Enhanced 911 for Multi-Line Telephone Systems. CLA RECOMMENDATION: Approve Mayor's Proposal to SPONSOR legislation to require

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1 ., CLA MEMORANDUM Decemer 8, 2006 TO: Honorable Members Intergovernental Relations Committee FROM: Gerr F. Miler ~. ff/a ~ Chief Legislative ~lyšm SUBJECT: Enhanced 911 for Multi-Line Telephone Systems CLA RECOMMENDATION: Approve Mayor's Proposal to SPONSOR legislation to require Multi-line Telephone Systems (ML TS) to provide sufficiently precise indication of the caller's location, while avoiding the imposition of undue burdens on system manufacturers, providers and operation of ML TS. SUMMARY The Mayor proposes that the City sponsor state legislation that would require precise caller location when using a central switch, such as a Centrex or PBX system. Under current conditions, a caller for emergency services dialing from a business site that includes several buildings must identify to the dispatcher precisely where he or she is calling from because otherwise the enhanced system wil only reflect the central street location of the switchboard. This location could be many blocks away from where the caller is located. It is the business that operates the campus that pays for the telephone system, and usually means a central switchboard, or a subsequently developed system. The result is the dispatch of emergency responders to a street address that is indeed the business from which the caller is calling, but the business is more than a single street front entrance. It may cover a very large structure, or several buildings in the vicinity. The Los Angeles City Hall complex itself is like this. An emergency caller from any of the many City buildings in downtown canot depend on the enhanced system giving his or her building location and room number, if he or she is unable to give it to the dispatcher. The shooting in the Piper Tech complex in the early 1990s is a case in point, according to the Information Technology Agency (IT A). The caller failed to give the precise location and the responders only knew to go to Piper Tech. In many other instances, a caller unable to give precise directions could be blocks away from what the enhanced system reflects as the caller's location. ITA proposes that any entity that installs or operates a private business switch service and provides telecommunications facilities or services to businesses must insure that the system is connected to the public switched network in a manner that calls to result in automatic number and location identification. For buildings having their own street address and containing workspace of more than 40,000 square feet, local identification shall include the building's street

2 address and one distinct location identification per 40,000 square feet of workspace. Separate buildings containing 40,000 square feet or less and having a common public street address shall have distinct location identification for each building in addition to the street address. IT A also reports that the National Emergency Number Association (NENA) and the Association of Public-Safety Communications Officials (APCO) urge both national and state legislation to require enhanced for ML TS. The two associations have urged this legislation since The Federal Communications Commission (FCC) has commended the effort but has declined to adopt national E-9l 1 regulations for ML TS, preferring to see differing developments by each state to test different approaches and to see which fits best for the nation. ITA reports further that the states of Washington, Ilinois, Texas, Minnesota and Virginia have differing programs, not all of which require total compliance from all Centrex systems. All paries in the discussion of and ML TS agree that precise locations must be pursued for the public safety, not only in rendering emergency response faster, but in making that emergency response team again available for the next crisis. The key is how to make better automatic location identification available; is this a cost to be borne by the entity owning the site (the business complex) and operating a Centrex or PBX system? Or should it come from the account? Contacts made with the State Sheriff s Association and the Los Angeles County Sheriff s Office advised that the account is tapped out and that the only way to get more money is to increase the surcharge. If the City seeks to pass the burden on to the entity owning and operating a site, then the City itself could see a cost to improve the City's Centrix system of $500,000. Not only is hardware a cost, but the maintenance of the data in the phone system is an on-going job (someone has to be updating office locations with changed phone numbers). The City could also seek the direction of the California Public Utilities Commission, which would have oversight ofthis issue. If given to the PUC to pursue, a fee could be authorized by that body. It's possible that any State imposed fee would be for only the governental agency involved to implement the new system, not a private business to pay for changes to its PBX ~\(~ system. Michael P. Karsch Analyst Atch: 1. Resolution 2. Mayor's letter 3. ITA's recommendation N: \E9 i i ML TS - fies\e9 i i ML TS. wpd

3 /'--" RESOLUTION WHEREAS, any official position of the City of Los Angeles with respect to legislation, rules, regulations and policies proposed to or pending before a local, state or federal governental body or agency must have first been adopted in the form of a Resolution by the City Council with the concurrence of the Mayor; and WHEREAS, the Mayor proposes that the City sponsor state legislation that would require precise caller location when using a central switch, such as a Centrex or PBX system; and WHEREAS, under current conditions, a caller for emergency services dialing from a business site that includes several buildings must identify to the dispatcher precisely where he or she is callng from because otherwise the enhanced system wil only reflect the central street location of the switchboard, but if the caller is unable to speak, or hangs up the phone in panic, the system wil fail to identify where an emergency response team is to go other than the biling address of the Centrex system; and WHEREAS, the Information Technology Agency (ITA) proposes that any entity that installs or operates a private business switch service and provides telecommunications facilities or services to businesses must insure that the system is connected to the public switched network in a maner that calls to result in automatic number and location identification; and WHEREAS, for buildings having their own street address and containing workspace of more than 40,000 square feet, local identification shall include the building's street address and one distinct location identification per 40,000 square feet of workspace; and WHEREAS, ITA also reports that the National Emergency Number Association (NENA) and the Association of Public-Safety Communications Officials (APCO) urge both national and state legislation to require enhanced for ML TS, and notes that the Federal Communications Commission (FCC) urges each state to enact its own best approach to this problem. NOW, THEREFORE, BE IT RESOLVED, with the concurrence of the Mayor, that by adoption of this Resolution, the City of Los Angeles hereby includes in its State Legislative Program SPONSORSHIP oflegislation to require Multi-line Telephone Systems to provide sufficiently precise indication of a caller's location, while avoiding the imposition of undue burdens on system manufacturers, providers and operators ofmlts.

4 ", / ANT 0 N ior. V ILL A R A I GO S A MAYOR November 21,2006 Honorable Members of the Los Angeles City Council c/o City Clerk Room 395, City Hall Los Angeles, CA Re: Proposals for the 2007 State LeQislative Session Honorable Members: Pursuant to Section 231 (h) of the City Charter wherein the mayor is charged with Representing the City in intergovernmental relations and supervising the City's intergovernmental relations functions, attached please find a number of proposals for the 2006 state and federal legislative session submitted for your consideration and approval. Proposals were solicited from all City departments, and i have culled from these submissions a strategic selection of proposals that will greatly improve the quality of life for the residents of the City of Los Angeles. The attached package represents only one step in an overarching legislative strategy that i hope to coordinate with your Honorable Body. We wil undoubtedly work together, for example, to obtain the maximum funding for Los Angeles from the state infrastructure bonds and federal formula reconsiderations. -Due-to the limited time frame in which new state legislative proposals may be introduæd in the upcoming session, i am putting these proposals forward for immediate consideration by the City CounciL. i have urged all City departments and agencies to work closely with the City Council and the Chief Legislative Analyst to provide any additional information necessary to establish official City positions on legislative proposals. s-ee. 200 NORTH SPRING STREET. Los ANGELES, CA LIFORNIA PHONE: (213) FAX: (213) ~ 1J,.. ~ r......"'1"" n ir T A,... otv rr n,.

5 i look forward to working with each of you to develop further policies to advance the interests of the City in Sacramento and Washington, D.C. Va Ir Iy y:u~ ~ Mayor OVK~OSA ARV:ew Attachment cc: Gerry Miler, Chief Legislative Analyst Michael Karsch, Office of the Chief Legislative Analyst _ _.. - _. - ~ _ _ _.- _ _..

6 Mayor's Offce of Intergovernmental Relations and Legislation City of Los Angeles State Sponsorship Items for Approval by City Council Energy & the Environment November 21, Sponsor legislation establishing statewide standards for Reclaimed Water. Sponsor legislation establishing statewide standards for biosolids Homelessness. Sponsor legislation to reshape Downtown redevelopment projects and captute tax increment dollars for homelessness Public Safety. Sponsor Shooting Crime Victim's Bil of Rights, which would o Extend the statute of limitations for shooting crimes to ten years o Require law enforcement to retain evidence from shooting crimes for the same period of time, and to inform victims when the evidence wil be destroyed - Integrated Ballstic Information database to preserve firearm evidence from shooting crimes o Obligate police agencies to utilze the National. Sponsor legislation to require enhanced 911 capabilties for multi-line telephone systems Education. uppórt gislation revising the eligibility criteria for $1.9 billon for new cons ruction under Prop. 1 D. llausd currently ineligible for this funding due to change in population data after borid-g were passed by Legislature".) Finance -,. Sponsor legislation or budget action that provides fair reimbursement tothe City of Los Angeles for mandate costs associated with due process rights for law enforcement offcers under the Police Officer's Bil of Rights (POBOR).

7 ..f-') J'\ '.,. Enhanced 9-1.;1 for Multi-line Telephone System$ (State Legislation) Purpose of Legislation: Legislation is necessary to require Multi-line Telephon'e Systems (ML TS) to provide suffciently precise indication of the caller's location, while avoiding the imposition of undue burdens on system manufacturers, providers, and operation of ML TS. The digits are designated as the emergency telephone number. Enhancements to the system typically enable the caller's telephone number and pillng number to be displayed to the Public Safety Answering Point (PSAP): As a result, when the caller is callng from a single-line telephone or a ML TS serving a compact area, the address associated wjth the caller's telephone number can be retrieved and usually provides a reasonably precise identification of the caller's location. Public safety agencies increasingly rely on the Enhanced 9-11 system to provide automatic location information and automatic number information to permit a call back to the caller... H However, in some cases calls made from telephones connected to Multiline Telephone Systems may not be precisely located by the system, eliminating the benefi of Enhanced This lack of adequate location information can be life threatening if the caller cannot supply the correct location or the call is "dropped." calls require an immediate and expeditious response... Under a. ML TS scenario, not. only is the potential for a delayed response occurring but the public safety resources that are dispatched may not be àppropriate, thus. reducing the effectiveness of the Public Safety response. Furthermore, it wil lengthen the amount of time the call taker must remain on the line thus creating an operational issue at the PSAP. Draft Language: Any entity that installs or operates a private business switch. service and provides telecommunications facilties or services to businesses must insure that the system is connected to the public switched network in a manner that calls to result in automatic number and location identifcation. For buildings. having their own street address and. containing workspace of.40,000 square feet or less, location identification shall include the building's street address. For buildings. having their own street address and containing workspace of more than 40,000 square feet, location identification shall include. the building's street address and one distinct locatioh identification per 40,000 square feet of workspace. Separate buildings containing workspace of. 40,000 square feet Qr less having a common public street address shall have distinct location identification for - n.----,-- each building - in - H-- addition -----_._- to the street addtess _ _.- -- Fiscal Impact: Legislation pertainiig-_t~ - emer~_el1~1'~ c_~ir i!!fa_~aticfrf -regüire.h1énts... for multi-line telephone systems wil represent additional costs to each business. The amounts wil depen~ 'on the content of any legislation that is adopted and cannot be determined at this time _n -. ITA Legislative Recommendations Page 9

8 , 1-..,. ITA Legislation Proposal: Enhanced 911 for Multi-line Telephone Systems Background ITA has proposed state legislation that wil require Multi-line Telephone Systems (ML TS) to provide enhancements to the 911 emergency system. These enhancements wil reveal a 911 caller's location without burdening system manufacturers, provid~, and operators of ML TS.. Multi-line Telephone Systems are private telephone systems comprised of common control units, telephones, and control hardware that share an interface to the public switched telephone network. ML TS includes systems owned or leased by governmental, non-profit, and for-profit agencies. Enhancements to the 911 system (E-911) enable the caller's telephone number and biling number to be displayed to the Public Safety Answering Point (PSAP). A PSAP. denotes a facilty equipped and staffed on a 24-hour basis to receive and process E-911 calls.. If a caller dials 911 from a single-line telephone or a ML TS, then the address associated with the caller's phone number can be retrieved. Specifically, ITA's legislation proposal specifies that any entity that operates a private business switch service must insure that the system is connected to the public switched network so that 911 calls automatically reveal number and location identification. ITA legislation also specifies different requirements for different workspaces. According to the National Emergency Number Association (NENA), a leading public safety industry organization, public safety agencies are beginning to rely on the E-911 system to provide accurate and reliable information about the caller's number and location. However, the E-911 system does not guarantee that precise location information will be retrieved during a 911 call from a ML TS. Problems have occurred when a caller is remote from the location supplied to the E-911 system. In these instances, not only is. the response delayed, but also Iimited--ptHc-safety resourc-es- may-be dispateheå-to-aau _un _uninappropriate location.. Status _._ _ _ , NENA and the Association of Public-Safety Communications Officials (APCO) released model legislation regarding a-pbxlml TS E-91 f system. This ñ1öe:èllegislatiöii was then forwarded to the FCC for review... -

9 ... The FCC has commended the legislation, but declined to adopt national E-911 regulations for ML TS. Instead, the Commission has chosen to give states an opportunity to adopt the model or any related legislation regarding this enhanced system. However, APCO maintains that the only way to achieve a national E-911 system for ML TS is through FCC regulation. Following the release of the model legislation only a handful of states have enacted some form of E-911 legislation despite several years of encouragement from the FCC and public safety organizations. Washington state legislation is specific to certain situations and includes residential and business tenant service as well as school environments. Ilinois legislation addresses all types of private branch exchange (PBX) services. Texas legislation cites residential services only. In Minnesota, the law follows the basic provisions of the NENA-APCO exempts legislation, but with several important exceptions, including a provision that college dormitory rooms from otherwise applicable residential ML TS requirements. In recent Virginia legislation there is a strong focus on liabilty issues. A limiting factor with many of the enacted state laws is the lack of meaningful enforcement provisions. Often, the only apparent incentive to comply is the perceived fear of litigation from those who may be injured on the premises of the ML TS owner. In general, E-911 state legislation has failed to gain momentum due to opposition from business, educational, and governmental organizations. The main argument against an E-911 system and legislation involves perceived cost and fiscal impact. This opposition is fueled by the extreme variation in costs imposed by local exchange carriers (lec). The varied charges can even involve the same carrier, but vary depending on the geographic location of the Ml TS installation. December 2004, APCO reiterated its original request for the FCC to adopt federal regulation pertaining to the deployment of E-911 capabilties for ML TS _ ~. -" _u _u -._