District
Emergency Coordinator for the Central Sierra Counties of the
Sacramento Section ARRL. Formerly W4HYB, Cary was in the Amateur
Emergency Service in 1941. He obtained a law degree in 1951 and
was the founding president of the North Hills Radio Club of
Sacramento. President of Mangum Realty Inc, he brings with him a
wealth of management experience and organizational enthusiasm. He
works four days a week at the State OES headquarters to head up
the Auxiliary Radio Service unit of the Telecommunications
Division. The ARS is the new name for that which was formerly
called the RACES.  That's because-besides the RACES-it also
includes the Civil Air Patrol, Military Affliate Radio Service
(MARS), FEMA, SHARES, the VIP program and other radio services
and frequencies that the volunteers operate. The State RACES
operators are trained to operate in all FCC Radio Services -- not
just the Amateur bands. The State is indeed fortunate to have an
unpaid professional of Cary's caliber aboard."
STANLY A. E. HARTER, KH6GBX, Assistant Chief, Telecommunications
Division, State Office of Emergency Services, Headquarters,,
Sacramento. Extract of a special bulletin issued on 21 June 1991.
SB6-91

WHO RUNS THE RACES?
Q. "Who is charged with managing the RACES program?" A. The civil
defense director, or by whatever title is used in your state or
local government. Reference: FCC Rules and Regulations part
97.163 et al.
DISCUSSION: This does not mean that the c.d. director literally
manages the Radio Amateur Civil Emergency Service program. The
definition of "civil defense" is "any and all government agencies
and support organizations working together on an emergency
problem, normally in accordance with established plans and
procedures."
The c.d. director usually delegates the RACES program to a
qualified person in his/her office or to a support or response
agency. Thus, the c.d. director often assigns the day to day
training, management and use of the RACES unit to the chief of a
law enforcement or fire department; the mission of the RACES,
however, remains to serve the needs of the c.d. director and all
agencies within the government. By the same token, the RACES must
not serve the needs of only one agency, nor can there be more
than one RACES organization within one government. 
The operative word is delegation or assignment. The c.d. director
cannot waive responsibility for the proper development and
utilization of the RACES. A government either has a RACES unit or
it doesn't. The RACES is not is a club, a special interest, or
similar outside or detached group of people.
TACTICAL OR TECHNICAL? 
There may be a tendency to assign the RACES to a government's
technical communications section. This is generally not
recommended because the RACES is or should be) primarily
operational and not technical. RACES communications is tactical
and supports operational elements of government in real time and
ever changing environments. It requires the movement of people
and resources to adapt to often rapidly changing events. Such
operations are typically not the job environment of technical
communications managers, engineers and technicians. For these
reasons civil defense directors should resist the frequent,
albeit natural, tendency to place the RACES under a technical
communications department head.
RACES members are volunteers and it certainly helps to place its
management in an agency familiar with the regular utilization and
management of volunteers.  
RB073-074