Shared Services Feasibility Study: Dispatch, Records, Prisoner Processing

Transcription

1 Shared Services Feasibility Study: Dispatch, Records, Prisoner Processing Neptune Township, Belmar, Neptune City, Bradley Beach, Avon-by-the-Sea and Lake Como Prepared by: INTERTECH ASSOCIATES Schanck Road, Suite A-14, Freehold, NJ April 12, 2010

2 Table of Contents EXECUTIVE SUMMARY... 1 VOLUME I: CURRENT SITUATION I. Introduction: Background and Project Objectives II. Methodology and Procedural Approach III. History of Public Safety Shared Services A. New Jersey Public Safety Shared Services Initiatives Initiatives Initiatives Impact of Public Safety Initiatives and Standards...16 B. Local Public Safety Shared Services Avon-by-the-Sea and Neptune City Studies Belmar, Bradley Beach, Lake Como Studies Other Local Studies / Efforts...18 IV. Existing Public Safety Communications / Current Environment A. Neptune Township The Neptune Township Community Demographics and Environment Police, Fire, First Aid Neptune Twp. Public Safety Communications Operations Dispatch Center Facilities and Configuration Dispatcher Tasks Staffing and Work Schedule Analysis Call Volume Summary Prisoner Handling Operations Records Management Operations Observations and Findings: Operations Neptune Township Communications Center Technology Radio System and Frequencies Radio Control System/Dispatch Consoles CAD/RMS and Mapping Systems E-911 Communications System Administrative Communications System Video Surveillance and Other Related Technologies Back-Up Center Neptune Township Communications Center Cost Profile...34 Final Version Page ii April 12, 2010

3 B. Belmar The Belmar Community Demographics and Environment Police, Fire, First Aid Belmar Public Safety Communications Operations Dispatch Center Facilities and Configuration Dispatcher Tasks Staffing and Work Schedule Analysis Call Volume Summary Prisoner Handling Operations Records Management Operations Belmar Communications Center Technology Radio System and Frequencies Radio Control System/Dispatch Consoles CAD/RMS and Mapping Systems E-911 Communications System Administrative Communications System Video Surveillance and Other Related Technologies Belmar Communications Center Cost Profile...49 C. Neptune City The Neptune City Community Demographics and Environment Police, Fire, First Aid Neptune City Dispatch Operations Dispatch Center Facilities and Configuration Dispatcher Tasks Staffing and Work Schedule Analysis Call Volume Summary Prisoner Handling Operations Records Management Operations Observations and Findings: Operations Neptune City Dispatch Technology Radio System and Frequencies Radio Control System/Dispatch Consoles CAD/RMS and Mapping Systems Administrative Communications System Video Surveillance and Other Related Technologies Neptune City Dispatch Cost Profile...60 Final Version Page iii April 12, 2010

4 D. Bradley Beach The Bradley Beach Community Demographics and Environment Police, Fire, First Aid Bradley Beach Dispatch Operations Dispatch Center Facilities and Configuration Dispatcher Tasks Staffing and Work Schedule Analysis Call Volume Summary Prisoner Handling Operations Records Management Operations Observations and Findings: Operations Bradley Beach Dispatch Technology Radio System and Frequencies Radio Control System/Dispatch Consoles CAD/RMS and Mapping Systems Administrative Communications System Video Surveillance and Other Related Technologies Bradley Beach Dispatch Cost Profile...72 E. Avon-by-the-Sea The Avon-by-the-Sea Community Demographics and Environment Police, Fire, First Aid Avon-by-the-Sea Dispatch Operations Dispatch Center Facilities and Configuration Dispatcher Tasks Staffing and Work Schedule Analysis Call Volume Summary Prisoner Handling Operations Records Management Operations Avon-by-the-Sea Dispatch Technology Radio System and Frequencies Radio Control System/Dispatch Consoles CAD/RMS and Mapping Systems Administrative Communications System Avon-by-the-Sea Dispatch Cost Profile...81 Final Version Page iv April 12, 2010

5 F. Lake Como The Lake Como Community Demographics and Environment Police, Fire, First Aid Lake Como Public Safety Communications Staffing and Work Schedule Analysis Call Volume Summary Prisoner Handling Operations Records Management Operations Lake Como Public Safety Technology Lake Como Public Safety Communications Cost Profile...86 G. Summary of All Six Communities Comparison of Demographic Data Comparison of Call Volume Data and Assumptions Comparison of CFS Incident Types...89 Final Version Page v April 12, 2010

6 VOLUME II: SHARED SERVICES ANALYSES & RECOMMENDATION 90 V. Shared Services Scenarios and Analysis A. Types of Shared Service Models...91 B Dispatch Shared Services Alternatives Evaluated CONTINUE EXISTING OPERATIONS Description of Scenario 1: Continue Existing Operations Advantages of Existing Dispatch Operations Challenges of Existing Dispatch Operations Call Volumes in Scenario 1: Existing Operations Staffing Analysis in Scenario 1: Existing Operations Technology Requirements in Scenario 1: Existing Operations Projected Costs (2010 Budget) of Existing Dispatch Operations CENTRALIZED CENTER AT NEPTUNE TOWNSHIP Description of Scenario 2: Centralized Center at Neptune Township Advantages of Centralized Center at Neptune Township Challenges of Centralized Center at Neptune Township Call Volume Projections: Centralized Center at Neptune Township Staffing Analysis: Centralized Center at Neptune Township Technology Requirements: Centralized Center at Neptune Township Radio System and Frequencies Radio Control System/Dispatch Consoles Tower-to-Tower Backhaul CAD/Records Management and Mapping Systems Administrative Telephone Other Technologies Prisoner Holding/Processing with Centralized Dispatch at Neptune Twp Projected Costs of One Dispatch Center at Neptune Township TWO CENTERS: BELMAR AND NEPTUNE TOWNSHIP Description of Scenario 3: Two Dispatch Centers, Belmar and Neptune Advantages of Two Dispatch Centers Challenges of Two Dispatch Centers Call Volume Projections for Two Dispatch Centers Staffing Analysis for Two Dispatch Centers Technology Requirements for Two Dispatch Centers Prisoner Processing/Holding with Two Dispatch Centers Projected Costs of Two Dispatch Centers Final Version Page vi April 12, 2010

7 4. MONMOUTH COUNTY REGIONAL SERVICE Description of Scenario: Monmouth County Regional Dispatch Advantages of Monmouth County Regional Dispatch Challenges of Monmouth County Regional Dispatch Call Volume Projections for Monmouth County Regional Dispatch Staffing Analysis with Monmouth County Regional Dispatch Future Technology Plans of Monmouth County Regional Dispatch Prisoner Processing/Holding with Monmouth County Regional Dispatch Project Costs of Monmouth County Regional Dispatch VI. Recommendation: Centralized Dispatch at Neptune Township VII. Implementation Planning Leadership Team for Multi-Community Dispatch Shared Services Governance Structure of Consolidated Communications Center Operational Planning Team (Working Level Committee) Staffing and Training Additional Considerations Schedule and Commitment to Success Proposed Cost Sharing VIII. Appendices A. PSAP/PSDP Center Job Descriptions B. Additional Scenarios Considered C. Breakdown of 2008 CFS Data (from CAD Systems) D. Summary of UCR Crime Statistics/Arrests by Community E. Radio Call Log Data: Neptune Township, Belmar, Bradley F. Radio Call Log Comparison Charts: Dispatch vs. Administrative G. Technology Diagram of Centralized Center Operations H. Radio Coverage Plots with Centralized Dispatch Final Version Page vii April 12, 2010

8 EXECUTIVE SUMMARY Final Version Page 1 of 172 April 12, 2010

9 Executive Summary This report contains a detailed analysis of the feasibility of sharing public safety 911 call taking and dispatching services among six Monmouth County communities along or near the New Jersey coast: Neptune Township, Belmar, Neptune City, Bradley Beach, Avon-by-the-Sea, and Lake Como. This report is organized into three primary sections: Volume I: Assessment of existing Dispatch Centers configurations, communications operations and supporting technology in each community. Volume II: Analysis of shared service scenarios and recommendations/conclusions on the feasibility of consolidation of public safety communications among the six communities. Appendices: Supporting data used in the assessment and development of recommendations. Based on this analysis, the consultant sees opportunities for these six communities to come together in consolidation/shared dispatch services combined with an equitable governance model that can provide a positive impact on 911 call answering and dispatch operations in each community. A. Project Objectives These six communities retained the services of Intertech Associates, an independent Professional Engineering firm, to define, explore and research alternative solutions for shared dispatch communications services among the six communities. The scope of the study was to determine if consolidation of dispatch services is feasible and in the best interest of the six communities citizens and, if so, to recommend the functional and operational changes necessary to achieve such a consolidation. At the outset of this assessment, it is critical for stakeholders to acknowledge that the process of shared services design, implementation, and operations requires desire, discipline, and the ability to execute to a plan. A shared services environment is more than the effort of simply moving people together into one location and giving them a common system. It involves a change of mindset: a focus on the core services required by each community, a focus on the service level anticipated from the shared service as a reflection of the communities, and the achievement of functional, business, and financial objectives. We have researched public sector shared services models that have been successfully implemented in other communities to examine correlations between organizational structures and differences in size, scope, call volume, and staffing. These models reveal that the success of shared services among any given communities relies on several factors: Cooperation of the participating parties Clear and practical vision of what is achievable immediately and what needs to be part of a longer-term strategy Willingness for compromise to achieve a shared service solution that improves services over what could be accomplished individually. Intertech Associates does not have a vested interest in any of these communities. Our objective was to review the facts and, from an analytical and technological approach, determine whether or not consolidation of dispatch communications would be feasible and beneficial. If it proved to be so, we were further tasked to show how a consolidated communications center could work and outline a process for the transition to such a consolidated communications center. Final Version Page 2 of 172 April 12, 2010

10 B. Project Methodology This report was prepared following an in-depth, six-month study of the issues relative to the possible sharing of 911 call-answering and dispatch services, as well as related issues pertaining to records management and prisoner holding. This analysis was conducted using a combination of interviews, site visits, and research, including reviewing documents, reports, dispatch call log surveys, CAD reports, contracts, budgets, financial records, organization charts, schedules, policies and procedures, and other items necessary to this assessment. Interviews were conducted separately with the Police Chief (or designated representative) and identified police staff from each community, with the business administrator and an elected official from each community, and with Monmouth County Under Sheriff Shaun Golden and other consultants supporting shared services efforts across Monmouth County. In the process of gathering and analyzing this data, a great degree of diligence was performed to verify each fact and assumption made during the study. Any data, estimates, or assumptions that may be some degree off actual practice will, in the consultant s professional opinion, not impact the ultimate direction, conclusions, and recommendations presented in this report. C. Master Analysis of Existing 911 and Dispatch Environments Volume I of this report includes details and analysis of each of the six communities in the study Neptune Township, Belmar, Neptune City, Bradley Beach, Avon-by-the-Sea, and Lake Como and summarizes the data shared during interviews and from reports provided by each community. The following aspects of the 911 and dispatch environment are addressed for each community: 1. The Community Demographics and environment Police, Fire, and First Aid services 2. Public Safety Communications Operations Dispatch center facility and configuration Dispatcher tasks Staffing and work schedule analysis Call volume summary Prisoner handling operations (as performed by dispatchers) Records management operations 3. Communications Center Technology Radio system and frequencies Radio control system / dispatch consoles CAD/RMS and mapping systems E-911 communications system Administrative communications system Video surveillance and other technologies 4. Communications Center Cost Profile In summary, and as shown in the table on the next page, the combined volume of 911 and ten-digit emergency calls received at Neptune Township is approximately two-thirds more than the combined emergency calls received at the other five communities combined. Final Version Page 3 of 172 April 12, 2010

11 Table 1. Summary Data for Population and Call Volume, Call Volume All 6 Towns Neptune Twp Total Other 5 Belmar Neptune City Bradley Beach Avon Lake Como Population (Per Census) 47,796 27,690 20,106 6,045 5,218 4,793 2,244 1,806 Population (Summer Est.) 140,418 37, ,418 60,000 5,218 20,000 15,000 3, Calls CFS 16,772 13,862 2,910 1, Source actual actual OIT actual County County OIT Incoming 10-digit Emergency CFS 113,502 69,098 44,404 18,103 11,294 5,015 4,374 5,618 Source 80% of actual actual CFS, less 911 CFS less 911 CFS less 911 CFS less 911 CFS less 911 Incoming 10-digit Admin 36,198 17,275 18,923 7,672 4,648 2,227 1,944 2,432 Source 20% of actual estimate estimate estimate estimate estimate estimate Outgoing 10-digit calls 63,297 39,642 23,655 9,590 5,811 2,784 2,430 3,040 Source actual estimate estimate estimate estimate estimate estimate Radio Chatter (monthly) 114,621 40,152 74,469 20,039 20,000 19,430 15,000 w/belmar Source call log estimate call log estimate call log estimate # of 911 Calls, Busiest Hour N/A Source calculated incl. in actual estimate actual estimate estimate avg. Belmar # of All CFS, Busiest Hour 68 N/A 16 N/A 6 N/A N/A Source incl. in actual actual Belmar Neptune Township schedules from two to three dispatchers per shift to handle its call volume. The other five communities schedule one dispatcher per shift (during high-volume summer periods, Belmar will occasionally have two dispatchers together at the desk, but does not consistently schedule two per shift). The communities regularly rely on Special Law Enforcement Officers and sworn officers brought in on overtime to work the dispatch desk. In the five smaller communities, the dispatcher is often the only person in the building during certain hours of the night/midnight shift, as patrol officers are out in the field. Dispatchers provide a variety of non-emergency, administrative, and police-related functions to the communities that are not defined as emergency communications. These include greeting visitors, serving walk-ins, answering incoming calls to the Police Department, maintaining police logs, serving as records clerk, assisting with accident reports, verifying warrants and collecting fines, and giving information to the public. Dispatchers estimate that from approximately 40% to 60% of their time is spent on dispatchrelated communications, with the remainder spent on administrative or police functions. The communities have similar radio systems and five of them operate at VHF frequencies; Lake Como transmits at UHF frequencies. Belmar provides 911 call answering and dispatch services to Lake Como for Police, Fire and First Aid. Neptune Township provides 911 call answering services to Neptune City, with calls transferred back to Neptune City for dispatch to Police, Fire, and First Aid. Monmouth County Final Version Page 4 of 172 April 12, 2010

12 provides 911 call answering services to Bradley Beach and Avon, with calls transferred back to the respective Police Departments for dispatch to Police, Fire and First Aid. Three of the communities use New World CAD systems (Neptune Township, Belmar, and Bradley Beach), which is the same system used by Monmouth County during the period of the study. Two of the communities (Neptune City and Avon) fairly recently switched from New World CAD to IMC CAD systems. During the course of the study, Monmouth County has been evaluating multiple CAD vendors for an upgrade to its CAD system. Given the level of support and interoperability between Monmouth County and the local Agencies, detailed evaluation of CAD systems or records interoperability has not been provided, pending the County s decision regarding a County-wide CAD system. D. Shared Services Alternatives and Recommendations Volume II of this report includes the details of the feasibility analysis of sharing public safety 911 call taking and dispatch services. As a result of the data gathered and analyzed in Volume I, the consultant identified four scenarios that best represent the potential alternatives for shared public safety communications services within these six communities 1 : Scenario 1: Maintain the existing, independent dispatch centers with no change to current operations Scenario 2: One centralized Communications Center located in Neptune Township Scenario 3: Two centralized Communications Centers: one in Neptune Township to serve the two Neptunes and one in Belmar to serve the four shore resort communities Scenario 4: Centralized call answering and dispatch services provided regionally by Monmouth County Communications Division For each of these four scenarios, this report defines 911 call taking and dispatch operations in that scenario and provides an analysis of that scenario s benefits, challenges, estimated call volumes, estimated staffing requirements, technology requirements, impact on prisoner handling operations, and projected operating costs for the first year of implementation. E. Recommendations As a result of this Feasibility Study, the consultant is recommending that these six communities develop a mutually agreed upon transition plan to centralize emergency call answering and dispatch operations at Neptune Township. Based on analysis of the four scenarios, call taking and dispatch operations consolidated at Neptune Township is estimated to require a total dispatch staff of 17 full-time telecommunicators, two part-time, and one civilian director, which is significantly less than the current staffing in the six communities of 20 full-time dispatchers, 9 part-time, 9 SLEOs and regularly scheduled sworn officers on overtime. Based on projected call volumes and radio chatter, we estimate that during the summer peak season (June, July, August), the centralized Communications Center will need to be staffed with four dispatchers per 8-hour shift, plus a civilian Center Director who will be available to support the dispatchers as 1 In addition to these scenarios, other ideas were put forth through a conceptual brainstorming process, but not viewed as feasible enough to warrant further exploration. These are listed in Appendix B. Final Version Page 5 of 172 April 12, 2010

13 needed. We estimate that during the off-season (September-May), three dispatchers per shift will be adequate to handle the projected call volume. The Police Departments do not have to obtain any new frequencies to achieve the recommended consolidated dispatch environment. Four frequencies may require reconfiguration to enable existing simplex frequencies to transmit and receive as duplex frequencies. We recommend adding five Consolettes to the console system at Neptune Township with antennas capable of receiving radio transmission from handhelds and portables in the respective communities. These would be configured using a frequency plan to allocate Police, Fire, First Aid, and other frequencies across the Consolettes to increase redundancy. Dispatchers will be able to communicate directly via radio with Police, Fire, and First Aid over existing frequencies. A backhaul infrastructure must also be put in place to connect the existing radio towers to the Neptune Township tower. This will serve as a redundant network to the Consolettes. The local towers will continue to receive radio transmissions from First Responders handhelds and portables, and then transmit this via the backhaul link to the Neptune Township Tower, ensuring radio coverage at the same level as exists today. Three methods of providing backhaul (connecting the towers) were considered: reconfiguring leased T-1 lines, a WiMAX licensed 4.9 GHz network, and licensed microwave links. The consultant recommends the six communities initially begin shared services dispatch by reconfiguring leased T-1s that currently connect each community to Monmouth County Sheriff but could be redirected to Neptune Township as a hub. This alternative could serve as the only backhaul infrastructure. For additional redundancy, the consultant also recommends a WiMAX 4.9 GHz network with communication links from the primary tower at Neptune Township to each tower in the five communities. Alternatively, this back-up network could be achieved with more conventional microwave links, although microwave is nearly double the cost of WiMAX. An audio comparator in the Neptune Township Communications Center will evaluate each incoming audio signal and select the stronger signal to be handed off to the dispatch console. The capital budget of the full technological solution (further described in Volume II) is estimated to be $372,250, allocated to each community based on the equipment it would require to participate in the centralized Communications Center. We further recommend that each Police Department maintains its current radio configurations, subscriber units (mobiles and portables), and frequencies. We also recommend that each local Police Department keeps a dispatch position as a back-up in the event that radio or dispatch capability from Neptune Township becomes compromised during the initial transition period. Each municipality will remain responsible for its own purchasing costs for radios (handhelds and portables), although the participating communities may want to begin purchasing radio units in bulk to attain the most competitive pricing. Budget estimates do not include radio replacement costs that may be required for municipalities to upgrade their radio units to be narrowband compatible by 2013; these costs will be incurred independent of the results of this study and, therefore, have not been included. The greatest impact on current Police operations of a centralized Communications Center involves prisoner detention at the local Police buildings. Since a dispatcher will not be in the building, there will be periods of time, especially during the late evening and midnight shifts, when the building may be vacant. Therefore, prisoners cannot be held in the local facilities, due to State Department of Corrections procedures that mandate a visual safety check of detainees every 30 minutes (15 minutes if there is any fear of the prisoner s safety). The consultant recommends that all prisoner handling and detention should be centralized at the newly renovated Neptune Township Police Headquarters. Neptune Township would need to hire a dedicated resource as jailor for prisoner processing and monitoring, with this cost shared Final Version Page 6 of 172 April 12, 2010

14 among the communities based on annual arrest rates. The other Police Departments would make an arrest and immediately transport the individual to Neptune Township to be processed and held. The detainee would become the responsibility of Neptune Township Police until the person s release or transfer to Monmouth County Jail. The projected operational cost (salaries/wages, benefits, and equipment/maintenance) of a consolidated center at Neptune Township is estimated at $1.6 million, which is nearly 30% less than the aggregate $2.2 million budget of the six communities for 2010, and less than the estimated operational budgets in the other alternatives considered. We propose the six communities share the costs of a consolidated Communications Center based on an average of each community s existing percentage of total population, modified Call For Service incidents (without administrative calls), and 2010 budgets. This analysis does not include the cost of a dedicated jailor or the cost some communities may incur if they need supplemental clerical services for functions now provided by dispatchers. Table 2. Budgetary Projections and Cost Sharing of Consolidated Communications Center Community Current Budget 2010 Proposed Cost Share Calculated Cost Share $ Savings % Savings Five-Year Savings Neptune Twp. $982,665 48% $790,314 $192,351 20% $961,757 Neptune City $393,872 15% $240,530 $153,342 39% $766,709 Belmar $390,974 17% $284,709 $106,265 27% $531,324 Lake Como $56,898 3% $55,633 $1,265 2% $6,326 Bradley Beach $258,368 10% $155,445 $102,923 40% $514,617 Avon $194,348 7% $109,629 $84,719 44% $423,593 Total $2,277, % $1,636,260 $640,865 $3,204,325 F. Benefits and Challenges of a Consolidated Communications Center As consultant on this project, our task was to develop a study and plan for an incremental approach that considers the feasibility of shared services among participating municipalities for dispatch, records, and prisoner processing/detention together with the development of a plan of action to achieve that goal. Our analyses indicates that, with call taking and dispatch communications centralized at one location, the six communities will realize savings, both immediately and over the long-term, while improving service delivery to their citizens. The following are factors in support of consolidation at one centralized Communications Center located in Neptune Township: Improved Citizen/Officer Safety. Service will improve as a result of having multiple telecommunicators working on all shifts. With multiple telecommunicators, there will be less risk of incoming calls or radio requests being placed on hold. When a major incident occurs, fully 911- trained staff will be available to assist with the calls, rather than requiring sworn officers or other staff to help out at the dispatch desk. This will minimize response times and increase the overall efficiency of response. Final Version Page 7 of 172 April 12, 2010

15 Increased Police Presence within the Community. Several of the communities currently rely on sworn officers or Special Law Enforcement Officers to work the dispatch desk. By centralizing all dispatch at Neptune Township with fully staffed telecommunicators, the local Police Departments can better utilize sworn officers and SLEO staff, which will increase the number of officers available for patrol and improve the Police Departments visibility to citizens. Neptune Township also has a mobile communications unit, available for immediate response, which could be used to enhance communications for special events or large scale emergencies by placing additional radios, dispatchers, and computers on scene. Minimized 911 Call Transfers. All 911 calls would be answered and dispatched by a common group of telecommunicators in a centralized operation. This would eliminate the existing transfers (and their associated delays) of 911 calls that roll over from other PSAPs to be locally dispatched. Enhanced Quality of Service. We believe service will improve as a result of a dedicated Communications Center Director and a larger staff of telecommunicators, which will provide consistent and professional training and development, and to share experiences and learn from each other. Telecommunicators will also have a career path and enhanced career opportunities as a result of working in a larger Communications Center. Support of State Initiatives. There are hard realities facing smaller communities with the funding constraints established by recent legislation in the State of New Jersey. All agree that, given the current economic climate in the State, sharing services will eventually become a State mandate rather than a municipal choice. We believe these six communities will benefit in the future by having chosen their shared service partners proactively and demonstrating their willingness to share services and help reduce municipal budgets. Cost Reductions. Consolidation will reduce the required number of call taking and dispatch personnel as compared to current staffing levels, thus saving taxpayers in telecommunicator salaries and benefits. Our research, discussions, and strategy sessions have not identified any significant constraints toward developing strategic plans for sharing dispatch communications between the six communities involved in this study. Based upon our review of each community s emergency call taking and dispatching operations, staffing, call volume, employment contracts, and dispatch procedures, we found no staffing, operational, or technology conditions that would prevent any one of these communities from pursuing a consolidated dispatch environment. The two most significant challenges to be addressed upon transition to a consolidated Communications Center will be the need for some of the communities to hire or reassign staff to provide many of the administrative functions currently handled by dispatchers, and the need to centralize prisoner detention at the Neptune Township Police Department. Other issues to be addressed during the transition planning period include access to historical CAD records, establishment of consistent dispatch protocols across the six communities, the governance structure of the consolidated Communications Center to ensure each community has an equal voice in its management, and the cost-sharing details to be agreed upon in the Inter-Local Agreement. The consultant believes consolidation of call answering and dispatch services will ultimately result in improved levels of service to the six communities and their public safety agencies, a more efficient use of resources, and improved interoperability among the participating police departments, fire and EMS agencies. Final Version Page 8 of 172 April 12, 2010

16 G. Summary of Transition Planning Implementation planning is critical to ensure a successful consolidated Communications Center to serve these six communities. Elected and appointed officials and police staffs must continue to remain actively involved in the process to eliminate barriers, address public concerns, identify and communicate funding opportunities, and participate in planning and operational issues. Successful dispatch consolidations follow several key steps toward the desired goal: Develop a vision for the Center Define goals and objectives Identify transition challenges that will need to be resolved Identify key stakeholders and partners from each agency; define roles and staffing requirements Propose a detailed budget and timeline Outline a public education and marketing strategy Provide an operational plan that addresses how the project will be funded now and in the future Provide on-going direction through equal participation and representation. Nationwide public safety agencies have struggled with establishing the best model for consolidation. Agencies that have attempted consolidation and failed cite similar reasons for the lack of success, which have been documented in countless public articles: Home rule and institutional hurdles that arise when mandated without buy-in from respective agencies Lack of planning or understanding of goals Trying to be all things to all Agencies Absence of political will/commitment Fear of decreased service level (usually for non-emergency ancillary responsibilities) Consolidation of understaffed centers still results in understaffing Loss of local touch specialization/service Local distrust of government Poor communication with stakeholders Political/institutional pressures Inadequate project management To mitigate these issues it is critical to develop an operational and organizational structure that best reflects the unique needs of each of the constituent organizations involved in the consolidation effort. Industry sources cite several next steps to help prepare for consolidation: employ a steering committee with executive participation, establish a formal governance structure, create and use working-level subgroups, and hire or assign a dedicated project manager. The following issues will need to be addressed during transition and are discussed, with specific suggestions offered, in Volume II of this report: Management philosophy and Management Advisory Committee to serve as joint leadership team Governance structure of consolidated Communications Center Operational working team to address issues such as multi-community dispatch protocols, historical CAD record management, and performance parameters Staffing plan and training requirements Community education Final Version Page 9 of 172 April 12, 2010

17 Administrative call answering Prisoner transport and processing procedures Inter-local agreement and decisions on shared services cost basis The consultant estimates at least six months will be required for the technology and the operational changes to be ready for transition to the consolidated Communications Center. We strongly recommend planning for the transition to begin immediately and for the cut-over to occur in the off-season, possibly targeting October 2010 (or later) as the cut-over month. We suggest an incremental transition, starting on the midnight shift, then after adequate prove in time, adding the evening shift, and finally moving all dispatch shifts to the consolidated Communications Center located in Neptune Township. We encourage the communities to make a commitment to success and agree to continue in a shared services environment for at least three years to give ample time for the new operations to prove in. Radio base stations and dispatch consoles will remain in the local Police Departments as back-up and, if for some reason a community wants out of the agreement after the initial three-year period, they could return to local dispatch, although we also suggest a back out penalty clause should be addressed in the Inter-Local Agreement. We suggest the original Inter-Local Agreement should give the option for cost sharing allocations to be reviewed and, if the Management Advisory Committee concurs, modified as necessary after the first year in operation, based on actual costs and call volumes per town, but with a cap on the maximum percentage increase that can be applied to any single community. Final Version Page 10 of 172 April 12, 2010

18 VOLUME I: CURRENT SITUATION Final Version Page 11 of 172 April 12, 2010

19 I. Introduction: Background and Project Objectives In 2006, the State of New Jersey commissioned the Edward J. Bloustein School of Planning and Public Policy John J. Heldrich Center for Workforce Development to develop a report on the state of E-911 services in the State of New Jersey and the determination of where, if any, there are cost savings and/or efficiencies that can be gained from sharing emergency communications across communities. Results of that study suggest that there can be significant efficiencies and cost savings for both large and smaller communities. One of the conclusions in the Study states that, Centers that receive a relatively low number of incoming calls and that tend to have one person on duty at any time have substantially higher costs per call, compared with larger centers.. Larger Centers tend to benefit as well since Consolidated call centers are likely to have more qualified, trained staff on duty and to provide more training opportunities for staff. Larger operations will likely benefit from efficiencies in the long term because local jurisdictions can share operating and capital costs. Combining local operations may also improve the capacity of local emergency services to share information and respond to incidents. Six communities at the Jersey Shore in Monmouth County Belmar, Bradley Beach, Avon-by-the-Sea, Lake Como, Neptune City, and Neptune Township have determined that it is in their respective communities best interest to commission the services of Intertech Associates, Technology and Consulting Engineers, to define, explore and research alternative solutions for shared emergency communications services between the six communities. At the outset of this assessment, it is critical for stakeholders to acknowledge that the process of shared services design, implementation, and operations requires desire, discipline, and the ability to execute to a plan. A shared services environment is more than the effort of simply moving people together into one location and giving them a common system. It involves a change of mindset: a focus on the core services required by each community; a focus on the service level anticipated from the shared service as a reflection of the communities; and the achievement of functional, business, and financial objectives. We have researched public sector shared services models to understand the variables that impact a successful consolidation. These models reveal that success relies on several factors: Cooperation of the participating parties Clear and practical vision of what is achievable immediately and what needs to be part of a longer-term strategy Willingness for compromise to achieve a shared service solution that improves services over what could be accomplished individually. The stakeholders on the planning committee from the six communities initially identified the following issues as critical to the success of a shared services model: None of the existing full-time police force can be laid off All municipalities must receive the same level of service or better All municipalities must be able to provide service at a reduced cost Sharing dispatch services can reduce the redundancy of effort and expense, improve the overall efficiency in dispatch operations, create a more rewarding work environment, and enhance the scope and quality of service in all six communities. Final Version Page 12 of 172 April 12, 2010

20 II. Methodology and Procedural Approach Although the focus of this study is on dispatching services, a broad overview of the Police, Fire, First Aid, and Emergency Management Services in the six communities was necessary to determine the overall communication needs. This overview included a general review of each community, as well as the organizational structure, workload, facilities, equipment, personnel, and budget of public safety services. The consultants had the opportunity to meet with various municipal officials in the six communities. Those interviewed included elected officials, administrative staff, police, and emergency management officials. All those interviewed were open and frank during these conversations and provided valuable insight. The consultants inspected the Dispatch Centers in Belmar, Bradley Beach, Neptune City, and Avon-by-the Sea Police Departments, as well as Neptune Township s temporary and backup centers, floor plans of the New Communications Center, and the construction site to determine the extent of dispatch services that each department provides and the nature of the technology needed to effectively service a larger consolidated Communications Center. Intertech Associates takes note of the impending relocation of Neptune Township s Police Department, including telecommunications operators, into new quarters in We inspected the equipment currently used in its temporary location as well as the plans and layout for the new equipment being installed in Intertech Associates does not have a vested interest in any of the communities, nor in this report s recommendations. Our objective is to review the facts and, from an analytical and technological approach, determine to what extent, if any, dispatch consolidation is feasible and beneficial. These tasks were accomplished through: Meetings with selected dispatchers and police personnel from the six communities Identification of functional, operational, and technical drivers that impact dispatch services Review of data provided by the six municipalities Benchmarking and research of other communities that have adopted shared services model for dispatch Development of recommendations geared to dispatch consolidation options. Appropriate documents relative to the goals of this study were reviewed including CAD reports of call volume and statistical data, general job descriptions of dispatch personnel, policies and procedures relative to communications, prisoner management procedures, public access to police departments and records, budgeting and expense reports, dispatcher work schedules, statistical records, labor agreements, and other documents of pertinent nature. Specifically, Intertech Associates received and reviewed the following data as a primary data source in the observations that follow: Table of Organization for each town, Police Department and dispatch staff Police department s yearly reports for the past two years 2008 and 2009 expense reports for dispatchers and sworn officers working dispatch desk, maintenance/operations, equipment procurement, and service 2010 budget projections (prepared as of December 2009) CAD reports for the past three years Final Version Page 13 of 172 April 12, 2010

21 Prior shared services studies Union contracts Various scenarios were evaluated in which joint or shared dispatching services may be accomplished. A number of benefits and drawbacks of each of these possibilities are discussed and recommendations are made regarding the feasibility of implementation. The Intertech Associates team conducted interviews and discussions with the following personnel in the course of this study: Neptune Township: Police Chief Howard O Neil, Deputy Chief Robert Adams, Captain Bailey, Lieutenant William Monroe, Administrator Phil Huhn, CFO Michael Bascom, Councilman Randy Bishop, selected dispatchers Belmar: Captain Tom Palmisano (Acting Chief), Larry Hahn (dispatch manager/radio support), Administrator Robbin Kirk, Mayor Ken Pringle, records clerk, selected dispatchers Avon: Chief Terry Mahon, Administrator Tim Gallagher, Councilman/Police Commissioner Frank Gorman, Councilman Dan McGovern, selected dispatchers Bradley Beach: Chief Len Guida, Lieutenant Neil Scully, Lieutenant Steve Fahnholz, Administrator Gail O Reilly, Mayor Julie Schreck, selected dispatchers Lake Como: Chief Rosman Cash, Captain Fred Hope, Mayor Michael Ryan, Administrator Louise Mekosh Neptune City: Chief William Geschke, Public Safety Director Ed Kirschenbaum, Lieutenant Louis Trocchio, Administrator Mary Sapp, Mayor Tom Arnone, selected dispatchers Monmouth County: Sheriff Shawn Golden, Stephen Callas, Monmouth County Shared Services Coordinator, Roger Staib, shared services consultant to Monmouth County from Government Strategy Group In the process of gathering and analyzing this data, a great degree of diligence was performed to verify each fact and assumptions made during the conducting of this study. Any data or assumptions that may be some degree off actual practice will most likely not impact the ultimate direction, conclusions, and recommendations presented within this report. Final Version Page 14 of 172 April 12, 2010

22 III. History of Public Safety Shared Services A. New Jersey Public Safety Shared Services In recent years, the State of New Jersey has commissioned several reports regarding the public safety aspect of shared services, consolidation, mergers and regionalization. These reports, commissioned separately by the New Jersey State Association of Chief s Of Police (NJSACOP) and the State of New Jersey Office of Emergency Telecommunications (OETS), have focused on the benefits and potential challenges of the various aspects of shared services facing public safety agencies in New Jersey. Of particular interest to the communities involved in this study are the findings of the report prepared by the John J. Heldrich Center for Workforce Development at Rutgers, The State University of New Jersey, for the Office of Emergency Telecommunications. This report has ultimately resulted in the State taking steps towards the development of a policy of emergency services consolidation throughout the State. Summarized, these steps include: Commit to a policy favoring combined operations for call taking and dispatch. Establish a program of incentives to pay a portion or all of the costs associated with PSAP consolidation. Support ongoing education of call center staff in the form of training assistance grants. Develop a set of standards defining high quality E-911 emergency services, institute data submission requirements for all E-911 grants, and explore opportunities to collect more detailed budget information. Institute a public education and technical assistance program to promote and support consolidation. Limit eligibility for E-911 grants to those communication centers that can demonstrate a minimum staffing level of two certified telecommunicators 24 hours per day, seven days per week. The findings and recommendations were made public in the October 2006 report. Now, over three years later, the State has taken several significant steps toward the recommendations expressed in the 2006 report by establishing programs and corresponding incentives for agencies that share emergency communications over agencies that don t Initiatives Establishing a Joint Legislative Committee on Government Consolidation and Shared Services to address the sharing of services and regionalization of functions at all levels of government. The result of that committee determined that the 911 Commission be given the authority to effect the consolidation of PSAPs on an as-needed basis and that the use of sworn officers to provide dispatch services be limited, as would the receipt of State funding for those agencies using sworn officers to provide dispatch services. Development of S-45, which implements the Joint Legislative Committee on Government Consolidation and Shared Services recommendations. S-45 provides that: The State plan shall require the consolidation of PSAPs as appropriate, consistent with revisions in the plan to upgrade the enhanced 911 system and shall condition the allocation of moneys dedicated for the operation of PSAPs on the merging and sharing of PSAP functions by municipalities, counties and the State Police, consistent with the revised plan. The Treasurer may establish, by regulation, a 911 call volume minimum that may be utilized as a factor in determining Final Version Page 15 of 172 April 12, 2010

23 which PSAP functions are to be consolidated under the State plan. The State plan shall limit the use of sworn law enforcement officers to provide dispatch services and the office shall condition the receipt of monies dedicated for the operation of PSAPs on the limited use of sworn law enforcement officers, except for officers returning to active duty from an injury or other physical disability Initiatives At the June Commission meeting, the commission adopted a one PSAP per county plus the urban 15 cities (21 plus 15) model should be the target, with some exceptions. The Committee also agreed to revise the funding formula from providing grant funding to PSAPs who had previously served a population of 19,000 to the new benchmark which requires PSAPs to serve a population of the smallest New Jersey County, now Salem County at 65, Initiatives The FY 2008 Enhanced 911 County Grant criteria has incorporated the minimum criteria established in S-45 into its requirements to be considered for funding through this grant: The PSAP shall serve a population of 65,346 or more, based on the most recent Census Bureau statistics with the serving population specified on the Grant Applicants resolution by the governing body, and The PSAP shall be configured with a minimum of two fully equipped call-taker positions as defined in N.J.A.C. 17:24-2.1, and Maintain a minimum staffing level at the PSAP consisting of two certified calltakers/dispatchers dedicated to PSAP operations at all times. Grant availability to determine feasibility of developing a shared services environment is also available through Department of Community Affairs, which provides grant opportunities to implement a consolidated environment. 4. Impact of Public Safety Initiatives and Standards It is no surprise that in the current economic climate of instability and rising costs, both State and local authorities are seeking every available tool to reduce costs without impacting services to their constituents. To that end, it is not a question of if so much as when local agencies will be put to the test of determining which agencies and which services they will be sharing with others. It is with the understanding of these developments in the shared service and emergency communications environment within New Jersey that we have prepared this report. Historically, just the mention of home rule would have been sufficient to dissuade municipal leaders from considering a shared environment. While nothing has changed in the feeling that home rule and local knowledge of the community should prevail, it is now a more economic and operational feasibility discussion that needs to be considered rather than one that is based on the subjective concerns used to defend the cry of home rule. Through its FY 2008 Grant application process, the NJ Office of Emergency Telecommunications Services (OETS) established a higher standard of compliance for 911 provisions and PSAP operations. NFPA 1221, states this requirement: Communications Centers that provide emergency dispatching protocols shall have at least two telecommunicators on duty at all times. Final Version Page 16 of 172 April 12, 2010