Public Safety Telecommunicator Reclassification: Status and Considerations for Congress

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August 22, 2024

911 Telecommunicator Reclassification: Status and Considerations for Congress

911 telecommunicators (also called 911 call takers orPublic Safety Telecommunicator Reclassification: Status and Considerations for Congress

Public safety telecommunicators (e.g., 911 operators and 911 dispatchers) have been referred to as the “"first”" first responders, as first responders (i.e., they are often the initial responders to an emergency. "Public safety telecommunicators" is not classified as a Protective Service Occupation (i.e., workers who provide public safety) under the Standard Occupational Classification (SOC) system, established by the Office of Management and Budget (OMB) and used across the federal statistical system (e.g., Bureau of Labor Statistics, or BLS). Instead, the SOC classifies public safety telecommunicators under Office and Administrative Support Occupations. Some in the 911 stakeholder community disagree with this classification and argue that reclassification as a Protective Service Occupation would provide recognition for telecommunicators' role in emergency response. For example, in an Alaska Public Media article, a former public safety telecommunicator stated, Yes, it's answering phones, but it'an emergency). 911 telecommunicators are not federally classified as first responders under the U.S. Bureau of Labor Statistics (BLS) Standard Occupational Classification (SOC) system. Instead, the SOC classifies 911 telecommunicators under office, clerical, and administrative support occupations. Many in the 911 stakeholder community (e.g., technology providers, public safety officials, 911 professionals, national 911 associations) disagree with this classification. For example, in an Alaska Public Media article, a former 911 telecommunicator stated,

Yes, it’s answering phones, but it’s so not clerical … We were essentially non-licensed therapists. We were non-licensed medical professionals. We were doing CPR [cardiopulmonary resuscitation] on the phone.

The duties of a 911public safety telecommunicator are set to become even more multifaceted with the transition to Next Generation 911 (NG911), an internet protocol (IP)-based system. For exampleWith NG911, determining the appropriate response to a 911 call is to includeis soon to involve integration of different types of multimedia transmissions—such as text messages, streaming video, and photos—directly from the public.

Legislation on reclassification has been introduced in the 118^th Congress. One bill would require “911 telecommunicator” to be categorized as a protective service occupation—the same as “first responder”—under the SOC system (S. 3556). Another bill would direct the Office of Management and Budget (OMB) to consider the reclassification of “911 telecommunicator” (H.R. 6319) as a protective service occupation under the SOC.

This In Focus provides an overview of the classification of 911

Some Members of Congress argue that "improving our nation's public safety system begins with recognizing the indispensable role telecommunicators play in changing the conversation around the nature of their work." The past several Congresses have considered legislation on reclassification of public safety telecommunicators under the SOC system. In the 119^th Congress, some Members have introduced three bills addressing reclassification: H.R. 637, S. 725, and H.R. 540.

This In Focus provides an overview of the classification of public safety telecommunicators, the potential for reclassification, and considerations for Congress.

How Are 911Public Safety Telecommunicators Classified?

The SOC system classifies workers into occupational categories using data collected on job duties. 911 and is generally used for statistical purposes. According to the 2018 SOC User Guide, "occupations are classified based on work performed and, in some cases, on the skills, education and/or training needed to perform the work." Public safety telecommunicators are classified with Office and Administrative Support Occupations with office and administrative support occupations—which include, for example, receptionists, bill and account collectors, and customer service representatives. ManySome in the 911 stakeholder community believe say this is not an accurate description of the role of 911 telecommunicators and have advocated for reclassification as a protective service

occupation. The BLS describes the protective service occupations group as “workers who provide public safety.”

Protective Service Occupation. The term first responder does not appear in the SOC system (and there is no single federal definition of first responder); the BLS describes the Protective Service Occupations group as "workers who provide public safety."

The SOC system is revised periodically through an interagency SOC Policy Committee, which makes recommendations to OMB. The last SOC revision occurred in 2018. Revising the SOC is typically a multiyear process that begins well in advance of revisions. For example, the 2018 revision process kicked off in 2014. Efforts were made by the 911 stakeholder community to aid in the reclassification of 911public safety telecommunicators in the 2018 SOC periodic revision cycle. However, according to 911.gov, the BLS did not recommend——and OMB did not find enough evidence for—reclassification based on job descriptions pulled from a variety of public safety answering points (PSAPs, also called 911 centers).

enough evidence for—reclassification. For example, OMB argued that "moving the occupation to the Protective Services major group is not appropriate and separating them from the other dispatchers would be confusing" and that "the work performed is that of a dispatcher, not a first responder … most dispatchers are precluded from administering actual care, 'talking' someone through procedures, or providing advice."

On June 12, 2024, the BLS posted a notice of solicitation of comments for afor the potential 2028 SOC revision. Among other topics, the BLS asked for public comments on “"whether to consider changes to, or consolidation of, selected 2018 SOC detailed occupations, including specifically public safety telecommunicators.”" Comments were due by August 12, 2024.

What Would Reclassification Do?

In 2024, the president and chief executive officer ofIn response, some public safety advocacy groups, such as the National Emergency Number Association (NENA) and the Association of Public-Safety Communications Officials (APCO), filed comments and considerations for potential reclassification.

What Would SOC Reclassification Do?

APCO has asserted that "the ... impacts of fixing the SOC [at the federal level] would be appropriate recognition for [911] professionals and making the SOC a more accurate statistical resource." APCO further stated, "in theory, [911] professionals could use an updated SOC to argue for subsequent changes at the state/local levels." For instance, a Virginia 911 dispatch manager seeking change at the federal level argued, "if we can get out of the clerical and get into the protective service … that opens so many doors, because the federal government then says, 'yes, they are recognized as a protector and servant' and then the states will follow." In contrast, some media reports state there is "no evidence that changing the SOC will result in changes at the state/local level." Further, whereas state reclassifications might impact benefits or pay, according to a policy essay by Representative Norma Torres, the SOC reclassification would have no direct impact on wages or employee benefits for public safety telecommunicators at the state and local levels.

How Could Reclassification Occur?

Besides reclassification of public safety telecommunicators through the periodic SOC revision cycle (discussed above), reclassification also could occur through legislation at the state level or federal level.

State Legislation

Efforts related to reclassification vary from state to state, depending on priorities or legislative climate. According to an October 2024 report by the National Conference of State Legislatures, 25 states have enacted or adopted resolutions to reclassify public safety telecommunicators as first responders or under other public safety occupations (e.g., California, Indiana, Colorado). Other states (while not officially reclassifying public safety telecommunicators as first responders) enable them, for example, to receive first responder workers' compensation benefits (e.g., Minnesota, Nevada). While these state-led reclassification efforts may inspire other states to follow suit, other states may be hesitant to reclassify because of potential financial impacts.

Federal Legislation

Legislation has been introduced in the 119^th Congress, including the Supporting Accurate Views of Emergency Services Act of 2025 (911 SAVES Act; H.R. 637) and the National Emergency Number Association (NENA) reportedly noted that reclassification at the federal level “wouldn’t automatically reclassify dispatchers at the state level or guarantee them higher pay, but it would give local governments the opportunity to reevaluate how their dispatchers are categorized and compensated.” Examples of the potential impacts of reclassification are provided below.

911 staffing shortages are an issue that could be addressed by reclassification. Data from a February 2023 survey jointly conducted by the International Academies of Emergency Dispatch and the National Association of State 911 Administrators indicated that more than 50% of PSAPs were reported to be facing a staffing crisis. The survey noted that “employees [i.e., 911 telecommunicators] cited pay increases and better benefits as the top two retention incentives.” According to May 2023 data from the BLS, the mean annual wage for protective service occupations is $57,710, while the mean annual wage for office and administrative support occupations is $47,940.

According to media reports, in some states, 911 telecommunicators were not included in state bonuses that were made available to first responders who served during the coronavirus disease 2019 (COVID-19) pandemic. Reclassification may provide 911 telecommunicators with

911 Telecommunicator Reclassification: Status and Considerations for Congress

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benefits available to first responders, such as access to mental health services or expanded retirement options.

Further, reclassification may create new opportunities for PSAPs to be eligible for federal and state emergency communications-related grants available to first responders.

911 is typically funded at the state and local levels, through fees levied on phone services. Depending on the jurisdiction, reclassification could necessitate pay increases for 911 telecommunicators, which may impact local government finances. Localities may also oppose reclassification for other reasons. For example, in the Hawaii State Legislature, House Bill 1398 would have allowed 911 telecommunicators to create their own bargaining unit. Although there was support for this bill from public safety professionals, there also was opposition. The Hawaii Office of Collective Bargaining found in 2023 that 911 dispatchers were already properly categorized. Additionally, the City and County of Honolulu was concerned about the increased costs and complexities of “establishing, negotiating, arbitrating, and managing yet another bargaining unit and contract.”

How Can Reclassification Occur?

Besides reclassification of 911 telecommunicators through the periodic SOC revision cycle (discussed above), reclassification also can occur through legislation at the state level or federal level.

State Legislation According to an April 2024 letter from the Chairwoman of the Federal Communications Commission to the Director of OMB, over 20 states have enacted or are considering legislation to reclassify 911 telecommunicators. Reclassification efforts vary from state to state, depending on priorities or legislative climate. For instance, while some state legislation officially reclassifies 911 telecommunicators as first responders (e.g., California, Indiana, Colorado), other states (while not officially reclassifying 911 telecommunicators as first responders) enable 911 telecommunicators to receive first responder retirement and or workers’ compensation benefits (e.g., Minnesota, Nevada).

While these state-led efforts may inspire other states to follow suit, it has been asserted that some states may maintain their current status until reclassification at the federal level occurs. According to a Virginia 911 dispatch manager seeking change at the federal level, “if we can get out of the clerical and get into the protective service … that opens so many doors, because the federal government then says, ‘yes, they are recognized as a protector and servant’ and then the states will follow.”

Federal Legislation Bills have been introduced in the 118^th Congress related to reclassification of 911 telecommunicators. These include the Supporting Accurate Views of Emergency Services Act of 2023 (911 SAVES Act of 2023; H.R. 6319) and Enhancing First Response Act (S. 725). BothS. 3556). These bills would require OMB to categorize “911 telecommunicator” as a

protective service occupation under the SOC within 30 days of enactment.

In July 2024, an amended version of H.R. 6319 was ordered to be reported by the House Committee on Education and the Workforce, which changed the bill from directing OMB to reclassify 911 telecommunicators to instead asking OMB to consider reclassifying 911 telecommunicators. If 911 telecommunicators are not reclassified, the OMB Director would be required to submit an explanation to Congress.

Considerations for Congress

If Congress decides to take action on reclassification of 911 bills would require OMB to categorize "public safety telecommunicators" as a Protective Service Occupation under the SOC within 30 days of enactment. Another bill, the Supporting Accurate Views of Emergency Services Act of 2025 (911 SAVES Act of 2025; H.R. 540), would require OMB to consider establishing a separate code for public safety telecommunicators as a subset of Protective Service Occupations as part of the first revision process of the SOC system that occurs after enactment. If a separate code is not established, OMB would be required to submit an explanation report to Congress. Although the language of H.R. 540 differs from that of H.R. 637 and S. 725, the bills are intended to achieve common goals. Similar versions of these bills were introduced in previous Congresses.

Considerations for Congress

If Congress decides to mandate reclassification of public safety telecommunicators, it could advance H.R. 637 or S. 725. While some support for mandating reclassification exists, according to media reports, some Members may be hesitant to sidestep OMB and BLS processes. Further, some policymakers have argued that "mandating a change to a statistical code would not affect these workers' wages, benefits, or other resources—but it would disrupt data series continuity; require significant additional work for government agencies, researchers, employers, and others; and intervene in an official, routine government data-collection and statistical process."H.R. 6319; in any event, OMB is already expected to consider the classification change of 911 telecommunicators during the potential 2028 SOC revision. Alternatively, Congress could advance S. 3556H.R. 540, which would require reclassification by OMB. According to media reports, some Members may be hesitant to sidestep OMB and BLS processes.

Congress may consider holding hearings on state reclassification efforts—to examine their successes and challenges and to consider possible approaches to adopt at the federal level.

If Congress does not wish to take a legislative route, Members could consider writing to OMB to encourage the reclassification of 911 telecommunicators, as some Members did in 2016.

Congress could choose not to act on reclassification, allowing OMB or states to continue to address the matter. If Congress chooses this option, reclassification by OMB could take years or may not happen. If reclassification does not occur in the potential 2028 SOC revision, the next opportunity through an SOC revision would be approximately 10 years after the potential 2029 revision (i.e., 2038).

consideration by OMB. In any event, OMB is expected to consider the classification change of public safety telecommunicators during the 2028 SOC revision process.

In August 2024, the Congressional Budget Office estimated that implementing the Supporting Accurate Views of Emergency Services Act of 2024 (911 SAVES Act of 2024; H.R. 6319, 118^th Congress)―which would have required OMB to categorize "public safety telecommunicators" as a Protective Service Occupation under the SOC system―would not significantly affect federal spending.

Outside of legislation, some Members supporting reclassification may also consider writing to OMB to encourage the reclassification of public safety telecommunicators, as some did in 2016. Congress may consider holding hearings on state reclassification efforts—for example, to examine their successes and challenges or to consider possible approaches to adopt reclassification at the federal level. Congress also could choose not to act on reclassification, allowing OMB or states to continue to address the matter. If OMB does not reclassify the position in the potential 2028 SOC revision, the next scheduled SOC revision is approximately 10 years later (i.e., 2038).

In May 2022, the National 911 Program, within the National Highway Traffic Safety Administration (NHTSA), published a toolkittoolkit to help 911 centers “"address the changes the BLS needs to see”" for reclassification. An option for Congress could be to direct the National 911 Program— which has extensive 911 expertise and strong connections to the 911 stakeholder community—to continue to assist 911 centers for the 2028 potentialduring the potential 2028 SOC revision or to advise OMB on classification. A consideration under this option is that NHTSA (along with the National Telecommunications and Information Administration) co-led the 911 Implementation Coordination Office (ICO), which served as the lead federal body for coordination of efforts related to NG911 implementation. As the ICO's statutory authority expired in October 2022, much of the National 911 Program's previous work has shifted from a focus on the nationwide advancement of NG911 to a more narrow focus on ensuring NG911 has a positive impact on highway safety. Congress could consider addressing the ICO's authority if it wants NHTSA to maintain a federal connection to the 911 stakeholder community and help shape reclassification efforts.

While reclassification may provide recognition for public safety telecommunicators, some stakeholders also seek federal funding for the nationwide transition of 911 centers to NG911 to further bolster the capabilities of the public safety telecommunicator workforce.

A consideration under this option would be that much of the National 911 Program’s previous work has shifted as its authorities expired in 2022. Congress may consider addressing the National 911 Program’s authority if it wants NHTSA to maintain a federal connection to the 911 stakeholder community and help shape reclassification efforts.

Colby Leigh Pechtol, Specialist in Telecommunications Policy

IF12747

911 Telecommunicator Reclassification: Status and Considerations for Congress

https://crsreports.congress.gov | IF12747 · VERSION 1 · NEW

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