HF Communications as a Core Continuity Capability
Executive Summary
Communications continuity is not achieved through a single system but through layered, intentionally redundant capabilities designed to function as infrastructure degrades. While priority services and hardened government networks address routine disruptions, true continuity requires communications systems that operate without reliance on cellular, fiber, internet, or satellites. High-frequency (HF) radio fills this role. Operation SECURE, authorized under FCC regulations, provides states and eligible entities with a lawful, infrastructure-independent HF disaster communications capability, while national programs such as SHARES extend HF interoperability across all levels of government. Together, these systems form the backbone of survivable communications during large-scale or long-duration incidents.
Why HF Communications Still Matter
Modern emergency communications are deeply infrastructure-dependent. Power failures, fiber cuts, cyber incidents, satellite disruptions, and congestion can cascade rapidly, disabling multiple systems simultaneously. History shows that communications failures are rarely isolated — they are systemic.
HF radio remains uniquely resilient because it:
- Operates without terrestrial infrastructure
- Does not require satellites or internet access
- Supports regional, interstate, and national communications
- Functions with modest power and portable equipment
For these reasons, HF continues to be embedded in national continuity doctrine and government contingency communications planning.
Operation SECURE: State-Authorized HF Disaster Communications
State Emergency Capability Using Radio Effectively (Operation SECURE) is the commonly used name for a set of HF disaster communications authorities codified in Title 47 of the Code of Federal Regulations (CFR) §90.264.
Under this authority, eligible entities may operate on designated HF frequencies between 2–10 MHz, solely for disaster communications. These frequencies are not general-purpose channels and are not intended for routine operations. They exist specifically to preserve communications when normal systems fail.
Operation SECURE is regulated by the Federal Communications Commission, ensuring lawful use, licensing discipline, and nationwide consistency.
Eligibility and Authorized Users
Eligibility for Operation SECURE is defined under 47 CFR §90.20 (Public Safety Pool) and includes:
- The fifty U.S. states
- District of Columbia
- Commonwealth of Puerto Rico
- Commonwealth of the Northern Mariana Islands
- American Samoa
- Guam
- United States Virgin Islands
The FCC has formally clarified that eligibility extends to entities within those states, including:
- State and local emergency management agencies
- Public safety organizations
- Critical infrastructure operators
This clarification enables state-directed HF communications to include the full emergency response and recovery ecosystem.
FCC Frequency Authority and State Eligibility (Summary)
What the FCC Rule Actually Grants
| Element | FCC Authorization |
|---|---|
| Rule | 47 CFR §90.264 |
| Frequency Range | 2–10 MHz (HF) |
| Authorized Purpose | Disaster communications only |
| Routine Use Allowed | ❌ No |
| Exercise / Training Use | ✅ Yes |
| Infrastructure Dependency | None |
| Authorized Modes | Voice, ALE, digital |
Eligible States and Territories
| Eligible Entity | Authorized |
|---|---|
| All 50 U.S. States | ✅ |
| District of Columbia | ✅ |
| Puerto Rico | ✅ |
| Northern Mariana Islands | ✅ |
| American Samoa | ✅ |
| Guam | ✅ |
| U.S. Virgin Islands | ✅ |
Important: Eligibility includes state agencies and entities operating under state authority, including local emergency management and critical infrastructure organizations.
How Operation SECURE Frequencies Are Assigned
Operation SECURE frequencies are not published in the CFR as a national frequency-by-state table. Instead:
| Assignment Element | Description |
|---|---|
| State Allocation | Each state is assigned multiple HF frequencies |
| Band Diversity | Frequencies span multiple HF bands |
| Propagation Coverage | Includes day and night channels |
| Adjacent State Overlap | Intentional for regional coordination |
| Interstate Expansion | Achieved via formal MOUs |
| Publication Method | Administrative, not regulatory text |
This structure allows flexibility, coordination, and updates without requiring regulatory changes.
Representative HF Band Usage
(Illustrative – not state-specific)
| HF Band (Approx.) | Typical Use Case |
|---|---|
| ~2–3 MHz | Nighttime / short-range |
| ~4–5 MHz | Night / regional |
| ~6–7 MHz | Daytime / regional |
| ~8–10 MHz | Daytime / long-range |
Compliance Note: Organizations must operate only on frequencies explicitly authorized in their FCC license or covered by a formal MOU.
Licensing and Planning Requirements
Operation SECURE requires advance planning and formal authorization. To operate under §90.264, an entity must submit an FCC application including supplemental documentation required under 47 CFR §90.129(m).
This includes:
- A copy of the organization’s disaster communications plan
- Description of HF use cases
- Governance and access controls
This requirement ensures HF capability is planned, governed, and integrated before it is needed.
Operational Characteristics
Operation SECURE systems are typically implemented using Automatic Link Establishment (ALE)-capable HF radios.
ALE enables:
- Automatic frequency selection based on propagation
- Reduced operator workload
- Rapid establishment of point-to-point and net communications
- Improved reliability during degraded conditions
HF systems operating under Operation SECURE may support:
- Voice communications
- Digital messaging
- Situation reports and coordination traffic
Because HF requires no external infrastructure, these systems remain operational during extended power outages, telecommunications failures, and satellite disruptions.
SHARES and Operation SECURE: How They Work Together
Operation SECURE complements SHARES, the national HF interoperability program administered by the Cybersecurity and Infrastructure Security Agency.
SHARES vs Operation SECURE (At a Glance)
| Feature | Operation SECURE | SHARES |
|---|---|---|
| Authority | FCC-regulated (47 CFR §90.264) | CISA-administered program |
| Scope | State and interstate HF disaster communications | National HF interoperability |
| Control | State licensing authority | Federal program governance |
| Eligible Users | States, local EM, public safety, critical infrastructure | Federal, state, local, critical infrastructure, approved partners |
| Frequencies | State-assigned HF disaster channels | Shared national HF frequency pool |
| Activation | State-directed | Coordinated via SHARES/NCS |
| Infrastructure Dependency | None | None |
Bottom line:
Operation SECURE provides state authority and independence; SHARES provides national reach and interoperability. Mature continuity strategies deliberately integrate both.
Operation SECURE in the Communications Continuity Stack
Operation SECURE occupies a critical tier in the communications continuity hierarchy:
- Below infrastructure-dependent systems (cellular, fiber, satellite)
- Parallel to national HF systems such as SHARES and FNARS
- Above auxiliary and volunteer communications
As incidents escalate from disruption to catastrophe, Operation SECURE often shifts from backup to primary communications.
Who Should Care? (Leadership Callout)
This capability matters if you are responsible for:
- Continuity of Government (COG) or Continuity of Operations (COOP)
- Emergency management and EOC operations
- Public safety communications governance
- Critical infrastructure resilience
- Executive risk, security, or preparedness oversight
If your organization cannot communicate when infrastructure fails, continuity plans become theoretical. Operation SECURE determines whether your state or organization retains lawful, independent, long-range communications during worst-case events.
Planning Implications
Organizations evaluating Operation SECURE should:
- Explicitly include HF in continuity and emergency plans
- Coordinate licensing and governance at the state or enterprise level
- Train operators in HF and ALE fundamentals
- Integrate with SHARES and auxiliary communications programs
HF capability that is not planned, licensed, trained, and exercised will not succeed when it is needed most.
Bottom Line
Operation SECURE is not legacy technology and not optional resilience. It is a federally authorized continuity mechanism designed for the exact scenarios modern infrastructure cannot survive.
When everything else fails, HF still works — but only if it has been built correctly in advance.