9-1-1 Consolidation Plan CUYAHOGA COUNTY

Transcription

1 9-1-1 Consolidation Plan CUYAHOGA COUNTY Executive Edward FitzGerald March 25, 2013

2 This page left intentionally blank 2

3 PREFACE Cuyahoga County is committed to working with communities to develop the most robust and responsive system countywide. This commitment is part of my administration s continued support for public safety professionals and the safety and security of Cuyahoga County citizens. Currently, Cuyahoga County has 45 Public Safety Answering Points (PSAPs) that support all 59 jurisdictions within the county. This is the largest number of PSAPS in the state of Ohio and one of the highest within the nation. Of the 88 counties in Ohio, only four (4) have more than 10 PSAPs. While Cuyahoga County has always encouraged the development of efficient and effective public safety networks, current technologies such as Next Generation (NG9-1-1), and a statewide build-out of the Emergency Services Internet Protocol Network (ESInet), supports and encourages a regional approach to public safety. Such a regional approach aligns with the County s mission to offer the most efficient and effective public safety services to the citizens of Cuyahoga County. As you read through this document, note that I will offer a recommended framework for PSAP consolidation countywide over the next ten (10) years. In addition, this document will present the current state of in Cuyahoga County, legislative updates, consolidation models, and services available from Cuyahoga County for PSAP consolidation. Edward FitzGerald Cuyahoga County Executive 3

5 9-1-1 PLANNING COMMITTEE The Planning Committee has been working consistently over the past two years to support Cuyahoga County s commitment to public safety and regionalism. The Planning Committee is made up of five voting members and is responsible for maintaining and updating the Countywide Plan. The Countywide Plan addresses the Countywide system that is in use in Cuyahoga County. The Planning Committee is also responsible for appointing members to the Technical Advisory Committee. The Technical Advisory Committee is responsible for assisting in planning the Countywide system, approving the plan, and approving all major changes and updates to the plan. In addition, the Technical Advisory Committee will work with the Planning Committee to identify system gaps and equipment needs within the various jurisdictions. Since convening on August 17, 2011, the Planning Committee has maintained a single goal to establish a system that incorporates a reduction in the number of PSAPs countywide, outfit PSAPs with state-of-the-art technology, increase PSAP interoperability, and present transparent allocation of funding. This plan incorporates all of the necessary objectives to meet that goal. As such, the Cuyahoga County Planning Committee fully supports this plan. Respectfully, Cuyahoga County Mayors and Managers Township and Trustees Association City of Cleveland City of Parma 5

6 ACKNOWLEDGEMENTS Norberto Colón Deputy Chief of Staff / Safety Director Cuyahoga County Vallerie H. Propper Assistant Deputy Chief of Staff / Special Assistant Cuyahoga County Paula Young Manager Public Safety & Justice Services If you would like to request information about Consolidation from Cuyahoga County, please contact the Department of Public Safety and Justice Services at

7 TABLE OF CONTENTS PREFACE PLANNING COMMITTEE... 5 ACKNOWLEDGEMENTS... 6 TABLE OF CONTENTS... 7 I. INTRODUCTION... 9 Purpose of this Document II. CURRENT STATE Cuyahoga County PSAP Assessment Summary Why Consolidate Next Generation III. LEGISLATIVE UPDATES Revised Code Background Ohio H.B. 509 Development of a Statewide ESInet Steering Committee Ohio Sub. H.B Ohio Am. Sub. H.B IV. FRAMEWORK Introduction Assumptions Deliverables V. IMPLEMENTATION STRATEGIES Considerations, Potential Pitfalls, and Keys to Success Consolidation Models Cuyahoga County Services VI. SUMMARY ATTACHMENT A County Planning Regions ATTACHMENT B Current Consolidated PSAPs ATTACHMENT C 10-Year Projection ATTACHMENT D PSAP Reduction to ATTACHMENT E PSAP Reduction to ATTACHMENT F 2012 Call Metrics Reports ATTACHMENT G PSAP Demographics

9 I. INTRODUCTION In 2011, when Cuyahoga County Executive Edward FitzGerald took office, he made a commitment to ensure that public safety initiatives were a priority countywide. Prior to the current administration, public safety initiatives were not a priority and lacked leadership and vision. Former leadership created a fragmented public safety system with actions originating from various County entities, including the Cuyahoga Emergency Communications System (CECOMS) and the former Department of Justice Affairs. Further, public safety projects often went unsupported by County administration and had very little stakeholder involvement. Since the new administration took office in 2011, Cuyahoga County has made significant strides in eliminating this fragmented system by housing all public safety initiatives under the newly formed Deputy Chief s Justice Section. In addition to those initiatives highlighted in the Cuyahoga County Public Safety Plan, Cuyahoga County Executive Edward FitzGerald committed to making a priority countywide. The County Executive also established the Department of Public Safety and Justice Services eliminating the former Department of Justice Affairs. Together, these two changes created an environment which encourages public safety growth while supporting regionalism and shared resources. As a result, this administration has made efforts to refocus planning to meet community needs. This has included: Reconvening the Planning Committee Establishment of the Technical Advisory Committee A commitment to transparency by posting all agendas and meeting minutes on the Planning Committee webpage ( Specifically, Cuyahoga County is supporting an initiative encouraging communities to consolidate their dispatch centers. These dispatch centers, referred to as Public Safety Answering Points ( PSAPs ), answer calls and dispatch first responders to a caller s location, or transfer calls to the appropriate PSAP based on caller location. 9

10 As stated earlier, there are 45 PSAPs within Cuyahoga County. The Cuyahoga Emergency Communications System (CECOMS) serves as the 45 th PSAP and answers all cellular calls throughout Cuyahoga County. Unlike the other 44 PSAPs, CECOMS does not dispatch first responders to a caller s location. Rather, CECOMS transfers cellular calls to the appropriate PSAP based The status quo is not acceptable in this vital area of public safety. Our plan provides for the planning and financial resources to eventually bring the total number of call centers down to four in the next 10 years. Edward FitzGerald Cuyahoga County Executive State of the County Address Feb on caller location and the local PSAP dispatches first responders to the caller s site. Although CECOMS does not currently dispatch, it is likely that it will assume some dispatching responsibilities in the future. In addition to answering cellular calls, CECOMS coordinates ambulance to hospital communications, and maintains the Cuyahoga County Hospital Restriction Program and Override Policy. CECOMS also works closely with the Office of Emergency Management to support emergency response, preparedness, and planning efforts. These efforts include the dissemination of Emergency Alter system (EAS) messages, Amber Alerts, mutual aid coordination for municipalities, support of the Emergency Operations Center (EOC), and various other communication functions. Although CECOMS does not dispatch first responders to emergency events, it is the only PSAP in Cuyahoga County that answers cellular calls. Until other municipalities are both willing and able to answer all cellular calls that resonate from the towers in and around their cities, CECOMS will remain a crucial part of the Consolidation Plan. 10

11 Purpose of this Document The purpose of this document is three-fold and is specific to the provision of services within Cuyahoga County. First, the document will provide an overview of the current and future state of Second, the document will offer a framework for the establishment of consolidated systems countywide. Third, the document will offer strategies for implementation of the framework. 11

12 II. CURRENT STATE Cuyahoga County PSAP Assessment Summary In 2012, Cuyahoga County contracted with a third-party to complete a detailed assessment of the then 48 PSAPs. The purpose of the PSAP study was to determine where overlap between PSAPs existed and to develop a plan for efficiencies including possible PSAP consolidations. The overall goal of the assessment was to assess the current dispatching capabilities and status of PSAPs within Cuyahoga County. In addition to the overall goal, the study had four additional key goals : Update the Plan with relevant document and collected data Research and if possible, recommend a disaster recovery back-up site for the City of Cleveland Research and document recommendations for efficiencies related to the 48 existing PSAPs that include regional consolidation suggestions Research and recommend technology improvements to the infrastructure where applicable The assessor worked with all 47 PSAPs plus CECOMS (for a total of 48 PSAPs) to assess each PSAP s feasibility for consolidation. The PSAPs were evaluated using a combination of survey responses, focus group interviews, personal interviews, and public records searches. All potential PSAP participants were contacted by mail and to encourage Police Chiefs, PSAP Managers, and Mayors to participate in the evaluation process. In addition, all PSAPs were invited to participate in round-table sessions to identify any concerns, questions, or suggestions they had regarding the possibility of consolidation. 73 percent of PSAPs throughout Cuyahoga County participated in these round-tables. Of the 48 PSAPs in Cuyahoga County, 40 responded to the survey questions with 34 providing a response to each question. Based on an assessment of all the collected data, it was found that: Countywide, there are 458 dispatchers including both full and part-time employees Countywide, there are 134 dispatching workstations 12

13 The average age of equipment throughout the County is 9.8 years The average cost to operate a PSAP (for 32 cities) is $509,498 (Not including Cleveland which is $4,438,593) Call volumes were not easily reportable by communities due to current CAD (Computer Aided Dispatch) and system limitations Overall, the study concluded that Cuyahoga County should work to significantly reduce the number of PSAPs countywide. It was recommended that the reduction support regionalism through a consolidation effort. This will reduce the number of PSAPs countywide and offer a higher quality of public service to partnering communities. The study concluded consolidation of PSAPs within Cuyahoga County would offer the following benefits: Service improvements and efficiencies designed to improve multijurisdictional responses Technology advancements by leveraging enterprise applications Cost advantages by increasing buying power and decreasing the burden on the individual municipalities and taxpayers Regional, state, and federal partnering opportunities Why Consolidate Since 2007, the current economic climate has been significantly declining. Individual citizens have been greatly reducing their spending to compensate for an increase in unemployment rates and less available income. At the same time, governmental entities have been forced to stretch resources beyond their traditional capacity in order to remain within budget. As a result, municipalities are investigating the use of consolidated approaches or joint ventures in order to maintain the necessary level of services for citizens. In the state of Ohio, municipalities are facing additional challenges with a decrease in available funding from the Local Government Fund, elimination of the Ohio estate tax, and depreciation in housing values resulting in a decline in property tax. These funding challenges compound an already stressed governmental system, ultimately making certain crucial public safety services 13

14 less accessible to citizens. Cuyahoga County s recommended consolidation approach would provide communities with the opportunity to reduce stress on their taxed government systems by eliminating the burden of redundant public safety systems. As a result, service level improvements are the primary reason the County is encouraging PSAP consolidation. Call-takers and dispatchers are the first responders to any incident, PSAP consolidation can improve the level of service offered to citizens and increase life safety. While many jurisdictions will focus on the financial cost savings of PSAP consolidation, not always will the benefits be recognizable through fiscal savings. While cost savings may not be seen as a result of downsizing of personnel, significant cost savings will often result from the elimination of redundant equipment and technology. As such, equipment and technology are now shared between jurisdictions 1. Moreover, where cost savings do occur, those savings may not be realized for several years after consolidation. Initially, consolidation may require significant start-up costs which delay actual cost savings. However, even where financial cost savings are delayed or only negligibly seen, there are many non-fiscal benefits, both tangible and intangible that are easily recognizable by consolidated communities. Some of these include: Shared Response In areas where consolidation includes consolidated dispatching, the PSAP can dispatch based on geographical area rather than jurisdictional boundaries. As a result, it creates a more efficient use of time and also the potential of decreased response times in areas where mutual aid exists within the first responders dispatched from the PSAP. Shared Total Cost of Ownership A shared total cost of ownership model would give communities participating in consolidated dispatching the ability to spread costs associated with a regional PSAP across the communities involved. As a result, 1 Kimball, Report for Optimum PSAP Reconfiguration Assessment, State of Maine, pp.8-9, January

15 the total cost associated with the PSAP would be less when spread across communities than when each community maintains a separate PSAP. Upgraded Technologies In 2012, Cuyahoga County and the Planning Committee made a commitment to use funding to upgrade PSAP equipment countywide. While the County is still committed to meeting that promise, a decrease in the number of PSAPS would give the County the opportunity to purchase higher quality, state-of-the-art equipment. This equipment includes workstations, mapping software, and other infrastructure. Consistent Training Models With fewer PSAPs countywide, Cuyahoga County can work closely with the dispatch centers to develop policies and protocols for call-taking, dispatching, emergency medical dispatching, and other topics. As a result, dispatchers would provide better customer service and higher quality response to a call. Currently, each of the 45 PSAPs maintains their own policies and protocols for dispatching. Consequently, with fewer PSAPs, the County can work with them to develop countywide policies and protocols to include, giving dispatchers the tools to provide life-saving pre-arrival medical information to callers while waiting for first responders. Redundancy / Disaster Recovery The threat of a natural or man-made disaster still exists within Cuyahoga County. Because of this, communities are working together to develop redundancies and disaster recovery networks. As communities consolidate PSAPs the opportunity exists for cross-jurisdictional continuity of operation planning. This type of planning will allow each PSAP to serve as a back-up dispatching center for surrounding communities in the event of equipment or infrastructure failure. While some municipalities are considering a consolidated approach for sharing of individual personnel or equipment, others are in discussions related to the consolidation of departments across jurisdictional boundaries. In either case, the benefits of consolidation far outweigh the initial costs. 15

16 Cuyahoga County is recommending the consolidation of dispatch centers (PSAPs), as a viable alternative to the current over-saturation of PSAPs countywide. Such an over-saturation dilutes available funding and the ability to maintain or upgrade technologies, policies, and procedures. Consolidation of PSAPs enables improved use of scarce resources, flexibility of staff, equipment and dollars, stronger internal programs, and increased opportunities to expand services and/or specialize. 2 In addition, the state of Ohio is working to develop a plan to mandate PSAP consolidation statewide, as discussed further in this Plan. Therefore, consolidation of PSAPs throughout Cuyahoga County will place jurisdictions in the forefront of the public safety arena. Next Generation The National Emergency Number Association (NENA) is the leader in all public safety emergency communications. The association serves as the only professional organization focused on policy, technology, operations, and education issues. 3 NENA is recognized as the leading authority in standards of practice and has led the charge in the deployment of Wireless Phase 1 Initiative, Wireless Phase 2 Initiative, and Enhanced Since 2000, NENA and the U.S. Department of Transportation (USDOT) have been working towards standards of practice to improve public emergency communications services in a wireless mobile society. This initiative is referred to as Next Generation (NG9-1-1). The ultimate goal of NG9-1-1 is to enhance technologies to permit data to be received from non-traditional resources. These non-traditional resources include: text, data, images, and video that are common forms of personal communication. This is a major endeavor that will require a new high availability emergency response network that will have new and modified 2 VFIS, FIRE DEPARTMENT CONSOLIDATION, p. 8 (1994) 3 NENA The Association. (2012). Retrieved August 29, 2012, from 16

17 standards. The proposed new architecture has been termed Emergency Services IP Network (ESInet). In addition to enhanced technologies, NG offers a level of technology that gives PSAPs the capability to share information between dispatch centers. This type of interoperability gives PSAPs the opportunity to share data across dispatch centers as a redundant or backup data location. The major milestones of this Initiative are: a) Development of a national architecture and high-level design; b) Proof of concept; and c) Development of a Transition Plan for NG9-1-1 implementation. Since USDOT completed the proof of concept stage in 2008, this initiative is in its final stage of transition on a national level. This final stage will span several years and will require a major overhaul of the communications infrastructure for ESInet and change the way PSAPs currently operate. At a local level, it is necessary that communities carefully choose investments to ensure compatibility with the NG9-1-1 initiative in the future. In May 2012, the County Commissioners Association of Ohio announced its support for an amendment to H.B. 509 to create a Statewide Emergency Services Internet Protocol Network (ESInet) Steering Committee. This Steering Committee is responsible for advising Ohio regarding the implementation, operation, maintenance, and modernization of the statewide ESInet which will support state and local government NG9-1-1 and Emergency Dispatch systems. The steering committee s first task was to submit an initial report, no later than November 15, 2012, (Later amended to May 15, 2013), to the Ohio Speaker of the House of Representatives, the President of the Senate, and the Governor. The report would include recommendations for Ohio to effectively address the development of the Ohio ESInet and the continuation of the current 28 cents surcharge on cell phones. 4 Cuyahoga County recognizes that implementation of the ESInet is a long-term goal. In order to effectively achieve this goal, Cuyahoga County is committed to investing in technologies and equipment that will support NG9-1-1 standards. 4 Long, Larry L. (May 2012). County Related Provisions in H.B County Commissioners Association of Ohio 17

18 III. LEGISLATIVE UPDATES Cuyahoga County, through the Department of Regional Collaboration and Department of Public Safety, maintains a strong presence in Columbus, Ohio and Washington D.C. monitoring legislative changes to policies and procedures. The majority of practices within Cuyahoga County are legislated by either State or Federal mandates. Changes in legislation are regularly monitored, as requirements are often complicated and conflicting to location entities. Below, is a summary of important legislative actions that will directly impact services, policies, and procedures in Cuyahoga County. In Ohio, services are governed by Section 5507 of the Ohio Revised Code 5. Background Ohio House Bill 491, signed into law on June 18, 1985, formally established a methodology for local governments in Ohio to adopt plans and begin offering services on a countywide basis. The bill focused on the use of wireline (or landline) technology. As part of the bill, wireline telephone companies were given a tax credit (for initial non-recurring costs) in an effort to lessen the financial burden to local jurisdictions for the initial cost of services. In addition, wireline telephone companies were permitted to add a small fee to monthly bills in order to receive compensation for recurring costs of the network. As such, PSAPs are not charged for wireline call traffic. Jurisdiction for the service resides with the Public Utilities Commission of Ohio (PUCO). PUCO issued decisions that defined the rules for how local exchange carriers could recover their costs under H.B. 491 and maintain the system created under the original legislation. In Ohio, all 88 counties have established wireline enhanced (E9-1-1) systems. As wireless phones became more prevalent, it became apparent that the existing funding models should be expanded beyond wireline systems. In 2004, Ohio passed House Bill 361 (H.B. 361). The bill permitted a 32 cent wireless surcharge to be added to each monthly wireless phone number 5 Previously

19 bill, with an Ohio billing address. The collected surcharge was intended to support costs required for PSAPs to provide wireless enhanced In addition to permitting the collection of the wireless surcharge, H.B. 361 also established the position of Ohio Coordinator to administer these funds. The Ohio Coordinator is charged with ensuring the collection of the funds and distributing the funding to counties per the rules established by PUCO. Also established within H.B. 361 were the Ohio Council and Wireless Advisory Board. The Wireless Advisory Board is tasked to consult with PUCO and the Ohio Coordinator to adopt administrative rules in relation to H.B. 361 and also to advise the Ohio Coordinator in preparing a report due to the General Assembly. The Ohio Council is charged with establishing statewide technical and operating standards, and making statutory recommendations to the Ohio legislature. Information on both Ohio Council and Wireless Advisory Board can be found on the Ohio PUCO website. 6 The 127th General Assembly passed Senate Bill 129 in December Under the language of this bill, the wireless surcharge was extended until the end of In addition, the surcharge was lowered to 28 cents per month; the guaranteed annual minimum disbursement amount was increased from $25,000 to $90,000 for each county. In addition, a five (5) PSAP limitation for funding eligibility was imposed on countywide systems. Below is a summary of important legislative actions that have recently been passed and will directly impact services, policies, and procedures in Cuyahoga County. Ohio H.B. 509 Development of a Statewide ESInet Steering Committee (Effective September 28, 2012) The bill established the Statewide Emergency Services Internet Protocol Network (ESInet) Steering Committee. The Committee is required to advise the state on the implementation, operation, and maintenance of a statewide emergency services internet protocol network that would support state and local government, next-generation 9-1-1, and the dispatch of emergency service providers. The act requires that the Committee do all of the following: 6 council-and-advisory-board/) 19

20 On or before November 15, 2012, 7 deliver an initial report to the Speaker of the House of Representatives, the President of the Senate, and the Governor providing recommendations to address the development of a statewide emergency services internet protocol network, including a review of the current funding model for Ohio's systems; Examine the readiness of the state's current technology infrastructure for a statewide emergency services internet protocol network; Research legislative authority with regard to governance and funding of a statewide emergency services internet protocol network, and provide recommendations on best practices to limit duplicative efforts to ensure an effective transition to next-generation 9-1-1; Make recommendations for consolidation of public-safety-answeringpoint operations in Ohio, to accommodate next-generation technology and to facilitate a more efficient and effective emergency services system; Recommend policies, procedures, and statutory or regulatory authority to effectively govern a statewide emergency services internet protocol network; Designate a next-generation statewide coordinator to serve as the primary point of contact for federal initiatives; and Coordinate with statewide initiatives and associations, such as the State Interoperable Executive Committee, the Ohio Geographically Referenced Information Program Council, the Ohio Multi-Agency Radio Communications System Steering Committee, and other interested parties. The results of the work done by the ESInet Steering Committee will provide a roadmap for the implementation of an ESInet statewide. In addition, the ESInet Steering Committee will identify funding opportunities and strategies for dispatch centers to join NG Finally, the Steering Committee will recommend legislation requiring PSAP consolidation. Ohio Sub. H.B. 360 (Effective December 20, 2012) The bill provides for significant amendments the current system policies and procedures. The following is a summary of significant portions of the bill: 7 Sub. H.B. 360 extended deadline to May 15,

21 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*. Reduces the monthly wireless charge on wireless service subscribers in Ohio from 28 to 25. Imposes, effective July 1, 2013, a new wireless charge on prepaid wireless service subscribers of 0.5% of the sales price for the service, that is to be charged at the point of sale*. Makes the charges on wireless and prepaid wireless subscribers permanent. Prohibits imposing the wireless charge on a wireless lifeline service provider*. Limits, on and after July 1, 2013, disbursements to counties from the Wireless Government Assistance Fund to the level disbursed in 2012 Creates a Next Generation Fund and requires that the balance of the remittances in the Wireless Government Assistance Fund be deposited into the Next Generation Fund Requires the Treasurer of State to disburse money to counties from the Next Generation Fund according to policies established by the ESInet Steering Committee Makes the Director of Public Safety responsible for appointing the Ohio Coordinator*. Changes the due date of the ESInet 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). 21

22 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. Recodifies all the Ohio Revised Code Sections addressing to Chapter 5507 from Chapter * Note, these items amended by Am. Sub. H.B See next section. Ohio Am. Sub. H.B. 472 (Effective December 20, 2012) Am. Sub. H.B. 472 is a companion piece to H.B Many of the provisions of H.B. 360 were immediately altered by H.B. 472 which took effect the same day. The following is a summary of signification portions of H.B. 472: The monthly wireless charge imposed under prior law on prepaid subscribers is to continue to be imposed and collected until January 1, 2014, in almost the same manner as in prior law. The act requires the new prepaid charge of 0.5%, imposed at the point of sale, to begin on January 1, Clarifies that wireless charges may not be imposed on a subscriber of a wireless lifeline service, or a provider of that service. Requires that the following duties and authority be maintained by the PUCO or the Ohio Coordinator within PUCO until January 1, 2014: o Service Program and administration o Collection of remitted wireless charges on prepaid and nonprepaid subscribers o Disbursements to counties from the Wireless Government Assistance Fund o Auditing and assessing wireless service providers and resellers for failure to collect, bill, or remit wireless charges 22

23 o Authority to use up to 2% of the periodic remittances of the wireless charges to cover the PUCO's costs of carrying out its duties under the wireless law Requires the Department of Public Safety to monitor compliance with the technical and operations standards for PSAPs established by the ESInet Steering Committee. Prescribes that disbursements from the Next Generation Fund may be used only for the designing, upgrading, purchasing, leasing, programming, installing, testing, or maintaining the necessary data, hardware, software, and trunking, and training public-safety-answeringpoint staff required for public safety answering points to provide wireless enhanced In addition, annually, up to $25,000 of disbursements may be used for data, hardware, and software that automatically alert personnel receiving a call that a person at the subscriber's address or telephone number may have a mental or physical disability. Disbursements from the Next Generation Fund may not be used for costs that were in part for the provision of wireline Potential Conflicts between H.B. 360 and Am. Sub. H.B. 472 Am. Sub. H.B. 472 describes provisions relating to a failure of compliance with standards adopted by the Statewide Emergency Services Internet Protocol Network Steering Committee as a "countywide system" failing to meet the standards. However, Sub. H.B. 360 describes the same concept as "the public safety answering point" and, separately, "public safety answering points" meeting the standards. Between these two bills there is a lack of clarity in terms of who or what is required to comply with the standards, whether it is a single public safety answering point, multiple points, or an entire system. Am. Sub. H.B. 472 requires disbursements from the Next Generation Fund to be used for specific purposes enumerated in continuing law and required for public safety answering points to provide wireless enhanced In contrast, Sub. H.B. 360 requires the Statewide ESInet Steering Committee to establish guidelines 23

24 that specify disbursements from the Next Generation Fund may be used for costs associated with the operation of, and equipment purchased, for Phase II wireless systems, and for costs associated with a county's migration to next generation systems and technology. These provisions may conflict if they require disbursements from the Next Generation Fund to be allocated for different purposes. Legislative Conclusion As a result of these ongoing legislative actions, it is prudent for Cuyahoga County to work toward PSAP consolidation prior to any proposed legislative changes. In addition, Cuyahoga County is working diligently to offer input at the state level regarding any future public safety dispatching changes. While the results of any legislative changes or Steering Committee recommendations are unknown, Cuyahoga County will encourage solutions provided by the legislative bodies to include the build out a free or cost affordable ESInet, continue dedicated funding disbursement to the counties, and more flexibility on allowable expenditures from the Wireless Government Assistance / NG9-1-1 fund. 24

25 IV. FRAMEWORK Cuyahoga County is committed to assisting jurisdictions with their consolidation efforts. As a result, the County has developed a framework for consolidation over the next ten years. The framework presented will highlight essential deliverables and potential outcomes in order to achieve the County s consolidation goal of four PSAPs. While the overall goal is to reduce the number of PSAPs countywide to four, the County recognizes that not all communities will choose to consolidate and some communities may choose to consolidate without the assistance of the County. This may lead to the existence of more than four PSAPs in the County even after following this framework. The purpose of this framework is to present a recommended pathway to achieve a reduced number of PSAPs through practical steps that can be accomplished within the ten year time frame. Many of these steps will be achievable in less than five years and will not require the whole ten years, but will need to be executed in a thoughtful, planned and strategic manner. While it is anticipated that there will be challenges along the way, following this framework will help steer municipalities in the right direction and any reduction in the current number of PSAPs will be considered a success. The County recognizes the challenges that come with such a large undertaking. There will be trials and errors in the process and the current culture will be challenged on a regular basis. However, a reduction in PSAPs is achievable via this framework by addressing the planning and financial challenges this Plan presents. To ease some of the burden of these challenges, the County is committing both financial and professional resources to assist in the consolidation process, as discussed later in this Plan. As the framework unfolds below, the County recognizes that municipalities have the option to consolidate with any regional dispatching center. Geographic region will not limit a municipality s capabilities, however, staying within a community s planning region is recommended. Introduction The County has made the following assumptions in developing this framework. The assumptions made are based on the map found in Attachment C and the data found in Attachment G. The map is a recommended framework to 25

26 decrease the current number of PSAPs from 45 to four (4) countywide in the next 10 years. During the development of this plan, the State of Ohio legislature put forth a strategic plan to decrease the number of PSAPs per county to four over the course of five years. While the County agrees with the State s recommendation to decrease the number of PSAPs per county, it is unlikely that Cuyahoga County will be able to complete such a severe reduction in such a shortened period of time. While the framework below supports the State s recommendation to decrease the number of PSAPs from 45 to four, after careful analysis the County determined that a reduction to five PSAPs would be a more reasonable decrease given the geographic region. The charts below describe the difference in goals between the County and the State of Ohio. While the resulting PSAP reduction is virtually the same, the timeframe for reduction is distinctly different. Cuyahoga County looks forward to working with the State to develop a realistic timeframe for PSAP reduction within the county. Ohio H.B. 360 Requirements Year Reduction of PSAPs No. of PSAPs 2013 N/A County Consolidation Plan Year Reduction of PSAPs No. of PSAPs 2013 N/A

27 Assumptions The following assumptions were made when developing the framework: Discussions have already begun for the consolidation of various groups of PSAPs throughout Cuyahoga County There is general consensus that 45 PSAPs for Cuyahoga County is too many 10 years is a reasonable and realistic timeline for these consolidated efforts to occur. The 10 year timeline may be accelerated based on the recommendation of ESInet Steering Committee Ohio H.B. 360 mandated the number of PSAPs sharing the wireless fund for Cuyahoga County can be no more than four by 2018 Recommendations from the ESInet Steering Committee will include financial penalties for PSAPs not meeting the maximum number of PSAPs per County These financial penalties may include either complete forfeiture of funds for the entire county or a reduced rate of funding funding will ultimately be distributed to four PSAP locations based on a formula developed by the Planning Committee Available technology and equipment, per PSAP, varies based on age, sophistication, and level of functionality Recommended PSAP consolidations were based on the following: o Current Cuyahoga County Planning Commission Regions (Attachment A) o Dispatch consolidations that currently exist (Attachment B) o Dispatch consolidation efforts that are currently in progress o Population information based on data from the 2010 US Census (Attachment D and E) o Call volume information was collected from CECOMS 2012 Call Metrics Reports (Attachment F) and did not include administrative calls o It is understood that dispatchers are responsible for non-dispatch related duties 27

28 Deliverables Deliverable 1: Hardware Upgrade (June 2013 to December 2014) Cuyahoga County and the Planning Committee recognizes that a robust E9-1-1 communications system, capable of accepting all calls for emergency services, is critical to providing accurate and efficient emergency communication services to the residents of Cuyahoga County. A recently completed assessment of PSAPs in Cuyahoga County has revealed that the average age of the technology deployed across Cuyahoga County is 9.8 years old and many PSAPs have equipment on premise that is no longer manufactured. The outdated equipment presents challenges that can hinder the capability to provide emergency communication services. Additionally, the current configuration of the 45 PSAPs is not cost effective or operationally efficient. The County wants to replace all existing systems within the County with current technology, one which is Next Generation ready according to NENA i3 standards. This technology will introduce mapping technology to many PSAPs and provide comprehensive call reporting statistics. It is anticipated that an award will be made for this project within the 2 nd quarter of 2013 with the project beginning by June Although the entire implementation will take approximately 18 months, it is anticipated that the primary infrastructure, redundant controllers, will be operational within the first 12 months. Outcome: This will allow all PSAPs the ability to consolidate virtually by sharing ANI/ALI controllers and gain added benefits of redundancy and disaster recovery. For those that engage in full consolidation efforts, the use of the same technology will make the transitions easier. In addition, by using funds to purchase hardware, the burden on municipalities is lessened by removing initial upfront costs. In addition, the enhanced reporting will allow for better operational decision making and the map with allow for better service. 28

29 Deliverable 2: Merge County Dispatch Centers (April 1, 2013 to December 2013) The County is urging municipalities currently operating PSAPs to be efficient and cost-effective; it is imperative the County lead by example through the County s wireless PSAP, CECOMS. The County will explore dispatching operations and consolidation efforts in progress within the County and see if there are opportunities to merge these capabilities. Initially, the County will explore a merger between CECOMS and the Sheriff s dispatch operations. Outcome: A consolidated Cuyahoga County dispatch center will position the County to provide dispatching services to other municipalities. In addition, a consolidated approach will allow for the decrease in the amount of wireless funding needed to support CECOMS, as a portion of the dispatching budget may be supported by Cuyahoga County s general fund budget. In addition, a merger with the Cuyahoga County Sheriff s Office dispatching center will expand CECOMS s capabilities by providing new roles and responsibilities in dispatching. As CECOMS gains experience in dispatching, new services will be offered to municipalities once not available by CECOMS. This capability will eventually be located in the new Emergency Operations Center which is slated to be completed by the fourth quarter Deliverable 3: New City of Cleveland Communications Center (Third Quarter 2014) It is anticipated that the City of Cleveland will be building a state-of-the-art communications center. CECOMS currently answers over 750,000 wireless calls per year (Attachment F). Of those calls, approximately 227,000 are for the City of Cleveland. It is also estimated that much of the 390,000 wireless calls that are not forwarded to a municipality are for the City of Cleveland as well (Attachment G). As Cleveland begins to answer their proportion of cellular calls (a recommendation of the PSAP study), the number of calls received by CECOMS will be dramatically reduced. As a result both the City of Cleveland and CECOMS will become more efficient in their response efforts. By reducing the call volume of CECOMS, this will free them up to take on additional municipal dispatching per Deliverable 4. The new center will also allow Cleveland to potentially provide dispatching services for additional municipalities including the Village of Bratenhal. Although 29

30 based on Cleveland s high call volume, the number of added municipalities will be limited in order to ensure adequate redundancy. Outcome: The new facility will assist in reducing the call volume of CECOMS, freeing them up to provide additional services as referenced in Deliverable 4. Cleveland and CECOMS may become two of the regional communications centers in the County with redundancy and backup to each other. Deliverable 4: Western Reserve Plan Dispatching as a Service (First Quarter 2015) Consistent with the vision of the County Executive s Western Reserve Plan, to encourage shared services, CECOMS will provide call taking and dispatch services using a fee-for-service model. Throughout the State of Ohio, many of the largest PSAPs in a county are operated within the core city and another operated within the county. The County intends to follow a similar structure. Outcome: Cuyahoga County will be an option that municipalities will have to consolidate their services. While it is anticipated that CECOMS will serve as a dispatching option, it is unclear at this time whether CECOMS will serve as the fourth PSAP location or consolidate with a future PSAP location. Deliverable 5: Cleveland State University Feasibility Assessments (September 2012 to September 2014) Cuyahoga County is currently in contract with Cleveland State University (CSU) Public Management (PM) to assist with exploring the feasibility of consolidation among various public safety dispatch centers. CSU will conduct feasibility studies for consolidation of public safety dispatch functions for police, fire, and emergency medical services for municipalities that request assistance. CSU will provide three independent feasibility assessments for up to six jurisdictions each. Outcome: These studies will provide an in-depth analysis, including cost projections, which will allow stakeholders to make informed decisions on the feasibility of the proposed consolidation. Additionally, the feasibility studies allow the County to maintain momentum with the overall vision to engage cities at all stages of consolidation in an effort to reduce the number of countywide PSAPs. 30

31 Deliverable 6: New Emergency Operations Center (EOC) and Communications Center (Fourth Quarter 2014) The current location of CECOMS houses approximately 18 call takers and four supervisors. As the role of CECOMS changes, the current building space will become inadequate to support any new growth. As a result, CECOMS will be co-located in the new Cuyahoga County EOC. The new Cuyahoga County EOC is poised to establish a substantially large PSAP. In the new EOC facility, dispatchers and call takers will have state-of-the-art fully upgraded communications technologies, redundant power, disaster recovery, and facility security that can support shared services countywide. Outcome: The new facility will position CECOMS to offer dispatching services for municipalities countywide. In addition, because of the County s commitment to shared services and cost effectiveness, the size of the new communications center will be large enough to provide municipalities the option to co-locate or consolidate in this facility, eliminating a major hurdle in consolidations, build out. Finally, the location can serve as a redundant location to the City of Cleveland s PSAP. Deliverable 7: Southwest / Southcentral / Cuyahoga Region Consolidation ( ) Berea, Brecksville, Broadview Heights, Brooklyn, Brooklyn Heights, Brook Park, Cuyahoga Heights, Independence, Middleburg Heights, Newburgh Heights, North Royalton, Olmsted Township, Olmsted Falls, Parma, Parma Heights, Seven Hills, Strongsville, Valley View (18 cities / 14 PSAPs) Currently, seven of these municipalities including: North Royalton, Berea, Strongsville, Broadview Heights, Seven Hills, Brook Park and Olmsted Falls are embarking on a feasibility study conducted by CSU, offered by the County, to explore consolidation of dispatch services (see Deliverable 5). This study is specifically geared towards this group physically co-locating and potentially consolidating with CECOMS in the new Emergency Operations Center (EOC) slated to open in December This option provides many potential benefits which make this consolidation effort a very viable option. This co-location or 31

32 consolidation would reduce capital start-up costs and operating costs for the municipalities involved since the costs may be shared across the municipalities and CECOMS. While the seven cities above are currently embarking on a feasibility for consolidation study, it is important to note that many of these cities have been in discussions regarding shared services and consolidated services for many years. These efforts have been led by the City of Parma through an engagement with CSU. Since the discussions began many scenarios and locations have been and continue to be explored. Outcome: This consolidation has the potential to reduce the number of PSAPs in the Southwest/Southcentral/Cuyahoga Region from 14 to 1. This Region would handle approximately 323, calls annually. It is likely to be the second largest PSAP in the County, after the City of Cleveland. Due to the colocation and potential consolidation with CECOMS, it has the opportunity to be one of the premier PSAPs in the county. It will have the capacity, state-of-theart technology, and policies and procedures to take on a significant portion of the County s calls. When completed, this center will provide a viable, costeffective consolidation option for other cities interested in reducing their costs and enhancing their levels of service. Deliverable 8: Chagrin / Southeast Region Consolidation ( ) Garfield Heights, Maple Heights, Bedford, Bedford Heights, Walton Hills, Oakwood, Glenwillow, Solon, Bentleyville, Chagrin Falls Village, Chagrin Falls Township, Moreland Hills, Highland Hills, Hunting Valley, Orange Village, North Randall, Woodmere and Warrensville Heights. (18 cities / 9 PSAPs) Currently, three of these cities: Maple Heights, Bedford and Bedford Heights are engaged in extensive planning efforts to consolidate their police, fire, and emergency medical services dispatching functions. The leadership in these communities has facilitated unprecedented progression for this effort. To date, the cities have completed professional assessments for feasibility, architecture/facility design and technology. The facility for these three cities is anticipated to be located at Bedford Heights City Hall. In addition to strong leadership, a major advantage for this Region is 32

33 their successful application of a FEMA Fire grant in the amount of $720,000, with the match requirement of $180,000 being matched by Cuyahoga County, providing them $900,000 available for this effort. Additionally, a smaller consolidated center is in existence within this Region. The Valley Enforcement Group (VEG) including: Orange Village, Moreland Hills, Chagrin Falls, Bentleyville and Woodmere and Hunting Valley from the Heights/Hillcrest Region operate a consolidated dispatch center for police, fire and emergency medical services. This consolidation offers an example of successful consolidation efforts that includes a high level of services, but handles a small number of calls. Outcome: This consolidation has the potential to reduce the number of PSAPs in the Chagrin/Southeast Region from 9 to 1. This Region would handle 55,000 calls. This effort requires the two existing consolidation efforts to work together and consolidate within the time frame of this framework. A single, unified PSAP in this Region has the opportunity to be one of the premier PSAPs in the County. It will have the capacity, state-of-the-art technology and policies and procedures to take on a significant portion of the county s calls. The initial build-out of the PSAP by the original three cities will accommodate their needs and have the capacity include the rest of the surrounding municipalities shortly after the onset of operation. This center will provide a viable, cost-effective option for other cities around them interested in participating to reduce their costs and enhance their level of service. Due to some consolidation and shared services efforts already in place among the three cities and VEG through the Southeast Area Law Enforcement Task Force (SEALE), some of the hurdles with planning, trust, policy development, etc, may be easily overcome for consolidation of dispatch services. (It is anticipated that Deliverables 8 and 9 will take place independently and concurrently as this framework unfolds. However, the final implementations of this plan will require a consolidation to be explored among the two regions. This will affect whether Cuyahoga County has four of five PSAPs at the end of implementation of this framework). 33

34 Deliverable 9: Heights/Hillcrest Region Consolidation ( ) Beachwood, Cleveland Heights, East Cleveland, Euclid, Gates Mills, Highland Heights, Lyndhurst, Mayfield Heights, Mayfield Village, Pepper Pike, Richmond Heights, Shaker Heights, South Euclid and University Heights. (14 cities / 13 PSAPs) Currently, five of these cities including: Beachwood, Euclid, Shaker Heights, South Euclid and University Heights are participating in a feasibility study conducted by CSU. They have received $55,386 from the Local Government Innovation Fund and the $5,710 match from the County for this study. It is anticipated this center will be located in the City of Beachwood. These cities have been engaged in extensive planning and the leadership in these communities has facilitated significant progression for this effort. Due to the consolidation efforts and shared services already in place through the Eastside Department Group Enforcement (EDGE), such as their S.W.A.T. team, some of the hurdles with planning, trust, policy development, etc, may be easily overcome. Outcome: This consolidation has the potential to reduce the number of PSAPs in the Heights/Hillcrest Region from 14 to 1. This Region would handle 104,000 calls. The Heights/Hillcrest Region has the opportunity to be a premier PSAP in the County. It will have the capacity, state-of-the-art technology and policies and procedures to take on a significant portion of the county s calls. When completed, this center will provide a viable, cost-effective option for other cities around them interested in participating to reduce their costs and enhance their level of service. (It is anticipated that Deliverables 8 and 9 will take place independently and concurrently as this framework unfolds. However, the final implementations of this plan will require a consolidation to be explored among the two regions. This will affect whether Cuyahoga County has four of five PSAPs at the end of implementation of this framework). 34

35 Deliverable 10: Westshore Region Consolidation ( ) Bay Village, Westlake, Rocky River, Lakewood, Fairview Park and North Olmstead. (6 cities / 6 PSAPs) The Westshore region has been a leader in consolidation efforts for many years. These consolidation efforts have taken shape in the areas of S.W.A.T., HAZMAT and rope rescue. Pertinent to this plan, the Westshore Region has consolidated Fire and Emergency Medical Service dispatching services. These dispatching services are co-located at Westcom in St. John s Westshore Hospital. Westcom currently dispatches for four cities in Cuyahoga County: Bay Village, Westlake, Rocky River, Fairview Park, and one city in Lorain County: North Ridgeville. It could be a viable option to leverage this current operation and expand it to include more cities and include Police. However, there are other viable options that can be explored as leadership in this effort emerges within the Region. It important to note, that due to the proximity to Cleveland and Southwest region, some cities may choose to engage in consolidation discussion with those cities/regions. Outcome: This consolidation has the potential to reduce the number of PSAPs in the Westshore Region from 6 to 1. This Region would handle approximately 38,000 calls. (This effort would serve the smallest population and have the least call volume of all 4 PSAPS (Attachment F). Due to the consolidation efforts already in place, some of the hurdles with planning, trust, policy development, etc, may be easily overcome. This center may be the one of the four premier, regional dispatch centers. When completed, the center will have to provide a viable, cost-effective option for other cities interested in participating to reduce their costs and enhance their level of service. (The outcome of this Deliverable will affect whether Cuyahoga County has four of five PSAPs at the end of implementation of this framework.) 35

36 V. IMPLEMENTATION STRATEGIES In 2012, Cuyahoga County Executive, Edward FitzGerald released The Western Reserve Plan, a long-term vision for Cuyahoga County, intended to unite the region for a better tomorrow. The Plan consists of 12 principles, including protecting our county by leading a county-wide public safety initiative. As part of this principal, Cuyahoga County is committed to assisting communities in the implementation of PSAP consolidation efforts. Below is a description of potential obstacles, consolidation models, and a listing of ways in which Cuyahoga County can assist communities who are interested in PSAP consolidation. Considerations, Potential Pitfalls, and Keys to Success Cuyahoga County fully supports and encourages the consolidation of PSAPs countywide. Consolidation of dispatching services can create a more responsive, flexible, and cooperative public safety response system. Ultimately, better service delivery resulting from a consolidated model can save lives. Despite the benefits of consolidation, there are a number of potential pitfalls and considerations that communities will need to address as they work toward adopting a consolidated PSAP approach. Change to any organizational structure can put stress on an already taxed system. Merging entities may fear a loss of autonomy, specifically where smaller communities merge with larger, more established PSAPs. In the alternative, larger, more sophisticated PSAPs may fear a decrease in service level where mergers occur with a smaller, less advanced PSAP. In addition, lack of effective leadership, various bargaining unit requirements, and ineffective communication are all things that can significantly delay PSAP consolidation discussions. Finally, decisions as to who should lead a PSAP consolidation effort, naming of the newly consolidated PSAP, consensus on technology, and the development 36

37 of universally acceptable rules, policies, and procedures, are all issues that can derail conversations about consolidation. However, communities interested in consolidation of PSAPs can work together to overcome these pitfalls. Working within pre-existing cooperative relationships, open communication between agencies, and support from government leadership are all keys to the success of a PSAP consolidation. Support from Mayors, Council members, Police, Fire, and other stakeholders is essential for a successful PSAP consolidation regardless of model used. At various stages during a consolidation process communities may face challenges and obstacles that require a strong commitment from leadership. The consolidation process may not be easy at all times, but once consolidated the difficulties associated with consolidation will be far outweighed by the achieved benefits. Finally, local communities need to work with the public to educate them on the importance of consolidation. At a community s request, Cuyahoga County will assist in facilitating discussions between communities interested in consolidating. Consolidation Models As communities throughout Cuyahoga County begin to consider PSAP consolidation as a viable solution for redundant public safety services, Cuyahoga County acknowledges the importance of researching the various types of consolidation models. Cuyahoga County is recommending a full / physical consolidation model as described below. This model strongly supports the County s mission to decrease the number of physical PSAPs from 45 to four countywide. However, communities will need to assess the advantages and disadvantages of each consolidation model and choose the model that best fits their intended outcome as well as citizen public safety needs. Outlined below are several common consolidation models. These models will meet the needs of the majority of cities that are interested in PSAP consolidation while working toward a full / physical consolidation. Full/Physical Consolidation: All existing dispatch services are moved to a single dispatch center with a single management structure. A consolidated center requires diverse centers to be brought together under one management team 37

38 with common operating platforms. While full consolidation often has the largest start-up costs (initial investment) it typically provides the greatest long-term cost savings. 8 Advantages: Potentially, a more cost effective solution due to sharing of costs related to technology, equipment, and personnel reductions Single electrical, HVAC, emergency power, and other facilities costs Cross-trained dispatchers More resources to meet industry standards which can benefit ISO ratings Opportunity for interagency information sharing which can enhance response times and mutual aid Reduction of duplicate services and unnecessary redundancy More efficient dispatch collaboration for Police, Fire and EMS Disadvantages: High start up costs Political support to close existing dispatch centers With a full consolidation, each agency should consider the following technical components and their scalability: Equipment hardware and software Administrative telephone lines Computer Aided Dispatch (CAD) Records Management System (RMS) Call recording Automatic Vehicle Locator Alarm Systems Reverse Specifically, it is important for all technology to function using the same architecture. For example, a single CAD operating platform that is capable of interfacing with many varying types of records management systems would be essential. The CAD system must also be sophisticated enough for the increased call volume and other dispatch functions. Therefore, these types of factors automatically limit the number of CAD, RMS and other equipment vendors available because many of the smaller vendors are unable to handle the increased capacity. 8 Currier, Walter and Dye, James. Consolidated Dispatch: Embraced or Feared? Magazine 1 Jun Web. 21 Aug

39 Co-Located Consolidation: A co-location of PSAP s is the sharing of physical space by more than one PSAP and/or agency. In addition to sharing space, this may also include shared technology such as: CAD, telephone systems, radios, and recorders, while remaining completely separate entities. For example, a communications center may house police dispatch for Community A and Community B. Employees of both communities will remain employed by their respective governments and all authority remains with the employee s hiring entity. This model can provide cost efficiencies by sharing physical space and technology while allowing agencies to keep administrative control. 9 Advantages: Potentially, a more cost effective overall solution due to sharing of costs to upgrade and maintain equipment Single electrical, HVAC, emergency power, and other facilities costs CAD and call recording systems may remain separate Opportunity for interagency information sharing which can enhance response times and mutual aid Disadvantages: No reduction in costs from sharing equipment, such as the CAD system, RMS and radio equipment, and maintenance of multiple switches Personnel relocation The most significant challenge municipalities may face under a co-location consolidation is the development of unified policies and procedures. In addition, leadership, uniform requirements, and staffing issues where schedule requirements vary, rates of pay, paying authority, and unions are all integral parts of a co-location consolidation. Virtual Consolidation/Shared services: In this model of consolidation, the participating agencies maintain separate physical locations, but share common public safety technology platforms such as: CAD, E9-1-1 Telephony, logging, recording, Geographic Information System (GIS) mapping and possibly the RMS system and radio systems. In some instances, they can also share some common call-taking and dispatch functions. These various equipment systems are maintained at a single location and all agencies participating in the 9 APCO International: Michigan Chapter. Michigan Public Safety Answering Point (PSAP) Consolidation Considerations. 24 Aug

40 consolidation access them virtually through a secure managed IP network. This type of consolidation can also be referred to as a "Partial Consolidation" in the event the decisions are made to share some, but not all of the available technology platforms while continuing to operate independently. Advantages: Potentially, a more cost effective solution due to sharing of costs related to technology, equipment, and personnel reductions Potential for each dispatcher from individual agencies to have the capability to dispatch for all participating agencies Less costly than building out a new facility Shared technical support may increase interoperability and operational awareness Disadvantages: Duplication of dispatch personnel and management Network security concerns Integrated network cost to provide connectivity With a virtual consolidation, agencies should consider the following technical components and their scalability: In this type of virtual environment a redundant, reliable, high-speed connection between the shared services location and each participating dispatch center is required An important thing to consider with Virtual Consolidation/Shared Services is that it is possible for the participating agencies to use a common CAD, RMS and/or radio system, yet maintain their own servers. Thus, they all work on a common operating picture, which in turn, enables them to see all emergency response assets. An advantage of this approach is the opportunity to share equipment costs, reduce purchase and maintenance costs, while maintaining independence if that is a concern. Cuyahoga County Services Cuyahoga County has made the reduction of PSAPs a priority while furthering the County s mission for regional collaboration. Public Safety Principle 11 of the Cuyahoga County Western Reserve Plan states that the approach to protecting our county by leading a county-wide public safety initiative is to: 40

41 Develop a Countywide Strategic Plan for the implementation of various Cuyahoga County Public Safety efforts, including Impact Units, the Cleveland/County Jail consolidation, consolidation of services, and the release of the Regional Enterprise Data Sharing System (REDSS) product. These initiatives are encompassed in the Cuyahoga County Public Safety Plan that will be developed in The Plan further states that a 2013 goal is to, Decrease the number of Public Safety Answering Points (PSAPs) countywide through a consolidated dispatch model. 11 In support of the County s goal to enhance regionalism and decrease the number of PSAPs countywide, this plan offers ways in which the County can support agencies currently operating PSAPs who are interested in consolidating and/or are in the process of consolidating with other agencies. The County can provide support in the following ways: Public Safety Shared Services Fund High start-up costs are usually the most significant impediment for agencies exploring a consolidated effort. In order to effectively support PSAP 10 Western Reserve Plan 11 Western Reserve Plan 41

42 consolidation, many jurisdictions require financial support outside of their community budgets. Support from the County in these efforts would increase the potential for large-scale, regionally consolidated PSAPs and result in more effective and efficient public safety services. As a result, Cuyahoga County is working toward the development of a Consolidated Shared Services Fund. The purpose of the Fund will be to support infrastructure, professional services, and technological equipment upgrades needed to support this Plan. Although there are still many factors to be evaluated, there will be restrictions and requirements associated with receiving these funds. This administration will work with County Council to develop funding levels and appropriate guidance. Program Management Cuyahoga County has personnel who have successfully provided their program management skill, experience, and knowledge to dispatch center projects. These personnel will oversee the general success of the program with a highlevel view of the various related projects that go into achieving the goal of consolidation. Due to the breadth and complexity of this program and the available resources, there will be careful evaluation of each request for Program Management assistance. Project Management Communities that require assistance with project management can rely on Cuyahoga County s Project Managers. Communities can request that Cuyahoga County work with local project managers to assist through the five phases of the project: Initiating, Planning, Execution, Controlling and Closing. Cuyahoga County program/project management staff will offer a high-level view of all tasks that need to be completed in order to consolidate successfully. Although Cuyahoga County cannot provide a lead project manager, project management staff is available to assist local project managers in trying to stay on task considering cost, time, and scope of the project. 42

43 Assessments Feasibility Assessment Cuyahoga County is currently contracting with Cleveland State University (CSU) Center for Public Management to assist with facilitating the consolidations of various public safety dispatch centers. Specifically, CSU will conduct feasibility studies for consolidation of public safety dispatch functions for police, fire, and emergency medical services. Although this process has already started, any community interested in a feasibility assessment from CSU must be seriously considering PSAP consolidation. The County will review and assess each request in coordination with CSU. Financial Feasibility Assessment Financial feasibility will need to be assessed as communities move forward with consolidation. Communities will need information regarding backfill of nondispatch responsibilities. A thorough, objective analysis can be conducted by County staff experienced in budget, fiscal operations and dispatch functions. The assessment will provide a list of the functions and responsibilities that will require backfill, the potential cost (at maximum) associated with backfill, and options to consider in reducing financial impact. This analysis is a participatory exercise and requires dispatch records (call data, personnel descriptions, budgets, etc.) and interviews with key personnel. The requesting agency will be provided a final report within 60 days of commencement assuming all paperwork is provided and interviews conducted in a timely manner. Technology Assessment The technological components of a dispatch center are extremely complex. Because of this, Cuyahoga County can assist in identifying specific technological considerations related to PSAP consolidation. The assessment will evaluate, at minimum, the following: Existing technologies within participating centers Existing IP Network Requirements Existing dispatch service systems Make recommendations for any needed enhancements 43

44 Equipment Upgrades NG9-1-1 Cuyahoga County is currently engaged in a multi-year project to upgrade the workstation equipment of PSAPs in the County. This equipment will be Next Generation compliant and include state-of-the art technology and software. In addition, the upgrades will include mapping features and a comprehensive reporting system. Due to the complexity of this project, the deployment of equipment will span multiple years and require thoughtful consideration in developing a method for prioritization and deployment. Cuyahoga County and the Committee is working diligently to ensure distribution of equipment is done in a transparent and equitable manner. Dispatch Center Design Cuyahoga County has contracted with URS architects to develop a Cuyahoga County Dispatch Center Template. The template is intended to provide general design guidelines that are ideal for a regional dispatch center that will meet the County s needs for consolidation. This template includes general requirements to meet required reference codes (i.e. NFPA, IBC, NEC, etc.) and a cost estimate for the maximum probable cost of construction. In addition, Cuyahoga County may assist communities in attaining more specific assessments of the feasibility of potential consolidated dispatch locations. These assessments evaluate the feasibility and cost to renovate specific sites to meet the civil, structural, architectural, mechanical, fire protection, electrical and environmental requirements and applicable building codes required for construction. Finally, a recommendation can be derived from this assessment as to the cost-effectiveness of renovating specific sites. Research Cuyahoga County can help jurisdictions research and identify the best method for consolidation. Staff can assist in indentifying best practices, potential pitfalls, and recommend solutions. Additionally, staff has the opportunity and resources to conduct research via academic methods to find best practices and potential solutions to problems. These staff can assist with finding solutions for many problems agencies may pose. 44

45 These resources dedicated to support the Consolidation Plan is a strong indication of the support County officials have for this Initiative. This has further been demonstrated through continual acknowledgement by the Cuyahoga County Executive and Cuyahoga County Council. 45

46 VI. SUMMARY Consolidation of dispatching services is essential to the success of services within Cuyahoga County. This plan has highlighted a framework to decrease the number of PSAPs countywide from 45 to 4 over the next 10 years. A decrease will allow Cuyahoga County to offer superior public safety service while maintaining efficient dispatching throughout the County. Further, with anticipated changes in legislation over the next several months to years, countywide consolidation efforts places Cuyahoga County in the forefront of statewide public safety efforts. In addition to the efforts found in this Plan, Cuyahoga County is actively leading an effort to develop a Countywide Emergency Medical Dispatching Protocol, standardize policies and procedures, prepare PSAPs for accreditation and facilitate access to ODOT traffic cameras. Cuyahoga County recognizes that communities may need additional support to facilitate a consolidation, in addition to those services listed in this Plan. As a result, Cuyahoga County is committed to supporting municipalities in any stage of PSAP consolidation. 46

47 ATTACHMENT A County Planning Commission Regions

48 ATTACHMENT B Current Consolidated PSAPs

49 ATTACHMENT C 10-Year Projection