2013 NASCIO Recognition Award Nomination. State of Michigan. Nomination Category: Cross-Boundary Collaboration and Partnerships

Transcription

1 2013 NASCIO Recognition Award Nomination State of Michigan Nomination Category: Cross-Boundary Collaboration and Partnerships Transition to NG 911: Catalyst for Cross-boundary, Service Domain and Solution Interoperability Project Management Harriet Miller-Brown, Michigan State Police Phone (517) Laura Blastic - Department of Technology Management & Budget Phone (517) blasticl@michigan.gov Project Team - Technical Advisory Committee Chris Cantrell Midland County Nathan Fazer Eastern UP Planning Scott Ambs Jackson County Phyllis Fuller Barry County Mike Szor Alpena County Mike Muskovin Ottawa County Ron Plamondon Leelanau County Susan Moore Oakland County Tom Shechuk Ingham County Mark Holmes LR Kimball Project Technical Staff John S Clark - Department of Technology Management & Budget Paul Harmon - Department of Technology Management & Budget Jeri Kaminski - Department of Technology Management & Budget Ranee Bradish - Department of Technology Management & Budget Executive Sponsors Harriet Miller-Brown Michigan State Police Eric Swanson - Department of Technology Management & Budget Initiation / Completion Dates: December 2010 to September 30,

2 B Executive Summary: The transition from 911 to Next Generation (NG) 911 offers a unique window of opportunity for states to integrate past, current and pending solution investments into a new, highly effective strategic solution platform, achieving more rapid implementation, improved services and cost avoidance across formerly separate domains. Further, this moving, and rapidly expanding window is strengthened with each new systematic addition, but entail opportunity losses if CEO s and CIO s fail to act. Next Generation (NG) 911, FirstNet and Cyber-security are among the more immediate and visible current opportunities, and they also incorporate their rapidly coalescing predecessors. The past, now embedded investments included GIS in the 90 s, stimulus funded broadband and the just completed 911 federal grants. Ongoing, related shared challenges and opportunities include mobile, data management and sharing. Michigan has recognized and engaged this opportunity, providing transferable lessons to other jurisdictions. The most recent example (December 2010 to September 2012), the transitioning from E 911 to NG 911, has provided a cross boundary and domain strategic framework, an innovative solution platform, including cost sharing and functional interconnections, and refinement of governance. Michigan is sharing infrastructure, solutions and services and integrating 911 with other emergency response functions. This also includes developmental initiatives such as FirstNet. Problem Statement: Michigan faced three challenges: (1) 911 modernization; (2) maximizing solution integration for current and building a foundation for future initiatives; and (3) governance and process integration. The ENHANCE 911 Act Grant for a statewide 911 GIS data repository served as a catalyst and platform for successfully engaging and advancing solutions to these three challenges. Significance: Significant accomplishments encompass: policy alignment; governance refinements; 911 and NG 911 service, operational and foundational improvements; establishing FirstNet building blocks; and innovations in cross-boundary and service and solution domain inter-operability. NG 911 is a priority for the Governor s Council on Law Enforcement and Reinvention (CLEAR). CLEAR developed the System Plan for NG911 for Michigan, which recommended the creation of an Emergency Communications Commission, a new structure with a broad governing board that encompasses public safety communications, established implementation timelines and also addressed core issues such as funding mechanisms and statutory requirements. Benefits: The beneficiaries include the Public Safety Answering Points (PSAP s), counties and municipalities, emergency service, public safety, security, telecommunications and related communities. The benefits include significantly better customer service; improved performance; enhanced management tools; expanded collaboration capabilities; significantly improved quality control and accuracy; and cost avoidance. For example, quantifiable benefits include: The average road centerline accuracy score increased 68 to 98 for participants Re-granting more than one million dollars back to the participating local jurisdictions for improvements to their road centerlines Quantifiable, measurable adherence to the latest national standards for NG 911 road centerlines and PSAP boundaries within the repository 2

3 C Description of the Business Problem and Solution: As in other states, current 911 networks are built upon legacy technologies that have not kept pace with consumer adoptions of mobile, IP-based communications technologies. A NG 911 network is needed. In addition to calling 911 from a phone, the goal is enabling the public to transmit text, images, video and data to the PSAP from any communications device via Internet Protocol (IP) based networks. Additional types of emergency two-way communications and data transfer are also envisioned. Challenges: L. R. Kimball, contracted by Michigan for several phases of the modernization, identified several challenges, including: An IP enabled network; data; applications; cyber-security; policies; governance; operations; future road-mapping and planning; and managed services. Michigan has positioned itself to build upon existing initiatives for its NG 911 network, such as local IP network projects and broadband projects that can be effectively leveraged for regional ESInets to interconnect to a statewide ESInet. It is utilizing the ENHANCE 911 Act grant for the data component, which had the broadest utility to benefit all PSAPs, and support both current as well as NG services. Also, a proposed governance structure has been developed that will facilitate the establishment and refinement of standards, metrics, and a NG 911 project plan. 911 GIS Data Base Solution: The project developed and implemented a synchronized digital GIS database for access and use by all state PSAPs. Funded through state, federal and local resources - under the auspices of the State 911 Committee - it is managed by Michigan State Police (MSP) and Michigan Department of Technology, Management, and Budget (DTMB). The Center for Shared Solutions and Technology Partnerships (CSSTP), part of DTMB, developed the 911GIS data repository and system interface. In 2009, the ENHANCE 911 Act of 2004 provided grant funding for Phase II wireless 911 and NG 911 projects. Michigan received $1.7 M, the legislature matched $1.7 M from the Commercial Mobile Radio Service (CMRS) fund, for $3.4 M project. Funding was received December 2010, with a completion deadline of September 30, The main objective of the grant was to include statewide road centerline and PSAP boundary GIS layers. They were implemented by working with local participating jurisdictions. The database was developed to include standards for other layers such as site structure points (address points) and emergency service zone boundaries and other future jurisdictional boundaries. Standards: Standards were developed to provide a single state database model for each local dataset to be replicated into the repository. They were developed to include the foundation of the existing National Emergency Number Association (NENA) 911 GIS standards, that have been part of the 911 fabric for a number of years, but also include the scalability of database standards for future NG 911 systems ublic_365379_7.pdf. State 911 Plan: The State 911 Committee adopted a State 911 Plan version 2.0 on September 20, The plan, which had been developed with input from the industry 3

4 and PSAP sectors of 911, included the objective of moving Michigan s 911 system to a Next Generation 911 platform that is IP-based and capable of processing 911 calls on a technology-neutral basis pdf Technical Advisory Committee (TAC): The project was completed in 18 months, requiring a very aggressive timeline and effective project planning. A TAC was established from the Local and State Cross Boundary Technology Steering Committee. It included local representation from 911, Information Technology (IT) and GIS communities to provide local knowledge and experience during the overall project planning and implementation. The TAC was responsible for strategic decisions and support, to help drive user acceptance and adoption, and developed a communications and marketing strategy. Throughout the grant project period, the planning activities generated many effective programs and processes for the project and the repository. The TAC worked with local jurisdictions to provide input about the project and receive feedback from the local 911 and GIS communities to incorporate into the program. Community Outreach, Education and Implementation Steps: Virtually all phases of this program required ongoing community outreach and collaboration. These activities included : Refinement and expansion of governance; a State 911 plan; a Systems Plan for NG 911 for Michigan; community outreach and communications; a 911 feasibility and GIS survey; establishment of standards; initial assessment and data development plan; data sharing and agreements; a sub-grant program; statewide 911 database design; development and implementation of a database and application architecture; development of Statewide PSAP boundary layer; development of complete statewide GIS road centerline and an Initial point address layers; and a maintenance plan and workflow implementation. The grant project had the participation of more than 80 percent of the local jurisdictions providing their local road centerlines datasets to the repository. For the few local jurisdictions that were not participating at this time, the Michigan Geographic Framework road centerlines maintained by the Center for Shared Solutions were leveraged to create a complete statewide road centerline layer in the GIS repository. Since the completion of the project in September 2012, some of the jurisdictions that did not participate in the repository at the time of the project have expressed an interest in using the system and providing their local GIS datasets. D Significance: Significance encompasses policy alignment, governance refinements, 911 and NG 911 operational and foundational improvements, establishing FirstNet building blocks, and innovations in cross-boundary and service and solution domain inter-operability. Goal and Priority Alignment: NG 911 is a priority for the Governor s Council on Law Enforcement and Reinvention (CLEAR). CLEAR developed the System Plan for NG911 for Michigan, which recommended the creation of an Emergency Communications Commission, a new structure with a broad governing board that encompasses public safety communications, established implementation timelines and 4

5 also addressed core issues such as funding mechanisms and statutory requirements. The initiative also aligns with NASCIO priorities legacy modernization, mobile services, shared services interoperable nationwide public safety broadband network, disaster recovery and the multi-state, intergovernmental FirstNet effort. Refined, Integrated, Expanded Governance: Michigan 911 is under the auspices of the State 911 Committee, which works closely with Local and State Cross Boundary Technology Steering Committee and Technical Advisory Group and the Michigan Public Safety Communications Interoperability Board. The CLEAR proposal will bring currently separate 911, Interoperability, and Public Safety Broadband under a single governance group responsible for setting the strategic direction at all levels within the state. Simultaneous Investment in 911 / NG 911 Standards: The minimum seamless statewide GIS dataset requirements for the ENHANCE 911 grant repository are the road centerlines and the PSAP boundary layers. The road centerlines are a minimum requirement for Computer Aided Dispatch (CAD) systems for wireless phase II, and will also be a minimum requirement in NG911 for call routing and location validation. The PSAP boundaries will also be a minimum requirement for the NG 911 environment. Strengthened NG 911 Foundation: In addition to the data repository, the project addressed current and NG 911 issues, such as: Next Generation 911 Feasibility Study by L.R. Kimball (December 2010), Michigan GIS 911- Data Standards (2011), Efficiency Study (March 2012) on PSAP consolidation options, and strengthened the statewide emergency services IP network (ESInets) foundation. FirstNet Building Blocks: There are distinct foundational parallels between the NG 911 and that of FirstNet, including partnerships of users across the public safety, homeland security, emergency management, connectivity, data management, wireless, mobility disciplines including local, state, federal and private users. Shared solutions include integration of equipment and sub-systems and the necessary policies and governance to efficiently manage the statewide systems. The ENHANCE 911 Act grant GIS project is a model of education and outreach to the local public safety community that will be leveraged for the outreach required for FirstNet activities. The TAC s communications, education and outreach efforts for the GIS project were key to its success. They provided information to local jurisdictions, including data sharing agreements and policies, roles and responsibilities, benefits of the system, training and maintenance. They received feedback about the project for consideration during the project planning phases. This education and outreach was conducted through regional workshops, webinars and presentations at conferences and other meeting venues. Innovations in Interoperability: 911 and NG 911 are opening doors for innovation beyond the caller and the PSAP s. A concept of a Public Safety Ecosystem has emerged. There is a convergence in public safety communications: Development of emergency services IP-based networks (ESInets); FirstNet and the National Public Safety Broadband Network; public safety land mobile radio systems; and virtual PSAPs that can serve regardless of physical location. Interoperability has also expanded to include more than just voice-based radio systems: Computer Aided Dispatch; Records Management Systems ; PSAP telephony Pubic Safety Answering Point telephony. The GIS repository provides a solid and effective foundation to increase GIS data interoperability across the public safety community. 5

6 Transferable Practices: Developed a transferable experience base on: investmentappropriate and representative governance process; prioritized and developed tradeoffs among NG investments; targeted broad payoff elements such as data; achieved issue and timeframe responsive integration of domains and solutions. For example, the preparation of GIS data for a NG 911 call routing and validation is as important of a component as the network and the applications on the network. Many states are just beginning to determine how they are going to undertake developing a statewide strategy to implementing GIS within NG 911. The Michigan ENHANCE 911 Act grant GIS project is a model that other states that look to learn from many of the facets of the project that could very much apply to their GIS plans. E - Benefits of the project (financial and non-financial) 1 - Expanded Range of Benefits and Beneficiaries: The beneficiaries include the PSAP s, counties and municipalities, emergency service, public safety, security, telecommunications and related communities. There are 161 PSAPs in Michigan: Cities/Municipalities (83); Counties (66); Multi-county (5); Universities (4) and State (3). The benefits include improved performance, collaboration opportunities, quality control and accuracy and savings and cost avoidance. Citizens receive increased public safety, faster response times and better disaster planning. Provide an enterprise system for integrated 911 GIS datasets across the state Establish data interoperability across jurisdictions integrated datasets Provide opportunity to share data today Provide additional quality control and reporting for local GIS data Edge-matching and discrepancy resolution of GIS data across boundaries Gap-fill in areas to get to a baseline level of data across the State 911 GIS Database will provide data to ESInet providers for ECRF/LVF in NG 911 Serve as an additional data backup and provide improved data redundancy and security during large emergency events 2 - Improved Management Accuracy: Each time road centerline updates are uploaded into the repository, the end user has the option to also temporarily upload a copy of their Master Street Address Guide (MSAG) table. This allows a PSAP to validate MSAG road names and ranges against the road centerline road names and ranges. This provides the checks necessary for local jurisdictions to improve the current accuracy of these datasets and to prepare the data for NG 911. For the 51 jurisdictions receiving local sub-grant funds, the road centerline accuracy that was measured before and after the sub-grant projects, increased an average from a score of 68 to 98. Quality Control: The data import tools within the GIS repository system allow PSAPs to validate their data with over a dozen quality control measures. The system provides downloadable reports. These reports allow local jurisdictions to pinpoint where issues or risks of inaccurate locations might exist within the data. Secure Web-enabled Data Viewer: Each participating PSAP is able to access a webenabled data viewer, via secured login, to view and search 911 datasets from across the state for 911 and emergency management purposes. 6

7 3 - Shared Benefits and Collaboration Shared Data: The 911 GIS repository is available to all public safety jurisdictions which have filed a letter of intent and a memorandum of agreement to participate with the Michigan Center for Shared Solutions and Technology Partnerships, DTMB. As of July, 2012, statewide participation rate of public safety organizations was at 80%. Data Interoperability: The GIS repository system s database schema (National Emergency Number Association standards) allows for better data interoperability when exporting other jurisdictions data from the system to integrate with 911 systems. Edge Matching: The GIS repository system provides edge-matching and quality control mechanisms for shared boundary features across neighboring jurisdictions to prepare data for NG 911. Edge-matching review process is another recommended step to preparing local GIS data for the NG 911 environment. Enhanced Collaboration and Mutual Aid: The interface and tools allows for improved collaboration and communications. Jurisdictions can download GIS datasets from other PSAPs to integrate into existing systems and collaborate on boundary changes. This collaboration recommended in preparation of GIS data for NG 911 to have GIS datasets across jurisdictional boundaries be edge-match and validated. Neighboring jurisdictions can utilize the data for regional planning activities for large events that cross jurisdictional boundaries and for mutual aid response. Additional workflow processes and communication tools have been built into the GIS data repository system. PSAP contact information is readily available within the centralized system making it easier to communicate during a cross boundary event. These tools allow PSAP administrators to request user permission, communicate data corrections, and facilitate PSAP boundary changes through one common interface. 4 - Savings and Cost Avoidance Data Resource Maximization: All existing resources and data were leveraged, including local GIS street centerlines and address structure points. Where feasible, state-owned GIS data was utilized to avoid unnecessary costs in duplicating data creation. In areas where the GIS data did not exist through available resources or was unreliable, gaps were filled by creating the data through industry standards. Grants and Sub-grants: Michigan s counties had $211.3 M for PSAPs in However, most of this was for operations not development. The grants / sub-grants benefited the PSAPs greatly, providing funds to begin preparation of GIS data for NG 911, developing a system that will allow for long-term interoperability of GIS data between the local 911 jurisdictions. Michigan applied for and received $1.7 million in ENHANCE 911 Act funding. The legislature matched $1.7 million from the CMRS fund to make a $3.4 million project. More than one million dollars were re-granted back to the participating local jurisdictions for improvements to their road centerlines through two local sub-grant programs. Collaborative Ownership: The project sub-grants facilitated collaborative ownership, rather than islands of independently purchased systems. 7