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Transcript of 9-1-1 Consolidation Plan - Cuyahoga County,...
9-1-1 Consolidation
Plan
CUYAHOGA COUNTY Executive Edward FitzGerald
March 25, 2013
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PREFACE
Cuyahoga County is committed to working with communities to
develop the most robust and responsive 9-1-1 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 9-1-1 (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 9-1-1 in Cuyahoga
County, legislative updates, consolidation models, and services available from
Cuyahoga County for PSAP consolidation.
Edward FitzGerald
Cuyahoga County Executive
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9-1-1 PLANNING COMMITTEE
The 9-1-1 Planning Committee has been working consistently over the past two
years to support Cuyahoga County’s commitment to public safety and
regionalism.
The 9-1-1 Planning Committee is made up of five voting members and is
responsible for maintaining and updating the Countywide 9-1-1 Plan. The
Countywide 9-1-1 Plan addresses the Countywide 9-1-1 system that is in use in
Cuyahoga County. The 9-1-1 Planning Committee is also responsible for
appointing members to the 9-1-1 Technical Advisory Committee.
The 9-1-1 Technical Advisory Committee is responsible for assisting in planning
the Countywide 9-1-1 system, approving the plan, and approving all major
changes and updates to the plan. In addition, the Technical Advisory
Committee will work with the 9-1-1 Planning Committee to identify system gaps
and equipment needs within the various jurisdictions.
Since convening on August 17, 2011, the 9-1-1 Planning Committee has
maintained a single goal – to establish a 9-1-1 system that incorporates a
reduction in the number of PSAPs countywide, outfit PSAPs with state-of-the-art
9-1-1 technology, increase PSAP interoperability, and present transparent
allocation of 9-1-1 funding.
This plan incorporates all of the necessary objectives to meet that goal. As such,
the Cuyahoga County 9-1-1 Planning Committee fully supports this plan.
Respectfully,
________________________ __________________________ ________________________
Cuyahoga County
Mayors and Managers
Association
Township and Trustees
________________________ __________________________
City of Cleveland City of Parma
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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 9-1-1 Consolidation from
Cuyahoga County, please contact the Department of Public Safety and Justice
Services at 216-443-7265.
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TABLE OF CONTENTS PREFACE ......................................................................................................................................... 3
9-1-1 PLANNING COMMITTEE ...................................................................................................... 5
ACKNOWLEDGEMENTS ................................................................................................................ 6
TABLE OF CONTENTS ..................................................................................................................... 7
I. INTRODUCTION ..................................................................................................................... 9
Purpose of this Document ..................................................................................................... 11
II. CURRENT STATE ................................................................................................................... 12
Cuyahoga County PSAP Assessment Summary ................................................................. 12
Why Consolidate ..................................................................................................................... 13
Next Generation 9-1-1 ............................................................................................................ 16
III. LEGISLATIVE UPDATES ........................................................................................................ 18
Revised Code. ........................................................................................................................ 18
Background ............................................................................................................................. 18
Ohio H.B. 509 – Development of a Statewide ESInet Steering Committee .................... 19
Ohio Sub. H.B. 360 ................................................................................................................... 20
Ohio Am. Sub. H.B. 472 ........................................................................................................... 22
IV. FRAMEWORK ...................................................................................................................... 25
Introduction ............................................................................................................................. 25
Assumptions ............................................................................................................................. 27
Deliverables ............................................................................................................................. 28
V. IMPLEMENTATION STRATEGIES .......................................................................................... 36
Considerations, Potential Pitfalls, and Keys to Success ..................................................... 36
Consolidation Models ............................................................................................................ 37
Cuyahoga County Services .................................................................................................. 40
VI. SUMMARY ........................................................................................................................... 46
ATTACHMENT A – County Planning Regions ........................................................................... 47
ATTACHMENT B – Current Consolidated PSAPs ...................................................................... 48
ATTACHMENT C – 10-Year Projection ....................................................................................... 49
ATTACHMENT D – PSAP Reduction to 4 ................................................................................... 50
ATTACHMENT E – PSAP Reduction to 5 .................................................................................... 51
ATTACHMENT F – 2012 Call Metrics Reports ............................................................................ 52
ATTACHMENT G – PSAP Demographics ................................................................................... 53
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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 9-1-
1 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 9-1-1 planning to meet community
needs. This has included:
Reconvening the 9-1-1 Planning Committee
Establishment of the 9-1-1 Technical Advisory Committee
A commitment to transparency by posting all agendas and meeting
minutes on the 9-1-1 Planning Committee webpage
(http://bc.cuyahogacounty.us/en-US/9-1-1-Planning-Committee.aspx)
Specifically, Cuyahoga County is supporting an initiative encouraging
communities to consolidate their 9-1-1 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.
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As stated earlier, there are 45 PSAPs
within Cuyahoga County. The
Cuyahoga Emergency
Communications System (CECOMS)
serves as the 45th PSAP and answers all
cellular 9-1-1 calls throughout
Cuyahoga County. Unlike the other
44 PSAPs, CECOMS does not dispatch
first responders to a caller’s location.
Rather, CECOMS transfers cellular 9-1-
1 calls to the appropriate PSAP based
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 9-1-1 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 9-1-1 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 9-1-1 Consolidation Plan.
“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 9-1-1 call centers down to four in the next 10 years….” Edward FitzGerald Cuyahoga County Executive State of the County Address Feb. 2013
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Purpose of this Document
The purpose of this document is three-fold and is specific to the provision of 9-1-1
services within Cuyahoga County. First, the document will provide an overview
of the current and future state of 9-1-1. Second, the document will offer a
framework for the establishment of consolidated 9-1-1 systems countywide.
Third, the document will offer strategies for implementation of the framework.
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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 9-1-1 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 9-1-1
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 email 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
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The average age of 9-1-1 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 9-1-1 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 multi-
jurisdictional 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
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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 jurisdictions1. 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 2010
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the total cost associated with the PSAP would be less when spread across
communities than when each community maintains a separate PSAP.
Upgraded 9-1-1 Technologies
In 2012, Cuyahoga County and the 9-1-1 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.
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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 9-1-1
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 9-1-1 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 9-1-1. 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 9-1-1 (NG9-1-1).
The ultimate goal of NG9-1-1 is to enhance 9-1-1 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 9-1-1 Association. (2012). Retrieved August 29, 2012, from
http://www.nena.org/?page=AboutNENA
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standards. The proposed new architecture has been termed Emergency
Services IP Network (ESInet). In addition to enhanced 9-1-1 technologies, NG9-1-
1 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 back-
up 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. 509. County Commissioners
Association of Ohio
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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 9-1-1 policies and
procedures. The majority of 9-1-1 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 9-1-1 services, policies, and procedures in Cuyahoga County. In
Ohio, 9-1-1 services are governed by Section 5507 of the Ohio Revised Code5.
Background
Ohio House Bill 491, signed into law on June 18, 1985, formally established a
methodology for local governments in Ohio to adopt 9-1-1 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 9-1-1 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 9-1-1 network. As such, PSAPs are not
charged for wireline 9-1-1 call traffic.
Jurisdiction for the 9-1-1 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 9-1-1 costs under H.B. 491 and maintain
the system created under the original legislation. In Ohio, all 88 counties have
established wireline enhanced 9-1-1 (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 9-1-1 surcharge to be added to each monthly wireless phone number
5 Previously 4931.40 - 4931.70
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bill, with an Ohio billing address. The collected surcharge was intended to
support costs required for PSAPs to provide wireless enhanced 9-1-1.
In addition to permitting the collection of the wireless 9-1-1 surcharge, H.B. 361
also established the position of “Ohio 9-1-1 Coordinator” to administer these
funds. The “Ohio 9-1-1 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 9-1-1 Council and Wireless
Advisory Board. The Wireless Advisory Board is tasked to consult with PUCO and
the “Ohio 9-1-1 Coordinator” to adopt administrative rules in relation to H.B. 361
and also to advise the “Ohio 9-1-1 Coordinator” in preparing a report due to the
General Assembly. The Ohio 9-1-1 Council is charged with establishing statewide
9-1-1 technical and operating standards, and making statutory
recommendations to the Ohio legislature. Information on both Ohio 9-1-1
Council and Wireless Advisory Board can be found on the Ohio PUCO website.6
The 127th General Assembly passed Senate Bill 129 in December 2008. Under the
language of this bill, the wireless 9-1-1 surcharge was extended until the end of
2012. 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 9-1-1 systems.
Below is a summary of important legislative actions that have recently been
passed and will directly impact 9-1-1 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 http://www.puco.ohio.gov/puco/index.cfm/industry-information/industry-topics/ohio-9-1-1-
council-and-advisory-board/)
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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 9-1-1 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-answering-
point operations in Ohio, to accommodate next-generation 9-1-1
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 9-1-1 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 NG9-1-1. 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 9-1-1 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, 2013
21
Transfers, effective December 20, 2012, authority over the 9-1-1 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 9-1-1 charge on wireless service subscribers
in Ohio from 28¢ to 25¢.
Imposes, effective July 1, 2013, a new wireless 9-1-1 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 9-1-1 charge on a wireless lifeline service
provider*.
Limits, on and after July 1, 2013, disbursements to counties from the
Wireless 9-1-1 Government Assistance Fund to the level disbursed in 2012
Creates a Next Generation 9-1-1 Fund and requires that the balance of
the remittances in the Wireless 9-1-1 Government Assistance Fund be
deposited into the Next Generation 9-1-1 Fund
Requires the Treasurer of State to disburse money to counties from the
Next Generation 9-1-1 Fund according to policies established by the
ESInet Steering Committee
Makes the Director of Public Safety responsible for appointing the Ohio 9-
1-1 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, 2013.
Requires the report recommendations to include a review of the current
funding model for Ohio's 9-1-1 systems and permits the report to include a
recommendation for a reduction in the wireless 9-1-1 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 9-1-1 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).
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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 9-1-1 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 9-1-1 system for PSAP costs from
the Wireless 9-1-1 Government Assistance Fund or the Next Generation 9-
1-1 Fund unless the PSAP complies with the rules establishing the technical
and operations standards.
Recodifies all the Ohio Revised Code Sections addressing 9-1-1 to Chapter
5507 from Chapter 4931.40
* Note, these items amended by Am. Sub. H.B. 472. 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. 360. 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 9-1-1 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, 2014.
Clarifies that wireless 9-1-1 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 9-1-1 Coordinator” within PUCO until January 1, 2014:
o 9-1-1 Service Program and administration
o Collection of remitted wireless 9-1-1 charges on prepaid and non-
prepaid subscribers
o Disbursements to counties from the Wireless 9-1-1 Government
Assistance Fund
o Auditing and assessing wireless service providers and resellers for
failure to collect, bill, or remit wireless 9-1-1 charges
23
o Authority to use up to 2% of the periodic remittances of the wireless
9-1-1 charges to cover the PUCO's costs of carrying out its duties
under the wireless 9-1-1 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 9-1-1 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-answering-
point staff required for public safety answering points to provide wireless
enhanced 9-1-1. In addition, annually, up to $25,000 of disbursements
may be used for data, hardware, and software that automatically alert
personnel receiving a 9-1-1 call that a person at the subscriber's address
or telephone number may have a mental or physical disability.
Disbursements from the Next Generation 9-1-1 Fund may not be used for
costs that were in part for the provision of wireline 9-1-1.
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 9-1-1 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 9-1-1 system.
Am. Sub. H.B. 472 requires
disbursements from the Next
Generation 9-1-1 Fund to be used
for specific purposes enumerated in
continuing law and required for
public safety answering points to
provide wireless enhanced 9-1-1. In
contrast, Sub. H.B. 360 requires the
Statewide ESInet Steering
Committee to establish guidelines
24
that specify disbursements from the Next Generation 9-1-1 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 9-1-1 systems and technology. These provisions may conflict if they
require disbursements from the Next Generation 9-1-1 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.
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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
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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 County 9-1-1 Consolidation Plan
Year Reduction of PSAPs No. of PSAPs
2013 N/A 45
2016 40 5
2018 1 4
Year Reduction of PSAPs No. of PSAPs
2013 N/A 45
2014 3 42
2015 11 31
2016 7 24
2017 8 16
2018 6 10
2019 2 8
2020 2 6
2021 2 4
2022 0 4
2023 0 4
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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 9-1-1
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
9-1-1 funding will ultimately be distributed to four PSAP locations based on
a formula developed by the 9-1-1 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
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Deliverables
Deliverable 1: 9-1-1 Hardware Upgrade
(June 2013 to December 2014)
Cuyahoga County and the 9-1-1 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 9-1-1 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 9-1-1 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 2nd quarter
of 2013 with the project beginning by June 2013. 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 9-
1-1 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 9-1-1 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.
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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 9-1-
1 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 2014.
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 9-1-
1 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
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.
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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
(2013- 2023)
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 2014. This option provides many potential benefits
which make this consolidation effort a very viable option. This co-location or
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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 323,000 9-1-1 calls annually. It is likely to be the
second largest PSAP in the County, after the City of Cleveland. Due to the co-
location 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-the-
art technology, and policies and procedures to take on a significant portion of
the County’s 9-1-1 calls. When completed, this center will provide a viable, cost-
effective consolidation option for other cities interested in reducing their costs
and enhancing their levels of service.
Deliverable 8: Chagrin / Southeast Region Consolidation
(2013- 2023)
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
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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 9-1-1 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).
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Deliverable 9: Heights/Hillcrest Region Consolidation
(2013- 2023)
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 9-1-1 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).
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Deliverable 10: Westshore Region Consolidation
(2013- 2023)
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.)
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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 9-1-1 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
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
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:
9-1-1 Equipment hardware and software
Administrative telephone lines
Computer Aided Dispatch (CAD)
Records Management System (RMS)
Call recording
Automatic Vehicle Locator
Alarm Systems
Reverse 9-1-1
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?” 9-1-1
Magazine 1 Jun.2011. Web. 21 Aug. 2012
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 9-1-1 equipment, such as the CAD
system, RMS and radio equipment, and maintenance of multiple 9-1-1
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. 2012
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:
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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 9-1-
1 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
2012. 10
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
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 “9-1-1 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 high-
level 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.
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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 non-
dispatch 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
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Equipment Upgrades – NG9-1-1
Cuyahoga County is currently engaged in a multi-year project to upgrade the
9-1-1 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 9-1-1 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.
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These resources dedicated to support the 9-1-1 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.
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VI. SUMMARY
Consolidation of dispatching services is essential to the success of 9-1-1 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.
ATTACHMENT A – County Planning Commission Regions
ATTACHMENT B – Current Consolidated PSAPs
ATTACHMENT C – 10-Year Projection
ATTACHMENT D – PSAP Reduction to 4
ATTACHMENT E – PSAP Reduction to 5
ATTACHMENT F – 2012 Call Metrics Reports
ATTACHMENT G – PSAP Demographics .
PSAP Region Population1 # of
Cities # of
PSAPs # of Police
Departments
# of Fire/EMS
Departments
# of Wireless
Calls2
# of Landline
Calls2
Total Calls2
# of Call Takers /
Dispatchers3
1 Cleveland 398,191 3 2 3 2 227,901 152,830 380,731 134
2 Heights/Hillcrest/Chagrin/Southeast 387,818 32 22 31 26 77,968 81,333 159,301 186
3 Southwest/South Central/Cuyahoga 323,845 18 14 18 18 36,753 38,672 75,425 106
4 Westshore 170,268 6 6 6 6 20,009 18,309 38,318 36
Subtotal 1,280,122 59 44 58 52 362,631 291,144 653,775 462
CECOMS* N/A N/A 1 N/A N/A 390,676** 1,435 392,111 17
Total 1,280,122 59 45 58 52 753,307 292,579 1,045,886 479
* CECOMS receives all cellular 9-1-1 calls and transfers them to the appropriate PSAP based on caller location
and the local PSAP dispatches first responders to the caller’s site.
**These are the total calls not transferred to a PSAP such as abandoned calls and/or redundant calls for
incident such as vehicle accidents.
1 2010 Census Data
2 CECOMS 2012 Call Metrics Report
3 Cuyahoga County PSAP Assessment January 6, 2012