9-1-1 Consolidation

Plan

CUYAHOGA COUNTY Executive Edward FitzGerald

March 25, 2013 Revised December 8, 2014

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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.

AT the start of my administration, Cuyahoga County had

45 Public Safety Answering Points (PSAPs) that support all

59 jurisdictions within the county. Currently, we are at 40; this still remains 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 five (5) have 10 or more 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 it will provide an update on

accomplishment made since the release of this plan and reiterate the

recommended framework for PSAP consolidation countywide over the

remaining eight (8) years of the ten (10) year plan. 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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ACKNOWLEDGEMENTS

Norberto Colón

Deputy Chief of Staff, Justice

Cuyahoga County

Kenneth V. Mills

Director, Public Safety & Justice Services

Cuyahoga County

Brandy Carney

Manager

Public Safety & Justice Services

Special acknowledgment to previous Cuyahoga County employees that assisted with the

development of this Plan.

Vallerie H. Proper

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

II. CURRENT STATE ................................................................................................................................ 12

A. Cuyahoga County PSAP Assessment Summary ............................................................................... 12

B. State of Ohio Assessment ............................................................................................................... 13

C. Why Consolidate ............................................................................................................................. 14

D. Next Generation 9-1-1 .................................................................................................................... 17

III. LEGISLATIVE UPDATES ....................................................................................................................... 19

A. Background ............................................................................................................................. 19

B. Recent Legislation ..................................................................................................................... 20

C. Legislative Conclusion .......................................................................................................... 26

IV. FRAMEWORK ..................................................................................................................................... 28

A. Introduction .................................................................................................................................... 28

B. General Assumptions ...................................................................................................................... 30

C. Initial Planning Assumptions ........................................................................................................... 31

D. Deliverables ..................................................................................................................................... 34

V. IMPLEMENTATION STRATEGIES ........................................................................................................ 42

A. Considerations, Potential Pitfalls, and Keys to Success .................................................................. 42

B. Consolidation Models ..................................................................................................................... 43

C. Cuyahoga County Services .............................................................................................................. 47

VI. SUMMARY ......................................................................................................................................... 52

ATTACHMENT A – Population for PSAP Reduction to 4 ............................................................... 53

ATTACHMENT B – 2012 Call Matrix Report ....................................................................................... 54

ATTACHMENT C – 4 PSAP’s Demographics ..................................................................................... 55

ATTACHMENT D – Population for PSAP Reduction to 5 ............................................................... 56

ATTACHMENT E – 5 PSAP’s Demographics ...................................................................................... 57

ATTACHMENT F – Dispatch Center Design Template .................................................................. 58

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I. INTRODUCTION In 2011, when then 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 currently 40

PSAPs within Cuyahoga County. The

Cuyahoga Emergency

Communications System (CECOMS)

serves as the 40th PSAP and answers all

cellular 9-1-1 calls throughout

Cuyahoga County. Unlike the other

39 PSAPs, CECOMS has just recently

begun dispatching first responders to

a caller’s location. This is a direct

result of the initial release of this plan.

Dispatching is in addition to their primary duties of transferring 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.

In addition to dispatching and 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.

Currently CECOMS is the only PSAP in Cuyahoga

County that answers cellular 9-1-1 calls. It is expected that by the third quarter

of 2015, the City of Cleveland will begin directly answering a significant portion

of their wireless calls. It is important to note, that there are other PSAP’s

interested in answering their own cellular calls directly; however, the technology

is currently available to allow this to happen is an effective and safe manner,

Currently location is determined by tower sector, resulting in a towers servicing

multiple communities. As such until the technology that determines location

advances, CECOMS will continue answering a significant number of cellular

calls and 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 an

updated 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

A. 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) system 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

B. State of Ohio Assessment

The ESINet Steering Committee is charged with the task of advising 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.

As part of their required planning, the ESINet required each chairperson of a

countywide 9-1-1 planning committee to provide information regarding their 9-

1-1 activities no later than February 15, 2013. As such, an online assessment was

created and distributed to both county 9-1-1- coordinators and PSAPs.

Information regarding the results of the State assessment could not be readily

found online at the time of this update. However, it is expected that during the

next major revision of this Plan, we will publish its results on the County website.

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C. 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

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.

1 Kimball, “Report for Optimum PSAP Reconfiguration Assessment,” State of Maine, pp.8-9,

January 2010

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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,

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. In addition, savings in this area

can also result in the implementation of other countywide initiatives in the

area of 9-1-1.

Consistent Training Models

With fewer PSAPs countywide, Cuyahoga County can work closely with them

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 40 PSAPs maintains their own policies and protocols for

dispatching. Consequently, with fewer PSAPs, the County can work with

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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. The County can also concentrate on

and assist with the operational and training standards expected to be

released by the State ESINet Committee in 20152.

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.

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.”3

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.

2 The ESINet Committee was expect to adopt technical and operational standards no later than

January 1, 2014 per ORC 128.021 3 VFIS, FIRE DEPARTMENT CONSOLIDATION, p. 8 (1994)

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D. 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.4 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. The mantra from NENA that describes the goal of NG9-1-1 is

“Emergency help. Anytime, anywhere, and device.” This is a major endeavor

that will require a new “high availability” emergency response network that will

have new and modified 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 4 NENA The 9-1-1 Association. (2012). Retrieved August 29, 2012, from

http://www.nena.org/?page=AboutNENA

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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 and its role and authorities are discussed later in this

document under Section 3, Legislative Updates.

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.

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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.

A. 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 originally resided 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 December 2004, Ohio passed House Bill 361 (Effective May 6, 2005). The bill

permitted a 32 cent wireless 9-1-1 surcharge to be added to each monthly

5 Previously 4931.40 - 4931.70

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wireless phone number 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.

B. Recent Legislation

Below is a summary of important legislative actions that have been passed in

last few years 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

6 http://www.puco.ohio.gov/puco/index.cfm/industry-information/industry-topics/ohio-9-1-1-

council-and-advisory-board/#911forms

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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 required that the Committee to do all of the following:

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

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.

7 Sub. H.B. 360 extended deadline to May 15, 2013

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Ohio Sub. H.B. 360 (Effective December 20, 2012)

The bill provided for significant amendments the current 9-1-1 system policies

and procedures. The following is a summary of significant portions of the bill:

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*

Makes the Director of Public Safety responsible for appointing the Ohio 9-

1-1 Coordinator*

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*

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*

Reduces the monthly wireless 9-1-1 charge on wireless service subscribers

in Ohio from 28¢ to 25¢

Makes the charges on wireless and prepaid wireless subscribers

permanent

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

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

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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)

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

Prohibits the disbursements from the Wireless 9-1-1 Government Assistance

Fund unless the public safety answering points comply with the technical

and operations standards set by the Steering Committee

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 where 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:

24

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

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 with H.B. 360 and Am. Sub. H.B. 472

Sub. H.B. 360 and Am. Sub. H.B. 472

both have provisions relating to failing

to comply with standards adopted by

the Statewide Emergency Services

Internet Protocol Network (ESINet)

Steering Committee. In the Sub. H.B.

360 provision, the reference of "the

public safety answering point"

meeting the standards is used.

However, Am. Sub. H.B. 472 describes

the same concept as a "countywide

25

9-1-1 system" 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 PSAP, or all the PSAP’s in the countywide system.

Sub. H.B. 360 created a Next Generation 9-1-1 (NG9-1-1) Fund, and requires the

ESINet Steering Committee to establish guidelines that specify disbursements

from the fund to countywide 9-1-1 systems. The guidelines must specify that the

funds 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 amended provisions seem in contrast to other sections already

enumerated in ORC 5507.57, describing eligible uses of the NG9-1-1 Fund. These

provisions may conflict if guidelines are established by the ESINet Committee

that differs than that in identified ion ORC 5507.57.

Ohio Am. Sub. H.B. 59 (Effective September 29, 2013)

Am. Sub. H.B. 59 modified changes made to 9-1-1 laws in 2012 by Sub. H.B. 360

and Am. Sub. H.B.472. The following is a summary of signification portions of Am.

Sub. H.B. 59:

Recodifies all of the 9-1-1 related laws under ORC Chapter 128 from ORC

Chapter 5507

Transfers the following duties previous assigned to the Department of

Public Safety and the Public Utilities Commission (PUCO) to the Statewide

ESINet Steering Committee:

o Receive certification of appropriate use of Wireless 9-1-1

Government Assistance Fund and that the county is providing

wireless enhances 9-1-1 services

o Monitor compliance with technical and operational standards

being developed

o Request Attorney General to begin proceedings against a non-

compliant telephone company

o Serve as primary agency with jurisdiction over disclosure of PSAP

data for use in an emergency notification system

Transferred from PUCO to the Steering Committee temporary authority to

disburse the Wireless Government Assistance dollars, conduct audits and

make assessments against providers or resellers of wireless services, until

26

January 1, 2014, at which time those responsibilities transfer to the Tax

Commissioner

Established a temporary process for making assessments against providers

or resellers of wireless services, until January 1, 2014, at which time those

responsibilities transfer to the Tax Commissioner

Extended immunity provisions to the ESINet Steering Committee and its

members

Expanded reporting requirements to the steering Committee by both 9-1-1

providers and PSAP operators; includes a 45 day response requirement

Made the following changes to the distribution of the wireless 9-1-1 funds:

o Reduced from 98% to 97% the remittance of fund into the Wireless 9-

1-1 Government Assistance Fund

o Decreased the Wireless 9-1-1 Administrative Fund to 1% from 2%.

This fund is to be used for the Tax Commissioner to cover their cost

o Created a 9-1-1 Program Fund, that will be remitted 2% of the

wireless 9-1-1 fund to be used to be used by the Steering

Committee to cover cost associated with carrying out the 9-1-1

service laws

Created a 9-1-1 Program Office that is headed by an administrator, under

the Department of Administrative Services (DAS). The administrator is

appointed by the Director of DAS and reports to the State CIO.

Repealed the 9-1-1 Council and the Wireless 9-1-1 Advisory Board, as they

are no longer needed with the creating of the ESINet Steering Committee

Simplified the procedures need for amending a countywide 9-1-1 plan.

C. 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 provide input at

the state level regarding any future public safety dispatching changes.

While the results of any legislative changes or ESINet Steering Committee

recommendations are unknown, Cuyahoga County will encourage solutions

provided by the legislative bodies to include the build out of 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.

27

28

IV. FRAMEWORK

A. Introduction

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 five (5) PSAPs. While the overall goal is to reduce the

number of PSAPs countywide to five (5), the County recognizes that not all

communities will choose to consolidate. This may lead to the existence of more

than five (5) 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, although in the future they county

may choose to be more aggressive in the timeline. 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 Section 5C of 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.

During the development of this plan, the State of Ohio legislature under Ohio

H.B. 360, put forth a strategic plan to decrease the number of PSAPs per county

to four (4) over the course of five (5) years. While the County agrees with the

State’s recommendation to decrease the number of PSAPs per county, it is

29

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 (4), after careful analysis the County determined that a reduction to five

(5) 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.

Cuyahoga County 9-1-1 Consolidation Plan Targets and Ohio H.B. 360

Requirements (ORC128.571(C))

County 9-1-1 Consolidation Plan Ohio H.B. 360 Requirements

Year Reduction No. of PSAPs Reduction No. of PSAPs

2013 0 45* N/A 45

2014 3 42** 40 45

2015 11 31 1 45

2016 6 25 0 5

2017 6 19 0 5

2018 4 15 0 4

2019 3 12 0 4

2020 3 9 0 4

2021 2 7 0 4

2022 2 5 0 4

*Ended 2013 with 44 PSAP **Ending 2014 with 40 PSAPs

30

B. General Assumptions

The County has made the following general assumptions in developing the initial

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 State 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 (or five)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

31

C. Initial Planning Assumptions

The County has made the following planning assumptions in developing the

initial framework.

1. Cuyahoga County is

broken out into eight

(8) Planning Regions.

These regions work

together on various

activities from zoning

to transportation.

Since a relationship

between these

communities exists, it

made sense to keep

them together.

2. There are a few consolidated dispatch centers that already exist. The

framework does not

make any changes to

those or break them

up.

3. There are serious

consolidation

discussions occurring

with various

communities and

PSAPs. The framework

did not want to do

anything to disrupt or

contradict those efforts

32

4. Population is a significant factor in determining the areas served and size

of PSAPs (See Attachment A). The information used is based on data from

the 2010 US Census

5. Call volume is another significant factor in determining the areas served

and size of the PSAP’s. Information was collected from CECOMS’ 2012

Call Metrics Reports (Attachment B) and did not include administrative

calls. It is understood that dispatchers are responsible for non-dispatch

related duties

6. Ohio HB 360 mandated the number of PSAPs for Cuyahoga County can

be no more than four by 2018.

7. After reviewing the results of four (4) countywide PSAP’s, it was deemed

unrealistic and unmanageable. Four PSAP’s result in three centers of

similar sizes and one significantly smaller center. 9-1-1 call volume varies

greatly between all the centers, with Cleveland remaining the highest by

significant numbers. The Heights/Hillcrest/Chagrin/Southeast area is of

greatest concern as the level of cooperation needed may be unrealistic

to expect. The framework has 32 cities working together, comprised of 22

PSAP’s, 31 police department and 26 Fire/EMS agencies.

33

8. As a result, five (5) PSAPS appears to be a more manageable and realistic

expectation. Attachment D shows the population served with five PSAP’s.

34

D. Deliverables

Deliverable 1: 9-1-1 Hardware Upgrade

(Third Quarter 2015)

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

(Second Quarter 2015)

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 2015)

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

36

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

(Fourth Quarter 2014)

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 December 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.

37

Deliverable 6: New Emergency Operations Center (EOC) and Communications

Center

(Fourth Quarter 2016)

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

(TBD)

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

38

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

(TBD)

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

39

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).

40

Deliverable 9: Heights/Hillcrest Region Consolidation

(TBD)

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).

41

Deliverable 10: Westshore Region Consolidation

(TBD)

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.)

42

V. IMPLEMENTATION STRATEGIES

In 2012, then 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 are

descriptions of potential obstacles, consolidation models, and a listing of ways in

which Cuyahoga County can assist communities who are interested in PSAP

consolidation.

A. 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

43

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.

B. 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 five (5) countywide and also provides

the greatest level of efficiency is operations.

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

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requires diverse centers to be brought together under one management team

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 overall 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 startup 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

8 Currier, Walter and Dye, James. “Consolidated Dispatch: Embraced or Feared?” 9-1-1

Magazine 1 Jun.2011. Web. 21 Aug. 2012

45

available because many of the smaller vendors are unable to handle the

increased capacity.

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 cost effective solution due to sharing of costs to upgrade

and maintain technology and equipment

Single electrical, HVAC, emergency power, and other facilities costs

CAD and call recording systems may remain separate

Opportunity for interagency information sharing which can enhance

response times and mutual aid

Disadvantages:

No reduction in costs from sharing equipment, such as the CAD system,

RMS and radio equipment, and maintenance of multiple switches

Duplication of dispatch personnel and management

No reduction in personnel or dispatch workstations

Personnel relocation

No efficiency in dedicated 9-1-1 circuits

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,

9 APCO International: Michigan Chapter. Michigan Public Safety Answering Point (PSAP)

Consolidation Considerations. 24 Aug. 2012

46

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

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 cost effective solution due to sharing of costs related to

technology and equipment

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

No reduction in personnel or dispatch workstations

Personnel relocation

No efficiency in dedicated 9-1-1 circuits

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.

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March 25, 2013 - Executive FitzGerald and Councilman

Gallagher announce Shared Services Fund

C. 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:

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:

1. 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

consolidation, many jurisdictions require financial support outside of their

community budgets. Support from the County in these efforts would increase

10 Western Reserve Plan 11 Western Reserve Plan

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YEAR AWARDSPSAP

REDUCTION

2013 1,490,000$ 5

2014 627,546$ 2

2015 2,939,911$ 6

Total 5,057,457$ 13

the potential for large-scale, regionally consolidated PSAPs and result in more

effective and efficient public safety services.

As a result of Cuyahoga County’s commitment to the consolidation of 9-1-1

services, and under the leadership of Public Safety Chairperson, Councilman

Gallagher, a Shared Services Fund (Fund) was established in April 2013 under

Ordinance 2013-0010, to specifically support 9-1-1 consolidations.

The purpose of the Fund is to further County efforts under this 9-1-1 Consolidation

Plan, by providing financial resources to communities engaging in 9-1-1

consolidation efforts. Specifically, the Fund will support physical and technical

infrastructure, professional services, equipment and upgrades needed to

support consolidations.

To date we have awarded or expect to

award five (5) projects totaling

$5,057,457, leading to the reduction (Or

future reduction) of 13 PSAPs.

The five awards have or will have helped

leverage a total of $14.9 million in investments for PSAP infrastructure, helping

support economic development in those communities.

2. 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.

3. 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 project management staff will offer a high-level view of all

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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.

4. Assessments

a. Feasibility Assessment

Cuyahoga County has contracted with Cleveland State University (CSU) Center

for Public Management to assist with facilitating the consolidations of various

public safety dispatch centers. Specifically, CSU conducted feasibility studies for

consolidation of public safety dispatch functions for police, fire, and emergency

medical services.

CSU provided the County’s Department of Public Safety and Justice Services

with two feasibility studies for the groups of communities listed below:

Highland Heights, Lyndhurst, Mayfield Heights, Mayfield Village, and

Richmond Heights

Berea, Broadview Heights, Brook Park, North Royalton, Olmsted Falls,

Seven Hills, and Strongsville

The studies reviewed public safety dispatch functions for police, fire, and

emergency medical services (EMS) for each group. The assessments ended with

a final report outlining legal authority, staffing levels, and expenditures for a

consolidated dispatch center. In addition, the reports provided a cursory review

of labor agreements in order to assess their potential impact on the

consolidation of public safety answer points (PSAPs). All the cities that

participated in the report either have already consolidated, have committed to

consolidate at a future date or are making final plans to.

Although the contract with CSU has expired, any community interested in a

feasibility assessment from CSU that are seriously considering PSAP consolidation,

can request this service from the County. Each request will be reviewed and a

determination will be made on the project and the availability of any funding

needed to re-engage CSU.

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b. 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. For those communities participating in a CSU

Assessment, this is provided as part of that. 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.

c. 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

5. 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

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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.

6. Dispatch Center Design

Cuyahoga County contracted with URS architects to develop a Cuyahoga

County Dispatch Center Template (Attachment F.) 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.

7. Research

Cuyahoga County can help jurisdictions research and identify the best method

for consolidation. Staff can assist in identifying 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.

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 five (5) 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 – Population for PSAP

Reduction to 4

ATTACHMENT B – 2012 Call Matrix Report

ATTACHMENT C – 4 PSAP’s Demographics

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.

12

2010 Census Data 13

CECOMS 2012 Call Metrics Report 14

Cuyahoga County PSAP Assessment January 6, 2012

PSAP Region Population12 # of Cities # of

PSAPs # of Police

Depts.

# of Fire/EMS

Depts.

# of Wireless

Calls13

# of Landline

Calls2

Total Calls2

# of Call Takers /

Dispatchers14

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 1,045,88

6 479

ATTACHMENT D – Population for PSAP Reduction

to 5

ATTACHMENT E – 5 PSAP’s Demographics

This will data will be included under the next revision of this Plan

ATTACHMENT F – Dispatch Center Design Template .