Ashtabula County, Ohio

Transcription

1 Report for Mutual Public Safety Dispatching Prepared for Ashtabula County, Ohio June 2014 ARCHITECTURE ENGINEERING COMMUNICATIONS TECHNOLOGY AVIATION CIVIL CONSTRUCTION SERVICES DATA SYSTEMS ENVIRONMENTAL FACILITIES ENGINEERING GEOSPATIAL NETWORKS PUBLIC SAFETY TRANSPORTATION

2 TABLE OF CONTENTS 1. Project Overview Key Definitions Scope of Work Summary Methodology PSAP Consolidation Overview Historical Background Reasons to Consider Consolidation Roadblocks to Consolidation Current Environment Existing State of Ohio Legislation Ashtabula County Sheriff s Office Demographics Organizational Structure Call Volume and Processing Training and Quality Assurance Technology Ancillary Duties Budget Summary Interest in Consolidation Ashtabula Police Department Demographics Organizational Structure Call Volume and Processing Training and Quality Assurance Technology Ancillary Duties Budget Summary Interest in Consolidation Ashtabula Township Fire Department Demographics Organizational Structure Call Volume and Call Processing Training and Quality Assurance Technology Ancillary Duties Budget Summary Interest in Consolidation Conneaut Police Department Demographics Organizational Structure Call Volume and Processing June 2014 Page i

3 3.5.4 Training and Quality Assurance Technology Ancillary Duties Budget Summary Interest in Consolidation Geneva Police Department Demographics Organizational Structure Call Volume and Processing Training and Quality Assurance Technology Ancillary Duties Budget Summary Interest in Consolidation Saybrook Fire Department Demographics Organizational Structure Call Volume and Processing Training and Quality Assurance Technology Ancillary Duties Budget Summary Interest in Consolidation Non Public Safety Agencies Perry Nuclear Power Plant School Districts Ashtabula County Engineer Stakeholder Input Stakeholder Concerns Stakeholder Comments and Suggestions Stakeholder Summary Current Environment Summary Total Call Volume Technology Summary Ancillary Duties Budget Summary Emergency Medical Dispatch Operational Summary Consolidated PSAP Models Governance Mandatory Law Enforcement Control Governance Models Governance Recommendations Cost Distribution June 2014 Page ii

4 4.3 Single Countywide PSAP Model Organizational Structure Call Taking and Dispatch Methodology Staffing Technology Cost Estimates Summary Phased Consolidation Option Organizational Structure and Staffing Levels Technology Summary Shared Technology Option Summary Regionalized Hybrid Call Center Options Call Center with Call Transfers Call Center with Shared Technology Call Center Models and Next Generation Concerns Grant and Funding Opportunities Federal Grants Federal Emergency Management Agency Preparedness Grants Proposed Consolidation of National Preparedness Grants Implementation Grants Byrne Justice Assistance Grant Programs Bonds Earmarks Summary and Recommendations Next Steps Appendix A Participation in LEADS Appendix B Ohio Code Appendix C Ohio Code Appendix D HB 360 Analysis Appendix E Acronyms Table of Tables Table 1 ACSO PSAP Budget Summary Table 2 Ashtabula PD PSAP Budget Summary Table 3 County VHF Channel Summary Table 4 Ashtabula Township Fire Department Budget Summary Table 5 Conneaut Police Department PSAP Budget Summary Table 6 Geneva Police Department PSAP Budget Summary Table Estimated Call Volume Summary June 2014 Page iii

5 Table 8 Current PSAP Technology Summary Table 9 Current CAD and Interface Summary Table 10 Radio Platform Summary Table 11 Ancillary Job Responsibilities Performed by PSAP Staff Table 12 Current Staffing, Workload and Budget Summary Table 13 PSAP Workstations Table 14 Consolidated PSAP Estimated Operating Budget Table 15 Single Consolidated PSAP Technology Cost Estimates Table 16 Existing and Consolidated PSAP Comparison June 2014 Page iv

6 EXECUTIVE SUMMARY In an effort to provide the community with the highest level of services possible while utilizing a cost efficient funding structure, the County of Ashtabula (County) contracted L.R. Kimball (Kimball) to develop a comprehensive business plan for the consolidation of area primary and secondary public safety answering points (PSAPs). The PSAPs include: Ashtabula County Sheriff s Department City of Ashtabula Police Department Ashtabula Township Fire Department Conneaut Police Department Geneva Police Department Saybrook Fire Department Based on the data collected during this study, Kimball recommends pursuing some form of PSAP consolidation. Key findings include: The State of Ohio has legislation on the books that mandates a reduction in the number of PSAPs within a county if those PSAPs wish to receive funding from the state. The County has a need to relocate its PSAP and emergency management agency (EMA) due to space limitations; therefore, this may be an opportune time for a consolidation effort. In general, many of the key PSAP systems are outdated and need to be replaced. The County needs to start planning for next generation (NG9-1-1), which will require an emergency services Internet protocol network (ESInet) and answering equipment that is i3 capable. The existing equipment was installed 15 years ago and last updated in The usual life expectancy of customer premise equipment (CPE) is about seven years so the equipment is in serious need of replacement. The majority of the PSAPs have a single person on duty. A single person can quickly become overwhelmed by incoming calls and dispatch traffic. This type of environment can lead to errors and inefficient handling of calls and radio traffic. A large number of calls must be transferred between PSAPs before all required services are dispatched. Every time a call is transferred a delay in completing the call taking process and the dispatch of field personnel occurs. Consolidation benefits include: More on-duty staff during peak periods which prevents a single on-duty telecommunicator from being overwhelmed during busy periods. This will lessen the potential for errors and improve call handling and dispatch times. Access to technology that may be cost prohibitive on an individual PSAP basis. All disciplines (police, fire and emergency medical services [EMS]) receive the same high level of service when provided by the same organization. Standardized training. Career ladder for employees which increases employee retention and lowers training costs. A more regional approach to emergency communications allows for maximum efficiency in use of field personnel and resources. Consolidation within Ashtabula County will allow the county PSAPs to meet the consolidation mandates in the state legislation and continue to receive wireless funding. Consolidation will position the county PSAPs to transition to an NG9-1-1 capable environment. June 2014 Page 1

7 Of the consolidation models discussed in this report, Kimball believes a full countywide consolidation, if deemed financially and politically possible, will provide the most advantages to the community and the public safety agencies. However, governance and cost distribution models must be discussed and agreed upon first by all of the participating municipalities to achieve this model. Of the other models, Kimball recommends a phased consolidation as discussed in Section 4.4 and then shared technology, as discussed in Section 4.5, if no other type of consolidation can be achieved. Each of these models offers some of the benefits achieved in a full countywide consolidation, but not all. Kimball recommends that the participants in this study commit to the next phase of the consolidation process as discussed in Section 6.1. This next step does not require participants to commit to consolidation. The commitment is to determine if each potential show stopper can be resolved. These show stoppers include cost distribution and governance as the two most contentious topics. This process will result in identification of those participants who are willing to commit to consolidation. Once the actual participants are identified, costs associated with staffing, facility and technology can be more accurately estimated and each participant can determine their own costs. The balance of this page is intentionally left blank. June 2014 Page 2

8 1. PROJECT OVERVIEW 1.1 Key Definitions Public Safety Answering Point (PSAP) Also called a center or dispatch center and is an emergency communications facility that receives calls. Dispatching of police, fire and EMS field personnel each may or may not be part of this facility. The County has two types of PSAPs. The first type is a primary PSAP which receives calls directly from citizens. The second type is a secondary PSAP which does not receive calls from citizens directly, but through transfers from other PSAPs. Full PSAP Consolidation Full consolidation is defined as the consolidation of police, fire and EMS call handling and police and fire dispatch functions for a defined region into a single facility. This model may exclude private agencies such as commercial or non-profit EMS. Shared Technology May also be called virtual consolidation. Two or more PSAPs share key PSAP systems such as computer-aided dispatch (CAD), radio, call answering equipment or logging recorders. Although technology is shared, each PSAP retains its existing organizational structure and remains in its own facility. Call Taker Refers to a PSAP job function which includes the processing of incoming and administrative calls. Call taker may also be a job title in PSAPs where an employee performs only call taking functions. Dispatcher Refers to a PSAP job function which includes the dispatching of field personnel via radio to calls for service. Dispatcher may also be a job title in PSAPs where an employee performs only dispatch functions. 1.2 Scope of Work Summary The scope of work for this study includes the following: Provide a recommended optimal design for overall enhanced (E9-1-1) effectiveness including recommendations for the existing configurations. Review the existing emergency communications environment in the County, including strengths and weaknesses. Identify strategic areas that the County should focus on to achieve a future optimal design. Identify grant funding that may be available to achieve the optimal design. Identify obvious areas for expansion outside the existing public safety dispatch structure. Include such agencies as public schools, County Transportation System, Health District and the County Engineer s Office. Outline the most cost effective means to provide NG9-1-1 to all political subdivisions within the County Provide an overview of the radio system Utilize the National Emergency Number Association (NENA) standards where applicable. 1.3 Methodology The methodology used for this study included: 1. Distribution of an extensive data collection survey which gathered baseline information on a variety of topics. Topics included technology currently in use, organizational structure, call processing, staffing, ancillary duties performed by the PSAP staff, pay ranges and budget information for each primary and secondary PSAP within the County. 2. PSAP site visits. Each PSAP was visited by the Kimball project team. On-duty staff, including supervision and/or management and dispatchers, was interviewed and operations observed. 3. Stakeholder meetings were conducted. Kimball met with a variety of other stakeholders to discuss their views on a potential consolidation of PSAPs in the County. June 2014 Page 3

9 2. PSAP CONSOLIDATION OVERVIEW The intent of this section is to provide a generic overview of what PSAP consolidation is; what drives it, what are the benefits as well as the roadblocks associated with it. 2.1 Historical Background Historically, call answering and dispatch services have been provided by small PSAPs except in larger urban areas. The PSAPs were commonly part of a larger law enforcement, fire or EMS agency. These PSAPs typically had a small staff that answered calls and dispatched field units for a single primary agency in addition to a host of other non or dispatch related job tasks. Little specialized training was necessary for the staff to perform these functions and advanced technology was not yet present. In fact, sworn personnel with no training routinely filled temporary vacancies in the PSAP. However, over the last 25 years several key factors have caused public safety communications to evolve into a profession that requires highly skilled people with extensive on-going training and advanced technology. The key factors are: The explosion of cellular phone usage which created significant issues including: A dramatic increase in call volume. The need for Wireless Phase I and II technology to locate cell phone callers and improved mapping abilities. Increased public awareness about available technology and services such as the ability to locate callers through technology and emergency medical dispatch (EMD) raised public expectations and drove the need for higher service levels. The terrorist attacks of September 11, 2001 raised awareness for the need for interoperability among responder agencies and the PSAPs that serve them. New technology such as wireless devices with video, photos and text capabilities, as well as automatic crash notification (ACN) through such companies as OnStar. As this evolution progressed, those agencies managing PSAPs found that as training and technology needs increased so did the costs associated with operating a PSAP. In fact, the evolution is continuing as service levels in the near future will include the ability to handle text messages, video and photos over Internet protocol (IP) based networks also known as NG As time progresses those agencies that maintain individual PSAPs will be faced with supplying even higher levels of training and procuring expensive new technology without which they will no longer be able to meet the service level expectations of the community. Key public safety industry organizations recognize that the on-going evolution of requires establishing minimum standards for PSAP employee training, operations, technology and facilities. These organizations include: International City/County Management Association (ICMA) NENA Association of Public-Safety Communications Officials International (APCO) International Association of Fire Chiefs (IAFC) Commission on Accreditation for Law Enforcement Agencies (CALEA) National Fire Protection Association (NFPA) The evolution of and the associated technology coupled with difficult economic times have encouraged state and local governments and public safety agencies to investigate the concept of shared services or consolidation. The simplest definition of consolidation is the combining of two or more PSAPs into a single facility and/or organization with a single set of June 2014 Page 4

10 critical PSAP technology and protocols. Different consolidation models exist and are customized to meet unique regional and stakeholder needs. The consolidation process is a complex and difficult process that can yield substantial improvements in service levels, responder safety, employee retention and potential cost savings if implemented correctly. 2.2 Reasons to Consider Consolidation Municipalities and agencies consider consolidation for a number of reasons. Commonly cited reasons are: Service level improvements An important benefit of consolidation is service level improvements. The degree and nature of the improvements will vary depending on the efficiency of each individual PSAP considering consolidation call-takers and dispatchers are truly the first responder on the scene and can substantially affect the outcome of an incident. The types of service improvements typically achieved include: An improvement that will be realized for even the most efficient existing PSAP is regional awareness of workload and the deployment of field personnel. This awareness leads to improved usage of resources regionally and better management of large scale or multi-jurisdictional events from a single point of control. Reduction or elimination of the transfer of calls between PSAPs improves response times and lowers the potential for human or technology errors. Quicker call processing and dispatch times, resulting in potentially faster on-scene times for field personnel. To Kimball s knowledge, case studies demonstrating this point are not available. However, an examination of the typical call process where one dispatcher performs both call taking and dispatch functions does support it. Typically, when one person (the telecommunicator) is performing both functions, he or she answers the call, interviews the caller long enough to confirm basic information and identify the call has a high priority. The telecommunicator then turns to the radio and dispatches field personnel and handles the initial brief flurry of radio traffic. During this time, however short it may be, the caller is essentially on-hold, perhaps not mechanically, but certainly has been asked to hold on while units are dispatched. During this time, no further information is being obtained by the telecommunicator. Once the field units are en route and the initial radio traffic is handled, then the telecommunicator can turn his or her full attention back to the caller and obtain additional information. However, from this point forward the telecommunicator must split his or her attention between the caller and the radio. When call taking and dispatch functions are split, the call-taker answers the call and does the same basic interview in the first example. When a call is identified as a high priority, the call is entered into CAD while the call-taker continues to gather information. The CAD incident is instantaneously received by the dispatcher(s) and field personnel is sent. There is no lag in gathering information, potentially critical information, from the caller while the telecommunicator balances two tasks. As the call-taker gathers new information, it is added to the CAD incident and sent to the dispatcher(s) to be communicated to the responding units. In Kimball s experience, this call processing methodology is highly efficient and more accurate. In reality, a telecommunicator, no matter how talented, is still limited in the number of tasks he or she can do efficiently by virtue of being human. In further support of this model, the 2013 version of NFPA 1221 Standard for Installation, Maintenance and Use of Emergency Communications Systems Section A (Annex to Chapter 7 Staffing) states Consider the following two concepts of communications center operations: 1. Vertical Center. A telecommunicator performs both the call taking and dispatching functions 2. Horizontal Center. Different telecommunicators perform the call taking and dispatch functions. Telecommunicators working in a vertical center are known to engage in multitasking that can inhibit their ability to perform assigned job functions. Routine evaluation of telecommunicator staffing. June 2014 Page 5

11 2.3 Roadblocks to Consolidation Public safety answering point consolidation is a complex process and one has potentially negative, as well as positive aspects. The negative aspects most commonly raised are: Loss of control. Depending on the consolidation model and organizational structure chosen, law enforcement and fire agencies that have had call taking and dispatch staff as part of their organizations must often relinquish control of the PSAP employees as they become part of the new organization. Complaint and other personnel investigations and any resulting training or disciplinary actions become the responsibility of the new PSAP management which can be seen as a negative by participating agencies. Often, the level of control the new PSAP would have over the responses of the participating agencies is misunderstood as well. The role of any PSAP is to implement dispatch plans developed by each individual agency not to dictate response levels to each agency. For example, a law enforcement agency will still have complete control over the type or nature of the incidents they respond to and the level of that response. While standardization among participating agencies is recommended to the degree possible, each agency is still able to customize its responses to the unique needs of the community it serves. Finally, the PSAP dispatches calls for service according to each agency s dispatch plan, but any dispatch can be overridden by an agency command officer if he or she feels it necessary. Start-up costs or increased operational costs. It is important to understand that comparing the cost of current, non-consolidated PSAP operations with that of a consolidated environment is not an apples-to-apples comparison. The typical emergency communications system that has been in place for the last 25 years cannot provide the level of service expected by today s technologically savvy citizens. Ancillary or non PSAP related duties. In many small PSAPs where the call volume is low, staff members are often responsible for a host of other non or dispatch related responsibilities. These include tasks such as handling walk-in complaints, holding cell monitoring, dispatchers performing jail duties, releasing impounded animals and vehicles, management of business key holder/contact files, entering records, tickets and permits, tracking municipal fees such as dog licenses and functioning as a receptionist and switchboard for the parent agency and/or the entire municipality. Not only do PSAP staff perform necessary functions outside what would be considered and dispatch duties, but also often provide a 24/7 presence within the public safety agency. Many agencies consider this 24/7 presence to be a vital part of the service level provided to the community and do not wish to lose it. Not having a 24/7 presence can be managed in a number of ways such as a direct phone in the lobby of the agency that dials the consolidated PSAP or installing safe room capabilities in the facility entrance. However, each community will need to assess if compromises such as these are acceptable when considering consolidation. Each entity considering consolidation must determine how these types of tasks will be managed if consolidation becomes a reality. This may mean adding tasks to current non-psap employees within the entity, hiring new employees or altering the service levels provided. The hiring of new staff will affect the potential cost savings for the municipality and should be considered when assessing whether to consolidate. Loss of geographical knowledge of the community and/or personal knowledge of callers. There is no question that PSAP staff in small communities often knows the local citizens and geography well. When moving to a larger, consolidated environment, it is also true that some of this knowledge will be lost. However, it is important to recognize that the employees from the small PSAP will likely move over to the consolidated center, taking their knowledge with them to share with other employees. In addition, mapping software is commonly available which reduces the need for a high level of local geographical knowledge. June 2014 Page 6

12 3. CURRENT ENVIRONMENT Ashtabula County is the largest geographical county in the State of Ohio and has a combined population an estimated 100,389 1 residents. Ashtabula County consists of twenty-seven townships, three cities and seven villages. The three largest cities in Ashtabula County service area (Ashtabula, Conneaut and Geneva) include the Interstate 90 (I-90) corridor, a major transportation corridor between eastern and western Ohio borders, as well as across the United States. Route 11 traverses Ohio from the southern border with West Virginia north to the City of Ashtabula where it intersects with I-90. Emergency communications services to the County s police, fire and EMS agencies are provided by four primary and two secondary PSAPs. Each of these PSAPs is organized as an independent operating unit. This section provides an overview of the current emergency communications environment, existing state legislation and an over of each of the primary and secondary PSAPs within the county. 3.1 Existing State of Ohio Legislation The 129 th General Assembly put forth Sub. HB360. This legislation, which was passed, addresses a variety of topics related to wireless surcharges. This document contains several points relevant to a discussion on consolidation. The Ohio Legislative Service Commission published a final analysis of HB360 2 as passed by the General Assembly. The Legislative Final Analysis states that HB360: Progressively limits the number of PSAPs in each county for which disbursements from the charges may be used, ultimately limiting the number to three PSAPs in 2018 (or four PSAPs if the county includes a municipal corporation with a population of more than 175,000). Requires, not later than January 1, 2014, that the Steering Committee adopt rules under the Administrative Procedure Act that establish technical and operations standards for PSAPs eligible to receive disbursements from the Wireless Government Assistance Fund. Requires PSAPs to comply with the new Steering Committee standards not later than two years after the effective date of the rules. Although HB360 progressively reduces the number of PSAPs within a county that can receive funding to a maximum of three, for a county of Ashtabula s size, it does not actually limit the number of PSAPs that can exist within a county. It only limits the number that can receive funding. Therefore, consolidation is being strongly encouraged, but not mandated at the state level. The remaining two bullets above indicate that the State will be developing technical and operational standards for PSAPs. Once established, meeting these standards will be an easier task in a consolidated PSAP environment. 1 U.S. Census Bureau estimated 2012 Census 2 June 2014 Page 7

13 3.2 Ashtabula County Sheriff s Office Demographics Managed by the Ashtabula County Sheriff s Office (ACSO), the County PSAP provides the call processing hardware and software which is used by the other PSAPs. In each case of the PSAPs, a non-sworn employee manages the daily operations of the PSAP. This civilian employee reports to a sworn command level officer of that respective PSAP management organization. The PSAPs are managed by fire departments with the Chief of each department responsible for their respective PSAP operations. Ashtabula user group provides input on services to the Sheriff s Office command staff but has no governance authority. As would be expected, a perception among users that the operation of all three PSAPs is oriented to serve the needs of the host agency (Sheriff s Office), with less accommodation of the needs of other agencies was noted. This perception is particularly strong amongst the fire service leadership, who believe the PSAPs are law enforcement oriented, with less awareness and attention to fire/ems service needs Organizational Structure Each of the six PSAPs is organized as an independent operating unit. The Sheriff s Office, which manages the County PSAP, provides the call processing hardware and software which is used by the other PSAPs. In each case, a non-sworn employee manages the daily operations of the PSAP, reporting to a sworn, command level officer of that respective police or fire organization. The PSAP employs nine civilian telecommunicators and schedules a minimum of two on duty. However, should one of the on-duty telecommunicators need to leave the room for meetings, meal breaks or other tasks a single telecommunicator must manage incoming calls and radio traffic. A third position is available if workload dictates the need for additional staff Call Volume and Processing The ACSO PSAP handled approximately 25, calls in In addition to calls the PSAP handled an estimated 101,296 administrative calls. The number of administrative calls is estimated based on a general rule-of-thumb that says the ratio of administrative calls to calls is usually between 3 and 5:1. Kimball used 4:1 for this estimate. The PSAP s total estimated and administrative call volume is 126,620 annually. The common processing model currently used in the Ashtabula County primary and secondary PSAPs is often referred to as single stage dispatching. In this model, the same person who answers the telephone call for service enters the call into the CAD system, dispatches the appropriate response units, updates responder status in CAD and closes out the event with disposition information at the conclusion of the call. This model is commonly found in smaller PSAPs. The PSAP provides primary dispatch support for the following agencies: Ashtabula County Sheriff s Office Geneva-on-the-Lake Police Department (PD) Ohio State Highway Patrol Dorset Township Fire Department (FD)/EMS Hartsgrove Township FD/EMS Jefferson EMS Rescue District Jefferson FD, Morgan FD June 2014 Page 8

14 Orwell FD/EMS Rome FD/EMS Trumbull Township FD/EMS Wayne Township FD/EMS Windsor FD/EMS Andover FD Monroe FD South Central Ambulance District For EMS calls for Andover FD the caller is voice transferred to the Community Care EMS agency dispatch operations for EMS dispatch. The PSAP area which accommodates dispatch operations has no room for expansion and currently inadequately accommodates the three operator positions located in this area. Ashtabula County PSAP selectively routes the calls from within the city limits of the city of Ashtabula, Conneaut and Geneva PSAPs which are operated by the police departments. These PSAPs along with the county PSAP transfer callers to the two secondary PSAPs and also to Community Care Ambulance and Northwest Area District EMS which operates a dispatch center for its ambulance operations. Due to contracts which have been established by the primary and secondary PSAPs, it is common for a primary PSAP to have to transfer a caller to a secondary PSAP or EMS dispatch facility for dispatch. The Ashtabula County PSAP does not provide emergency medical dispatch (EMD) or pre-arrival instructions as part of its call processing methodology. However, Community Care does provide when it receives transferred calls Training and Quality Assurance Ashtabula County PSAP provides the 40-hour APCO Basic Telecommunicator Course and in house training on operational policies and procedures. There is no formal quality assurance program currently in place. Citizen or user agency complaints are brought to the attention of the user group for review and resolution Technology This section provides an overview of the key PSAP technology currently in use in each PSAP Computer Aided Dispatch Computer aided dispatch is a critical system that assists call-takers and dispatch personnel in processing, prioritizing, dispatching and controlling calls for service for the respective agencies. Computer aided dispatch systems typically consist of several modules that provide call input, call dispatch, call status maintenance, event notes/narrative, field unit status and tracking and call resolution and disposition. Computer aided dispatch systems also include interfaces that permit software to provide other features and functionality. For the consolidated communications center, the selected CAD system must be capable of accommodating multiple disciplines, agencies, types of service, and provide interfaces to other jurisdictions, local sub-systems (e.g., mapping, mobile data, E9-1-1, fire station alerting, paging,) and state and federal databases including the Law Enforcement Automated Data System (LEADS) and the National Crime Information Center (NCIC). June 2014 Page 9

15 Ashtabula County completed an upgrade in October 2013 of its CAD system, IDNetworks Inc. The current version of software installed is version and was originally installed in Aug Currently this PSAP is the only one operating this CAD system. The recent CAD upgrade also included CAD modules record management system (RMS) used by Ashtabula County Mapping and Geographic Information System The Ashtabula County dispatch centers have Digital Data Technologies, Inc. (DDTI) mapping integrated with their answering positions. Geographic information system data for the answering positions is provided by the County through coordination with the Coordinator Radio Consolidation of a public safety radio dispatch operation is driven by several elements: existing radio systems currently in use, connectivity from an existing dispatch facility to the radio system/transmitter site and existing dispatch console systems, for example. An optimal scenario is when the agencies affected by consolidation use the same type of radio technology and share a common platform, providing seamless operational coverage. This is not totally the case for primary and secondary PSAPs within Ashtabula County. Currently the majority of the agencies are dispatched on very high frequency (VHF) radio channels, with the exception of the Sheriff s office which is using the Ohio Multi Agency Radio Communication System (MARCS), Geneva which is using 800MHz and APD which is using 700MHz. Most law enforcement agencies do their best to promote interoperability by maintaining multiple radio heads in their vehicles. The ACSO PSAP uses Zetron Model 4118/4115 radio consoles which are part of the original installation in the 1990s. Console connectivity is achieved by cabling to the various on-site radio base stations. All of the various law enforcement, fire and EMS agencies have a number of operational channels available for use Telephony The local area exchange carrier is CenturyLink. Ashtabula County calls are selectively routed through CenturyLink s facilities in Mansfield, Ohio. The County PSAP uses KML answering positions, a KML Technology, Inc. product, at each of its three answering positions. The answering positions are approximately fifteen years old and last updated in Logging Recorder The County PSAP has a Cybertech MYRACLE 21 channel logging recorder which is used to record both telephone and radio system conversations Master Clock The County PSAP has a Zetron master clock solution integrated with each and every critical system that is used. June 2014 Page 10

16 3.2.6 Ancillary Duties For the purposes of this report, ancillary duties are defined as those that are outside the core call taking and dispatching duties typically performed in PSAPs. In many smaller PSAPs, assignment of ancillary duties is logical from productivity and financial perspectives. In addition, often the PSAP is the only 24/7 office a municipality may have so managing after hours call outs for various agencies is often assigned to them by default. The identification of these duties is relevant to any consolidation effort because each agency or municipality will need to consider how these tasks will be covered should the PSAP staff move to consolidated facility. Decisions will need to be made regarding each task including whether the service will still be provided, whether it can be assigned to another employee or if new staff must be hired to perform the tasks. The costs associated with new hires will impact the amount of any potential savings resulting from a consolidation effort. The ACSO PSAP staff reported the following tasks as part of their workload: Maintains records for vehicle seizures, plates, parking scofflaws (LEADS/NCIC) Monitors alarms for various municipal offices and/or facilities Answers incoming administrative calls for ACSO The balance of this page is intentionally left blank. June 2014 Page 11

17 3.2.7 Budget Summary The following table summarizes current PSAP costs as reported to Kimball during the data collection phase of the study. ACSO PSAP Budget Summary Category Cost Total Costs Personnel Base Salary $395,924 Benefits $152,963 Overtime $14,000 Total Personnel Costs $562,887 Recurring Costs Network $33,584 Equipment $36,998 CAD $14,000 Radio $16,800 Total Recurring Costs $101,382 Total PSAP Budget $664,269 Table 1 ACSO PSAP Budget Summary The costs associated with support and management provided by sworn personnel are not included Interest in Consolidation The County Commissioners have expressed their need to relocate their Communications Center and Emergency Operations Center (EOC). Initial plans are to build a new facility to accommodate these operations. The Commissioners have initiated this study to seek specific detail, analysis and options for consideration of all or some of the primary and secondary PSAPs working with the County in a consolidated effort. 3.3 Ashtabula Police Department Demographics The City of Ashtabula is located on the southern shore of Lake Erie and in the northern part of Ashtabula County. The population is approximately 20,000 residents. This city provides an active port and harbor on Lake Erie for shipping traffic and maintenance as well as recreation. The major transportation corridors present in this area include I- 90 and Rt. 11 which provides for an interchange with I-90 and continues into the City of Ashtabula. June 2014 Page 12

18 3.3.2 Organizational Structure The City of Ashtabula PSAP although an independent communication center is part of the Ashtabula County call taking system and is provided call-taking equipment from the County with all equipment costs associated with call taking being paid for by the County. The PSAP has all wireline phone calls from within the city limits selectively routed to their calltaker position(s). There are two full time and nine part time civilian telecommunicators Call Volume and Processing The PSAP provides primary dispatch support for Ashtabula PD, Jefferson PD, Andover PD, Roaming Shores PD, Rock Creek PD and animal control and public works for the City of Ashtabula. Calls for Ashtabula FD are transferred to the Saybrook FD PSAP for dispatch. The space which accommodates dispatch operations has two positions and is already tight. Expansion room is not available. This PSAP operates 24/7 with one telecommunicator on duty per shift except from 11:00 a.m. to 3:00 a.m., unless situations or events dictate two telecommunicator positions are needed. Like the Ashtabula County Sheriff PSAP, the Ashtabula PD PSAP is operating using the single stage dispatching model. The same person who answers the telephone call for service enters the call into the CAD system, dispatches the appropriate response units, updates responder status in CAD, and closes out the event with disposition information at the conclusion of the call. Since this PSAP dispatches law enforcement agencies only, calls that require a fire response are transferred over a dedicated line, with automatic number identification/automatic location identification (ANI/ALI), to the Saybrook FD PSAP. Calls that require an EMS response are transferred, voice only, to the Community Care EMS Agency over an undedicated phone circuit. Wireless calls are routed to the PSAPs based on best wireless provider tower sector coverage of PSAP districts. There is significant transfer of wireless calls between PSAPs in the northern part as the City PD PSAPs encompass small geographic areas with respect to the county as a whole. This PSAP reported that it is Phase I compliant and, in most cases, can receive Phase II information by performing a rebid on the telephony equipment. The PSAP received 12, calls in Using the same 4:1 ratio of administrative or 7/10 digit calls to calls, the PSAP handled an additional 51,268 calls on 7/10 digit lines. The PSAP s total combined call volume is estimated at 64,085 calls annually. This PSAP does not provide EMD. However, Community Care EMS does provide EMD services Training and Quality Assurance The County PSAP provides the Ashtabula PD PSAP telecommunicators with the 40-hour APCO Basic Telecommunicator Course and in house training on operational policies and procedures. There is no formal quality assurance program currently in place. June 2014 Page 13

19 3.3.5 Technology This section provides an overview of technology currently in use in the PSAP Computer Aided Dispatch Ashtabula PD installed TAC Comp. Inc. CAD in The current version of software installed is version V8.56 and was last updated in May The recent CAD upgrade also included an RMS in April 2013 and mobile data in July Radio The Ashtabula PD PSAP uses Motorola radio consoles which were installed in July Console connectivity to the various radio base stations is achieved through cabling at the PSAP site and by a radio frequency (RF) wireless link to remote sites. The Ashtabula PD PSAP communicates with the Ashtabula PD on a 700MHz radio system which includes two sites, 155MHz for interoperability with other local law enforcement agencies and an 800MHz MARCS for the other local law enforcement agencies for whom they dispatch Telephony Ashtabula County PSAP provides two KML answering positions and DTTI mapping which supports the call-taker software. These positions are integrated by dedicated phone circuits with the CPE equipment located in Mansfield, Ohio. All costs for this equipment are absorbed by the County Logging Recorder The Ashtabula PD PSAP has a Racal MIRRA 16 channel logging recorder in place. The logging recorder is used to record both telephone and radio system conversations. The system was installed in Master Clock No master clock is present in this PSAP Ancillary Duties Ashtabula PD PSAP staff reported the following ancillary duties: Receives bonds for prisoner releases Assists Clerk of Courts Take waivers for traffic violations Perform Jail Matron duties Perform clerical duties Monitor alarms for various municipal offices/facilities Monitor facility generator panel Notify railroads of problems Monitor jail inmates and/or intoxication holding Monitor inmates on 10-minute checks or suicide watch Maintain records for vehicle seizures, plates, parking scofflaws (LEADS/NCIC) Staff walk-in complaint window Handle Ashtabula PD departmental administrative calls when necessary June 2014 Page 14

20 Notify Victims Assistance as needed Budget Summary The following table summarizes the Ashtabula PD PSAP budget as reported to Kimball. Ashtabula PD PSAP Budget Summary Category Cost Total Costs Personnel Total Personnel Costs $199,000 Recurring Costs Network Equipment CAD $19,600 $19,600 Radio N/R N/R N/R Total Recurring Costs $19,600 Total PSAP Budget $218,600 Table 2 Ashtabula PD PSAP Budget Summary The costs associated with support and management provided by sworn personnel are not included Interest in Consolidation Our discussion with the Chief of Police on consolidation identified several concerns and considerations. Foremost the Chief expressed his concern that the personnel he requires now to do the ancillary duties in support of the police department and jail also provide the call-taker/dispatcher services. Personnel would need to be retained whether there was a PSAP or not. His payroll for personnel would need to be retained, as well as anticipated contributions for personnel support in a consolidated communication center which would put significant financial burden on the City of Ashtabula s municipal budget which is already strained. The Chief indicated that he would most favorably consider a county wide call-taking center with the remote PSAPs retained for continued dispatch services for which they are providing. The only way he would support a county wide consolidated communication center would be if a governing board would be appointed which consisted of representatives agreed upon and were given the authority to provide direction and decisions in the management and operation of the Center. The Chief also indicated that if the County Jail would provide services and support which would enable his police department to eliminate the use of holding cells, this would provide consideration of the City to support a consolidated center. This support would be considered if a governing board as described in previous paragraph was appointed. June 2014 Page 15

21 3.4 Ashtabula Township Fire Department Demographics The Township of Ashtabula is located in the northern part of Ashtabula County and surrounds the City of Ashtabula. The population is approximately 20,941 residents in the Township. The major transportation corridor present in this area includes Interstate 90 and Route Organizational Structure As part of the Fire Department, this secondary PSAP is managed and ultimately overseen by the Fire Chief. The PSAP was staffed by three full time and one and a third (1.33) part time telecommunicators until January 1, The PSAP provides primary dispatch support for the Ashtabula Township FD/EMS. Until January 1, 2014 they provided primary dispatch services for Kingsville FD/EMS, North Kingsville FD/EMS, Monroe FD/EMS, Andover FD and Sheffield FD/EMS. These departments have made arrangements to obtain dispatch services from one of the five other existing primary or secondary PSAPs. Andover EMS has obtained dispatch services from Community Care EMS Call Volume and Call Processing This PSAP operates 24/7 with one telecommunicator on duty per shift. If situations or events dictate, additional telecommunicators can assist; however, there is only one answering position. Like the Ashtabula County Sheriff PSAP, the Ashtabula Township FD PSAP is operating using the single stage dispatching model. The same person who answers the telephone call for service enters the call into the CAD system, dispatches the appropriate response units, updates responder status in CAD, and closes out the event with disposition information at the conclusion of the call. County call statistics indicate that this PSAP received 1,450 transferred calls in Using the same 4:1 ratio of administrative or 7/10 digit calls to calls, the PSAP handles an additional 5,800 administrative and 7/10 digit calls. The PSAP s total combined call volume is estimated at 7,250 calls annually. The PSAP does not provide EMD. Wireless calls are routed to the PSAPs based on best wireless provider tower sector coverage of PSAP districts. There is significant transfer of wireless calls between PSAPs in the northern part as the City PD PSAPs encompass small geographic areas with respect to the county as a whole. This PSAP reports that it is Phase I compliant and, in most cases, can receive Phase II information by performing a rebid on the phone system information Training and Quality Assurance The County PSAP provides the Township PSAP telecommunicators with the 40-hour APCO Basic Telecommunicator Course and in house on operational policies and procedures. There is no formal quality assurance program currently in place. June 2014 Page 16

22 3.4.5 Technology Computer Aided Dispatch The Township PSAP does not use a CAD system; however they are using FIREHOUSE software 3 for records management Radio The Township PSAP uses a Zetron radio console and paging alerting system which was installed in The PSAP communicates with the fire and EMS departments for whom they dispatch on Ashtabula County VHF frequencies. The following table summarizes the County VHF frequencies Telephony County VHF Channel Summary Channel Frequency Channel Channel Channel Channel Channel Channel Table 3 County VHF Channel Summary Ashtabula County provides one call-taker position and mapping which supports the call-taker software. These positions are integrated by dedicated phone circuits with the CPE equipment located in Mansfield, Ohio. All costs for this equipment are absorbed by the County. The Ashtabula Township FD PSAP although an independent communication center is part of the Ashtabula County call taking system and is provided call-taking equipment from the County with all costs associated with call taking being paid for by the County. The secondary PSAP has all phone calls from the Ashtabula PD PSAP, Ashtabula County PSAP, Conneaut PD PSAP and Geneva PD PSAP transfer calls (with ANI/ALI) to the call-taker position Logging Recorder The Township PSAP uses a Digital Dynamic logging recorder which records both telephone and radio system conversations Master Clock The Ashtabula Township Fire Department PSAP does not use a master clock. 3 A Xerox Government Services, LLC product. June 2014 Page 17

23 3.4.6 Ancillary Duties Ashtabula Township Fire Department PSAP staff reported that they contact department personnel as needed for incidents or to fill shifts Budget Summary The following table summarizes the budget for the Township budget: Ashtabula Township Fire Department PSAP Budget Summary Category Cost Total Costs Personnel Total Personnel Costs $225,000 Recurring Costs Network $1,000 Office Expenses $3,500 Radio $500 Total Recurring Costs $5,000 Total PSAP Budget $230,000 Table 4 Ashtabula Township Fire Department Budget Summary The costs associated with support and management provided by sworn personnel are not included Interest in Consolidation Assistant Chief Steele discussed contracting costs for the departments for which they dispatch. The municipalities for whom they dispatch for cannot afford to pay increased cost and the Township Fire Department is unable to continue to provide dispatch personnel and services at a financial loss. Currently all personnel are contracted as part-time employees including those that dispatch. Turnover is high thus creating a constant investment of time in training and scheduling of qualified personnel. Assistant Chief Steele indicated that departments dispatched by Ashtabula Township, at the time of this interview, had been advised that the Township FD does not intend to continue these services after January 1, Therefore, each will need to locate a new service provided. 3.5 Conneaut Police Department Demographics The City of Conneaut is located on the southern shore of Lake Erie and in the northern part of Ashtabula County. The population is approximately 12,500 residents. This city provides an active port and harbor on Lake Erie for shipping traffic and maintenance, as well as recreational use. June 2014 Page 18

24 Conneaut is located in the northeast part of the County bordering Pennsylvania. The major transportation corridor present in this area includes Interstate Organizational Structure The PSAP is organizationally part of the Police Department which provides overall management. The PSAP is staffed by four full time and two part time civilian telecommunicators. The PSAP provides primary dispatch support for Conneaut PD, Conneaut FD/EMS, North Kingsville FD/EMS and North Kingsville PD Call Volume and Processing This PSAP operates 24/7 with one telecommunicator on duty per shift. If situations or events dictate, a second telecommunicator position is staffed. Like the ACSO PSAP, the Conneaut PD PSAP is operating using the single stage dispatching model. The same person who answers the telephone call for service enters the call into the CAD system, dispatches the appropriate response units, updates responder status in CAD, and closes out the event with disposition information at the conclusion of the call. Wireless calls are routed to the PSAPs based on best wireless provider tower sector coverage of PSAP districts. There is significant transfer of wireless calls between PSAPs in the northern part as the City PD PSAPs encompass small geographic areas with respect to the county as a whole. This PSAP reported that it is Phase I compliant and, in most cases, is able to receive Phase II information by performing a rebid on the phone answering positions. The County s statistics indicate that the Conneaut PSAP received 5, calls in Kimball used the same ratio, 4:1, of administrative calls to calls to estimate the PSAP handles approximately an additional 21,912 administrative and 7/10 digit calls annually. The PSAP s total combined call volume is estimated at 27,390 calls. The PSAP does not provide EMD Training and Quality Assurance The County PSAP provides the Conneaut PD PSAP telecommunicators with the 40-hour APCO Basic Telecommunicator Course and in house training which on operational policies and procedures. There is no formal quality assurance program currently in place Technology This section provides an overview of technology currently in use Computer Aided Dispatch Conneaut PD installed TAC Comp. Inc CAD in The current version of software installed is version V8.55 and was last updated in September Computer aided dispatch is supported by the County mapping (DTTI) and supports mobile data and RMS to the Conneaut PD Radio The Conneaut PD PSAP uses a Zetron model 4010R radio consoles which was installed in Conneaut PSAP is currently looking at GAI-Technologies for new radio consoles to replace the current failing system. They also reported that June 2014 Page 19

25 their paging system no longer works. The public safety radios that are used are located at the PSAP with the antennas located on a tower outside of the PSAPs. There is an RF link from this tower to the city water tower located at the Ohio Department of Transportation garage south of the city on Rt. 7 to access and communicate with a newly installed repeater for PD use. Console connectivity to the various radio base stations is completed with cabling within the PSAP facility. Conneaut PD PSAP communicates with the agencies for which they dispatch on the VHF frequency range. Conneaut does not have interoperability with any other agencies other than these agencies. Ashtabula PD changes to Conneaut PD frequency when interoperability is needed between departments Telephony Ashtabula County PSAP provides two call-taker positions and mapping which support s the call-taker software. These positions are integrated by dedicated phone circuits with the CPE equipment located in Mansfield, Ohio. All costs for this equipment are absorbed by the County. Although a part of the Conneaut Police Department, the PSAP is part of the Ashtabula County call taking system and uses two County-provided and paid for call-taking positions. The PSAP has all wireline phone calls from within the city limits selectively routed to their call-taker position(s) Logging Recorder The Conneaut PD PSAP has a Dynamic Instruments, model type, DI Voice Vault II channel logging recorder in place. The logging recorder is used to record both telephone and radio system conversations. The system was installed in Master Clock Conneaut PD PSAP does not use a master clock Ancillary Duties Conneaut Police Department PSAP staff reported the following ancillary duties: Receive bonds for prisoner releases Monitor jail inmates and/or intoxication holding cells Complete female prisoner searches Monitor inmates on 10-minute checks or suicide watch Maintain records for vehicle seizures, plates, parking scofflaws (LEADS/NCIC) Staff Walk-in complaint window Handle departmental administrative calls when necessary June 2014 Page 20

26 3.5.7 Budget Summary The following table summarizes the PSAP budget as reported to Kimball. Conneaut Police Department PSAP Budget Summary Category Cost Total Costs Personnel Total Personnel Costs $260,000 Recurring Costs Network $8,400 CAD $10,000 Total Recurring Costs $18,400 Total PSAP Budget $278,400 Table 5 Conneaut Police Department PSAP Budget Summary Interest in Consolidation Much like the Ashtabula PD PSAP, the Chief expressed his concern regarding how holding cell monitoring and other ancillary duties would be performed should a county-wide consolidation take place. Currently, the PSAP staff is responsible for these duties, as well as the personnel he requires now to monitor the holding cells, do the ancillary duties in support of the police department and jail and provide the call-taker/dispatcher services. These personnel would need to be retained whether there was a PSAP or not. Even if a consolidated communication center was implemented he would need to retain his payroll for personnel who would be required to do the holding cell monitoring and ancillary duties. Contributions for dispatch personnel support in a consolidated communication center most likely could not be considered by the city officials as department budgets for personnel and services has continued to decline each year. The Chief indicated that in his opinion a county wide call-taking center with the remote PSAPs retained for continued dispatch services for which they are providing would be the most practical and acceptable solution. A county wide consolidated communication center would need to be managed by an independent board consisting of representatives from the public safety agencies, PSAPs and municipal officials as an example. This board should have the authority to provide management and operation of the Center. The Chief also indicated that if the County Jail would provide services and support which would enable his police department to eliminate the use of holding cells, this would provide consideration of the City to support a consolidated center. However, without that happening he would want to retain dispatch operations as those personnel would need to be retained for monitoring the holding cells and doing the ancillary duties. June 2014 Page 21

27 3.6 Geneva Police Department Demographics The City of Geneva is located in the northern part of Ashtabula County. The population is approximately 6,000 residents in the City of Geneva and 3,500 residents in Geneva Township. Geneva is located in the northwest part of the County. The major transportation corridor present in this area includes Interstate Organizational Structure As part of the Police Department, this PSAP is ultimately overseen by the Police Chief. The PSAP is staffed by civilians including one part time and four full time telecommunicators. The City of Geneva PSAP, although an independent communication center, is part of the Ashtabula Co call taking system and is provided call-taking equipment from the County with costs associated with call taking equipment being paid for by the County. The PSAP has all wireline phone calls from within the city limits and Geneva Township selectively routed to their call-taker position(s). The PSAP provides primary dispatch support for Geneva PD, Geneva FD, Harpersfield FD, Northwest Ambulance District EMS, County Dog Warden, City of Geneva and Harpersfield Township road departments, City Water Department and utility companies. They also transfer many calls to the Saybrook FD PSAP Call Volume and Processing This PSAP operates 24/7 with one telecommunicator on duty per shift. If events or situations dictate, a second telecommunicator position will be added. The Chief indicated that there is room to expand the communications area within their current facility. The configuration of the current communication area provided for balance between positions and duties within the work area. Like the Ashtabula County Sheriff PSAP, the Geneva PD PSAP is operating using the single stage dispatching model. The same person who answers the telephone call for service enters the call into the CAD system, dispatches the appropriate response units, updates responder status in CAD, and closes out the event with disposition information at the conclusion of the call. This PSAP is answering selective routed calls from the City of Geneva and Geneva Township. The calls outside of these municipalities are answered by the Ashtabula County PSAP. If the call requires dispatch of Geneva or Harpersfield FD, the County PSAP transfers the caller (with ANI/ALI) to the Geneva PSAP. Requests for EMS that may be received by the Geneva PSAP are transferred (voice only) to the Northwest Ambulance District. The Geneva PSAP handled 3, calls in Kimball used the same 4:1 ratio of administrative to calls to estimate the number of administrative and 7/10 digit calls also handled by the PSAP staff. The number of additional calls is estimated at 15,852 calls. The estimated total combined call volume 19,815 calls. The PSAP does not provide EMD directly. Wireless calls are routed to the PSAPs based on best wireless provider tower sector coverage of PSAP districts. There is significant transfer of wireless calls between PSAPs in the northern part as the City PD PSAPs encompass small June 2014 Page 22

28 geographic areas with respect to the county as a whole. This PSAP reported that it is Phase I compliant and in most cases by doing a rebid through the telephone system will provide Phase II caller information Training and Quality Assurance The County PSAP provides the Geneva PD PSAP telecommunicators with the 40-hour APCO Basic Telecommunicator Course and in house training on operational policy and procedures. There is no formal quality assurance program in place at this time Technology This section will provide an overview of PSAP technology currently in use Computer Aided Dispatch Geneva PD installed Data Force 4 CAD in the 1990s. This CAD program was developed by Chief Dudik and has been supported and maintained since implementation. This CAD application has reached end of life. The Chief indicated that in conjunction with this report they will be considering replacing the Data Force CAD/RMS application with a new commercial application. Currently this is the only PSAP in this assessment operating this CAD system Radio The Geneva PD PSAP uses a Motorola/Moducom radio console and paging/alerting system. This was acquired in 2003 and was last updated in Console connectivity to the various radio base stations is a combination of cabling to the radios at the PSAP or by RF wireless link to the remote site. Geneva PD PSAP communicates with the Geneva PD on MHz. The PSAP has access to the Ashtabula County FD radio frequencies , , , MHz and uses these frequencies for dispatch of the Geneva and Harpersfield Fire Departments. Emergency medical service is communicated with on MHz. The Geneva PD PSAP also has radio system access to other channels in the 150MHz range for interoperability with other local law enforcement agencies and an 800MHz MARC radio system for coordination with the Ashtabula Co. Sheriff s department Telephony Ashtabula County PSAP provides two call-taker positions and mapping which supports the call-taker software. These positions are integrated by dedicated phone circuits with the CPE equipment located in Mansfield, Ohio. All costs for this equipment are absorbed by the County Logging Recorder The Geneva PD PSAP has just purchased and installed a NICE Recording express logging recorder that is capable of recording up to 25 channels. This recorder was placed into service at the end of Oct The logging recorder is used to record both telephone and radio system conversations Master Clock The Geneva PD PSAP does not use a master clock. June 2014 Page 23

29 3.6.6 Ancillary Duties The telecommunicators for this PSAP are also responsible for: Handle clerical/secretary duties for Police Chief and Captain and the City Solicitor Set up equipment for video arraignment Maintain records for seizure of vehicles, plates, booting of vehicles for the Western County Court (WCC) Staff Clerk of Courts for WCC Take waivers for traffic violations for WCC jurisdiction Take bonds for release of prisoners for WCC jurisdiction Monitor inmates in jail/holding cells including intoxicated inmates, 10 minute checks and suicide watch Assist Jail Matron, change out, pat down female inmates/arrestees Assist officers with female victim(s), taking pictures of bruises, etc. Take after hour calls for other city departments Liaise with CSX and Norfolk Southern Railroads for crossing gate problems or rail problems Handle walk in complaints Monitor alarms for city offices and facilities Monitor the automatic external defibrillator (AED) alarm in Recreation Center Handle commissary money for inmates Screen visitors for inmates Assist area church council with food/gas cards Handle all Fire Department administrative calls when fire department is out on calls, training or inspections Maintain files for all court journal entries Maintain files for all other court jurisdictions temporary protection orders if parties work or go to school in our jurisdiction Handle payment of city parking tickets and fingerprinting services Budget Summary The following table summarizes the PSAP budget as reported to Kimball. Geneva Police Department PSAP Budget Summary Category Cost Total Costs Personnel Total Personnel Costs $197,140 Recurring Costs Network CAD N/R N/R Total Recurring Costs $0 Total PSAP Budget $197,140 Table 6 Geneva Police Department PSAP Budget Summary June 2014 Page 24

30 3.6.8 Interest in Consolidation Much like the Ashtabula and Conneaut PD Chiefs, the Chief expressed his concern regarding how holding cell monitoring and other ancillary duties would be performed should a county-wide consolidation take place. Currently, the PSAP staff is responsible for these duties, as well as the personnel he requires now to monitor the holding cells, do the ancillary duties in support of the police department and jail and provide the call-taker/dispatcher services. These personnel would need to be retained whether there was a PSAP or not. Even if a consolidated communication center was implemented he would need to retain his payroll for personnel who would be required to do the holding cell monitoring and ancillary duties. Contributions for dispatch personnel support in a consolidated communication center most likely could not be considered by the city officials as department budgets for personnel and services has continued to decline each year. The Chief did indicate that if the county would establish new policies which provided for the PD to discontinue use of their holding cells there would be consideration for discussion on a consolidated center but would have to have an independent board providing direction and control. The Chief indicated that in his opinion a county wide call-taking center with the remote PSAPs retained for continued dispatch services for which they are providing would be the most practical and acceptable solution under current conditions. The Chief favored the implementation of a county wide CAD, RMS and mobile data terminal (MDT) system in either scenario he described. A county wide radio network ensuring interoperability for all local public safety agencies, as well as state and federal would also be supported. 3.7 Saybrook Fire Department Demographics The Township of Saybrook is located in the northern part of Ashtabula County. The population is approximately 6,700 residents in the Township. The major transportation corridor present in this area includes Interstate Organizational Structure As part of the Fire Department, this secondary PSAP is managed and ultimately overseen by the Fire Chief. The PSAP is staffed by fourteen part time telecommunicators. There are fourteen part time telecommunicators who also take care of pedestrian traffic at the walk up window and schedule fill-in firefighters for open shifts for the Saybrook FD. The PSAP provides primary dispatch support for Saybrook FD, Ashtabula City FD, Austinburg FD, Geneva-on-the-Lake FD, Sheffield FD and Plymouth FD Call Volume and Processing This PSAP operates 24/7 with one telecommunicator on duty per shift. If situations or events dictate, additional telecommunicators can assist; however, there is only one answering position. Like the Ashtabula County Sheriff PSAP, the Saybrook FD PSAP is operating using the single stage dispatching model. The same person who answers the telephone call for service enters the call into the CAD system, dispatches the appropriate response units, updates responder status in CAD and closes out the event with disposition information at the conclusion of the call. June 2014 Page 25

31 This PSAP has the primary responsibility for dispatching public safety agencies which include Saybrook FD, Ashtabula City FD, Austinburg FD, Geneva-on- the-lake FD, Plymouth FD and Sheffield FD. Saybrook Fire estimates approximately 4,800 transferred calls a year are handled by their PSAP. In addition, Kimball estimated the number of administrative calls handled, at a 4:1 ratio, to be 19,200. The combined call volume is estimated to be approximately 24,000. The Saybrook FD PSAP does not provide EMD. Wireless calls are routed to the PSAPs based on best wireless provider tower sector coverage of PSAP districts. There is significant transfer of wireless calls between PSAPs in the northern part as the City PD PSAPs encompass small geographic areas with respect to the county as a whole. This PSAP reported that it is Phase I compliant and in most cases by doing a rebid on a wireless call will provide Phase II caller information Training and Quality Assurance The County PSAP provides the Saybrook FD secondary PSAP telecommunicators with the 40-hour APCO Basic Telecommunicator Course and in house on operational policies and procedures. There is no formal quality assurance program in place at this time Technology This section summarizes the technology currently in use at the PSAP Computer Aided Dispatch The Saybrook Fire PSAP does not utilize a CAD system Radio The Saybrook FD PSAP does not use a radio console; however, they are currently looking at Zetron radio console equipment. They use IamResponding for their paging/alerting system. This is a commercial website based application which was contracted by Saybrook FD PSAP in Saybrook FD PSAP communicates with the fire departments they dispatch on Ashtabula Co. Fire Frequency 1. They also have the capability to communicate with EMS and EMA on the VHF spectrum Telephony Ashtabula County PSAP provides two call-taker positions and mapping which supports the call-taker software. These positions are integrated by dedicated phone circuits with the CPE equipment located in Mansfield, Ohio. All costs for this equipment are absorbed by the County Logging Recorder The Saybrook FD PSAP has a Dynamic Instruments, logging recorder in place, however they are in the process of replacing that logger with a new Dynamic Instruments DI 2, 16 channel logging recorder. They are currently planning to record both telephone and radio system conversations. June 2014 Page 26

32 Master Clock The Saybrook Fire PSAP does not use a master clock. The balance of this page is intentionally left blank. June 2014 Page 27

33 3.7.5 Ancillary Duties Saybrook Fire Department PSAP staff reported the following ancillary duties: Staff walk-up window Call in or notify departmental personnel as needed Notify Victims Assistance staff Budget Summary Saybrook Fire Department was not able to provide a breakdown of the PSAP s costs. However, they did report that the total annual cost was estimated to be $125, Interest in Consolidation The Chief indicated that in his opinion a county wide call-taking center with the remote PSAPs be retained for continued dispatch services for which they are providing would be the most practical and acceptable solution under current conditions. The Chief favored the implementation of a county wide CAD, RMS and MDT system, as well as a county wide radio network. As with the other concerns expressed by the PSAPs, the Chief indicated his support for an independent board which would have the responsibility of control and management for the county system. 3.8 Non Public Safety Agencies Perry Nuclear Power Plant Perry Nuclear Power Plant 4 is located in Lake County within the town of Perry. Lake County is located contiguous to Ashtabula County to the west. Part of Ashtabula County is identified as part of the emergency planning radius for the power plant. The planning radius dictates emergency actions that need to be taken, including evacuation, should a site emergency be declared at the power plant. In addition, Ashtabula County provides significant support to Lake County should a site emergency occur at the power plant. Ashtabula County EMA has a direct voice line telephone to communicate with Lake County and the Perry Power Plant for the purpose of facilitating emergency communications during an event at the power plant or an emergency which would require activation of emergency operations plan functions as outlined in the Ashtabula County Emergency Operations Plan. Due to the significant impact a site emergency may have directly or indirectly on Ashtabula County, it is imperative that the county emergency operations center be co-located with the county s communication center regardless of other PSAPs which may be identified as part of the 9-1-1/dispatch network for the county. Ashtabula EMA uses a commercial application called CodeRED, an Emergency Communications Network (ECN) product, which is an emergency notification system that functions in what is referred to as a reverse system. This application is able to identify contacts in a geographical area, list of special populations or groups and provide automated notification of emergency information. Ashtabula County EMA also is in the process of implementing a commercial incident management 4 Owned by First Energy Nuclear Operating Corporation June 2014 Page 28

34 solution which provides incident tracking, action event log and resource management as well as other support functions in support of total incident management School Districts Kimball contacted the Superintendent of Superintendents of School Districts for input in regards to a consolidated communication center. Although a meeting was initially setup to meet with the Director, as well as School District Superintendents, weather cancelled that meeting. A follow up phone conversation with the Superintendent of Superintendents was recognized as an effective way to obtain this information without the need of a meeting. Currently all of the school districts in the County use buses that are equipped with two-way radios which they use to communicate with their transportation dispatchers. The communication frequencies should be integrated into the Ashtabula County EOC as this transportation system is used for not only transportation of students to and from school, but also for transportation needs as identified in the County emergency operations plan (EOP). Kimball believes that integration of the school bus transportations frequencies into a consolidated communication center should be considered as plans are further developed. State of Ohio House Bill 59 authorized the Ohio School Facilities Commission to administer the School Security Grant Program 5. This program is designed to facilitate communications with first responders in emergencies and provides the opportunity for eligible schools to apply for funding which would pay for one MARCS radio per eligible school building. In lieu of using the funding for a MARCS radio, schools can use funding for radio systems which are compatible with the local law enforcement agencies Ashtabula County Engineer Kimball met with the County Engineer to obtain his input into a consolidated emergency communications concept. The Engineer indicated that the county vehicles have two-way radio communication in their vehicles. The County Engineer s Department is identified in the EMA EOP as a resource for response and recovery in the event of an emergency or disaster in Ashtabula County. While the Engineer believed that access to the EMA EOC is important during times of emergency situations, he thought that cell phone access to was sufficient for everyday activity. Kimball recommends that the emergency needs of the County Engineer s staff be incorporated into further plans for a consolidated communications center. 3.9 Stakeholder Input An important component of any study of this kind is gathering input from key stakeholders; those that will be impacted by any change in the existing emergency communication system. This input identifies stakeholder concerns, issues and suggestions related to a potential consolidation of services. The information gathered is used to paint a clear political picture, identify roadblocks and assist in determining the best consolidation model for the county as a whole. Kimball conducted six focus group meetings with municipal and public safety officials from Ashtabula County. Attendance at the various group meetings varied, but was generally good. Participation was high among the attendees which allowed Kimball to collect good information. The groups Kimball met with included: 1. Fire Chiefs Association 2. Crime Clinic 5 and June 2014 Page 29

35 3. Association of Town Trustees 4. Village Representatives 5. City Managers 6. Private EMS Agencies This section provides an overview of the input collected. Part of the process during the meetings was to ensure participants that their contributions would not be attributed to them in this report, but rather presented in an anonymous manner. Kimball makes this promise to facilitate open and honest communications during the meetings. While most of the participants were most forthcoming in their input, with or without anonymity, this section does not attribute any input to a specific individual. This section contains stakeholder feedback that represents the opinions of the stakeholders. This information has not been factually verified by Kimball. The opinions and perceptions of stakeholders, whether 100 percent factually accurate or not, must be considered in the consolidation process Stakeholder Concerns Funding. How a consolidated PSAP would be funded was a recurrent theme during the meetings. Some departments do not currently pay for dispatch services and could not afford to pay in the future. An equitable cost distribution model would need to be established. Criticism was leveled at the County for changing the terms of financial agreements in the past when it suited the County to do so. Governance. Another recurring theme during the meetings was a strong desire for a countywide PSAP to be governed by an independent board rather than an advisory board. Specifically, stakeholders cited the existing Advisory Board as an example to support this desire. A number of stakeholders expressed frustration over a lack of true input currently and stated that the Sheriff and County Commissioner make all of the decisions. A group of law enforcement decision makers expressed the belief that the State of Ohio codes require the Sheriff of each county to be in charge of a PSAP. The reason stated for this is the access to and use of law enforcement crimes computer databases such as LEADS and NCIC. Based on this understanding, members of this group felt the County Sheriff would be required to control a consolidated PSAP. See Section for further discussion on this point. Quality of Service. Concerns were expressed regarding the quality of service currently provided. Stakeholders expressed that the quality of service would need to improve for consolidation to be successful. The majority of these comments were directed to the County PSAP, but not all. Specific concerns included: Dispatchers basing the level of response on their own interpretation of the seriousness of call or the veracity of the caller. In essence, dispatchers are reportedly upgrading or downgrading calls for service based on their subjective impression of the situation and the honesty of the caller rather than policy and procedure. In this type of study, Kimball does not typically comment on service level complaints unless specifically requested to do so, however, this concern is important enough that each PSAP manager needs to ensure this behavior is not occurring in his or her PSAP. Not only does this type of behavior endangers citizens and responders, but leaves the municipality open to substantial liability should an error be made. Response to calls for service must be consistent and based on set policy and procedure. Again, Kimball did not investigate the accuracy of this concern. Inconsistency in dispatchers knowledge of police, fire and EMS communications needs. Police field personnel are a higher priority than fire or EMS. Disrespect displayed towards field personnel by PSAP personnel Lack of accountability for PSAP staff when errors are made Staffing Levels. Staffing levels within the ACSO PSAP are insufficient. June 2014 Page 30

36 Lack of consistency in the quality of service provided by different dispatchers. Consolidation cannot take place until issues with available bed space at the County Jail is resolved. A lack of bed space at the jail means the local police departments must continue to house prisoners. Since the cells are monitored by the on-duty PSAP staff, consolidation cannot occur while 24/7 staff is still needed to perform this task. High turnover rate among PSAP employees impacts the level of service provided. Concern that funds in the account are being used for other than the intended purpose Stakeholder Comments and Suggestions The following comments or suggestions were received during the stakeholder meetings: Establishing a countywide call center and leaving dispatch as-is would be more acceptable to many stakeholders Stakeholders, particularly law enforcement, support moving to common technology such as CAD, mobile data and RMS to allow for data sharing and monitoring of activities countywide in real time. Elected officials should be educated in how the system functions to facilitate decision making in regards to consolidation Stakeholder Summary While all stakeholder input is important, two key issues need to be recognized and addressed in some manner before countywide consolidation is likely to be achieved. First, stakeholders made it very clear to the Kimball representatives that governance must be in the form of an independent board form before they could support consolidation. In the stakeholders opinions, concerns and issues that are brought to the attention of the existing Advisory Board for action and resolution are mostly met with resistance or disregard by the current management of the county PSAP and ultimately the County Commissioners. Typically, this concern is debated and, hopefully, resolved after the feasibility study phase. Second, the three city PD PSAPs require a resolution to the PSAP responsibility of monitoring holding cells that they currently have in their police departments. The responsibility to monitor and address the needs of those incarcerated in the holding cells requires staff 24/7. Currently the telecommunicators provide not only duties in the communication center, but also provide the duties required for the holding cells, as well as other administrative duties. Staff will still be required in the police departments to monitor the cells should dispatch be consolidated. Any cost saving would either be reduced or eliminated by having to keep staff in place to monitor cells and contribute to the operation of a countywide PSAP that includes dispatch. A number of the stakeholders stated that until the shortage of beds at the county jail is resolved they could not fully support a full consolidation of and dispatch functions into a single facility Current Environment Summary This section summarizes the current emergency communications environment within the four primary and two secondary PSAPs within Ashtabula County Total Call Volume The incoming call volume for any PSAP, particularly those small in size, is a combination of calls, 7/10 digit calls that may require a field response and administrative calls. Administrative calls are those that are received by the PSAP but are June 2014 Page 31

37 typically outside the realm of emergency communications such as calls for administrative police or fire staff and calls for other municipal departments. Although the County was able to provide statistics regarding the number of calls received by each PSAP, the number of administrative calls had to be estimated. Using a standard rule-of-thumb for estimating these types of calls, the number of calls represents only approximately 18 percent of the total combined call volume. The following table provides a summary of the combined call volume currently being handled by each PSAP Estimated Call Volume Summary PSAPS Administrative* Total Call Volume Ashtabula County Sheriff s Office 25, , ,620 Ashtabula Police Department 12,817 51,268 64,085 Ashtabula Twp Fire Department Secondary 5,800 5,800 Conneaut Police Department 5,478 21,912 27,390 Geneva Police Department 3,963 15,852 19,815 Saybrook Fire Department** Secondary 19,200 19,200 Total 47, , ,910 * Administrative calls are defined as all 7/10 digit calls (alarms) as well as calls not related to emergency communications. ** Call volume is expected to increase since taking on Sheffield FD. Table Estimated Call Volume Summary The breakdown of the phone calls handled by each PSAP is of particular importance as it has a substantial impact on the staffing level estimates for a consolidated PSAP. Typically, prior to a consolidation effort, the participating agencies will determine which administrative calls will continue to be routed by a new PSAP and which will continue to be answered from within the municipality. The more calls routed to a consolidated PSAP, the more staff that will be needed to staff the PSAP and the higher the budget. June 2014 Page 32

38 Technology Summary The following table summarizes the technology currently in place in each of the PSAPs. Current PSAP Technology Summary PSAP CPE CAD Radio Consoles Logging Recorder Master Clock Notes ACSO APD Ashtabula TWP FD Conneaut PD Geneva PD KML KML IDNetwor ks TAC Comp. Zetron 4118/4115 Cybertech Zetron Radio consoles installed in 1990s KML is ~15 years old. Last updated in Motorola Racal Mirra None Radio consoles installed in 2013 KML None Zetron Digital Dynamic None Radio consoles installed in 2008 KML KML TAC Comp. Data Force Zetron 4010R Dynamic Instruments None Motorola NICE express None CAD installed in 1998, Radio consoles need replacing CAD has reached end-of-life, Radio consoles installed in 2003 Saybrook FD KML None None Dynamic Instruments None Table 8 Current PSAP Technology Summary As is typical in many communities with multiple PSAPs, the equipment used varies in age, vendor and functional abilities. The ability to re-use this equipment will depend on the specific goals each agency has in mind. For example, when multiple PSAPs consolidate, a single CAD system is chosen. The participants will need to determine if any of the CAD systems currently in use has the required functionality, interface capabilities and expandability to be used in a consolidated PSAP. If not, then procurement of an appropriate CAD may be necessary. This is true of all of the key PSAP systems Customer Premise Equipment/Next Generation Readiness The County currently provides call answering equipment (KML) to all of the PSAPs in the County. The equipment was installed approximately 15 years ago and last updated in While this equipment seems sufficient for the PSAPs currently, NG9-1-1 is rapidly becoming a reality. This coming technology will enable callers to communicate using different forms of data such as texting, photos and video. These new data types will not only be able to be received by the PSAP, but potentially forwarded to field personnel as well. In addition, the ability to text will allow the hearing and voice impaired community to communication directly with without the use of a Telecommunication Device for the Deaf/ Teletype (TDD/TTY) or relay service. To accomplish this, equipment must now be IP-based and, to NENA standards, be i3 capable. Given that the existing CPE is well past its life expectancy, it is unlikely that the equipment can be updated to be NG9-1-1 capable. The specifications of the existing KML system will need to be reviewed to confirm this. June 2014 Page 33

39 In addition to i3 capable CPE, the county PSAPs will need to be able to connect to an emergency services Internet protocol network (network-of-networks) called an ESInet. Although an ESInet can be established at the county level, it is not recommended. The State of Ohio is currently looking at the possibility of implementing a statewide ESInet. However, whether that will happen and under what timeline is still unknown. Further, the State is also considering establishing standards that PSAPs must meet before they would be allowed to connect to the ESInet. While the State determines what direction it will take, the County should use this time to plan for upgrades that will be necessary to provide NG9-1-1 services Computer Aided Dispatch Computer aided dispatch is a critical system that assists call-takers and dispatch personnel in processing, prioritizing, dispatching and controlling calls for service for the respective agencies. Computer aided dispatch systems typically consist of several modules that provide call input, call dispatch, call status maintenance, event notes/narrative, field unit status and tracking and call resolution and disposition. Computer aided dispatch systems also include interfaces that permit software to provide other features and functionality. For the consolidated communications center, the selected CAD system must be capable of accommodating multiple disciplines, agencies, types of service, and provide interfaces to other jurisdictions, local sub-systems (mapping, mobile data, E9-1-1, fire station alerting, paging, etc.) and state and federal databases (LEADS and NCIC). The selected system must be sized appropriately to meet performance criteria, accommodate future workload increases and store sufficient event/unit history. Out of the six dispatch centers, two are using a CAD system that is anticipated to no longer be supported, two are not using any CAD, one is using an in-house CAD system that has is looking to be replaced and one is using a CAD system that is current and versatile in the functions it provides. The following table summarizes the existing CAD systems and interfaces used in each PSAP. Current CAD and Interface Summary PSAP CAD Vendor Mapping Mobile E9-1-1 AVL ACSO ID Networks Yes Yes Yes Yes APD TAC Comp Inc. Yes Yes Yes No Conneaut PD TAC Comp Inc. Yes Yes Yes No Geneva PD Data Force 4 No No No No Ashtabula Township FD No CAD NA NA NA NA Saybrook FD No CAD NA NA NA NA Table 9 Current CAD and Interface Summary Radio Systems and Consoles As the following table indicates, multiple radio platforms are used across the county. While use of different platforms is not a roadblock to a consolidation effort, assuming coverage is not a problem, it does hamper interoperability among agencies and may force field personnel to carry more than one radio. Clearly coordination and communications during significant events is much less effective. June 2014 Page 34

40 ACSO APD Radio Platform Summary Agency Ashtabula TWP FD Conneaut PD Geneva PD Saybrook FD Primary Platform MARCS 700 MHz VHF VHF VHF VHF Table 10 Radio Platform Summary As indicated in the summary table in Section , there is little similarity of dispatch console solutions in the county. All systems reported are stand-alone units with respective backroom electronics. These system are a button and light emitting diode (LED) in which the dispatcher pushes a physical button to transmit and select other dispatch functions Ancillary Duties As demonstrated by the following table, the staff in each of the PSAPs performs tasks outside of call taking and dispatch functions. The performance of these tasks makes sense in small communities from a number of perspectives, but can become a substantial roadblock when considering consolidation. Each municipality that is considering consolidation will need to evaluate each ancillary task and determine how, and even if, that task will be performed post-consolidation. For example, many PSAPs handle walk-in traffic. Does that service need to be provided or can the same end-result be achieved through a lobby phone with a direct connection to the consolidated PSAP? There is no correct answer to this question as each municipality must decide how to provide their services. The task that presents the most substantial roadblock, based on our stakeholder interviews, is the monitoring of holding cells and other jail related duties. Several of the law enforcement decision makers stated that consolidation would be difficult for them until jail space becomes more available at the County jail. June 2014 Page 35

41 Job Responsibility Video Arraignment Set Up Ancillary Job Responsibilities Performed by PSAP Staff ACSO PSAP Ashtabula PD PSAP Conneaut PD PSAP Geneva PD PSAP X Clerk of Court X X Maintain Court Journal Entries Handle Commissary Money Take Waivers for Traffic Violations X X Take Bonds for Release of Prisoners X X X Monitor Inmates in Jail and/or Intoxication Holding Cells X X X Monitor Inmates X X X Screen Visitors for Inmates Jail Matron Duties X X X Assist Offices with Photos of Female Victims, bruises, etc. X Department Administrative Phones X X X X X X Ashtabula Twp FD PSAP Saybrook FD PSAP Clerical Duties X X Maintain Records for Seizure of Vehicles, Plates, Clubbing of Vehicles (LEADS- X X X NCIC) After Hrs. for Waste Water, Street, TWP Road Departmental Call Outs X X Handle Walk in Window/ Complaints X X X X Monitor Alarms for Various Municipal Offices and/or Facilities X X X Monitor Facility Generator Panel X X Notify railroads of problems X X Monitor AED Alarm X Handle Departmental Administrative Calls When Necessary X X X Handle Parking Ticket or Fingerprint Payments X Contact Personnel for Dept. Functions/Shifts X X Notify Victim Assistance Staff X X Table 11 Ancillary Job Responsibilities Performed by PSAP Staff June 2014 Page 36

42 Budget Summary The following table provides an overview of the total combined PSAP costs. In addition the staffing levels and call volumes are included for reference. Current Staffing, Workload and Budget Summary Minimum On PSAP Staffing Call Volume** Budget Duty ACSO 9 Full Time 2* 126,620 $664,269 APD Ashtabula TWP FD Conneaut PD Geneva PD 2 Full Time/9 Part Time 3 Full Time/1 Part Time 4 Full Time/2 Part Time 4 Full Time/1 Part Time 1 64,085 $218, ,800 $230, ,390 $278, ,815 $197,140 Saybrook FD 14 Part Time 1 19,200 $125,000 Totals 22 Full Time/27 Part Time * ACSO staffing may drop to 1 if on-duty telecommunicators need to attend meetings, etc. ** Includes calls and administrative calls estimated at a 4:1 ratio to calls Table 12 Current Staffing, Workload and Budget Summary 262,910 $1,713,409 As indicated in the table, the total combined costs for all primary and secondary PSAPs within the county is estimated to be approximately $1,713,409. This number will be used for comparison purposes in this document, but it is important to note that, in Kimball s opinion, this number is probably low. When examining the budgetary numbers collected for this study, costs that would typically be seen in most PSAPs were not included. The cost estimates provided to Kimball represent the best data that could be provided. However, when a PSAP is part of a larger organization such as a police or fire department the costs attributable only to the PSAP can be difficult or impossible to extract from the larger agency budget Emergency Medical Dispatch Emergency medical dispatch is a call processing protocol which relies upon medically-approved and standardized telephone protocols which allow call-takers to classify emergency medical situations and dispatch them in accordance with the resulting priority level. Local response agencies are dispatched in accordance with the response rules developed. In addition to supporting incident classification and resource assignment, EMD allows for the provision of pre-arrival medical instructions provided by the call-taker to the caller while responders are en route to the call. Pre-arrival instructions provided by call-takers/telecommunicators can result in greatly improved outcomes for seriously injured or ill victims, creating a zero response time for help to reach the person in need. June 2014 Page 37

43 All six primary and two secondary PSAPs report that they currently do not provide EMD services. However, Community Care Ambulance does provide pre-arrival instructions to callers transferred to them from the PSAPs. No legal requirements could be found that identifies the State of Ohio dictating the provision of EMD service or the manner in which it is provided. Emergency medical dispatch system vendors and the National Academy of Emergency Dispatch (NAED) provide guidance to PSAPs on certification, on-going training and quality assurance standards for the provision of EMD services. A PSAP s capacity to provide full EMD service is often impacted by the number of on-duty staff and the work-flow design of the PSAP. Since the protocol requires the telecommunicator to remain on the phone to continue the question and answer process with the caller, the process is inherently more challenging in situations where the same call-taker is also expected to provide radio dispatch duties and answer additional calls while the medical situation is still being processed. When the telecommunicator is working alone or with just one other telecommunicator, competing activity can quickly overwhelm the telecommunicator s ability to fully carry out the EMD protocol. Kimball identified that, with the exception of the ACSO PSAP, a single telecommunicator is on-duty the majority of the time. The National Academy of Emergency Dispatch recommends that PSAPs using EMD systems conduct monthly quality assurance (QA) to assure that telecommunicators are performing the protocols in accordance with established standards. Larger centers often have a quality assurance manager on staff that is responsible for selecting cases for review, conducting the review and providing feedback or correction to dispatch staff. In smaller centers, the QA process is often conducted by a dispatch floor supervisor or the PSAP director Operational Summary When looking at the existing emergency communications from a high-level operational overview, Kimball noted the issues that follow in the next sections Single Person Staffing Almost all of the PSAPs staff a single person at times. Anytime only one telecommunicator is on-duty the potential for that person to become overwhelmed is significant. A single motor vehicle accident can flood a PSAP with incoming calls. In addition to the incoming calls, the telecommunicator must handle radio traffic and other duties such as monitoring cells and handling walk-in complaints. Certainly, the calls and radio traffic would typically take precedence over any other tasks, but those other tasks do not go away. The reality is that even the best telecommunicator is limited to how much he or she can handle effectively and efficiently by virtue of being human. When looking at PSAP staffing from emergency communications workload and financial perspectives, staffing a single telecommunicator most likely makes sense. However, it is during major incidents that telecommunicator needs to perform at his or her best and it is this time when he or she is most likely overwhelmed Transfer of Calls One of the primary issues with the current operational environment is that callers often must be transferred from PSAP to PSAP since police, fire and EMS may be dispatched from different places. When call-takers receive a call a preliminary interview to determine the nature and location of the emergency must be conducted. The call must then be transferred to the appropriate agency for dispatch. The dispatcher receiving the transferred call then must re-interview the caller and dispatch EMS field personnel. The average length of time added to a call for the second interview process is approximately 30 seconds. Best practices for states that every effort should be made to reduce or eliminate the transfer of callers for the following reasons: June 2014 Page 38

44 In emergencies, seconds count. This means that information critical to responding agencies safety and ability to effectively manage the emergency is delayed, as the call must be processed by the receiving PSAP first. These lost seconds can literally mean the difference between survival or not and/or impact the patient s quality of life. For example, 30 seconds to a minute of lost time can mean the difference between not surviving and being able to resuscitate a heart attack or drowning victim and whether that person will have a meaningful quality of life. In another example, a delay in receiving information regarding suspects with weapons or the presence of hazardous materials on-scene can have potentially fatal consequences for responders. While these examples are dramatic, they accurately illustrate the types of emergencies handled every day in PSAPs across the state. Transfers increase the likelihood that human and/or technological errors will occur. High levels of training can minimize the amount of human errors, but even the best trained employees will still make errors from time to time. When a caller must speak with multiple two call-takers, the potential for human error rises. The quality of technology available today has reduced issues such as calls lost during the transfer process, but the possibility still exists and increases with each transfer Major Incident Coordination/Interoperability When a system of multiple small primary and secondary PSAPs is in place in a county, the coordination of major incidents, weather events or other multi-jurisdictional and discipline (police, fire and EMS) becomes problematic and inefficient. With multiple points of control and command management of field personnel and other resources becomes difficult and keeping field personnel consistently updated across jurisdictions and disciplines becomes an impossible challenge. The balance of this page is intentionally left blank. June 2014 Page 39

45 4. CONSOLIDATED PSAP MODELS This section provides an overview of several consolidation models that may be a good fit for Ashtabula County. Each model has positives and negatives. Each model will have some form of governance and cost distribution formula associated with it. Since both of these are decided regionally and Kimball s recommendations are essentially the same from model to model, these two topics will be discussed in the following two sections rather than in each model to avoid repetition. 4.1 Governance Any PSAP consolidation will require the establishment of a form of governance for the new PSAP. A governance structure that works well in one scenario may not in another. A well-crafted governance agreement is critical to the success of any consolidation. The agreement also allows a director to manage operations effectively. Regardless of the governance model chosen, incorporating the following key points into the agreement are essential Reporting structure for director and composition of the any oversight board Span of authority and control for any oversight board Capital and operating budget development process as well as establishment of a reserve account to pay for critical systems replacements. Budget approval process Funding mechanism, board authority and a method for updating it or changing it as needed Length of the agreement De-consolidation process - What happens if a participating agency leaves before the end of the agreement? For example, does the departing agency lose any capital contribution? Ownership of technology purchased jointly Process for participating agency complaint resolution and input Span of authority for the director Standard operating procedures approval process Agreed upon service levels to be provided The importance of a well-crafted agreement cannot be overstated. A consolidated PSAP s role is to provide equitable and high level service to all police, fire and EMS user agencies based on the dispatch plans for each participating agency. To do this, the PSAP must be insulated from the impact of political changes to the highest degree possible. Further, funding for the PSAP should be designed to provide a known and reliable budget from year to year. A well-crafted governance agreement will ensure that these goals are realized Mandatory Law Enforcement Control During the stakeholder meetings attended by Kimball the understanding that a PSAP in the State of Ohio must be under the control of the County Sheriff or other law enforcement agency was expressed. Typically, state codes of this sort relate to two different areas; restrictions regarding access to databases such as LEADS and NCIC and general overall control and operation of a countywide PSAP. Kimball conducted high level research on both of these areas. The first area, restrictions on access to law enforcement databases, is the easiest to resolve. Any consolidated PSAP, assuming it provides dispatch functions, must have access to these databases in order to provide necessary information to the law enforcement agencies it serves. Several examples of the types of information contained in these databases includes: Motor vehicle registration and drivers license information June 2014 Page 40

46 Stolen vehicle information Wants and warrants Missing persons This list is far from complete, but does illustrate the importance of access to these databases. Without access, a dispatcher would not be able to provide acceptable service levels to law enforcement agencies. A check of the State of Ohio Administrative Code revealed that Section 4501:2 State Highway Patrol addresses this issue in Section 4501: Participation in LEADS 6. This section states that access requires application and documentation from a number of potential user types. Included in this list is a governmental or non-governmental regional dispatch center as follows: (5) A governmental or nongovernmental regional dispatch center, which provides communication services to criminal justice agencies may be authorized access to files. Such centers shall be required to execute an agreement with each criminal justice agency it serves and with LEADS assuring compliance with all duly promulgated LEADS rules. The full text of Section 4501: is located in Appendix A. The second area, whether the County Sheriff must operate the PSAP, is less clear cut. The State of Ohio Revised Code Title [1] State Government Chapter 128 Emergency Number Telephone System 7 states, in subsection Countywide System the following: (1) Each public safety answering point shall be operated by a subdivision or a regional council of governments and shall be operated constantly. This text clearly allows for governance other than the county sheriff, but refers only to the telephony or portion of emergency communications. The full text of this section is located in Appendix B. State of Ohio Revised Code Title [3] III Counties Chapter 307 Board of County Commissioners Powers states, in subsection Establishing a countywide public safety communications system 8, that the sheriff shall operate the system unless he/she chooses to do otherwise. When the sheriff relinquishes control, the county commissioners then shall operate the system. The subsection also seems to open the door for a board of county commissioners to make agreements in relation to the public safety communications system. However, consolidation participants should seek a more definitive legal opinion before making a final decision regarding the governance of a consolidated PSAP Governance Models The following models illustrate commonly used governance models: 6 Source: 7 Source: 8 Source: June 2014 Page 41

47 Separate Department within a Participating Government Structure In this governance model, the consolidated PSAP is part of the organizational structure of one of the participating municipalities. The PSAP is its own independent department or part of an existing department, such as Emergency Management. Completely independent from any law enforcement, fire, or EMS agency it serves, a civilian director manages the PSAP. The director is a department head reporting to the same position within the organizational structure as other department heads. Primary positive attributes of this structure include the following: There is a clean reporting structure for not only the PSAP director, but for the participating agencies as well. Since the director reports to a senior management position within the parent organizational structure, there is a single point of contact for disputes that cannot be resolved otherwise. This model provides protection for the PSAP from politics that can affect the PSAP under other governance structures. This model also provides the PSAP protection from changes in direction that result from personnel changes in decision-making positions, thus creating a more stable environment for the PSAP long-term. Independent leadership allows the director to effectively manage PSAP resources and provide equitable service to all participating law enforcement, fire, and EMS agencies. An advisory board comprised of participating agency and/or municipal representatives, and, if desired, community leaders act in an advisory capacity to the PSAP manager. It is important that this board have advisory input only. Utilizing civilian staff rather than sworn personnel creates a more developed career path for PSAP staff. As part of a municipal structure, the PSAP has access to administrative support such as human resources, building facilities, and computer and network support. The department director will need specific technical and operational skills related to Ideally, the director should be a professional. Primary negative attributes of this structure include the following: There will be adjustment to the loss of direct control of PSAP staff by participating agency personnel. The cost of a civilian director as opposed to managing the PSAP with lower level sworn command personnel can be more expensive Part of a Participating County/Municipality/Agency In this governance model, the consolidated PSAP is part of one of the existing law enforcement, fire, or EMS agencies. Under this type of structure, sworn personnel often manage the PSAP and fall under the authority of the hosting agency head such as the sheriff, police or fire chief. Primary positive attributes of this structure include the following: Avoiding the costs of hiring a civilian director is possible and the parent agency s budget can absorb management costs. As part of an existing county or municipal structure, the PSAP has access to administrative support such as human resources, building facilities and computer and network support. Buy-in for consolidation is sometimes more palatable if the managing agency is the same type of agency as those considering consolidation. For example, some law enforcement agencies find it more palatable to consolidate with a law enforcement PSAP than a fire or independently operated PSAP. Primary negative attributes of this structure include the following: There will be adjustment to the loss of direct control of PSAP staff by participating agency personnel. June 2014 Page 42

48 Participating agencies perceive that distribution of PSAP resources is not equitable. Generally, the perception is that the host agency receives a higher level of service. Political infighting among the participating agencies can impact the PSAP and/or entities represented on the oversight board. Although initially all agencies and entities may agree on the direction for the PSAP, over time, as people and political agendas change, the PSAP can become the focus of political disputes. This structure requires a carefully crafted governance agreement to protect the PSAP from the impact of political disputes. Such an agreement will ensure that the PSAP can focus on its primary mission. The career path for operational staff is more limited as sworn personnel commonly hold PSAP management positions Joint Powers Authority, Council of Governments or Intergovernmental Agreement In this governance model, the consolidated PSAP is an independent agency headed by a civilian director. Under this type of structure, the PSAP is not part of any larger government structure, but is in fact an independent entity. The director traditionally reports to a board comprised of representatives of the participating members. Primary positive attributes of this structure include the following: Independent leadership allows the director to best manage PSAP resources and provide equitable service to all participating agencies. A developed career path for PSAP staff is offered as civilian personnel generally fill supervisory and management positions. There is a degree of neutrality as the center is independent of law enforcement, fire or EMS. This neutrality allows the PSAP to provide equal service to all participating agencies and avoid the perception of bias or favoritism. Total organizational and single mission focus on PSAP services without resource competition. Primary negative attributes of this structure include the following: Since the PSAP is not part of a larger municipal entity, real and intangible costs for support services such as computer/network services, human resources, and facilities are perceived to be higher and, in fact, may be more transparent. A poorly crafted governance structure can result in a director that has to answer to multiple bosses. This situation can be difficult for the director and can prevent the director from effectively managing the PSAP. Political infighting among the participating agencies can impact the PSAP and/or entities represented on the oversight board. Although, initially all agencies and entities may agree on the direction for the PSAP, over time, as people and political agendas change, the PSAP can become entrenched in the fallout from political disputes. This structure requires a carefully crafted governance agreement to protect the PSAP from the impact of political disputes. Such an agreement will ensure that the PSAP can focus on its primary mission Governance Recommendations Kimball recommends that a consolidated PSAP be established as a separate entity such as a COG (Option 3) or as a separate department within the County government structure, if allowed by State of Ohio codes. If established under the County, it should be part of the County for administrative purposes and support, but controlled by a board comprised of representatives from the user municipalities. Heads of public safety agencies, such as police and fire chiefs, should not be members of this controlling board to avoid placing the PSAP director in the position of reporting to many masters and to insulate the PSAP from political changes. The controlling board is typically comprised of decision makers from each June 2014 Page 43

49 municipality, such as city managers, but outside of public safety. An additional advisory board can be created for representatives of the public safety agencies served by the PSAP. 4.2 Cost Distribution The distribution of costs associated with a newly consolidated PSAP requires that all participants agree on the distribution formula. Achieving consensus is often a difficult task. The criteria used to determine the distribution of costs frequently yield different results for participants so agreeing on what is fair and equitable can be difficult, and largely a matter of perspective. For example, using strictly population as the basis for cost distribution may provide Agency A significant cost savings while Agency B s costs increase. Using call volume only may well reverse those results with Agency A incurring cost increases while Agency B saves. Commonly, more than one criterion is used to reach a formula that is considered fair and equitable by all participants. Clearly, establishing an acceptable formula can be a show stopper in the consolidation process. Most often, this issue is addressed early in the pre-implementation process, along with governance, to determine if the consolidation will be able to move forward. If agencies are unable to agree on a distribution formula, then the rest of the implementation process cannot take place. When first consolidating, Kimball recommends that the cost distribution model be based on data that is measurable and consistent across all participants. Once the consolidation has taken place and other measurable data is developed, the cost formula should be re-visited and modified, if necessary. 4.3 Single Countywide PSAP Model In a county the size of Ashtabula, both geographically and population density, the model that will provide the most efficient and effective service levels is a full consolidation of all of the PSAPs within the county. This emergency communications center would receive all traffic within the county, as well as any 7/10 digit calls for emergency services. Citizens or visitors to Ashtabula County would be ensured of a consistent level of service and state-of-the-art telephony capabilities, assuming that new equipment is procured. One CAD would be used to record all events within the county. This has multiple benefits for the emergency responders, as well as providing better situational awareness and command and control within the center. Consolidating emergency communications into one center would require an assessment of existing radio systems to determine the feasibility of enabling one center to dispatch all emergency services in the county. Potentially, this can be achieved by using the legacy radio systems and tying them in to an upgraded radio console that can dispatch on multiple frequencies. Another means of establishing dispatch capabilities at a single center is to move emergency responders to a common radio platform, such as MARCS. The operational advantages and long-term cost saving of a complete consolidation make it the ideal model and one that Kimball would typically recommend for a county like Ashtabula. This full or complete consolidation would include the PSAPs currently serving ACSO, Ashtabula PD, Conneaut and Geneva PDs and Saybrook and Ashtabula Township FDs. However, Kimball understands that the dynamics of politics, defining management and control, and financial hurdles to implement this model are very challenging at this time. Kimball provides this model as an industry best practices long-term goal for Ashtabula County that should be considered and pursued. This model would allow the county to provide the highest level of service in the most cost efficient manner possible to both citizens in the respective communities and emergency responders alike. June 2014 Page 44

50 4.3.1 Organizational Structure The operational structure that follows in this section represents as close to a perfect world organizational structure and staffing projections as can be developed at this early juncture in the consolidation process. While the estimated telecommunicator staffing numbers are close to what will be needed, support and management staff numbers will be difficult to accurately estimate until actual planning takes place and key decisions are made. Based on the size of the consolidated PSAP in this alternative, Kimball recommends the following as an initial organizational structure. Key changes in this structure are: A civilian director or manager The inclusion of 24/7 shift supervision that are not assigned to work a call taking or dispatch position Assignment of quality assurance/training to a shift supervisor(s). This recommended structure should be viewed as a starting point that will be altered as necessary to fit the needs of the new PSAP as decisions regarding how IT and technology needs will be supported and the actual workload better defined Position Definitions The structure is based on the following position definitions: 1. Director or Manager This position has overall responsibility for providing leadership and has ultimate responsibility for all PSAP operational, technology, budget and administrative tasks. The director is charged with setting the direction for the PSAP, planning for future operational and technological changes, and ensuring that the PSAP is meeting mission set by the PSAP s oversight body. The reporting relationship for this position is determined by the type of governance chosen. 2. IT Support This position reports to the IT manager and is responsible for providing geographic information system (GIS) and/or Information Technology (IT) support for the PSAP. 3. Telecommunicators This position reports to the shift supervisors and is responsible for call taking and dispatch functions. 4. Shift Supervision To properly manage a consolidated PSAP, a strong supervisory structure is recommended for two primary reasons; public safety best practices and operational efficiency. Although in smaller PSAPs, shift supervisors are not always present for financial reasons or because sworn personnel function in this role, the PSAP in this alternative will be too large to operate efficiently without the presence of 24/7 supervision. In Kimball s view, it is essential that shift supervision not be assigned to a call-taker or dispatch position and are present on a 24/7/365 basis. 5. Administrative Support This position reports to the director or manager and is responsible for providing administrative support and managing office responsibilities. Such functions as human resources, payroll and facility maintenance are not covered within this structure. These functions can be provided in several different ways such as adding in-house staff or contracting with one of the participating municipalities to provide support. Therefore, the final organizational structure may change during the implementation planning process. June 2014 Page 45

51 4.3.2 Call Taking and Dispatch Methodology Traditionally, telecommunicators in smaller PSAPs often function as a combined call-taker and dispatcher simultaneously. In other words, the incoming call is received and processed and field units sent by the same telecommunicator. Most often, this methodology works well in this environment. However, if all primary and secondary PSAPs combined, the size would be large enough to benefit from the separation of the functions, but not large enough to completely split the functions. This splitting of functions represents significant changes from the traditional one-person-does-it-all approach, but does provide benefits that cannot be achieved when a single telecommunicator performs both functions. A true call-taker and dispatcher system allows call-takers to be on line with the caller, obtaining vital information for responders, while the dispatcher sends units simultaneously. All callers are queried to determine the incident type (nature), the incident location, vital information and the calling party name and call back phone number. The call information is then sent via CAD to the appropriate dispatcher(s) for radio dispatch of field units. For example, CAD will generate two incidents, one police and one fire for a call that requires both police and fire response ensuring that both response agencies are notified at the same time. When the call-taker remains on line with the caller (when necessary), further information important to response and mitigation of the incident can be gathered, entered into CAD, viewed by the dispatcher(s) and relayed to the field units. This model will provide the best possible service to callers by potentially reducing the overall response time through a faster dispatch time. This methodology also allows the call-taker and dispatcher to both focus on obtaining necessary information and dispatching units without having to manage an upset caller, field personnel and potentially additional incoming calls. The key to achieving maximum efficiency in call taking and dispatch is standardized call taking protocols and effective use of the CAD system so that communications between call-taker and dispatcher are seamless. In scenarios where a caller is in danger, best practices dictate that the call-taker stay on the line with the caller until help arrives. The call-taker provides updates for the dispatcher(s) and responders throughout the call via the CAD system. Situations where a caller may remain on the line may include in-progress/just occurred events and suicidal or homicidal persons. In these instances, the responders are already dispatched and are kept apprised of the updated information by the dispatcher(s). The unit s/apparatus initial dispatch response, overall, will be potentially reduced by having the call available for dispatch simultaneously for all appropriate responders. Taking this concept one step further, the dispatcher role is generally split between fire, EMS, if appropriate, and law enforcement. This structure ensures that police, fire and callers all receive the same high quality service from the PSAP. In addition to allowing telecommunicators to better focus on only call taking or dispatching, splitting the functions helps the PSAP achieve the following industry standards for call taking: NENA , Call Answering Standard, states, Ninety percent (90%) of all calls arriving at the Public Safety Answering Point (PSAP) shall be answered within ten seconds during the busy hour (the hour each day with the greatest call volume, as defined in the NENA Master Glossary ). Ninety-five (95) percent of all calls should be answered within twenty (20) seconds. The 2013 version of NFPA 1221, Section 7 states, Ninety-five percent of alarms 9 received on emergency lines shall be answered within 15 seconds, and 99 percent of alarms shall be answered within 40 seconds and, Ninety 9 NFPA 1221 defines an alarm as a signal or message from a person or device indicating the existence of an emergency or other situation that requires action by an emergency response agency. June 2014 Page 46

52 percent of emergency alarm processing shall be completed within 60 seconds, and 99 percent of alarm processing shall be completed within 90 seconds. The 2013 version of NFPA 1221, Chapter 7 Annex A states Consider the following two concepts of communications center operations: 1. Vertical Center. A telecommunicator performs both the call taking and dispatching functions 2. Horizontal Center. Different telecommunicators perform the call taking and dispatch functions. Telecommunicators working in a vertical center are known to engage in multitasking that can inhibit their ability to perform assigned job functions. Routine evaluation of telecommunicator staffing. These standards can be difficult to meet when a single employee must juggle multiple job functions simultaneously Staffing When estimating PSAP staffing three components must be evaluated; call taking, dispatching and administrative support. Administrative support includes supervision, management and technical support needed by the PSAP. This section discusses the number of telecommunicators that will be needed. Although staffing levels for different functions, call taking and dispatching, are provided, Kimball assumed that telecommunicators will be cross trained to perform both functions and would do so based on operational needs on any given day Call Taking Staffing When call taking and dispatch functions are completely separate calculating the number of call-takers is fairly simple and based on busy-hour call volume and NENA standards for answering calls. Estimating call-taker staffing levels are a bit more complex when the PSAP is not large enough to completely separate the call-taker and dispatch functions as would probably be the case in this consolidation model. Often staffing levels are based on a combination of mathematical calculations and the experience of the PSAP manager. In other words, staffing estimates can require both art and science when call taking and dispatch duties are mixed. The combined call volume for all agencies is 47,582. Using the 4:1 ratio discussed in Section to estimate administrative and 7/10 digit calls the total call volume for the consolidated PSAP is 215,328. The sum of the 9-1-1, 7/10 digit and administrative call volumes is estimated to be 262,910. The next step is to calculate the number of call-taker positions needed to manage the estimated call volume. Using an Erlang C calculator and the call performance standards listed in Section Kimball determined that an average of three call-takers would be needed to handle the estimated call volume. In actual application, the consolidation PSAP would have more than three during peak call volume times and less than three during slow times. The following should be noted: When applying performance standards, the entire combined call volume of 262,910 was used. In other words, the NENA standard for processing calls, which is a higher standard, was applied to all calls even though administrative calls do not need to be handled as quickly. This methodology provides a cushion of sorts or upper end number from which to plan. Typically, it is not financially feasible for a small PSAP to establish completely separate call-taker and dispatcher positions as it would require additional staff that would likely not be utilized to an acceptable level. Some of the onduty dispatch staff would function in an as-needed basis for answering incoming calls. Once the number of call-taker positions that need to be filled is determined, this data is set aside until the same is done for dispatch functions. June 2014 Page 47

53 Dispatch Staffing The next step in estimating staffing is based on the number of dispatch workstations that will be needed. To maximize the efficiencies gained by consolidating each existing dispatch position should be reviewed to see if combining agencies on to the same talk group makes sense by taking into consideration the following: Radio platforms currently in use by each agency. Clearly, agencies that use different radio platforms cannot share talkgroups or channels without one agency moving to a new platform and incurring the cost of doing so. Geography. When considering combining agencies thought must be given to whether the combination makes sense from a geographical perspective. Agencies that share geographical borders often already assist each other on a routine basis. Therefore, combining talkgroups would be beneficial and potentially more efficient. Number of field personnel tracked by each dispatcher. If a law enforcement dispatcher is responsible for only a small number of field units, then combining talkgroups may offer the opportunity to reduce the number of personnel, create a more efficient call flow process in the PSAP and improve field communications by having those agencies that commonly work together on the same talkgroup. A general rule of thumb for the ideal number of units a dispatcher can manage is active police units at a time. However, if the talkgroup is used only for primary communications and administrative functions are moved to another talkgroup, then the number of manageable units can be much higher. Given the very different nature of fire emergency communications, the rule of thumb cited for the number of active units does not apply. The configuration of fire communications is discussed in the next bullet. Number and type of dispatch positions. Participants must evaluate whether existing positions provide the same level of service for all agencies served. For example, law enforcement and fire should receive the same level of service from the PSAP. During data collection Kimball learned that some of the fire agencies do not receive the same level of service from the PSAP. In fact, one department reported that a firefighter would report to the firehouse to handle radio traffic during calls rather than respond to the scene. To ensure fire and/or EMS agencies receive the same level of incident tracking and support an additional dispatch workstation that is dedicated to fire and EMS will be needed. If call volume is low, this position can serve as an overflow call taking position as well. Kimball considers the establishment of this dedicated fire positions to be essential for increasing the level of service currently provided to the county fire agencies to an acceptable level. The 2013 version of NFPA 1221 Chapter 7 Staffing Annex A states: The issues of communications capabilities and/or failures is cited by the National Institute of Occupational Safety and Health (NIOSH) as one of the top five reasons for fire fighter fatalities. The importance of an assigned telecommunicator for specific incidents is a critical factor in incident scene safety. The assignment process should be outlined in specific SOPs within each agency represented in the communications center... The following table illustrates the number and type of physical workstations and operational model needed for this model. Based on call volume and number of units that would be handled, Kimball assumes that four primary police talkgroups or channels would be reduced to two by combining two agencies on each of the two primary dispatch positions. June 2014 Page 48

54 PSAP Workstations Workstations # Needed Police Agencies 1 and 2 1 Police Agencies 3 and 4 1 Fire/EMS 1 Call Taker 2 Shift Supervisor 1 Overflow/PowerShift 2 Total Workstations 8 Table 13 PSAP Workstations It is important to understand that the above workstation distribution table is conceptual. Multiple options exist for the actual configuration or operational and work distribution for the PSAP. Those options are examined during the implementation planning process and a final workflow and operational model are put in place. However, in order to estimate staffing needs and personnel costs, the Kimball team developed the above model based on our knowledge and experience with PSAP operations. For purposes of estimating staffing levels, Kimball believes the PSAP would need three dispatch workstations staffed 24/ Supervision Kimball recommends establishing civilian supervisors within the PSAP. The supervisors would not be assigned to work a console position, but would be able to properly manage the operations, conduct employee training, QA and other tasks. As a cost saving mechanism, supervision is often assigned to work either a dispatch or call-taker position. However, in order to properly supervise the operations and manage a major incident the supervisor cannot also be responsible for an active dispatch position or answering incoming calls. In addition to the call-taker and dispatch positions, Kimball recommends a supervisor be on duty on a 24/7 basis Total Operational Staffing Estimates Once all of number of workstations that need to be staffed on a 24/7 basis are determined, the number of employees needed can be determined. Factoring in an average amount of vacation, training and sick time, Kimball determined that 27 employees would be needed to staff the call-taker, dispatch and supervisor positions on a 24/7 basis. In addition to these staff members, Kimball recommends planning for a civilian manager and administrative assistant. A mechanism must also be in place to provide IT support for the PSAP technology. This support can be in the form of IT staff assigned directly to the PSAP as employees or through another department. June 2014 Page 49

55 4.3.4 Technology Computer Aided Dispatch A CAD system would be needed for the consolidated communications center. A consolidated PSAP often has new CAD functionality needs that didn t exist prior to the consolidation. For example, a CAD in a consolidated PSAP needs the ability to handle multiple jurisdictions and disciplines (police, fire and EMS) whereas a PSAP that handles only a single department does not need this type of functionality. When determining whether to use a CAD system currently in place in one of the PSAPs or procure a new system, the functionality of the existing CAD must be assessed to be sure it can function as needed in a consolidated environment. Assuming that IDNetworks meets the functional requirements, the most reasonable option is to use the County s current contract to expand the existing system as there would be financial benefits. If decision-makers choose to follow this path, negotiations with IDNetworks should ensure that, at a minimum, the following occurs: IDNetworks designs and prices a hardware solution that provides either fault-tolerant or high availability backroom equipment for the consolidated center. IDNetworks provides the most recent software version. The consolidated communications center identifies any specialized customization or unique requirements that may have been provided in the existing contract and/or needs to be provided in the new or updated contract. The consolidated communications center identifies and develops functional specifications and has IDNetworks address each feature as to whether their system is compliant on non-compliant. This is the only means to ensure that the software will provide the functionality that the consolidated center and user agencies require. The consolidated communications center identifies new interfaces that will be needed. The consolidated communications center and IDNetworks ensure capacity exists or is added to ensure that all systems run reliability. The consolidated center re-negotiates the County s maintenance contract to include all components of the new system. If the existing IDNetworks contract cannot be used or does not provide any significant cost benefit, Kimball recommends that the consolidated center procure a new CAD system using a full competitive request for proposals (RFP) selection and procurement process: Develop a thorough needs assessment document and solicit input from the dispatch centers, all users and end users. Develop a full competitive RFP document. Develop functional specifications to which vendors must respond Develop evaluation and recommendation criteria The new system should provide fault-tolerant or high level of availability, security and reliability. The system should be designed to take advantage of current fail-over and other backup technologies that enable continued operation, notwithstanding single or multiple component failure Mapping and Geographic Information System All the positions at the consolidated center will need access to a mapping solution. Currently the County is using DDTI for its mapping solution. The CAD solution used in the new communications center should be considered for its mapping solution to be used. An E9-1-1 interface should be included that would allow the ALI data to be passed from answering equipment to the CAD Mapping. This will allow wireless Phase II data to be displayed on the map as it is today with the Centurylink, KML network. June 2014 Page 50

56 Kimball s recommendation would be for a single GIS mapping solution with all technology integrated to one software system. This would alleviate the need to administer and maintain two or more separate GIS mapping databases. There will also be fiscal benefits to this option as mapping will not have to be procured with more than one system. The goal should be a single integrated mapping solution for all critical systems that includes answering equipment, CAD, mobile and automatic vehicle location (AVL) Customer Premise Equipment (9-1-1 Answering Equipment) A call processing solution is needed for the consolidated communications center. As with the CAD system, the most financially advantageous option would likely be to review the existing vendor contracts and systems and use the current contracts to procure a new system. However, given the age of the existing system and the need to have a system that is NG9-1-1 capable, Kimball believes the County should consider going through the procurement process for a new CPE. At minimum, the following would be needed: Development of a thorough needs assessment document and solicit input from the dispatch centers, all users and end users. Development of a full competitive RFP document. Development of functional specifications to which vendors must respond Development of evaluation and recommendation criteria Management information software (MIS) should be procured with the new answering equipment. The new system should be capable of installing ten-digit administrative phone lines and interfacing with the County s (phone system). If ten-digit administrative phone lines are installed on the answering equipment some plain old telephone service (POTS) lines should be installed in the consolidated dispatch center for redundancy and back-up purposes Radio Systems and Consoles To maximize the long-term operational and financial benefits of consolidation, ideally, all agencies should be on the same radio platform. The migration of all agencies to a single platform has financial and political components that are well outside the scope of this project. However, Kimball recommends that all agencies meet periodically to reach a common technology plan that includes a long-term goal of a single radio platform Logging Recorder A new logging recorder solution is recommended for the consolidated center. The new recorder will need capacity to record all of the consolidated center s telephone and radio traffic and have sufficient on-line storage to retrieve historical data. The recorders at the existing dispatch centers can remain with those respective agencies and continue to record their incoming ten-digit phone lines and extensions. A fully redundant back room hardware solution should be considered for the consolidated center. The recorder solution will need to provide client access for administrative and management staff. The equipment should be capable of providing instant recall recording for both telephone and radio. The new logging recorder solution should be capable of recording all incoming trunks, ten-digit administrative phone lines, console positions and all radio channels Master Clock In the consolidated center a fully redundant master clock should be installed and integrated with each and every critical system that will be used. This includes CAD, answering positions and administrative phone system, logging recorder, radio consoles, administrative computers and display clocks. June 2014 Page 51

57 The purpose of a master clock is to ensure that time stamps for all systems record the same time. Often emergency communications records, CAD printouts and phone and radio recordings, are used for internal investigations and, more importantly, in legal proceedings. A master clock ensures incident timelines can be accurately reconstructed and used successfully in court cases. Synchronized times can also help the County defend against complaints of delayed service Ergonomic Furniture With current and future workstations requiring several computers, keyboards and flat panel displays, a modern type of technical dispatch systems furniture is required to best support daily operations. Kimball recommends the acquisition of new technical dispatch systems furniture that is more capable of supporting current and future technology requirements for multiple computers in cabinets along with an array of flat panel screens on a display surface or monitor arms with a separate work surface which supports keyboards and mice. When used in conjunction with a structural cable system, outlets can be mounted in or near the furniture where built-in cable pathways would provide a means of access for installation and maintenance. New furniture would also have various levels of adjustability to accommodate ergonomic requirements for staff. Most manufactures provide for the ability to raise and lower the display and work surfaces to allow the user to sit or stand while working. Additional optional features may include local task lighting, mechanical work surfaces, radiant heat panels, foot rests, fans and noise masking. Chairs designed for intensive 24/7 usage are also recommended. Although expensive on the surface, these chairs have multiple ergonomic settings and hold up to the rigors of 24/7 use. In Kimball s experience, the high initial cost is justified by a reduction in repetitive motion injuries and the average product longevity. Cost estimates include twelve chairs to account for trainees and chairs that may be sent out for repair Cost Estimates Personnel Costs and Annual Operating Budget The following table provides personnel cost estimates for this model, as well as a total PSAP operating budget estimate. The pay scale for the telecommunicators is based on the high end of the pay range for ACSO telecommunicators. The rate used to calculate benefits is also based on existing rates provided to Kimball from the County. June 2014 Page 52

58 Position Consolidated PSAP Estimated Operating Budget Base Pay Benefits Rate Benefit Cost Per Employee # of Employees Total Director $60,000 38% $22,800 1 $82,800 Shift Supervisor $50,000 38% $19,000 5 $345,000 Telecommunicators $40,000 38% $15, $1,214,400 Administrative Support $30,000 38% $11,400 1 $41,400 Sub-total 29 $1,683,600 Recurring Expenses * $336,720 Total Estimated Operating Budget $2,020,320 * Estimated at 20% of wages and benefits Technology Costs Table 14 Consolidated PSAP Estimated Operating Budget The following table summarizes, at a high level, the technology cost estimates the County would likely incur should each of the key systems need to be replaced, as well as typical dispatch furniture and intensive use chairs. The estimates are based on equipping a total of eight workstations with the identical equipment to maximize operational flexibility. A total of eight workstations takes into account the six that would typically be needed daily, plus another two for higher call volume periods, major incidents and spares. A variety of variables will influence the final costs for each of these systems. Therefore, these estimates should be used for high-level budgetary planning purposes only. System/Equipment Single Consolidated PSAP Technology Cost Estimates Number Needed Cost per Unit Low End Estimate High End Estimate CAD 8 $35,000 - $40,000 $280,000 $320,000 CPE/9-1-1 Answering Positions 8 $45, $60,000 $360,000 $480,000 Radio Consoles 8 $40,000 - $60,000 $320,000 $480,000 Redundant Digital Logging Recorders N/A N/A $48,000 $60,000 Master Clock Solution 1 $ $20,000 $17,000 $20,000 Ergonomic Dispatch Furniture 8 $14,000 - $18,000 $112,000 $144,000 Intensive Use Chairs 12 $1,200 $14,400 $14,400 Total Cost Estimates $1,151,400 $1,518,400 Table 15 Single Consolidated PSAP Technology Cost Estimates These costs do not occur on an annual basis, but only when new systems are procured. June 2014 Page 53

59 4.3.6 Summary Under this model the County would have a single consolidated PSAP. The following table compares the existing staffing levels and PSAP costs with the estimated staffing and operating budget for a single consolidated center. Existing Combined PSAP Staffing Existing and Consolidated PSAP Comparison Estimated Consolidated Staffing Existing Combined PSAP Budget Estimated Consolidated Budget 22 Full Time/27 Part Time 29 $1,713,409 $2,020,320 Difference $306,911 Table 16 Existing and Consolidated PSAP Comparison Although high level cost estimates indicate that a single consolidated PSAP would cost approximately $307,000 more annually, the following must be taken into consideration: In Kimball s opinion, the costs for the existing configuration are likely to be artificially low since a number of expenses typically seen in PSAPs were not present in the data provided. However, when a PSAP is part of a larger organization it is sometimes difficult, if not impossible, to accurately extract the costs associated with operating a PSAP as the costs are included through the budget of the parent organization. Another cost that is typically underestimated is the cost of the support or management provided by sworn personnel. The time sworn personnel spend on PSAP issues would be redirected toward productivity within each department. Interoperability is maximized under this model which translates to improved service to the community and a safer environment for public safety personnel. Supervision that is devoted to supervising, training and quality assurance is provided under the consolidated model. This model provides consistent training for employees so all citizens within Ashtabula County receive the same high standard of service. The technology costs associated with the procurement of new critical systems may well be more economical in the long-term than each PSAP buying its own systems. In addition, this consolidation model would provide technology to some PSAPs that they currently do not have. In short, comparing the existing configuration of PSAPs with a single consolidated PSAP is not an apples-to-apples comparison and not one that can be made on the basis of costs alone. The cost estimates provided in this report do not include any facility related costs. If existing space is not sufficient, and Kimball believes this to be the case, then either a new facility must be constructed or an existing facility must be renovated. In either case, the costs can be substantial and will need to be taken into account. Kimball recommends that the County adopt this model if possible. If consolidation is not possible for political and/or financial reasons, this model should be considered as a goal to be worked toward over time. 4.4 Phased Consolidation Option Kimball conducted a thorough assessment of the multiple dispatch operations within Ashtabula County and carefully considered stakeholder comments and feedback. Although a single consolidated PSAP would serve the community best, it is a difficult goal to accomplish politically and financially. If a single consolidated PSAP model is not achievable, Kimball June 2014 Page 54

60 recommends a partial or phased consolidation model with the following facts presented for consideration and support of this recommendation. The Ashtabula County Commissioners have indicated that they need to identify new physical space to accommodate their call taking and dispatching operations, as well as the county emergency management, emergency operations center. Reasonable expectations would suggest that whether constructing a new facility or renovating an existing facility it would be at minimum, eighteen months before such a facility would become operational. Using this construction time frame, the PSAPs that wish to consolidate would need to begin working toward a transition to the consolidated PSAP. Of the primary PSAPs that wish to consolidate, planning would take place that transitions agencies over one at a time to be as least disruptive as possible to the operations. Those PSAPs that do not wish to consolidate would continue to operate as they do today. Kimball believes this option would allow for a controlled transition, would increase efficiency in operations, as well as recognizing some cost effective reductions. When this option is accomplished the long term goal of full consolidation could still remain a consideration of a goal in the long term planning of call taking and emergency dispatch operations in Ashtabula County. In Kimball s opinion the two secondary PSAPs, Ashtabula Township and Saybrook Fire Departments, could transition over to the County PSAP at any point in time as long as the following has been done: Service level expectations are agreed upon. ACSO training program needs to be assessed to determine if it provides telecommunicators with a solid knowledge base from which to take incoming fire calls, dispatch the appropriate fire apparatus and provide incident commanders with the support needed. A review of ACSO staffing should be completed to ensure that two telecommunicators are actually present in the PSAP at all times Organizational Structure and Staffing Levels The organizational structure for this model option would be a modified version of the single PSAP option. The number of PSAPs joining the consolidated PSAP and the transition timeline would drive how the organizational structure would develop over time. Similarly, the overall staffing plan would be modified to meet the needs of the transition at any single point in time. Again, the number of PSAPs transitioning, as well as the time line for each transition will drive the staffing levels Technology The technology per unit cost estimates for each critical system would remain the same, but would be scaled back to match the number of agencies participating. Kimball assumes that each PSAP would continue to use its existing equipment until their planned transition to the consolidated PSAP Summary A consolidation of all or some of the PSAPs in a phased manner does provide a more controlled environment and may be more palatable for some agencies. June 2014 Page 55

61 It is virtually impossible to provide cost estimates for this option in advance of the in-depth planning that would need to be accomplished. However, the costs provided in the single PSAP model can provide an upper limit for costs. Until the final participants are identified, staffing levels, technology costs and the ultimate cost to each participating agency or municipality cannot be determined. 4.5 Shared Technology Option Should consolidation, either partial or full, prove not to be possible at this point in time, Kimball recommends that the PSAPs explore a shared technology option. Under this option, each of the existing PSAPs or a partially consolidated center and those PSAPs that wish to remain part of their current parent organization partner in procuring new technology over time. For example, perhaps a new CAD is determined to be the highest priority amongst the partnering PSAPs. A single CAD system would be procured and installed in each separate PSAP. Each PSAP would be connected to each other through the shared CAD which would allow for easier communications between PSAPs and their respective field personnel. The improved interoperability that results from shared technology would also allow each PSAP to know about other public safety activity in the county. A significant amount of work in regards to governance, identifying common standards for training, policy and procedures, cost distribution and the implementation of technology for the facilities in this option, Kimball believes this option should be considered the first phase in the long-term goal of consolidation Summary The shared technology option provides some of the benefits typically gained through consolidation. However, this option requires cooperation amongst agencies and requires a comprehensive governance agreement. If no other consolidation models can be implemented, then this option does provide some forward movement in terms of interoperability. All aspects of each PSAP would remain as it currently exists. The only change would be the shared technology implemented. 4.6 Regionalized Hybrid This model, suggested by stakeholders within the County, is based on a combination of shared technology and the absorption of ACSO PSAP staff into the three remaining primary PSAPs. This model is based on the following assumptions: The ACSO PSAP would be eliminated. ACSO PSAP staff would be distributed among the three remaining primary PSAPs. The staff would work in one of these PSAPs but would remain ACSO employees. Shared technology, such as CAD, would be utilized by all PSAPs. Each PSAP would be equipped operationally and technologically to received calls for anywhere in the county and also dispatch for any agency. A common training plan would be developed for all PSAP staff to ensure consistency in call taking and dispatching field personnel. From a conceptual perspective, benefits of this model include: No additional facilities would need to be built, thus potentially saving the cost of new construction or renovations. Some of the advantages of shared technology would be realized. Multiple avenues of redundancy would be in place for each primary PSAP. At least two PSAP employees would be on duty at any given time, which would allow the PSAPs to meet any future requirements at the state level to meet national recommendations of two on duty at all times. June 2014 Page 56

62 Negative aspects of this model include: Different pay scales for staff members performing the same work in the same facility Separate chains of command for staff working side-by-side. Different work rules for staff working side-by-side Different discipline policies for staff working side-by-side Multiple union contracts overseeing staff working side-by-side in the same facility PSAP staff would be placed in a potentially untenable position by working with/for one agency while employed by another and would be susceptible to in-fighting between agencies and local politics. Each PSAP would require the physical space to add phone positions and/or consoles to serve the needs of ASCO as well as to serve as a backup for the other two PSAPs. If this space is not available, renovations would be needed. Assignment of staff and granting of leave requests becomes complex if based on seniority when staff are employees of different municipalities and members of different unions. A full examination of model positives and negatives cannot be done until a number of variables are resolved including: How would the workload currently managed by the ACSO PSAP staff be distributed among the remaining three primary PSAPs? Agencies currently served by the ACSO PSAP would have to agree to contract service from one of the three PSAPs How would complaint resolution be done when employees from multiple agencies are involved? How are employees scheduled and how will shift assignments be determined given multiple union contracts and separate work rules for each municipality? What agency has the final say in personnel matters, call processing and dispatch methodologies? Although one of the underlying assumptions here is that a common training plan would be in place, response decisions in-themoment often are made by field command personnel. These decisions may or may not be in keeping with work rules of PSAP staff from different agencies. The PSAP staff is placed in a no win situation by having to choose to either following the command officer from another agency or following the work rules set in place by their own employers. What sort of inter-governmental agreement will be established to address issues such as the following: On-going staffing needs and identification of correct staffing numbers. How would the correct numbers be determined? Would the numbers take into account duties such as cell monitoring? If so is this cost passed on to the municipalities/county in a cost distribution formula? On-going and future technology needs. Does each municipality have the final decision regarding the technology that is to be used within the PSAP? Does ACSO have input into technology choices? How does the answers to this question impact cost distribution? Roles and responsibilities of each municipality/county. Chain of command within the PSAP during each shift. Review of call taking and dispatch methodologies and change process. Which agency has final decision making authority on this subject? Cost distribution model that takes into account the relevant variables. While conceptually viable, in actual practice this model would be fraught with a variety of issues that would prevent this model from being successful. The logistics alone of managing PSAP staff employed by different entities, members of different unions and subject to different work rules would, in Kimball s opinion, eliminate this model option from consideration. June 2014 Page 57

63 4.7 Call Center Options A consolidation model that was repeatedly mentioned by stakeholders as a potential fit for Ashtabula County agencies was that of a consolidated call center. Two call center alternatives are possible; calls are received at a separate call center and transferred to each dispatch center and a separate call center that does not transfer calls to dispatch centers, but instead sends the calls for service via shared technology such as CAD. Each alternative is summarized in the following sections Call Center with Call Transfers Under this model, all calls are routed to a single call answering point while dispatch functions remain in place in each individual agency. Under this call center model, the first call-taker must conduct a preliminary interview to determine the nature and location of the emergency. The call must then be transferred to the appropriate agency for dispatch. The dispatcher then must re-interview the caller and dispatch field personnel. The average length of time added to a call for the second interview process is approximately 30 seconds. Although this solution seems to be a fit politically, it is a model that is contrary to industry best practices and one that Kimball is not able to recommend. Industry best practices indicate that the transfer of callers should be kept to an absolute minimum due to the inherent delay that results when more than one telecommunicator handles a call. In emergencies, seconds count. This means that information critical to responding agencies safety and ability to effectively manage the emergency is delayed, as the call must be processed by the receiving PSAP first. These lost seconds can literally mean the difference between survival or not and/or impact the patient s quality of life. For example, 30 seconds to a minute of lost time can mean the difference between not surviving and being able to resuscitate a heart attack or drowning victim and whether that person will have a meaningful quality of life. In another example, a delay in receiving information regarding suspects with weapons or the presence of hazardous materials on-scene can have potentially fatal consequences for responders. While these examples are dramatic, they accurately illustrate the types of emergencies handled every day in PSAPs across the country. Transfers increase the likelihood that human and/or technological errors will occur. High levels of training can minimize the amount of human errors, but even the best trained employees will still make errors from time to time. When a caller must speak with multiple call-takers, the potential for human error rises. In Kimball s opinion, adopting this model would not result in a more effective and efficient emergency communications system for the county public safety agencies Call Center with Shared Technology Under this call center model, a separate call center is established to receive all incoming calls countywide. The call center and separate dispatch centers are equipped with the same PSAP technology. At minimum, a common CAD system would need to be shared among the call center and dispatch centers. When a call is received by the call center, the call-taker would enter the information into CAD which would send the call for service to the appropriate dispatch center(s) for dispatch of field personnel. Of the call center models, this model is the better choice since it eliminates the majority of call transfers. There are also some benefits to technology sharing, if no other form of consolidation can be achieved, as discussed in Section 4.5. However, the following should be fully assessed before choosing to implement this model: 1. Typically, separate call and dispatch centers are more costly to operate. Although the costs may be incurred by separate agencies, when combined, this model is typically more expensive to operate due to duplication in personnel June 2014 Page 58

64 and equipment. In short, the cost efficiencies associated with a single PSAP are lost. For example, today a small PSAP has one or two people on duty at a time. If a call center model was implemented then the same one or two people would be on-duty to cover dispatch functions while additional call center personnel must now be added to receive incoming calls. Depending on the governance and cost distribution models implemented, the costs of the additional personnel needed to staff the call center may be distributed among the municipalities which results in increased costs. Cost efficiencies are also lost when implementing a call center/dispatch model. Each facility, whether it is a call center or dispatch center, will need extra positions to handle major incidents. When looked at collectively, the number of total call-taker and dispatch positions needed for each technology will be higher than would be needed in a single PSAP because of this redundancy. Whether this option would be more expensive for Ashtabula County and participating municipalities would have to be assessed in the planning process prior to any long-term commitment to this model. 2. A call center under the control of one agency and dispatch centers under the control of multiple other agencies will require extensive collaboration to be successful. Each agency must agree upon the shared technology, how it will be paid for and utilized. 3. While shared technology does help increase interoperability, separating call taking and dispatch functions into multiple facilities results in the loss of one of the least tangible, but most important aspects of consolidation. When call-takers and dispatchers are in the same room communications between them is instantaneous. This level of communications results in higher quality information being communicated to field personnel more quickly. Technology such as CAD is an effective tool in communicating not only internally in a PSAP, but also between PSAPs located in different places. However, technology cannot replace the type of communications found in a single PSAP, with staff in the same room, in terms of immediate dissemination of critical updates to all agencies and field personnel that require it. 4. Differences in training methodology for call-takers will need to be standardized. Typically, opinions on what information should be gathered during a call differ from PSAP to PSAP and from police to fire to EMS. Interview protocols that meet nationally recognized standards will need to be agreed upon and incorporated into the call center training program. 5. Incident types used to enter calls for service into a CAD system must be standardized and agree upon across all dispatch agencies and the call center. For example, the incident code for a motor vehicle accident may be CRASH for one agency while another uses MVAA. This code tells the dispatcher at a glance the types of incidents waiting to be dispatched and it determines the type of response to be dispatched. It is not a realistic expectation that call-takers use different incident codes for different agencies. Therefore, some compromise and training would be needed on the part of the dispatch centers. 6. A complaint resolution process would need to be established to address service issues between the call center and dispatch centers. A process would also need to be in place to address citizen complaint investigations that involve both the call center and dispatch center(s). Although a shared technology based call center model does offer some advantages over a call center model that transfers all calls, the potential collective cost increases, degree of collaboration required and potential Next Generation concerns Kimball does not recommend this model. June 2014 Page 59

65 4.7.3 Call Center Models and Next Generation Concerns In both call center models, concerns regarding the implementation of exist. One of the key goals of NG is to eventually be able to distribute photos and video received from callers to field personnel. In a call center model an additional step and equipment must be added to the process, as technology works today. In a shared technology call center model, there is no need for the dispatch centers to be equipped with expensive call answering equipment if calls are not being transferred. However, in an NG9-1-1 environment, the photos and/or video received from a caller would be transferred via this answering equipment through a connection to an ESInet. Therefore, all dispatch centers would require this technology which would be an added cost. If the photos or video could be incorporated into a CAD incident this issue would not exist. However, as of today, there is not a CAD system on the market that has this capability nor does current industry trends indicate this will change in the near future. The balance of this page is intentionally left blank. June 2014 Page 60

66 5. GRANT AND FUNDING OPPORTUNITIES Funding is a critical part of any consolidation project. Being able to identify the right sources of funding is essential. The following section provides potential funding options for Ashtabula County. 5.1 Federal Grants Grant opportunities are scarce in the current economic environment, but Congress and Federal Programs are planning for emergency communications and preparedness grants. Whether those grants will be funded remains to be seen Federal Emergency Management Agency Preparedness Grants Fiscal Year 2013 Grant Allocations were announced for seven Department of Homeland Security (DHS) preparedness grant programs in August These programs were subject to mandatory sequestration reductions, totaling $74 million. These allocations total more than $1.5 billion to assist states, urban areas, tribal and territorial governments, non-profit agencies and the private sector. The fiscal year (FY) 2013 grants focus on the nation s highest risk areas, including urban areas that continue to face the most significant threats. Consistent with previous grant guidance, dedicated funding is provided for law enforcement and terrorism prevention activities throughout the country to prepare for, prevent and respond to pre-operational activity and other crimes that are precursors or indicators of terrorist activity. Of the seven grants that were allocated, the two below could be applicable for consolidation and/or EOC funding State Homeland Security Program The State Homeland Security Program (SHSP) provided more than $354 million in 2013 to support the implementation of state homeland security strategies to build and strengthen preparedness capabilities at all levels and to address the identified planning, organization, equipment, training and exercise needs to prevent, protect against, mitigate, respond to and recover from acts of terrorism and other catastrophic events. State Homeland Security Program also provides funding to implement initiatives that address shortfalls and deficiencies identified in the State Preparedness Report (SPR). The 9/11 Act requires states to dedicate 25 percent of SHSP funds to law enforcement terrorism prevention activities. The State Administrative Agency (SAA), which in Ohio is the Ohio Emergency Management Agency, was the only entity eligible to apply to the Federal Emergency Management Agency (FEMA) for SHSP funds. The application period opened on May 21, 2013 and closed on June 24, Recipients included all 50 states, the District of Columbia, Puerto Rico, American Samoa, Guam, the Northern Mariana Islands and the US Virgin Islands. As part of the FY 2013 Homeland Security Grant Program (HSGP) application process for SHSP, applicants were required to submit an Investment Justification (IJ) addressing each Investment being proposed for funding. Applicants were required to demonstrate how each IJ supports the building, sustainment and delivery of existing core capabilities or addresses shortfalls and deficiencies in one or more core capabilities outlined in the National Preparedness Goal (NPG) and identified in their most recent State Preparedness Report (SPR). Applicants were required to describe engagement with and/or impacts on the general and vulnerable populations, to include children, the elderly, pregnant women, and individuals with disabilities, such as those with access and functional needs. Consistent with the purpose of the program, applicants were required to demonstrate how their IJs aligned to Urban Area, state, and regional Threat and Hazard Identification and Risk Assessments (THIRAs), SPRs, national priorities, and applicable guidance provided by FEMA. June 2014 Page 61

67 The following process was used to evaluate the anticipated effectiveness of the proposed Investments and to make awards under the SHSP and Urban Area Security Initiative (UASI): FEMA verified compliance with all administrative and eligibility criteria identified in the Funding Opportunity Announcement (FOA), to include the required submission of the IJ by the established due dates. IJs were evaluated for completeness, adherence to programmatic guidelines, and anticipated effectiveness of the proposed Investments. Only the information included in the IJ was assessed in the review process. State strategies were reviewed to ensure overall strategic alignment of the Investments, but were not scored. Ohio was allocated $6,693,676 in SHSP funds for FY The allocation methodology for FY 2013 SHSP was based on three factors: minimum amounts as legislatively mandated, DHS risk methodology, and anticipated effectiveness. The anticipated effectiveness was assessed based on the applicant s description of how the proposed projects, as outlined in the IJ, aligned with the State THIRA and follow-on capability estimation. Each State and territory received a minimum allocation under SHSP using the thresholds established in the 9/11 Act and codified at 6 U.S.C Kimball recommends that Ashtabula County work with the Ohio Emergency Management Agencies Preparedness Grants Branch to identify SHSP funding opportunities for this project as soon as possible. Funding announcements are typically made in the spring of each year and application periods are typically short Proposed Consolidation of National Preparedness Grants The Federal Emergency Management Agency has been preparing to consolidate its 16 separate Preparedness grants into one National Preparedness Grant Program (NPGP) to help create a robust national preparedness capacity that focuses on cross-jurisdictional and readily deployable State and local assets. However, for the past two fiscal years FEMA has included the proposal in its budget request but Congress appropriators have not approved the proposal. It was determined that the proposed consolidation will require new legislation. The FEMA deputy administrator for protection and national preparedness reported in June 2013 that FEMA anticipates delivering to Congress a proposal for a consolidated NPGP "soon." While the consolidation proposal has not been approved, an analysis of FEMA s NPGP Vision (Vision) can give clues to the priorities and direction of the Program. The Vision planned for each State and territory to receive a base level of funding allocated in accordance with a population driven formula. The remainder of the grant allocation was to be determined competitively, based on the criticality of the specific capability and the applicant s ability to complete the project within a two year period of performance. The funding would support deployable assets that could be utilized anywhere in the country via Emergency Management Assistance Compacts or other mutual aid/assistance agreements. In addition, funding could be used by the states for the sustainment of core capabilities that may or may not be deployable, such as interoperable communications systems, mitigation-related capabilities, and fusion centers. The Vision for the program indicates that the Ashtabula Consolidation would likely be an eligible project under this consolidated grant program. The NPGP Vision focuses on cross-jurisdictional projects and mentions interoperable communications systems as a priority for the program. The Vision planned for all grant funding to be funneled through States so that States are aware of the Grant projects within their borders and can leverage opportunities to consolidate and share grant project initiatives. It will be important for the County communicate with the State to identify and apply for Federal Grant Funding in case States are the only eligible applicants. The key objectives of the program include: Focus on the development and sustainment of core capabilities identified in the NPG. Utilize gap analyses to determine asset and resource deficiencies and inform the development of new capabilities through a competitive process. June 2014 Page 62

68 Build a robust national response capacity based on cross-jurisdictional and readily deployable State and local assets. The Vision for NPGP differs from previous preparedness grant programs in the following ways: Consolidation: Consolidates current grant programs into one overarching program (excluding EMPG and fire grants). This will enable grantees to build and sustain core capabilities outlined in the NPG instead of requiring grantees to meet the mandates from multiple individual, often disconnected, grant programs. Core Capabilities: Focuses on building and sustaining the core capabilities outlined in the NPG that can be utilized across mission areas Prevention, Protection, Mitigation, Response and Recovery and can be utilized nationally and regionally. Addressing Gaps: Utilizes analysis to determine desired level of capability versus current level of capability to inform the competitive process. Accountability: Requires grantees to match their proposed investments to one or more specific core capabilities and incorporates effectiveness measures that facilitate accountability. This clear linkage will enable all levels of government to collectively demonstrate how the proposed investment will build and sustain core capabilities necessary to strengthen the Nation s preparedness. Mutual Aid: Requires grant funded resources to be complementary and requires grantees to maintain membership in the Emergency Management Assistance Compact (EMAC) to facilitate the mutual aid of capabilities in order to be eligible for funding. Competition: Establishes a competitive funding pool to build new assets and capabilities for which a need is identified in THIRA. Multiyear Guidelines: Includes multiyear guidelines to support efforts to measure progress towards building and sustaining the core capabilities identified in the NPG. Project-Based Development and Monitoring: Grant awards will be based on validated assessments of the needs and gaps for the jurisdiction and region where the project will be implemented. The Federal Emergency Management Agency will use project-based monitoring as the principal means of measuring project progress, following projects from creation to completion. This will provide basic data to measure impact over time, improve accountability, and enable FEMA to identify progress made in preparedness and determine current and future gaps. Peer Review: Validates grant proposals via peer review to ensure that projects support the building and sustainment of regional and national core capabilities Implementation Grants The Implementation Grants could be a potential funding source for the Ashtabula County Consolidation or EOC if the Program is fully funded by a Federal Communications Commission (FCC) TV spectrum auction. The passage of the Next Generation Advancement Act of 2012 provided a onetime appropriation of $115 million for implementation grants, but the funds will come from a TV spectrum auction that could take a few years to complete and several other initiatives must be fully funded before the Implementation Grants are funded. The implementation coordination grants will fund training, IP networks and NG9-1-1 services and will continue to fund basic and enhanced implementation. Both state and local entities are eligible grant recipients under the Act and grants will require a 40 percent local match. Any entity that diverted funds for other purposes will be ineligible for Implementation Grant funding. Details on eligible costs and the grant application process will come from the National Highway Traffic Safety Administration and the National Telecommunications and Information Administration once the Grant has been funded and established. Eligible costs will include: June 2014 Page 63

69 The implementation and operation of services, E9-1-1 services, the migration to the IP-enabled emergency network, and the adoption of NG9-1-1 services and applications; The implementation of IP-enabled emergency services and applications, enabled by NG9-1-1 services, including IP backbone networks and the application layer software infrastructure needed to interconnect emergency response organizations; and Training public safety personnel, other individuals and organizations who are part of the emergency response chain in service. The Federal Communications Commission has to design and implement that auction before any proceeds will become available. Once auction proceeds start to flow, a waterfall funding model will be used to distribute the auction funds to six different funding initiatives in addition to the implementation grants. The waterfall model distributes money to initiatives in order of priority, funneling money to the first initiative until it is satisfied, and then funding the second initiative, and so on. The implementation grants are ranked sixth on that list. This means five other initiatives totaling over $29 billion need to be satisfied before the implementation grants are funded and assumes that the auction will generate more than $29 billion Byrne Justice Assistance Grant Programs The County should coordinate with the Ohio Office of Criminal Justice Services to explore whether parts of the consolidation project would be eligible under the Byrne Justice Assistance Grant Program. The intent of this Program is to assist local communities to improve or maintain local criminal justice efforts to effectively address crime. Projects must demonstrate increased efficiency, safety and cost effectiveness. The Application period typically begins in the fall Bonds Issuing bond measures is another source of funding that could potentially assist local municipalities in consolidating emergency dispatch centers. A bond measure is an initiative to sell bonds for the purpose of acquiring funds for various public works projects. These measures are put up for a vote in general elections. Such measures are used when other revenue sources are limited or non-existent Earmarks Earmarks are another funding option. They are provisions in legislation that allocate an amount of money to a specific project. Earmarks are difficult to come by and require legislative action, so they are not considered a primary revenue source but could be an option if funding is scarce. June 2014 Page 64

70 6. SUMMARY AND RECOMMENDATIONS Based on the data collected during this study, Kimball recommends pursuing some form of PSAP consolidation. Key findings include: The State of Ohio has legislation on the books that mandates a reduction in the number of PSAPs within a county if those PSAPs wish to receive funding from the state. The County has a need to relocate its PSAP and EMA due to space limitations therefore this may be an opportune time for a consolidation effort. In general, many of the key PSAP systems are outdated and need to be replaced. The County needs to start planning for NG9-1-1, which will require an ESInet and CPE that is i3 capable. The existing CPE was installed 15 years ago and last updated in The usual life expectancy of CPE is approximately seven years so the equipment is in serious need of replacement. The majority of the PSAPs have a single person on duty. A single person can quickly become overwhelmed by incoming calls and dispatch traffic. This type of environment can lead to errors and inefficient handling of calls and radio traffic. A large number of calls must be transferred between PSAPs before all required services are dispatched. Kimball recommends that the participants in this study commit to the next phase of the consolidation process as discussed in Section 6.1. This next step does not require participants to commit to consolidation. The commitment is to determine if each potential show stopper can be resolved. These show stoppers include cost distribution and governance as the two most contentious topics. This process will result in identification of those participants who are willing to commit to consolidation. Once the actual participants are identified, costs associated with staffing, facility and technology can be more accurately estimated and each participant can determine their own costs. Of the consolidation models discussed in this report, Kimball believes a full countywide consolidation, if deemed financially and politically possible, will provide the most advantages to the community and the public safety agencies. Consolidation benefits include: More on-duty staff during peak periods which prevents a single on-duty telecommunicator from being overwhelmed during busy periods. This will lessen the potential for errors and improve call handling and dispatch times. Access to technology that may have been cost prohibitive on an individual PSAP basis All disciplines (police, fire and EMS) receive the same high level of service when provided by the same organization. Standardized training. Career ladder for employees which increase employee retention and lowers training costs. A more regional approach to emergency communications allows for maximum efficiency in use of field personnel and resources. Of the other models, Kimball recommends a partial consolidation and then shared technology if no other type of consolidation can be achieved. Kimball does not recommend a call center model that has all calls coming into a single facility and then every call is then transferred out to a dispatch center. June 2014 Page 65

71 6.1 Next Steps Completion of the feasibility study is only the first real step in the consolidation. Once the study is complete, moving forward to the planning phase requires making key decisions first. These decisions form the basis for further planning and determine how the PSAP will be structured, governed, and funded, as well as how it operates. Decisions include: If consolidating makes sense Governance Organizational Structure Funding Mechanisms Identifying facilities for evaluation or preparing for new construction A common roadblock to each county, municipality or user agency deciding whether to participate occurs at this point in the process. Each entity understandably needs to know how much the initial capital and recurring costs will be for participating and how much, if any, cost savings is achievable. However, identifying these costs requires that the number of actual participants be determined in order to calculate workload, staffing and required physical space needs. In addition, key and often contentious decisions must be made. Governance and funding models must be agreed upon by all potential participants before per-entity costs can be determined with any reliability. One method to resolve this Catch-22 is to have all potential participants agree to continue in the process until governance and funding models and entity-specific financials are determined. In other words, once consolidation is determined to be feasible, all potential partners agree to come to the table and work out governance, funding, and facility decisions so that per-entity costs can be established. No county, user agency, or municipality is committed to consolidating at this point in time. Once these key decisions are made and costs can be determined, those that wish to commit to being part of the new PSAP can sign an intergovernmental agreement and the real planning begins. Initial planning includes: Begin construction or renovation process for the chosen facility. Begin procurement of any needed technology. Begin recruitment of a director. Identify professional services support needed and begin process to procure them. Begin resolving human resource issues such as labor agreements, pay, seniority, vacation, job titles, and deciding whether existing PSAP staff will be automatically grandfathered in or if an interview and hiring process will take place. Begin development of standard operating procedures or guidelines for the new PSAP. Establish work groups to focus on facility, human resources, policy, and technology components of the project. June 2014 Page 66

72 Appendix A Participation in LEADS 4501: Participation in LEADS. (A) Participation in LEADS and the assignment of an originating agency identifier requires application and documentation the requester is: (1) A criminal justice agency. (2) An agency under the management control of a criminal justice agency. A criminal justice agency must have a written agreement with a governmental division which operates the data equipment used by agencies to access LEADS/NCIC to assure the criminal justice agency has management control. This includes regional dispatch centers as a cooperative effort entered into by political subdivisions in a particular area for the purpose of providing consolidated and computer-assisted dispatch for public safety purposes; that is, police, fire, and rescue services. (3) A nongovernmental railroad or private campus police department which performs the administration of criminal justice and has arrest powers pursuant to state statute, which allocates a substantial part (more than fifty per cent) of its annual budget to the administration of criminal justice and which meets training requirements established by law or ordinance for such officers. (4) A nongovernmental agency or subunit thereof which allocates a substantial part of its annual budget (more than fifty per cent) to the administration of criminal justice. The agency may have access to files, except criminal history record information, provided such access is approved by LEADS. (5) A governmental or nongovernmental regional dispatch center, which provides communication services to criminal justice agencies may be authorized access to files. Such centers shall be required to execute an agreement with each criminal justice agency it serves and with LEADS assuring compliance with all duly promulgated LEADS rules. (6) The national insurance crime bureau (NICB), a nongovernmental, nonprofit agency, which acts as a national clearinghouse for information on stolen vehicles and offers free assistance to law enforcement agencies concerning automobile thefts, identification and recovery of stolen vehicles may be provided limited access to the LEADS and NCIC vehicle and license plate files and to the NCIC boat files. (7) A noncriminal justice governmental bureau of motor vehicles (BMV) or division of motor vehicles (DMV), established by a state statute, which provides vehicle registration and driver record information to criminal justice agencies and has an essential need to access the license plate and vehicle files may be authorized to participate in LEADS, excepting criminal history record information. Such registry shall be required to execute an agreement with LEADS assuring compliance with all established rules. (8) Intrastate regional systems. (9) A governmental, noncriminal justice agency created by federal, state or local code, whose mission is to enforce or assist in enforcing federal, state or local laws or ordinances may access Ohio and other state bureau of motor vehicle data as available. (B) Agencies approved to participate in LEADS shall be granted access subject to the following restrictions: (1) Full access (entry, retrieval, and message switching capabilities): (a) The terminal must be staffed twenty-four hours a day, seven days a week, every day of the year. (b) The agency must have the authority to act and to pursue persons entered as wanted when apprehended by another agency per the pick-up radius/extradition limitation contained within the record. (c) Intrastate regional systems under criminal justice management control whose central computer system is staffed twentyfour hours a day, seven days a week, every day of the year. (d) The primary purpose of LEADS is the protection of the officer on the street; therefore, terminal operators shall maximize entry capabilities to serve this purpose, i.e. packing the record. (2) Inquiry only (retrieval and message switching capabilities): (a) Terminals which are not staffed twenty-four hours per day, seven days per week, each day of the year. (b) Noncriminal justice agencies permitted access to LEADS. June 2014 Page 67

73 (3) Mobile access: (a) Agencies utilizing mobile access devices may have full retrieval and message switching capabilities, including CCH data and hard copy printouts of all LEADS output. (b) CCH information and/or hard copy printouts in the mobile access device environment are governed by the same rule/policy as hard wired devices. Any agency wishing to provide mobile access device service must have written approval of the CSO. (c) A mobile access device shall not be utilized in lieu of a traditional workstation in an office environment without expressed written consent of the CSO or his/her designated authorized agent. (4) Non-terminal agency: (a) An agency which qualifies for an ORI may enter into an agreement with the CSA/LEADS for LEADS service. LEADS will provide the non-terminal agency with a copy of the participation agreement and with copies of the administrative rules, operating manual and training materials applicable to LEADS practitioners (road officers, secretaries, clerks, etc.). (b) Non-terminal agencies authorized to receive LEADS data are certified as such in a database prepared/maintained by LEADS which is accessible to all terminal agencies. (c) Unauthorized non-terminal agency ORI's will be denied inquiry capabilities. Terminal agencies must use the non-terminal ORI for inquiry functions when the request is initiated by the non-terminal agency. (C) Agencies participating in LEADS shall meet the following requirements: (1) Remit payment of all monetary obligations as invoiced by the Ohio state highway patrol, administrators of LEADS. (2) Assume responsibility for, and enforce, system security and integrity. (3) Adhere to policies and guidelines published in the NCIC operating manual, CJIS security policy, LEADS operating manual, LEADS security policy, newsletters, and administrative messages from LEADS, all of which are either available on the ODPS/LEADS intranet or disseminated to LEADS agencies. (4) Ensure all terminal operators become LEADS certified by completing the appropriate LEADS certification test within the first six months of employment and recertify every two years thereafter. New employees are permitted to use the LEADS terminal under the supervision of a certified operator during the new employee training period. (5) Limit LEADS access to certified operators employed by the agency assigned the originating agency identifier (ORI). Nonemployees cannot be used as LEADS terminal operators with the exception of task force, special, reserve, or auxiliary officers commissioned by the agency, or personnel under the management control of the assigned agency. (6) Execute appropriate application, participation agreement, and holder of the record forms. These forms must be kept current and will be reviewed and updated triennially as part of the agency audit. The completed forms will be filed with LEADS and the user agency. (7) Appoint a LEADS terminal agency coordinator (TAC) and local agency security officer (LASO). Each participating nonterminal agency must have a non-terminal agency coordinator (NTAC). (8) Conduct a complete background investigation of all terminal operators including, but not limited to: (a) An applicant national web-check ten-print electronic submission to BCI&I and FBI (within the policies governing their systems. (b) The agency is required to notify the CSO of any applicant's criminal record. Existence of a criminal record may result in the denial of access. (9) Train all personnel of the agency having access to LEADS data with the capabilities, services offered and rules of LEADS. Compliance with this rule shall include, but is not limited to, completion of the LEADS provided practitioner lesson plan and biennial security awareness training. (10) Restrict entries in the LEADS trap file to law enforcement officers involved in high-risk investigations, threatened with physical harm, or have reason to believe physical harm could occur as a result of performing their duties. (a) Trap requests shall include a contact number for twenty-four hour notification. Failure to include a valid twenty-four hour contact can result in the trap being deleted from the system. (b) Trap entries shall be audited every twelve months. Failure to validate entries will result in the trap being deleted from the system. June 2014 Page 68

74 Replaces: 4501: Effective: 04/05/2013 R.C review dates: 12/26/2017 Promulgated Under: Statutory Authority: R.C Rule Amplifies: R.C Prior Effective Dates: 10/10/91, 3/28/92, 4/11/94, 9/29/94, 10/10/95, 5/27/96, 7/31/98, 7/1/01, 11/1/03, 12/23/04, 02/15/08 Source: June 2014 Page 69

75 Appendix B Ohio Code Countywide system. (A) (1) A countywide system shall include all of the territory of the townships and municipal corporations in the county and any portion of such a municipal corporation that extends into an adjacent county. (2) The system shall exclude any territory served by a wireline service provider that is not capable of reasonably meeting the technical and economic requirements of providing the wireline telephone network portion of the countywide system for that territory. The system shall exclude from enhanced any territory served by a wireline service provider that is not capable of reasonably meeting the technical and economic requirements of providing the wireline telephone network portion of enhanced for that territory. If a planning committee and a wireline service provider do not agree on whether the provider is so capable, the planning committee shall notify the steering committee, and the steering committee shall determine whether the wireline service provider is so capable. The planning committee shall ascertain whether such disagreement exists before making its implementation proposal under division (A) of section of the Revised Code. The steering committee's determination shall be in the form of an order. No final plan shall require a wireline service provider to provide the wireline telephone network portion of a system that the steering committee has determined the provider is not reasonably capable of providing. (B) A countywide system may be a basic or enhanced system, or a combination of the two, and shall be for the purpose of providing both wireline and wireless (C) Every emergency service provider that provides emergency service within the territory of a countywide system shall participate in the countywide system. (D) (1) Each public safety answering point shall be operated by a subdivision or a regional council of governments and shall be operated constantly. (2) A subdivision or a regional council of governments that operates a public safety answering point shall pay all of the costs associated with establishing, equipping, furnishing, operating, and maintaining that facility and shall allocate those costs among itself and the subdivisions served by the answering point based on the allocation formula in a final plan. The wireline service provider or other entity that provides or maintains the customer premises equipment shall bill the operating subdivision or the operating regional council of governments for the cost of providing such equipment, or its maintenance. A wireless service provider and a subdivision or regional council of governments operating a public safety answering point may enter into a service agreement for providing wireless enhanced pursuant to a final plan adopted under this chapter. (E) Except to the extent provided in a final plan that provides for funding of a system in part through charges imposed under section of the Revised Code, each subdivision served by a public safety answering point shall pay the subdivision or regional council of governments that operates the answering point the amount computed in accordance with the allocation formula set forth in the final plan. (F) Notwithstanding any other provision of law, the purchase or other acquisition, installation, and maintenance of the telephone network for a system and the purchase or other acquisition, installation, and maintenance of customer premises equipment at a public safety answering point made in compliance with a final plan or an agreement under section of the Revised Code, including customer premises equipment used to provide wireless enhanced 9-1-1, are not subject to any requirement of competitive bidding. (G) Each emergency service provider participating in a countywide system shall maintain a telephone number in addition to (H) Whenever a final plan provides for the implementation of basic 9-1-1, the planning committee shall so notify the steering committee, which shall determine whether the wireline service providers serving the territory covered by the plan are capable of reasonably meeting the technical and economic requirements of providing the wireline telephone network portion of an June 2014 Page 70

76 enhanced system. The determination shall be made solely for purposes of division (C)(2) of section of the Revised Code. (I) If the public safety answering point personnel reasonably determine that a call is not an emergency, the personnel shall provide the caller with the telephone number of an appropriate subdivision agency as applicable. (J) A final plan adopted under this chapter, or an agreement under section of the Revised Code, may provide that, by further agreement included in the plan or agreement, the state highway patrol or one or more public safety answering points of another system is the public safety answering point or points for the provision of wireline or wireless for all or part of the territory of the system established under the plan or agreement. In that event, the subdivision for which the wireline or wireless is provided as named in the agreement shall be deemed the subdivision operating the public safety answering point or points for purposes of this chapter, except that, for the purpose of division (D)(2) of this section, that subdivision shall pay only so much of the costs of establishing, equipping, furnishing, operating, or maintaining any such public safety answering point as are specified in the agreement with the patrol or other system. (K) A final plan for the provision of wireless enhanced shall provide that any wireless calls routed to a state highway patrol-operated public safety answering point by default, due to a wireless service provider so routing all such calls of its subscribers without prior permission, are instead to be routed as provided under the plan. Upon the implementation of countywide wireless enhanced pursuant to a final plan, the state highway patrol shall cease any functioning as a public safety answering point providing wireless within the territory covered by the countywide system so established, unless the patrol functions as a public safety answering point providing wireless enhanced pursuant to an agreement included in the plan as authorized under division (J) of this section. Renumbered and amended from by 130th General Assembly File No. 25, HB 59, , eff. 9/29/2013. Renumbered from and amended by 129th General AssemblyFile No.166,HB 360, 1, eff. 12/20/2012. Source: June 2014 Page 71

77 Appendix C Ohio Code Establishing countywide public safety communications system. (A) As used in this section, "countywide public safety communications system" means a system of communications facilities, equipment, and services that helps to provide immediate field exchange of police, fire, and emergency medical services information between the county and participating states, political subdivisions, and other public entities, without regard to which jurisdiction holds title to real or personal property used in the system or employs the persons responsible to dispatch emergency personnel using the system. (B) A board of county commissioners may establish a countywide public safety communications system. The system shall be operated in accordance with division (B)(1), (2), or (3) of this section. (1) In any county with a population of less than seven hundred fifty thousand, the county sheriff shall operate the countywide public safety communications system unless, before commencing operation of the system, the sheriff gives written notice to the board of county commissioners that he chooses not to do so. After the board of county commissioners receives such written notice from the sheriff, the board shall operate the system. Once the sheriff gives notice that he chooses not to operate the system, neither he nor any person occupying the office of county sheriff in the future may choose to operate the system at a later date, except as provided in division (B)(3) of this section. (2) In any county with a population of seven hundred fifty thousand or more, the board of county commissioners shall operate the system, unless the board and the county sheriff mutually agree that the sheriff will operate the system. (3) In any county, after the board of county commissioners commences operation of a public safety communications system, if the board chooses to stop operating the system, the county sheriff may operate the system. (C) The board of county commissioners may construct, acquire, or contract for communications facilities for the public safety communications system. In addition, the board may acquire or contract for computers and other equipment in connection with the system, provide equipment to the users of the system, maintain the facilities and equipment, employ personnel or contract for personal services, and exercise other powers as necessary to operate the system. The board may adopt policies or rules for the administration, operation, and maintenance of the system. If the county sheriff is the operator of the system, he may employ personnel in connection with the operation of the system. (D) The board of county commissioners may enter into agreements with this state, political subdivisions of this state, an adjoining state or any of its political subdivisions, or any other public entity concerning the use of the countywide public safety communications system. (E) A board of township trustees may enter into an agreement with the board of county commissioners pursuant to division (D) of this section. (F) The authority granted to a county sheriff under division (B) of this section to operate a countywide public safety communications system does not apply in any county where, on and before the effective date of this section, the board of county commissioners is providing public safety communications facilities to, or coordinating the public safety communications needs of, municipal corporations, townships, or other entities or officials by means of officials or with employees not under the direct supervision of the county sheriff. However, if such a board of county commissioners and the county sheriff mutually agree that the sheriff will operate a countywide public safety communications system, he may operate it. (G) Nothing in this section requires a county sheriff in a county with a population of less than seven hundred fifty thousand to use the public safety communications system to dispatch his employees. Effective Date: Source: June 2014 Page 72

78 Appendix D HB 360 Analysis June 2014 Page 73

79 CORRECTED VERSION * Ohio Legislative Service Commission Final Analysis Maura McClelland Sub. H.B th General Assembly (As Passed by the General Assembly) Reps. Sens. Rosenberger, Butler, Murray, Grossman, J. Adams, Ruhl, Gonzales, Combs, Stautberg, Batchelder Hite, LaRose, Eklund, Gentile, Niehaus, Seitz, Wagoner Effective date: Emergency, December 20, 2012 ACT SUMMARY Transfer of duties Transfers, effective December 20, 2012, authority over the service law to the Department of Public Safety and the Department of Taxation, with Taxation responsible for administering the collection of the charges and disbursement of the funds. Wireless charges Reduces the monthly wireless charge on wireless service subscribers in Ohio from 28 to 25, applies the charge only to nonprepaid wireless service subscribers in Ohio, and makes the charge permanent. Eliminates the wireless charge imposed on prepaid wireless service subscribers from December 20, 2012, until July 1, Prohibits imposing the wireless charge on a wireless lifeline service provider. Imposes, effective July 1, 2013, a new wireless charge on prepaid wireless service subscribers of 0.5% of the sales price for the service. Imposes the prepaid wireless charge at the point of sale, requiring the sellers of prepaid wireless services to collect the charge. * This version corrects typographical errors.

80 Collection and remittance of wireless charges Requires sellers of prepaid wireless services, wireless service providers, and resellers to remit the prepaid and nonprepaid wireless charges to the Tax Commissioner. Specifies that sellers of prepaid services are subject to sales-tax requirements regarding audits, assessments, appeals, enforcement, liability, and penalties, and transfers duties related to audits of providers and resellers of nonprepaid services from the Public Utilities Commission to the Tax Commissioner. Requires a seller of prepaid services to file returns for remittances electronically using the Ohio Business Gateway, the Ohio Telefile System, or any other electronic means required by the Tax Commissioner, unless excused for good cause shown. Permits sellers of prepaid services to retain a 3% collection fee before remitting the prepaid charges. Requires the Tax Commissioner to provide all known sellers of prepaid services, wireless service providers, and resellers with notice of any increase or decrease in the amount of the prepaid or nonprepaid charge. Disbursements Limits, on and after July 1, 2013, disbursements to counties from the Wireless Government Assistance Fund to the level disbursed in Requires that the balance of the remittances in the Wireless Government Assistance Fund be deposited into the Next Generation Fund, which is a custodial fund in the state treasury established by the act. Requires the Treasurer of State to disburse money to counties from the Next Generation Fund only on order of the Tax Commissioner according to policies established by the Statewide Emergency Services Internet Protocol Network Steering Committee. Liability Excludes providers and sellers of prepaid wireless calling services from civil liability for activities or omissions with regard to a system or for providing related assistance. Relieves providers of prepaid wireless service from liability to the state for any prepaid wireless charge that was not collected or remitted. Legislative Service Commission -2- Sub. H.B. 360

81 Administration Modifies the Wireless Administrative Fund to permit, effective December 20, 2012, the Department of Public Safety and the Department of Taxation to each receive 1% of the wireless charges placed in the Fund to cover their costs in carrying out their duties regarding service. Requires the Tax Commissioner and the Director of Public Safety annually to transfer any excess amounts from the Wireless Administrative Fund to the Wireless Government Assistance Fund, which is the main fund for the deposit of the wireless charges. Replaces the Ohio Coordinator with a representative of public safety communications officials, as a member of the Ohio Council, effective December 20, Makes the Director of Public Safety responsible for appointing the Ohio Coordinator and modifies the powers and duties of the Coordinator. Grants rule-making authority under the Administrative Procedure Act to the Tax Commissioner and the Director of Public Safety, to be exercised in consultation with each other, to carry out Ohio's service law. Steering Committee and public safety answering points Changes the due date of the Steering Committee's initial report to the Speaker of the House, the President of the Senate, and the Governor, providing recommendations regarding development of a statewide emergency services network, from November 15, 2012, to May 15, Requires the report recommendations to include a review of the current funding model for Ohio's systems and permits the report to include a recommendation for a reduction in the wireless charges modified and established by the act. Requires the report recommendation regarding consolidation of operations of public safety answering points (PSAPs) in Ohio to also include recommendations for accelerating the consolidation of PSAP fund usage that the act requires. Progressively limits the number of PSAPs in each county for which disbursements from the charges may be used, ultimately limiting the number to three PSAPs in 2018 (or four PSAPs if the county includes a municipal corporation with a population of more than 175,000). Legislative Service Commission -3- Sub. H.B. 360

82 Requires, not later than February 15, 2013, each countywide planning committee chair, or designee, to report to the Steering Committee, certain geographic, demographic, statistical, expenditure, network, and other information, as required by the Steering Committee. Provides for the Steering Committee to penalize any county that does not make a timely report as described above by causing the suspension of disbursements from the Wireless Government Assistance Fund. Requires, not later than January 1, 2014, that the Steering Committee adopt rules under the Administrative Procedure Act that establish technical and operations standards for PSAPs eligible to receive disbursements from the Wireless Government Assistance Fund. Requires PSAPs to comply with the new Steering Committee standards not later than two years after the effective date of the rules. Prohibits disbursements to a countywide system for PSAP costs from the Wireless Government Assistance Fund or the Next Generation Fund unless the PSAP complies with the rules establishing the technical and operations standards. Requires the Steering Committee to establish guidelines for the Tax Commissioner to use when disbursing money to counties from the Next Generation Fund, which guidelines must be consistent with the PSAP technical and operations standards and specify for what the funds may be used. Permits the Auditor of State to audit and review county expenditures of disbursed funds from the Wireless Government Assistance Fund to verify the money was used in accordance with the law. Wireline provisions Requires the Tax Commissioner to determine the just, reasonable, and compensatory rates that telephone companies may charge for the telephone network portion of a basic or enhanced system. Requires the Department of Public Safety to determine whether a telephone company is capable of reasonably meeting the technical and economic requirements of providing the wireline telephone network portion of a countywide system. Legislative Service Commission -4- Sub. H.B. 360

83 Recodification Recodifies all Revised Code sections addressing wireline and wireless to Chapter of the Revised Code. Emergency Declares an emergency. Provisions altered by Am. Sub. H.B. 472 Contains numerous provisions that were immediately altered by Am. Sub. H.B. 472 of the 129th General Assembly. TABLE OF CONTENTS Note: certain provisions immediately altered by Am. Sub. H.B Transfer of duties... 7 Changes to the wireless charge... 7 Requirement imposed on sellers of prepaid services... 8 Wireless lifeline service providers... 9 Remittance of charges... 9 Remittance by prepaid sellers... 9 Remittance by providers and resellers of nonprepaid wireless services...10 Transfers to funds by the Department of Taxation...11 Notice requirement for change in the wireless charge amount...11 Funding for administrative costs...12 Funding for the Departments of Taxation and Public Safety...12 Transfer of excess administrative funds...12 Disbursement of charges...12 Disbursements from the Wireless Government Assistance Fund...12 Administration...12 Level of disbursements...13 Disbursements conditional on meeting committee standards...13 Limitations on how many answering points may use disbursements...13 Audit and review of county expenditures...14 Removal of limitation for costs incurred before March 2, Certification of amount in fund...14 Disbursements from the Next Generation Fund...14 Creation of the fund...14 Funding source...15 Administration...15 Disbursements conditional on meeting committee standards Service Program and Ohio Coordinator...15 Statewide Emergency Services Internet Protocol Network Steering Committee...16 Report to General Assembly leadership and the Governor...16 Recommendations for accelerating the consolidation schedule...16 County report requirement...16 General wireless reporting requirement...17 Liability limitations...17 Legislative Service Commission -5- Sub. H.B. 360

84 Rule-making authority...18 Wireless Advisory Board...18 Ohio Council...18 Rates for the wireline network...19 Additional duties given to the Department of Public Safety...19 Determinations regarding wireline service...19 Assistance regarding monthly charges on telephone access lines...19 Jurisdiction regarding disclosure of certain information...20 Attorney General proceedings...20 Emergency clause...20 Repeal of report requirement...21 Recodification and related changes...21 Corrective change...21 CONTENT AND OPERATION Note: certain provisions immediately altered by Am. Sub. H.B. 472 Numerous provisions of this act were immediately altered by Am. Sub. H.B. 472, which was an emergency measure that took effect on the same day as this act (December 20, 2012). Still, this analysis examines only the changes made by this act. Alterations made by Am. Sub. H.B. 472 include the following: Requires continuous imposition of the monthly wireless charge on prepaid subscribers. Delays some administrative duties of the Tax Commissioner until 2014, and requires that certain duties remain with the Public Utilities Commission (PUCO) until then. Maintains the requirement that the PUCO determine the rates for the wireline telephone network portion of a system. Terminates the Service Program and the position of the Ohio Coordinator, effective January 1, Modifies the membership of the Ohio Council. Alters provisions governing remittance of the wireless charges to the Tax Commissioner, as well as the related audit and assessment provisions. Alters liability provisions. Changes requirements for how disbursements must be made. Legislative Service Commission -6- Sub. H.B. 360

85 Changes requirements for how disbursements from the Next Generation Fund may be used. Limits the number of public safety answering points that may use disbursements from the Next Generation Fund. Requires the Department of Public Safety to monitor compliance with technical and operation standards for public safety answering points set by rule of the Statewide Emergency Services Internet Protocol Network Steering Committee. Changes the administrative-funding provisions for the Departments of Taxation and Public Safety. Appropriates $1,174,000 from the General Revenue Fund to the Department of Taxation for operating expenses, effective December 20, Changes the rule-making provisions. Corrects certain errors in Sub. H.B The final analysis for Am. Sub. H.B. 472 provides a full explanation of those alterations. Transfer of duties The act transfers administrative duties regarding the service law from the PUCO to the Department of Public Safety and the Department of Taxation. Under the act, this transfer generally takes effect on December 20, The act gives the Department of Taxation most of the authority with regard to collection and disbursement of the wireless charges. 1 Changes to the wireless charge This act changes the method of collection of the wireless charge on prepaid wireless subscribers by requiring sellers of prepaid wireless services to collect the charge at the point of sale, rather than requiring collection by prepaid providers or resellers. Under prior law, there was one wireless charge, imposed on all wireless subscribers (including prepaid) with Ohio billing addresses, at 28 per month, and collected by wireless service providers or resellers. The act creates a distinction between the prepaid charge and the nonprepaid charge. The act also changes the amounts of the charges, making the prepaid charge 0.5% of the sale price of the prepaid services, and decreasing the nonprepaid charge to 25 per month. 1 R.C. Chapter 5507., R.C , and Section 3 of the act. Legislative Service Commission -7- Sub. H.B. 360

86 The act's prepaid charge does not take effect until July 1, The act terminates the prior-law charge as to prepaid subscribers effective December 20, 2012, so that no wireless charge is to be imposed on prepaid subscribers during the interim period. The act also makes both charges the prepaid charge and the nonprepaid charge permanent. Under prior law, the wireless charge was required to expire at the end of Requirement imposed on sellers of prepaid services The act requires the seller of a "prepaid wireless calling service" to collect the prepaid wireless charge (which takes effect July 1, 2013) from the consumer at the time of each retail sale. 3 A "prepaid wireless calling service" is defined as a telecommunications service that provides the right to utilize mobile telecommunications service as well as other non-telecommunications services, including the download of digital products delivered electronically, and content and ancillary services, that must be paid for in advance and that is sold in predetermined units of dollars of which the number declines with use in a known amount. 4 The seller must collect the charge at the time of the retail sale and itemize the charge on the receipt, invoice, or similar form of written documentation. 5 The act gives "retail sale" the same meaning as in the sales-tax law, which includes all sales, except those in which the purpose of the consumer is to resell the thing transferred or benefit of the service provided, by a person engaging in business, in the form in which the same is, or is to be, received by the person. 6 The act contains specific provisions for when a prepaid wireless calling service is sold with one or more other products or services for a single, nonitemized price, such as when a prepaid mobile phone is sold with free minutes upon activation. In this case, the act requires the prepaid charge to be imposed on the entire sale price, with the following exceptions: The seller may impose the charge on only the dollar amount of the prepaid wireless calling service if that amount is disclosed to the consumer. 2 R.C and Section 3 of the act; R.C under prior law. 3 R.C R.C (X); R.C (AA)(5) (not in the act). 5 R.C (B)(3). 6 R.C (Z); R.C (E) (not in the act). Legislative Service Commission -8- Sub. H.B. 360

87 The seller may impose the charge only on the portion of the price attributed to the prepaid wireless calling service if the seller can identify that portion by reasonable and verifiable standards. The seller is permitted not to collect the charge at all if the amount of the prepaid wireless calling service is ten minutes or less or $5 or less. 7 The act specifies that a retail sale occurs in Ohio if it is effected by the consumer appearing at a seller's business location in Ohio. The act also permits sales to be sourced in the same manner as for sales tax purposes, except that the seller may elect to source the sale to the location associated with the mobile phone number. 8 Prior law required wireless service providers or resellers to collect the wireless charge from prepaid subscribers in one of the following manners: at the point of sale, such as when a subscriber purchases additional minutes; by reducing a subscriber's positive account balance at the beginning of a month; or by taking the amount due out of the provider's or reseller's earned prepaid revenue. 9 Wireless lifeline service providers The act prohibits "the wireless charge" from being imposed on a wireless lifeline service provider. But, continuing law describes the nonprepaid charge as being imposed on the wireless subscribers, and not the providers. The prepaid charge is described as being imposed on each retail sale of a prepaid wireless calling service. 10 Remittance of charges Remittance by prepaid sellers The act requires sellers of prepaid services to, by the 23rd of each month, make and file a return showing the amount of prepaid charges collected in the previous month, and remit the full amount due to the Department of Taxation. Sellers may 7 R.C (B)(4). 8 R.C (B)(2). 9 R.C (A) under prior law. 10 R.C Legislative Service Commission -9- Sub. H.B. 360

88 retain a collection fee of 3% of the total charges collected and must account for the retained amount to the Tax Commissioner. The Tax Commissioner may authorize a seller to make and file returns less frequently if collected charges do not merit monthly returns, based on administrative costs to the state. The return must be filed electronically using the Ohio Business Gateway, the Ohio Telefile System, or any other electronic means prescribed by the Tax Commissioner, unless the Commissioner excuses a seller, for good cause shown, from the electronic-filing requirement. Payment must be made electronically (unless the seller is excused for good cause shown) in a manner approved by the Tax Commissioner. The Tax Commissioner may extend the time for making and filing returns and paying amounts due. The act also permits the Tax Commissioner to require that the return for the last month of any annual or semiannual period be a reconciliation return detailing the prepaid charges collected during the preceding annual or semiannual period. The act would require the reconciliation return to be filed by the last day of the month following the last month of the annual or semiannual period. 11 Under prior law, the wireless charges were required to be remitted directly to the Ohio Coordinator, within the PUCO, on a monthly basis. 12 The act specifies that sellers (beginning July 1, 2013) are subject to the sales-tax requirements, as those requirements apply to audits, assessments, appeals, enforcement, liability, and penalties. The act requires the Tax Commissioner to establish procedures by which a person may document that a sale is not a retail sale subject to the act's requirements. These procedures must substantially coincide with similar sales-tax procedures. 13 Remittance by providers and resellers of nonprepaid wireless services The act requires that providers and resellers of nonprepaid wireless services remit collected nonprepaid wireless charges to the Tax Commissioner, beginning December 20, Under prior law, providers and resellers were required to remit collected wireless charges to the Ohio Coordinator. 15 Similarly, the act permits the Tax Commissioner, rather than the PUCO, to audit providers and resellers for failure to bill, collect, or remit charges. The act also permits the Tax Commissioner to assess 11 R.C (B) and (C). 12 R.C (A) under prior law. 13 R.C R.C (A) and Section 3 of the act. 15 R.C under prior law. Legislative Service Commission -10- Sub. H.B. 360

89 providers or resellers for determined failures to bill, collect, or remit charges. The assessment provisions remain the same as under prior law, which had placed the assessment authority with the PUCO. 16 Transfers to funds by the Department of Taxation Beginning July 1, 2013, the Department of Taxation is required to transfer the remitted wireless charges directly to the appropriate funds. Specifically, the Department must, within 45 days after the end of each month, transfer 1% of the remitted charges to the Wireless Administrative Fund in the state treasury, which funds state-government costs of administering the service law (see "Funding for administrative costs," below). Within the same 45-day time period, the Department must transfer the remaining amount to the Wireless Government Assistance Fund (a custodial fund of the State Treasurer), which funds local costs of providing wireless service. 17 Monthly disbursements are made from this fund to counties that have adopted final plans for wireless enhanced systems. The act requires the Department, immediately upon completion of the transfer, to certify to the Director of Public Safety the amounts transferred to the Wireless Government Assistance Fund. 18 Under prior law, up to 2% of the remitted wireless charges were required to go to the Wireless Administrative Fund, which funded the PUCO's administrative costs, and the remainder was required to be deposited into the Wireless Government Assistance Fund. 19 Notice requirement for change in the wireless charge amount The act requires the Tax Commissioner, beginning July 1, 2013, to give all known sellers of prepaid wireless calling services, wireless service providers, and wireless service resellers notice of any increase or decrease in either of the wireless charges, at least 30 days before the increase or decrease would take effect R.C (E). 17 R.C R.C (B) and R.C under prior law. 20 R.C Legislative Service Commission -11- Sub. H.B. 360

90 Funding for administrative costs Funding for the Departments of Taxation and Public Safety As stated above, the act requires the Department of Taxation to transfer 1% of the remitted wireless charges to the Wireless Administrative Fund. It also states that the fund is to be used for defraying the Department's administrative costs. 21 In another provision, the act requires that periodic remittances of the charges be deposited to the credit of the fund and used as follows: 1% by the Department of Taxation for its administrative costs and another 1% by the Department of Public Safety for its administrative costs. 22 Transfer of excess administrative funds The act requires the Tax Commissioner and the Director of Public Safety to annually transfer any excess remaining in the Wireless Administrative Fund to the Wireless Government Assistance Fund. 23 Disbursement of charges Disbursements from the Wireless Government Assistance Fund Administration The act requires the Tax Commissioner, rather than the Ohio Coordinator, to make the disbursements to counties from the Wireless Government Assistance Fund and to administer the fund. Similarly, the act requires the Tax Commissioner, rather than the Ohio Coordinator, to receive certifications that a subdivision or regional council of governments has paid the basic costs for which disbursements from the fund may be used for. After this certification is made, the subdivision or council may use disbursements from the fund to pay personnel costs of public safety answering points providing countywide wireless enhanced service. Under the act, these changes are effective December 20, R.C (A). 22 R.C (A). 23 R.C (A)(3). 24 R.C , (B), , and (B) and (C) and Section 3 of the act; R.C , (B), and (B) and (C) under prior law. Legislative Service Commission -12- Sub. H.B. 360

91 Level of disbursements The act requires, beginning July 1, 2013, that disbursements from the Wireless Government Assistance Fund remain at the level disbursed in Disbursements conditional on meeting committee standards The act prohibits disbursements from the Wireless Government Assistance Fund unless "the public safety answering point" meets the standards set by rule of the Statewide Emergency Services Internet Protocol Network Steering Committee. This provision of the act refers to the creation statute of the Committee, which does not expressly provide for the adoption of any standards. 26 However, another statute requires the Committee to adopt rules by 2014, in accordance with the Administrative Procedure Act, that establish technical and operational standards for public safety answering points eligible to receive disbursements from the Wireless Government Assistance Fund. The rules must incorporate industry standards and best practices for wireless services. The act requires that public safety answering points comply with the standards not later than two years after the effective date of the rules. 27 Limitations on how many answering points may use disbursements The act progressively limits the number of public safety answering points within a system that may use disbursements from the Wireless Government Assistance Fund to pay allowable costs, as follows: Before 2016 Years Maximum number of answering points that may use disbursements per calendar year Five 2016 and 2017 Four* 2018 and subsequent years Three* * If there is a municipal corporation with a population over 175,000, that county may use disbursements for one public safety answering point in addition to the maximum permitted for that period. If a county exceeds the maximum number, disbursements to the county from the Wireless Government Assistance Fund and the Next Generation Fund (see 25 R.C (F). 26 R.C and (E). 27 R.C Legislative Service Commission -13- Sub. H.B. 360

92 "Disbursements from the Next Generation Fund," below) are required to be reduced by 50% until the county complies with the limitations. Prior law stated that payment of allowable costs (payable from a disbursement from the Wireless Government Assistance Fund) was limited to those costs for not more than five public safety answering points. 28 Audit and review of county expenditures The act permits the Auditor of State to audit and review each county's expenditures of funds received from the Wireless Government Assistance Fund to verify that the funds were used in accordance with the requirements of the service law. 29 Removal of limitation for costs incurred before March 2, 2009 The act removes a provision that appears to have prohibited counties from using disbursements from the Wireless Government Assistance Fund to pay costs incurred before March 2, Certification of amount in fund The act requires that the Treasurer of State annually certify to the Department of Public Safety and the Tax Commissioner, rather than the Ohio Coordinator, the amount of money in the Wireless Government Assistance Fund, until the fund is depleted. 31 Disbursements from the Next Generation Fund Creation of the fund The act creates the Next Generation Fund as a custodial fund of the State Treasurer. It retains the interest earned R.C ; R.C under prior law. 29 R.C (F). 30 R.C (A). 31 R.C (B). 32 R.C (C). Legislative Service Commission -14- Sub. H.B. 360

93 Funding source The act requires that after the disbursements are made from the Wireless Government Assistance Fund, any funds remaining in that fund must be deposited to the credit of the Next Generation Fund. 33 Administration The act requires the Treasurer of State to disburse money from the Next Generation Fund solely upon order of the Tax Commissioner according to "policies" established by the Statewide Emergency Services Internet Protocol Network Steering Committee. 34 In a separate provision, the act requires the Committee to establish guidelines for the Tax Commissioner to use when disbursing money from the fund to countywide systems. The guidelines must be consistent with the technical and operational standards adopted by the Committee for public safety answering points (see "Disbursements conditional on meeting committee standards," above). The guidelines must also specify that disbursements may be used for costs associated with the operation of and equipment for phase II wireless systems and for costs associated with a county's migration to next generation systems and technology. 35 Annually, until the fund is depleted, the Treasurer of State is required to certify to the Tax Commissioner the amount of moneys in the fund. 36 Disbursements conditional on meeting committee standards The act prohibits disbursements from the Next Generation Fund (in addition to disbursements from the Wireless Government Assistance Fund) unless "the public safety answering point" meets the standards set by rule of the Statewide Emergency Services Internet Protocol Network Steering Committee. 37 (See "Disbursements conditional on meeting committee standards," above under "Disbursements from the Wireless Government Assistance Fund.") Service Program and Ohio Coordinator The act places the Service Program (which does not have any express statutory functions or purposes) in the Department of Public Safety, rather than in the 33 R.C (C) and (F). 34 R.C (C). 35 R.C R.C (C). 37 R.C (E). Legislative Service Commission -15- Sub. H.B. 360

94 PUCO. The act also makes the Director of Public Safety head of the Program, in consultation with the Ohio Coordinator. Under prior law, the Ohio Coordinator was head of the program. The act requires the Director to appoint the Coordinator, and likewise requires the Director to fix the Coordinator's salary, evaluate the Coordinator's performance, establish additional duties of the Coordinator, and assign Department employees to assist the Coordinator. Under prior law, the appointment and these other functions were duties of the Chairperson of the PUCO. The act requires the Director of Public Safety to appoint an interim Coordinator on December 20, Statewide Emergency Services Internet Protocol Network Steering Committee Report to General Assembly leadership and the Governor The act clarifies that the report of the Statewide Emergency Services Internet Protocol Network Steering Committee, which was required under prior law, must provide recommendations that include a review of the current funding model for Ohio's systems. The act also specifies that the Committee may recommend in the report a reduction in wireless charges. The report is to be delivered to the Speaker of the House of Representatives, the President of the Senate, and the Governor. The act also delays the report deadline from November 15, 2012, to May 15, Recommendations for accelerating the consolidation schedule The act requires the Committee to make recommendations for accelerating the consolidation schedule for the number of public safety answering points that may use disbursements from the Wireless Government Assistance Fund. 40 (See "Limitations on how many answering points may use disbursements," above.) County report requirement The act requires each chairperson of a countywide planning committee (or the chairperson's designee) to report information to the Statewide Emergency Services Internet Protocol Network Steering Committee. The report is due February 15, It must include: 38 R.C and Section 3 of the act; R.C under prior law. 39 R.C (C)(1). 40 R.C (C)(4). Legislative Service Commission -16- Sub. H.B. 360

95 the geographic location and population of the area for which the planning committee is responsible; statistics detailing the number of calls received; a report of expenditures made from disbursements from the Wireless Government Assistance Fund; an inventory of and the technical specifications for the current network and equipment; any other information requested by the Steering Committee. For the second and third items, the act does not specify for what time period (if any) the information is required. If a planning committee fails to provide the report by the due date, the Steering Committee must notify the Tax Commissioner. The Tax Commissioner must then suspend disbursements from the Wireless Government Assistance Fund to that county. Disbursements are to resume after the required information is received and the Tax Commissioner is notified. 41 General wireless reporting requirement The act requires that the Director of Public Safety and the Tax Commissioner, rather than the Ohio Coordinator, be provided information that they may request for the purposes of carrying out their duties under the service law. The entities subject to this requirement are telephone companies, the State Highway Patrol, and each subdivision or regional council of governments operating one or more public safety answering points for a countywide system providing wireless Consequently, the act prohibits the Director and the Tax Commissioner (rather than the PUCO and the Coordinator), and any official, employee, agent, or representative, from disclosing information regarding a telephone company's customers, revenues, expenses, or network information. 42 Liability limitations The act specifies that except for willful or wanton misconduct, a provider of and a seller of a prepaid wireless calling service and their respective officers, directors, 41 R.C (D). 42 R.C (A)(1) and (B)(2); R.C (A)(1) and (B)(2) under prior law. Legislative Service Commission -17- Sub. H.B. 360

96 employees, agents, and suppliers are not liable in civil damages resulting from participation in or acts or omissions in connection with participating in or developing, maintaining, or operating a system, or from the provision of assistance to a public utility, municipal utility, or state or local government during a public emergency or service outage. 43 The act specifies that no provider of a prepaid wireless calling service is liable to the state for any prepaid charges not collected or remitted. 44 It defines a provider of a prepaid wireless calling service as a wireless service provider that provides a prepaid wireless calling service. 45 Rule-making authority The act requires the Tax Commissioner and the Director of Public Safety, after consulting each other, to adopt rules under the Administrative Procedure Act to carry out the act's provisions regarding wireless charge collection, remittance, and disbursements, and the Service Program. 46 Wireless Advisory Board The act requires the Director of Public Safety, rather than the Ohio Coordinator, to appoint the chairperson of the Wireless Advisory Board. The Board is required to consult with and make recommendations to the Director (rather than the PUCO and the Coordinator as required under prior law) regarding rules to be adopted. 47 Ohio Council The act replaces the Ohio Coordinator, as a member of the Ohio Council, with a representative of public safety communications officials in Ohio, appointed by the Governor. The act also permits the Director of Public Safety to serve as a Council member. Prior law required only a designee of the Director to serve; the act changes this provision to require, as a member, the Director or the Director's designee. 43 R.C R.C (D). 45 R.C (Y). 46 R.C R.C ; R.C under prior law. Legislative Service Commission -18- Sub. H.B. 360

97 Under continuing law, duties of the Council include arbitrating or establishing technical and operational standards for Ohio's systems, doing research and making recommendations, and nominating candidates for the position of the Ohio Coordinator. The act changes a reference to the Council's duties from "all of the following" to "both of the following." But the number of duties remains unchanged. 48 Rates for the wireline network The act requires the Tax Commissioner, rather than the PUCO, to determine the rates, tolls, classifications, charges, or rentals to be observed and charged for the wireline telephone network portion of a system. Relatedly, the act removes provisions requiring that those rates be determined in accordance with law governing the PUCO and public utilities. The act also removes a provision specifying that wireline telephone companies are subject to that law, to the extent that it applies, as to the service provided by the wireline network and as to the rates, tolls, classifications, charges, or rentals. 49 The act also removes a requirement that telephone companies must file schedules of their wireline rates with the PUCO. 50 But continuing law refers to those schedules. 51 Additional duties given to the Department of Public Safety Determinations regarding wireline service The act requires the Department of Public Safety, rather than the PUCO, to make determinations as to whether wireline telephone companies are capable of providing a county's wireline telephone network portion of a system, and to make related determinations. 52 Assistance regarding monthly charges on telephone access lines The act permits counties to seek the assistance of the Department of Public Safety, rather than the PUCO, in complying with requirements for the use of money raised from monthly charges on telephone access lines. These charges are permitted 48 R.C ; R.C under prior law. 49 R.C (A); conforming change in (A)(2); R.C under prior law. 50 R.C ; conforming change in R.C (C)(1). 51 R.C (B). 52 R.C (A)(2) and (H), (C), and (C); conforming change in R.C (C)(2)(b); R.C (A)(2) and (H), (C), and R.C (C) under prior law. Legislative Service Commission -19- Sub. H.B. 360

98 under continuing law in certain circumstances to establish and maintain a limited number of public safety answering points. 53 Jurisdiction regarding disclosure of certain information The act replaces the PUCO with the Department of Public Safety as the agency having jurisdiction over the charge, terms, and conditions for the disclosure or use of certain confidential data in two exceptional situations. Continuing law prohibits, with certain exceptions, the disclosure or use of any information concerning telephone numbers, addresses, or names obtained from the database that serves the public safety answering point of a system. The two exceptions modified by the act are: in times of public emergency or service outage when a wireline telephone company gives access to a database to a public utility or municipal utility handling customer calls; and in warning of a public emergency when a wireline telephone company gives access to a database to a state and local government. The act also replaces the PUCO with the Department of Public Safety as the agency that makes the determination of "in warning of a public emergency." 54 Attorney General proceedings The act permits the Department of Public Safety or the Tax Commissioner, rather than the PUCO, to request that the Attorney General begin proceedings against a wireline telephone company to enforce compliance with the wireless service law or with a county's plan for its system or of an agreement between the company and a municipal corporation or township as to wireline or wireless Emergency clause The act declares an emergency and therefore became effective immediately (December 20, 2012) and is exempt from the referendum R.C and R.C ; R.C and under prior law. 54 R.C (G); R.C (G) under prior law. 55 R.C (A); R.C (A) under prior law. 56 Section 3 of the act. Legislative Service Commission -20- Sub. H.B. 360

99 Repeal of report requirement The act repeals an expired requirement that the Ohio Coordinator submit a report to the General Assembly regarding wireless in Ohio. 57 Recodification and related changes Due to the transfer of administrative duties regarding the service law from the PUCO to the Department of Public Safety, the act recodifies the service law in Chapter of the Revised Code. 58 It also makes a related recodification of a statute within the chapter that formerly contained the service law. That recodified statute addresses unsolicited facsimile transmissions. 59 Finally, the act removes references to the service law in statutes addressing the PUCO's authority. 60 Corrective change The act corrects a reference to a statute establishing regional authority for emergency management. 61 HISTORY ACTION DATE Introduced Reported, H. Public Utilities Passed House (96-0) Reported, S. Energy & Public Utilities Passed Senate (28-5) House concurred in Senate amendments (88-4) HB360-corrected-129.docx/emr 57 R.C (repealed); conforming changes in R.C , , , , , , , , , , , , , and R.C. Chapter 5507.; conforming changes in R.C , , , (A), , and R.C (formerly R.C ); conforming changes in R.C (A)(1), (B), and (D). 60 R.C (B)(1)(a) and (A). 61 R.C (A). Legislative Service Commission -21- Sub. H.B. 360

100 Appendix E Acronyms Acronym Definition ACN Automatic Crash Notification ALI Automatic Location Identification ANI Automatic Number Identification ANSI American National Standards Institute APCO Association of Public-Safety Communications Officials AVL Automatic Vehicle Location CAD Computer Aided Dispatch CALEA Commission on Accreditation for Law Enforcement Agencies CEMP Comprehensive Emergency Management Plan CPE Customer Premise Equipment CPR Cardiopulmonary Resuscitation DHS Department of Homeland Security E9-1-1 Enhanced EMD Emergency Medical Dispatch EMS Emergency Medical Services EMAC Emergency Management Assistance Compact EMPG Emergency Management Performance Grants FCC Federal Communications Commission FEMA Federal Emergency Management Agency IAFC International Association of Fire Chiefs ICMA International City/County Management Association ICS Incident Command System MIS Management Information System MPSCS Michigan Public Safety Communication System (State Police Radio System) NCIC National Crime Information Center NENA National Emergency Number Association NFPA National Fire Protection Association NG9-1-1 Next Generation NIMS National Incident Management System NIOSH National Institute for Occupational Safety and Health NPGP National Preparedness Grant Program QA/QC Quality Assurance and Quality Control RMS Records Management System UHF Ultra-high Frequency June 2014 Page 97

101 UPS VHF Universal Power Supply Very-high Frequency June 2014 Page 98