Regional District of Okanagan Similkameen...Regional District of Okanagan-Similkameen Emergency...

Regional District of Okanagan Similkameen

Emergency 911 Dispatch Service Delivery Review

Planetworks Consulting Corporation

October 2010

Regional District of Okanagan-Similkameen Emergency 9-1-1 Dispatch Service Delivery Review of 62

Contents

1. Executive Summary ............................................................................................................ 4

2. Recommendations .............................................................................................................. 6

3. Scope of Work .................................................................................................................... 8

3.1 9-1-1 Review ................................................................................................................ 8

3.2 Fire Dispatch Review ................................................................................................... 8

4. 9-1-1 Services ....................................................................................................................10

4.1 Current NENA Standard..............................................................................................10

4.2 Wireless E9-1-1 ..........................................................................................................12

4.3 Mid-call Location Updating (Wireless re-bid) ...............................................................13

4.4 Voice over Internet Protocol (VoIP) .............................................................................13

4.5 Competitive Local Exchange Carriers .........................................................................18

4.6 Access by People with Hearing and Speech Disabilities .............................................18

4.7 Next Generation 9-1-1 ................................................................................................20

4.8 Enhanced Community Notification System (ECNS) ....................................................23

4.9 Deterring 9-1-1 Abuse .................................................................................................23

4.10 RDOS 9-1-1 Call Volumes ..........................................................................................24

4.11 9-1-1 Call Answer and Transfer Statistics ...................................................................28

4.12 Downstream Call Answer Statistics .............................................................................30

4.13 Current Contract and Costs ........................................................................................31

5. Fire Dispatch ......................................................................................................................32

5.1 Technology .................................................................................................................32

5.1.1 Computer Aided Dispatch (CAD) .........................................................................32

5.1.2 Record Management Systems (RMS) ..................................................................33

5.1.3 Mobile Workstations (MWS) .................................................................................33

5.1.4 GIS/Mapping Systems .........................................................................................33

5.1.5 Global Positioning System (GPS) Unit Tracking ...................................................33

5.1.6 GPS Dispatch Recommendations ........................................................................34

5.1.7 Interfaces with other services, principally with EMS services ...............................34

5.1.8 Move up algorithms..............................................................................................35

5.1.9 Dispatch, Command and Tactical channels/talk groups .......................................35

5.1.10 Combined Events channels/talk groups ...............................................................36


5.2 Standards ...................................................................................................................36

5.2.1 Standard 1061 .....................................................................................................36

5.2.2 Standard 1221 .....................................................................................................39

5.2.3 NFPA Standard 1561 ...........................................................................................47

5.3 RDOS Fire Dispatch ...................................................................................................49

5.3.1 Call Taking and Dispatch .....................................................................................50

5.3.2 Technology ..........................................................................................................53

5.3.3 Business Continuity/Disaster Recovery ................................................................54

5.3.4 Survey of Fire Dispatch Clients ............................................................................55

5.4 Current Contract and Costs ........................................................................................55

5.4.1 Fire Dispatch Options ..........................................................................................56

6. Summary ...........................................................................................................................58

7. Appendix 1: Terms and Definitions.....................................................................................59

8. Appendix 2—Dispatch Survey ............................................................................................61


1. Executive Summary

The Regional District of Okanagan Similkameen (RDOS) has its 9-1-1 service provided by the

Kelowna RCMP through an arrangement with the Central Okanagan Regional District. Fire

dispatch for the RDOS is provided by the Penticton Fire Department. In each case the RDOS

has recently had its costs significantly increased, by 57% in the case of 9-1-1 and by 28% for

fire dispatch.

At the present time the cost allocation models for each are based on a ratio of assessment

values which provide an estimate for protected value and for risk but may not be completely

accurate in providing a true cost basis for the service. In each case this should be reviewed to

determine and agree on the costs to deliver the service and a basis for equity in terms of the

allocation of these by region. One measure for determining the ratio for costs is call volume

which is a basis for these charges in other jurisdictions. Such an adjustment could result in a

saving for the RDOS.

The Kelowna RCMP dispatch facility provides 9-1-1 service to the RDOS and other regions and

matches or betters the standard of service for this. It also has a modern facility with

contemporary equipment and a complete business continuity strategy.

The RDOS fire dispatch facility will shortly be implementing a Computer Aided Dispatch (CAD)

system which should further assist with achieving the desired standard for call management. At

the present time they do not appear to meet the standard but they are operating at a level

comparable to other benchmark fire dispatch services in BC, Alberta and Ontario. The new CAD

system should be made operational as soon as practically possible and as part of this

implementation an interface with the BCAS CAD system should also be developed to further

increase the speed and accuracy of dispatch for these types of responses.

The RDOS fire dispatch system requires a review and upgrade of the radio and paging system

as it lacks channel capacity and experiences contention between the two systems during the

dispatch process. The RDOS dispatch also requires the implementation of a backup system

should its dispatch facility become untenable; at the present time there is no defined, tested

backup strategy.

The costs for fire dispatch could in the future, potentially be reduced by considering another

service provider, similar to the relocation of 9-1-1 service to Kelowna some years ago. At the

present time there are a number of fire dispatch consolidations occurring in BC and in particular

in the Okanagan.

Based on the costs quoted recently for these it may be possible to reduce overall costs by

nearly 50% not counting one-time start-up costs. For this reason it is recommended that a

Request for Information be considered, to determine order of magnitude costs for a comparable

level of service.

Regional District of Okanagan-Similkameen Emergency 9-1-1 Dispatch Service Delivery Review of 62 The provision of both 9-1-1 and fire dispatch are critical issues and a regular review of the call

management for each is required. In each case the service providers have the ability to

generate call management data and have indicated a willingness to work with the RDOS to

review on a regular basis all call management issues. These discussions should also form the

basis for the implementation of a Quality Assurance program to ensure that the RDOS is

receiving the best possible service for 9-1-1 and fire dispatch at a competitive price.


2. Recommendations

The following are the principal recommendations of the 9-1-1 and dispatch review. Each of the

recommendations also is found in the text of the document with a review of the issues, the

standards and supporting arguments.

Recommendation: It is recommended that the existing cost allocation model for the provision

of 9-1-1 services be reviewed with the CORD and the RCMP to ensure

that the costs for service are correctly described and that the ratio of the

total costs paid by the RDOS is equitable.

Recommendation: It is recommended that the statistics for 9-1-1 call management should be

reviewed regularly with the CORD and the RCMP to ensure that calls for

service are being handled in a timely manner and within recognized

standards of service.

Recommendation: It is recommended that the RDOS immediately begin to record the

dispatch time for all fire calls dispatched in addition to the time the call

was received. This data will provide a basis for calculation of call

management times for all dispatched incidents to ensure that the

appropriate standard is being achieved.

Recommendation: It is recommended that the RDOS review its fire dispatch statistics on a

monthly basis to ensure that the performance standards in NFPA 1221

are met. It is further recommended that a Quality Assurance program be

implemented to ensure that fire call management occurs in the shortest

possible time span and with the highest degree of accuracy.

Recommendation: It is recommended that the RDOS ensure the implementation of its fire

CAD system as soon as possible and before the end of 2010.

Recommendation: It is recommended that the RDOS retain the services of a competent

telecommunications engineering consultant to conduct a complete review

of the fire radio and paging systems to ensure compliance with current

standards, to address issues of contention between paging and voice and

to reduce the reliance on dial-up connections as a primary radio link.

Recommendation: It is recommended that the RDOS completely revise the business

continuity/disaster recovery model for fire dispatch to ensure that a

suitable backup location is provide with sufficient equipment for all core

functionality and that it is tested regularly.

Recommendation: It is recommended that the RDOS and the City of Penticton review the fire

dispatch cost model currently used, to develop an agreed model that

defines the standard of service as well as all costs. The goal would be to


develop a model with clear, unambiguous cost drivers that would

equitably apportion costs and provide for a process of regular review.

Recommendation: It is recommended that the RDOS consider issuing an RFI for the

provision of fire dispatch services based on a clear description of the level

of service required, to provide a basis of comparison with its current

service.


3. Scope of Work

The scope of work for the 9-1-1 and fire dispatch review was outlined in an RFP issued in May

2010 and noted the study was to be based on the following tasks:

Inspection, review and evaluation of the two (2) existing contracts.

Identify industry standards and best practices.

Identify any deficiencies in existing contracts as compared to industry standards.

Identify possible alternative service providers when compared to existing cost and

quality, while maintaining same (or increased) level of service, reliability and

redundancy.

Make recommendations which include scope, quality of work, performance standards

and over budget requirements.

3.1 9-1-1 Review

The 9-1-1 review was conducted on a number of levels. These included a visit to the Kelowna

Operations Control Centre (OCC) which is managed by the RCMP under contract to the Central

Okanagan Regional District (CORD). The CORD in turn manages this contract for service on

behalf of the RDOS as well as the Columbia Shuswap, North Okanagan and Central Okanagan

Regional Districts.

The site review of the Kelowna OCC was thorough and included all equipment used for the

9-1-1 system including workstations, the facility in general, the number of staff and their training

as well as issues related to the provision of power and business continuity.

Following the visit, 12 months of 9-1-1 call management data were requested and reviewed to

determine the percentage of calls managed on behalf of the RDOS as well to understand the

degree to which the Kelowna OCC provided service in a timely manner and within the accepted


3.2 Fire Dispatch Review

In a similar manner the review of the fire dispatch service included a number of meetings with

the Penticton Fire Department (PFD) managers and dispatch staff. The dispatch facility was

thoroughly reviewed to determine the amount of technical equipment as well as its age and

suitability for the purpose of emergency communications. The sources of power were reviewed

including the provision of uninterruptable power.

Regional District of Okanagan-Similkameen Emergency 9-1-1 Dispatch Service Delivery Review of 62 The training and supervision of the dispatchers was reviewed to clarify the degree to which they

conformed to the applicable standards of service. A data set including call handling times, was

also obtained to determine the degree to which the PFD dispatchers are meeting the relevant

standard for the prompt dispatch of emergency calls.

The PFD provides dispatch services to a number of fire departments and these were surveyed

to understand the ways in which the dispatch provider was meeting the needs of the client fire

departments.


4. 9-1-1 Services

4.1 Current NENA Standard

The National Emergency Number Association (NENA) Call Answering Standard/Model

Recommendation1 document was developed to serve as a standard operating procedure for the

call taking function within Public Safety Answering Points (PSAPs). In order to provide

uniformity and consistency in the handling of 9-1-1, other emergency calls and administrative

non-emergency calls, the following call-taking standards are included:

Operational level of service;

Order of answering priority;

Answering protocol;

Information gathering; and

Call transfer.

The document also provides guidelines for handling non-standard calls, such as abandoned,

disconnects, misdials, unintentional, prank and misrouted calls (including nomadic Voice over

Internet Protocol (VoIP) calls) and a recommended course of action to address data failures,

such as the loss of ANI (Automatic Number Identification) or ALI (Automatic Location

Identification), equipment problems and redundant calls. In the document the term

"telecommunicator" (see Section 5.2.1) means an individual whose primary responsibility is to

receive, process, or disseminate information of a public safely nature via telecommunications

devices. 9-1-1 call takers and fire department dispatchers are examples of telecommunicators.

The main NENA standard operating procedures for call taking at a 9-1-1 PSAP are as follows:

1. Standard for Answering 9-1-1 Calls. Ninety percent (90%) of all 9-1-1 calls arriving at

the Public Safety Answering Point (PSAP) shall be answered within ten (10) seconds

during the busy hour (the hour each day with the greatest call volume). Ninety-five

(95%) of all 9-1-1 calls should be answered within twenty (20) seconds.

2. Order of Answering Priority. It is the responsibility of on duty telecommunicators to

answer all in-coming calls. All phone calls will be answered in order of priority. 1st priority

will be the 9-1-1 and emergency 7/10 digit phone lines; 2nd priority will be non-

emergency lines and 3rd priority will be the administrative and/or internal phone lines.

3. Standard Answering Protocol – 9-1-1 lines. All 9-1-1 lines at a primary Public Safety

Answering Point (PSAP) shall be answered beginning with ―9-1-1‖.

4. Standard Answering Protocol – Non-emergency Lines. When answering non-

emergency lines, the answering agency should be clearly identified to the caller.

5. Non-emergency Calls Received on Emergency Lines. If a call is of a non-emergency

nature and it is received on an emergency telephone line, the telecommunicator will

1 http://www.nena.org/sites/default/files/NENAopsSOPcallansweringstandardfinal061006.pdf

http://www.nena.org/sites/default/files/NENAopsSOPcallansweringstandardfinal061006.pdf


advise the caller that they have called on an emergency line and will direct the caller to a

non-emergency line. It is not recommended that the call be transferred to an

administrative line, since that may tie up the 9-1-1 trunks.

6. Standard for Information Gathering. The telecommunicator will obtain the basic

information from the caller. At a minimum, this information should include: the address or

exact location of the incident, call back number, type of emergency, time of occurrence,

hazards, identity of those involved and their location. The telecommunicator will verify all

addresses reported. If the address provided by the caller matches the ALI display, the

address may be considered verified. In the event there is a discrepancy, additional steps

must be taken to verify the location of the incident being reported, such as repeating the

address twice and/or annunciating each digit of the address if necessary to clarify.

7. Transferring Emergency Calls. When emergency calls need to be transferred to

another PSAP, the telecommunicator will transfer the call without delay. The

telecommunicator will advise the caller: ―Please do not hang up; I am connecting you

with (name of the agency).‖ The telecommunicator should stay on the line until the

connection is complete and all pertinent information has been relayed to the answering

PSAP.

The NENA standard also specifies procedures for wireless 9-1-1 calls, non-standard calls such

as abandoned calls and disconnects, incomplete or no caller data, redundant calls and trouble

reporting.

The National Fire Protection Association (NFPA) 1221 Standard for the Installation,

Maintenance, and Use of Emergency Services Communications Systems covers a wide variety

of topics including:

Communications center design;

Emergency response facilities;

Operations;

Computer-aided dispatching systems;

Public alerting systems; and

Planning guidelines for 9-1-1 systems.

Regarding communication center / PSAP design, the NFPA 1221 standard specifies that:

Each jurisdiction must maintain an alternate communications center that is capable,

when staffed, of performing the emergency functions normally performed at the primary

communications center. The alternate center must be geographically separate from the

primary center to ensure survivability.

The communications center must be provided with an alternate means of communication

with the emergency response facilities (e.g. fire hall). The alternate means of

communication must be readily available to the telecommunicator in the event of failure

of the primary communications system.


The communications center and other buildings that house essential operating

equipment must be protected against damage from vandalism, terrorism and civil

disturbances. Any windows must be bullet resistant.

Other facility design requirements including power supplies, generators, air conditioning,

lighting, communications circuits and cables, fire protection, toilets, etc. are specified in some

detail within the NFPA 1221 standard. Annex C: Planning Guidelines for Universal Emergency

Number (9-1-1) Service is provided with the standard for informational purposes.

4.2 Wireless E9-1-1

The Canadian Radio-television and Telecommunications Commission (CRTC or ―the

Commission‖) has defined requirements for cellular providers to ensure that cell phones are

compatible with enhanced 9-1-1 (E9-1-1) emergency calling systems2. The requirements have

been implemented in two phases:

Phase I requires the delivery of a wireless (cell) 9-1-1 call with a valid callback number and

identification of the cell site/sector from which the call originated to help identify the general

location of the caller. The call is routed to the closest PSAP based on the cell site location.

This was implemented in 2003.

Phase II adds the requirement of locating the cell caller to within 50 to 100 meters of his or

her location on most 9-1-1 calls. Location information is sent to the PSAP as latitude and

longitude coordinates which are displayed on a map using a Geographic Information

System (GIS). The Commission imposed a deadline of February 1, 2010 to complete the

rollout of wireless Phase II E9-1-1 service in Canada.

In practice Phase II features work with most handsets currently in use. If the 9-1-1 caller has a

clear line of sight to several global positioning system (GPS) satellites, the 9-1-1 operator

should get the caller‘s location within 50 meters. The system will try GPS mode first and if it

doesn‘t work (e.g., inside buildings) will then go into triangulation mode making use of the signal

strength at cell towers in the area of the phone.

The 2010 rollout does not include several other Phase II components which will be added later.

These "Phase II - Stage 2" features include the provisioning of mid-call location updates plus

the provisioning of wireless Phase II E9-1-1 service for roamers and unsubscribed handsets.

Wireless carriers will be required to (a) allow PSAPs to get updates on callers‘ locations during

9-1-1 calls (see Section 4.3 below), (b) provide for enhanced 9-1-1 service to other carriers‘

subscribers roaming on their networks, and (c) provide location information for users with pre-

paid handsets.

Work is also in progress to better accommodate cell phones from other countries (international

roamers) by increasing the length of the callback number provided to the 9-1-1 call taker. Due

to technical limitations of the 9-1-1 network, the calling number and wireless location cannot be

automatically provided to the PSAP for an international roamer with a telephone number longer

2 http://www.crtc.gc.ca/eng/archive/2009/2009-40.htm

http://www.crtc.gc.ca/eng/archive/2009/2009-40.htm

Regional District of Okanagan-Similkameen Emergency 9-1-1 Dispatch Service Delivery Review of 62 than 10 digits. The CRTC has accepted a non-automated solution using the wireless carriers'

24/7 emergency support centre for assistance in locating these wireless handsets.

The ability to display text messages from cell phones at the PSAP and to communicate with

deaf callers using text is also being introduced. These T9-1-1 features are described in Section

4.6 below.

4.3 Mid-call Location Updating (Wireless re-bid)

This feature provides updated location information to the 9-1-1 PSAP when someone calling

9-1-1 using a cell phone moves to a different location while the 9-1-1 call taker is on the line.

The new official name for this feature is Wireless Phase II E9-1-1 In-Call Location Update or

ICLU. It is often referred to as "wireless re-bid".

The CRTC Interconnection Steering Committee (CISC) / Emergency Services Working Group

(ESWG) was tasked with developing a technical solution for providing ICLU and has

recommended the "manual pull‖ method whereby the 9-1-1 call taker initiates a request for an

updated location during the 9-1-1 call. This is referred to as a PSAP Initiated Request or PIR.

Deployment of this method will be completed by September 20123. In the interim, PSAPs will

continue the use of the wireless service providers' 24/7 emergency access numbers. These

centers will be used to verbally obtain the required ICLU information.

The manual pull method will use a query function hosted at the PSAP enabling the PSAP call

taker to initiate ICLU when required. The Wireless Service Provider‘s (WSP) mobile location

determination platform returns the updated location information to the PSAP over the ALI data

path. With this method, the ALI-to-PSAP interface and the ALI application must be modified to

support bi-directional communications.

4.4 Voice over Internet Protocol (VoIP)

VoIP is a technical protocol that allows telephone calls to be sent over a private data network or

the public Internet. A VoIP service provider supplies a telephone number and a network

translator device that permits their customer to talk via high-speed Internet connections such as

cable television modems, ADSL4 or a local area network. The caller‘s voice signal is encoded

into data packets by the network translator device. These packets are sent over data networks

such as the Internet by various routes and are reassembled into the voice signal at the final

destination, allowing communication with another VoIP subscriber or a regular telephone. This

is very different from the legacy telephone network which provides a fixed, circuit-switched

connection for the duration of the call.

Because VoIP services use Internet Protocol (IP) networks rather than traditional telephone or

cellular networks, access to E9-1-1 must be provided in a different way. VoIP Service Providers

(VSPs) must resolve a new set of challenges for determining the location of the caller, routing

the call to the closest PSAP and automatically delivering the caller‘s location and call-back


4 Asymmetric Digital Subscriber Line


Regional District of Okanagan-Similkameen Emergency 9-1-1 Dispatch Service Delivery Review of 62 number to the PSAP. The challenge of locating VoIP callers using 9-1-1 is a consequence of

VoIP's flexibility.

There are four categories of VoIP services:

Fixed (static) VoIP placing calls from a single location;

Nomadic VoIP placing calls from different locations where Internet access is available;

Foreign Exchange VoIP allows users in one exchange to receive telephone calls

dialled as local calls in another exchange that they have selected (e.g. a customer

located in Victoria with a Vancouver local telephone number); and

Mobile VoIP continuous movement within a Wireless Fidelity (WiFi) or other wireless

network.

Fixed subscribers use VoIP as a landline supplement or replacement, typically using residential

ADSL or TV cable service. Their VoIP phone is deployed in a fixed location and uses the

standard North American Numbering Plan. Local exchange carriers can support fixed VoIP

subscribers with local telephone numbers in the same way they support their wireline

subscribers, i.e., by provisioning each VoIP number into the ALI database so the selective

routers can recognize and correctly route the 9-1-1 calls. But in most cases, this wireline model

only supports fixed subscribers with local phone numbers. Because of the frequent use of non-

local phone numbers, VSPs face challenges similar to those once faced by cellular carriers in

terms of routing calls and location data through selective routing switches that don‘t recognize

numbers from outside their area.

Nomadic subscribers view VoIP as a highly portable telephony configuration that allows them to

establish a telecommunication connection wherever they can obtain Internet access. Nomadic

users take their VoIP service with them while on the go, connecting at the airport, in their hotels,

or at any available WiFi hot spot.

Mobile subscribers not only take their VoIP phone with them wherever they go, but they remain

continuously connected. Much like cellular technologies allow today, mobile VoIP subscribers

may eventually be able to roam from their home-based telephony connection throughout a

continuously interconnected WiFi network. As coverage of WiFi hot spots and other wireless

methods for WiFi access become ubiquitous, the number of mobile VoIP subscribers is

expected to increase.

Because of the mobility of nomadic and mobile VoIP subscribers, VoIP 9-1-1 solutions are

dependent upon all subscribers accurately identifying their location when they register for VoIP

services, as well as every time they log in. However, since it often takes 24-48 hours for

subscriber location data to be updated in the ALI database, new solutions are required for

rapidly updating location data. At this point these new solutions are neither deployed nor fully

developed.

In Canada a 9-1-1 call from a Cable IP device (fixed computer or VoIP telephone) with a local

telephone number is handled like a call made using the traditional telephone network with the

ANI and ALI being displayed at the PSAP. In order to provision E9-1-1 service, the Cable VoIP

Regional District of Okanagan-Similkameen Emergency 9-1-1 Dispatch Service Delivery Review of 62 provider (such as Shaw) assigns a telephone number to the customer‘s modem, and the

modem is associated with a physical street address. This information, when conveyed to the

appropriate 9-1-1 database managers has the capability to accurately convey the physical

location of a 9-1-1 call.

In the U.S. NENA and the Voice on the Net (VON) Coalition have developed three levels of

solutions for nomadic VoIP subscribers:

Immediate (i1) Allows a VoIP service provider to directly dial 9-1-1 calls to a 10-digit

PSAP administration number. The VoIP 9-1-1 call is delivered to a 24x7 administrative

line without the caller‘s location; the caller‘s phone number is only provided when caller

ID is available on the receiving PSAP phone;

Immediate (i2) VoIP providers route 9-1-1 calls through existing tandems and update

the existing ALI databases. The VoIP 9-1-1 call is delivered to the correct PSAP via a

selective router infrastructure solution. The caller's location and callback number are

automatically delivered to the PSAP without any required hardware or software upgrades

to the existing PSAP E9-1-1 infrastructure; and

Long Term (i3) IP to IP call flow to a fully VoIP enabled PSAP (see Next Generation

9-1-1 in Section 4.7 below).

The overall goal of i1 and i2 was to not require any changes to the PSAPs.

During 2005 the CRTC issued several decisions affecting fixed, nomadic and foreign exchange

VoIP services in Canada. In Decision 2005-215 the CRTC directed VoIP service providers who

provide fixed VoIP service (such as Shaw in B.C.) to also provide the same level of 9-1-1

emergency service that is provided by the incumbent telephone company in the service area,

i.e. either Enhanced 9-1-1 or Basic 9-1-1.

The Commission also requires that VoIP service providers delivering either nomadic or foreign

exchange VoIP services (such as Vonage and Primus) implement an interim solution which

provides a level of service comparable to Basic 9-1-1 service. This can include routing of the

9-1-1 call to a private central call center which in turn contacts or forwards the call to the correct

emergency response center or PSAP. At this point the caller must identify his or her location in

order for an emergency response service to be dispatched. The PSAP does not receive the ANI

or ALI information associated with this type of call. This additional call handling step that occurs

at the very start of the communications process adds a minimum of a 30 second delay to

providing assistance to the caller.

All local VoIP service providers in Canada must6 provide specific notification to current and

prospective customers regarding the availability, characteristics and limitations of their 9-1-1

and Enhanced 9-1-1 (E9-1-1) service. As an example, Figure 1 below shows an excerpt from

Primus's current terms and conditions for their Talkbroadband VoIP service.

5 http://www.crtc.gc.ca/eng/archive/2005/dt2005-21.htm

6 http://www.crtc.gc.ca/eng/archive/2005/dt2005-61.htm

http://www.crtc.gc.ca/eng/archive/2005/dt2005-21.htm



(iii) Service Limitations You acknowledge and understand that the Service is not a telephone service. The

Service connects to the Internet, and not a telephone line. There are IMPORTANT DIFFERENCES between

telephone service and the Service offering provided by PRIMUS as set out in these Terms and Conditions.

(iv) 9-1-1 LIMITATIONS 9-1-1 service associated with Talkbroadband HAS CERTAIN LIMITATIONS

COMPARED WITH TRADITIONAL E-1-1, WHICH ARE SET OUT BELOW

THE type of 9-1-1 service available to You depends on where and how You use Your phone. There are two

types of 9-1-1- service

1. E9-1-1 Service

You will have E9-1-1 service if your Talkbroadband telephone number corresponds to your address and

municipality where you permanently use your TalkBroadband Service and E9-1-1 is available in your serving

area. If You dial 9-1-1, Your call is automatically routed to the Public Safety Answering Point (PSAP)

corresponding to Your address and the emergency operator will have Your telephone and address information.

You may be required to verify Your name, telephone number and address with the emergency operator.

2. Basic 9-1-1 Service

Basic 9-1-1 Service is provided in the following two situations. You will have Basic 9-1-1 Service if your

TalkBroadband telephone number does not correspond to your address and municipality where you permanently

use your TalkBroadband service or if you live in a serving area in which E9-1-1 from Primus is not available. If

You dial 9-1-1, You will be automatically routed to a specialized call centre that handles emergency calls. The

call centre is different from the Public Safety Answering Point (PSAP) that would answer a traditional

emergency call. You will be required to provide Your name, telephone number and address to the call centre

operator.

OR

You will have Basic 9-1-1 Service if You intend on using Your TalkBroadband? Service from multiple

locations. You have access to 9-1-1 service, but because You may be out of the coverage area of Your Public

Safety Access Point (PSAP), whenever You dial 9-1-1, You will be automatically routed to a specialized call

centre that handles emergency calls. The call centre is different from the Public Safety Answering Point (PSAP)

that would answer a traditional emergency call. You will be required to provide Your name, telephone number

and address to the call centre operator.

(v) SERVICE OUTAGES. YOU ACKNOWLEDGE AND UNDERSTAND THAT DURING SERVICE

OUTAGES BY YOUR BROADBAND INTERNET SERVICE PROVIDER OR FOR ANY REASON

WHATSOEVER, YOUR TALKBROADBAND SERVICE INCLUDING 9-1-1 SERVICE, WILL NOT

WORK. IN THE EVENT OF A POWER FAILURE, TALKBROADBAND SERVICE, INCLUDING 9-1-1

SERVICE WILL NOT WORK. IF THERE IS AN INTERRUPTION IN THE POWER SUPPLY, THE

TALKBROADBAND SERVICE, INCLUDING 9-1-1 SERVICE, WILL NOT FUNCTION UNTIL POWER IS

RESTORED. A POWER FAILURE OR DISRUPTION MAY REQUIRE YOU TO RE-SET OR

RECONFIGURE EQUIPMENT PRIOR TO USING THE TALKBROADBAND SERVICE. SERVICE

OUTAGES DUE TO SUSPENSION OF YOUR ACCOUNT AS A RESULT OF BILLING ISSUES WILL

PREVENT TALKBROADBAND SERVICE, INCLUDING 9-1-1 SERVICE.

(vi) YOU AGREE TO IMMEDIATELY ADVISE PRIMUS CANADA IF You intend on changing the address

from which You use Your TALKBROADBAND Service, TO ENSURE YOU MAINTAIN 9-1-1 SERVICE.

YOU ACKNOWLEDGE AND UNDERSTAND SHOULD YOU FAIL TO DO SO, Your 9-1-1 service will not

work properly and this will adversely affect Your ability to access 9-1-1 service.

Figure 1: Primus Terms of Service for 9-1-1

Regional District of Okanagan-Similkameen Emergency 9-1-1 Dispatch Service Delivery Review of 62 The Commission directed Canadian carriers, as a condition of providing telecommunications

services to VoIP service providers, to include in their service contracts or other arrangements

with these service providers the requirement that the latter comply with all of the Commission's

rulings.

With respect to the funding of the provincial 9-1-1 networks, the Commission considers that the

Incumbent Local Exchange Carriers' (ILEC) current provincial 9-1-1 tariffs should apply to local

VoIP service providers in the same manner as they apply to other carriers and resellers.

The CRTC Interconnection Steering Committee (CISC) / Emergency Services Working Group

(ESWG) was tasked with resolving the remaining technical and operational challenges related

to providing E9-1-1 with nomadic and foreign exchange VoIP services.

In Decision 2006-607, the Commission approved the consensus recommendation of the

CISC/ESWG to adopt the NENA i2 standard, adjusted as necessary for implementation in

Canada, as the solution for the delivery of nomadic VOIP E9-1-1 service. This is referred to as

"Ci2". The Commission further requested the ESWG to file a report on a functional architecture

for implementation of Ci2.

During the next four years the ESWG attempted to develop a consensus on the functional

architecture of the Ci2 service, as well as the roles and responsibilities of industry participants

for the new Ci2 operating elements. Work on implementation costs and potential cost recovery

mechanisms was also carried out. However, disagreement between the telephone companies

and the cable companies as to the best functional architecture hampered significant progress on

these issues.

On June 17, 2010 the CRTC issued Decision 2010-3878. In this decision, the Commission

determined that there are "no viable alternatives" to the current basic 9-1-1 service provided to

nomadic and fixed/non-native VoIP subscribers. It is noted that there are currently only 200,000

nomadic VoIP service subscribers in Canada and that this number is now declining. Also, most

nomadic VoIP service customers rely on other wireline and wireless services as their primary

telephone service, which they can use to obtain access to emergency services. The

Commission concluded that implementation of Ci2 is not viable due to Ci2‘s technical limitations

in the face of evolving 9-1-1 technology, decreasing demand for and usage of nomadic VoIP

service, and the high cost of Ci2 implementation.

The Commission directed nomadic and fixed/non-native VoIP service providers to make certain

improvements to their current VoIP 9-1-1 service until Next-Generation 9-1-1 service (see

Section 4.7) is implemented. These service providers must (1) contact their nomadic and

fixed/non-native VoIP customers each time they change their billing address to confirm their

most likely physical address for emergency purposes; and (2) ensure that customers are able to

update their most likely physical address online.

7 http://www.crtc.gc.ca/eng/archive/2006/dt2006-60.pdf

8 http://liveweb.crtc.gc.ca/eng/archive/2010/2010-387.htm

http://www.crtc.gc.ca/eng/archive/2006/dt2006-60.pdf

http://liveweb.crtc.gc.ca/eng/archive/2010/2010-387.htm

Regional District of Okanagan-Similkameen Emergency 9-1-1 Dispatch Service Delivery Review of 62 The Commission also requested the ESWG to monitor developments that could lead to further

improvements to the current VoIP 9-1-1 service or lead to a viable alternative solution, and to

file an annual report of its findings.

4.5 Competitive Local Exchange Carriers

Competitive Local Exchange Carriers (CLECs) are local telephone service providers that

compete with the established telephone companies (ILECs). Like ILECs, CLECs must provide

standard 9-1-1 emergency response service (9-1-1 ERS) to their customers. In order to provide

this service, CLECs are required either to enter into an agreement with the local authority –

such as the municipality or provincial government – where the 9-1-1 service is to be provided or

to file a 9-1-1 ERS tariff with the CRTC for approval.

In July 20099 the CRTC released a 9-1-1 ERS model tariff covering 9-1-1 service and directed

all CLECs who have not yet executed agreements for 9-1-1 ERS with all local authorities in the

territories in which they operate to file a tariff based on the model for Commission approval.

The deadline for these tariff filings was August 1, 2009.

4.6 Access by People with Hearing and Speech Disabilities

A Telecommunications Device for the Deaf (TDD) has traditionally been a device with a

keyboard and text screen, used in conjunction with a telephone, to communicate with persons

who are hearing impaired or who have speech impediments. This device was also known as

TTY, the historical abbreviation for teletype. To communicate via TTY, a caller types his or her

conversation, which is read on a TTY display by the person who receives the call. Both parties

must have TTY‘s to communicate. This is intended to replicate voice communications between

the two parties.

In Canada it is not a mandated requirement to provide direct and equal access to the PSAP‘s

using TDD/TTY and Canadian PSAPs may not have operational TTY units in place.

In order to improve access to emergency services for people with hearing and speech

disabilities the CRTC directed the CISC ESWG to develop a technical solution to replace TDD.

The ESWG subsequently concluded that text messaging to 9-1-1 via Short Message Service

(SMS), Instant Messaging (IM), and IP Relay technology is not viable at this time for the

following reasons:

SMS, IM, and IP Relay do not support automatic routing to the appropriate PSAP or the

automatic provision of caller location information to the PSAP; and

IM does not provide automatic subscriber identification information, such as a telephone

number, which is provided automatically with SMS.

In addition, the ESWG considered that, in the long term, next-generation 9-1-1 standards and

technologies that are currently in development could enable users to access PSAPs via multiple

methods of texting to 9-1-1. The implementation of these capabilities will depend on the



Regional District of Okanagan-Similkameen Emergency 9-1-1 Dispatch Service Delivery Review of 62 maturation level of IP networking and next-generation 9-1-1 networks and platforms. The CISC

ESWG indicated that it would monitor these technologies and make recommendations on them

when they meet enhanced 9-1-1 service criteria.

In the short term, the ESWG proposed further investigation of a potential work-around solution

referred to as "SMS T9-1-1 via silent wireless voice call". With this solution, when a pre-

registered person with a hearing or speech disability initiates contact with a PSAP by dialling

9-1-1 on a cellphone, that person's contact and location information would automatically be

transmitted in the same way it is for other cellphone users, but the 9-1-1 call would be flagged

as coming from a person with a hearing or speech disability. Upon receiving a flagged 9-1-1

call, the 9-1-1 operator would respond by sending an SMS text message to the caller, thus

enabling the caller to text back and forth with the operator. However, this solution would not

enable people to initiate a 9-1-1 call via text message or to text directly to 9-1-1, and would

require PSAPs to change their call handling procedures

The ESWG proposed to undertake a technical trial of the SMS T9-1-1 via silent wireless voice

call solution by conducting various activities identified in the report. The CISC ESWG expects to

take 12 to 18 months to implement and operate the trial.

The ESWG recommended this technical trial on the basis that the SMS T9-1-1 via silent

wireless voice call solution:

Supports the automatic routing of 9-1-1 calls to the appropriate PSAP;

Enables the automatic provision of the 9-1-1 caller's contact and location information to

the PSAP; and

Uses existing network infrastructure, which would reduce implementation time.

In April 2010 the CRTC approved the CISC ESWG recommendations10 and directed the group

to:

Immediately begin the activities required to implement the technical trial of the "SMS

T9-1-1 via silent wireless voice call" solution recommended in their report, including

completing the investigation into the various technical specifications, along with wireless

carriers, 9-1-1 service providers, and the public safety community;

File a status report with the Commission, every six months from the date of this decision,

outlining the progress of activities undertaken to implement the technical trial and

identifying the remaining activities and time frames required to complete the trial; and

File a final report on the outcome of the trial, including any further actions that would be

required to implement the service.

As of May 2010 the ESWG is actively working on the T911 SMS Gateway which will provide a

PSAP- initiated text-to-SMS inter-working function including auto routing to the home wireless

service provider based on the caller's number.

10



Regional District of Okanagan-Similkameen Emergency 9-1-1 Dispatch Service Delivery Review of 62 After the ESWG has made recommendations based on the information generated by the trial

and on the related technical specifications, the Commission will determine what further process,

if any, is required regarding policy issues. This could include how registration for use of the

service would be carried out and proposed methods of funding.

4.7 Next Generation 9-1-1

Within five years it is projected that 70% of calls will be from wireless devices and at least 40%

of all wireline calls will be routed through VoIP providers. This means that less than 20% of all

calls could be carried over the traditional telephony network around which current 9-1-1

technology is based.

Current 9-1-1 systems are not able to handle the text, data, images and video which are

increasingly common in personal communications devices. This gap is becoming increasingly

critical with advances in transportation safety and mobility. The Next Generation 9-1-1

(NG 9-1-1) initiative will establish the foundation for public emergency communications services

in a wireless mobile society. NG 9-1-1 is being developed and promoted by NENA.

NG 9-1-1 is expected to allow transmission of text, photos and/or video along with voice for

9-1-1 calls from many types of communications devices. It will also support location-

independent call access, transfer, and backup among multiple PSAPs and between PSAPs and

other authorized emergency organizations.

A simplified overview of NG 9-1-1 architecture compared to current E9-1-1 is shown in Figure 2.

Figure 3 shows a more detailed blueprint from NENA.


Emergency Services IP Network

Internet

Call

Center

Today’s E9-1-1

Next Generation 9-1-1

9-1-1 PSAP

Ambulance

Fire

PoliceTelephones

Cell Phones

VoIP Devices

Telephone

and Cell

Networks

Dispatch

Centers

VoIP

Providers

ANI/ALI

Database

Selective

Router

CAD

System

Map / Address Data

9-1-1 IP PSAP

Dispatch

Centers

CAD

Systems

Map / Address Data

Legacy

Phone & Cell

Networks

Voice

Images

Text

Video

SR

Ga

tew

ays

ANI/ALI

Database

Fire

wa

lls

Figure 2: Transition to NG 9-1-1


Figure 3: Proposed NG 9-1-1 Architecture

There are very few NG 9-1-1 systems in operation however many are in the planning stages

and there are several trials and feasibility studies in progress. NENA has published a number of

technical and operational standards related to NG 9-1-1.

The State of Vermont‘s NG 9-1-1 system is arguably the most advanced IP-based 9-1-1

process in the U.S. at this time. The Vermont system cut over in February 2007 and is fully

deployed. Inbound 9-1-1 calls are delivered by the carrier to the former ILEC tandems for "pass

through" to the State's IP gateways. There is no selective routing on the telephony company

side; they simply deliver the call to the gateway. The State is currently resolving regulatory

issues and tariff issues arising from the new architecture and cost structure of the system. Other

current initiatives are focused on optimizing the flexibility provided by an IP based system. Two

PSAPs have been decommissioned based on the economy of scale provided by the new

system. Efforts are underway to provide ―positions-on-demand‖ through the use of non-PSAP

based call takers, and warm-site standby PSAPs.

Deployment of NG 9-1-1 is dependent primarily on availability of funding and is also somewhat

dependent on the rate of conversion of circuit switched telephone and cell networks IP-based

technology. This conversion has not yet occurred on a large scale. A major driver for NG 9-1-1

may be the increasing shift from voice calling to text messaging by millions of cell phone users.

Regional District of Okanagan-Similkameen Emergency 9-1-1 Dispatch Service Delivery Review of 62 Vendors such as Solacom have developed IP-based, stand-alone emergency service platforms

that could enable transition to NG 9-1-1. These platforms have the required interfaces to both

legacy and IP-based networks and PSAPs.

4.8 Enhanced Community Notification System (ECNS)

ECNS is a communications methodology that can be put in place to inform the public of known

hazards. It uses a combination of database and GIS mapping technologies to deliver outbound

notifications to communities using the E9-1-1 database.

In Decision 2008-3711 dated May 2, 2008 the Commission approved the recommendations of

the ESWG for implementation of ECNS in Canada. These include a set of standard guidelines,

security procedures, processes and practices. Encryption, firewalls, and transaction/audit trails

will be used to ensure that confidential consumer information is protected at all times and is only

available for authorized ECNS users. There are still a number of unresolved technical issues

including the inclusion of wireless and nomadic VoIP subscribers in the E9-1-1 database.

These will require further investigation and development.

4.9 Deterring 9-1-1 Abuse

At a meeting of Federal / Provincial / Territorial (FPT) Ministers Responsible for Justice in

November 2002, Manitoba advised that a recent inquest report in the province noted an

appalling level of abuse of the 9-1-1 emergency number in Manitoba. Subsequently, at the

Ministers' request, in January 2003, the Deputy Ministers Responsible for Justice created an ad

hoc Federal-Provincial-Territorial Committee to be chaired by Manitoba and Justice Canada to

examine this issue.

The mandate of the Committee is to examine the scope of possible legislative responses to

abuse of the 9-1-1 system and, specifically to

Consult other jurisdictions as to whether there are any concerns regarding the adequacy of

current Criminal Code offences;

Work together on obtaining, where available, data on the incidence of 9-1-1 abuse, as well

as prosecutions;

Make recommendations to Ministers and Deputy Ministers on the issue of whether

Criminal Code amendments or provincial legislative changes should be pursued; and

Make recommendations on future opportunities for improving the capacity for data

collection and community education.

Activities of this committee got underway in May 2008.

In its Revised Draft Report issued on March 31, 2010, the ad hoc 9-1-1/PSAP Administrators

Committee on Abuse of 9-1-1 Emergency Systems concluded that:

11




The proportion of intentional false (i.e. malicious) calls to 9-1-1 is very low (about 1% of

9-1-1 calls) and the majority of 9-1-1 abuse calls are intentional calls for information or

non-emergency services or unintentional calls (e.g. a cell phone being accidentally

triggered to dial the pre-programmed 9-1-1 number or children playing with a phone);

There is no need at this time for amendments to create a new Criminal Code abuse of

9-1-1 offence or to change the existing offences in the Criminal Code or to expand the use

of provincial legislation to address 9-1-1 abuse beyond those provinces that have already

introduced such legislation; and

Further work should be considered on developing a standard model for public education

about abuse of 9-1-1 in Canada and this issue should be left with the national 9-1-1/PSAP

Committee for future consideration.

4.10 RDOS 9-1-1 Call Volumes

According to Telus call records there were 29,887calls to 9-1-1 from the RDOS during the 12

months ending June 30, 2010. Of these, 26,470 calls were answered by the South East BC

RCMP PSAP in Kelowna. The remaining calls (11.4%) were abandoned by the caller before

they could be answered. The breakdown of 9-1-1 calls by originating RDOS municipality is

shown in Table 1 and Table 2 as well as Figure 4 below.

Originating

Municipality

Calls to

9-1-1

Calls

Answered

% of Calls

Abandoned

Penticton 18,627 16,527 11.3%

Oliver 2,360 2,082 11.8%

Osoyoos 2,061 1,754 14.9%

Summerland 1,910 1,701 10.9%

Princeton 1,761 1,536 12.8%

Others 3,168 2,870 9.4%

Total 29,887 26,470 11.4%

Table 1: RDOS 9-1-1 Calls - July 1, 2009 to June 30, 2010


Figure 4: 9-1-1 Calls by Area

Municipality Calls to 9-1-1 Calls Answered

ALLISON LAKE BC 12 12

APEX BC 80 71

CAWSTON BC 150 137

COALMONT BC 15 14

DEADMANS LAKE BC 3 2

FAULDER BC 27 26

GALLAGHER LAKE BC 39 38

HEDLEY BC 160 154

KALEDEN BC 158 147

KEREMEOS BC 742 679

MANNING PARK BC 132 113

MISSEZULA LAKE BC 3 3

MT BALDY BC 12 7

NARAMATA BC 651 565

OKANAGAN FALLS BC 671 606

OLALLA BC 108 104

OLIVER 649 589

OLIVER BC 1,711 1,493

OSOYOOS BC 2,061 1,754

OSPREY LAKE BC 27 27

PENTICTON BC 18,627 16,527

PRINCETON BC 1,761 1,536

Penticton62%Oliver

8%

Osoyoos7%

Summerland6%

Princeton6% Others

11%

9-1-1 Calls - July 1, 2009 to June 30, 2010

Penticton

Oliver

Osoyoos

Summerland

Princeton

Others


Municipality Calls to 9-1-1 Calls Answered

SUMMERLAND BC 1,910 1,701

TULAMEEN BC 43 41

TWIN LAKES BC 28 27

VASEAUX LAKE BC 19 18

(blank) 88 79

Grand Total 29,887 26,470

Table 2: Detailed Call Breakdown by Municipality - July 1, 2009 to June 30, 2010

A breakdown of calls by type of originating phone is shown below.

Originating

Phone Type

Calls to

9-1-1

Calls

Answered

% of Calls

Abandoned

Residence 9,859 9,140 7.3%

Business 4,133 3,710 10.2%

Cell 14,763 12,871 12.8%

Coin 1,044 670 35.8%

Unknown 88 79 10.2%

Total 29,887 26,470 11.4%

Table 3: RDOS 9-1-1 Calls by Type of Phone

Figure 5: 9-1-1 Calls by Type of Phone

The percentage of abandoned calls varied significantly by type of originating phone, with coin

phones being highest and residential land lines being lowest, as well as the day of the week as

shown in Figure 6 below. There was no significant correlation of abandoned calls with

originating municipality, month, time of day or telecommunications carrier.

Residence33%

Business14%

Cell49%

Coin4%

Unknown0%

RDOS 9-1-1 Calls - July 1, 2009 to June 30, 2010

Residence

Business

Cell

Coin

Unknown


Figure 6: Abandoned Calls by Day of Week

Calling patterns by hour of day, day of the week, and month of the year are shown in the

following charts. These patterns are quite typical for 9-1-1 PSAPs.

Figure 7: 9-1-1 Calls by Hour of the Day

0.0%

2.0%

4.0%

6.0%

8.0%

10.0%

12.0%

14.0%

Mon Tues Weds Thurs Fri Sat Sun

% Abandoned


Figure 8: 9-1-1 Calls by Day of the Week

Figure 9: 9-1-1 Calls by Month

4.11 9-1-1 Call Answer and Transfer Statistics

Call answer statistics for the RDOS 9-1-1 calls were analyzed and compared to NENA and

NFPA standards12. Results are shown in the tables below. Call transfer time is the time taken

after answering the 9-1-1 call to relay the call to a downstream agency – it does not include the

time taken for the downstream agency to answer the call. For the one year study period, call

12

NENA standard: Ninety percent (90%) of all 9-1-1 calls arriving at the Public Safety Answering Point (PSAP)

shall be answered within ten (10) seconds during the busy hour (the hour each day with the greatest call volume). Ninety-five (95%) of all 9-1-1 calls should be answered within twenty (20) seconds. NFPA 1221 standard: Where

alarms are transferred from the primary public safety answering point (PSAP) to a secondary answering point, the

transfer procedure shall not exceed 30 seconds for 95 percent of all alarms processed.

Figure 10

Regional District of Okanagan-Similkameen Emergency 9-1-1 Dispatch Service Delivery Review of 62 answer standards were met for all types of calls however the call transfer standard was not

quite met for calls from cell phones and coin phones as shown in Table 4.

Originating

Phone Type

% answered in 10

seconds or less

(Standard = 90%)

% answered in 20

seconds or less

(Standard = 95%)

% transferred in 30

seconds or less

(Standard = 95%)

Residence 95.0% 97.7% 96.1%

Business 94.7% 98.1% 97.9%

Cell 94.0% 97.3% 94.5%

Coin 95.8% 98.8% 93.6%

Unknown 96.2% 97.5% 98.1%

Total 94.5% 97.6% 95.6%

Table 4: RDOS 9-1-1 Calls Answered - All Hours - July 1, 2009 to June 30, 2010

Call answer and transfer performance for the busiest hours of 4 to 9 PM are shown in Table 5.

Originating

Phone Type

% answered in 10

seconds or less

(Standard = 90%)

% answered in 20

seconds or less

(Standard = 95%)

% transferred in 30

seconds or less

(Standard = 95%)

Residence 94.3% 97.1% 96.1%

Business 93.4% 97.7% 98.0%

Cell 93.5% 96.9% 94.9%

Coin 94.6% 97.9% 91.9%

Unknown 100.0% 100.0% 100.0%

Total 93.8% 97.1% 95.7%

Table 5: RDOS 9-1-1 Calls Answered - 4 PM to 9 PM - July 1, 2009 to June 30, 2010

Answer time performance by month is shown in Figure 11. Answer times were considerably

worse than the standard during July 2009. This was mainly due to an exceptionally large

number of 9-1-1 calls associated with wild fires on July 18, 23 and 25 within the areas served by

the SEBC PSAP.


Figure 11: Answer Times by Month

4.12 Downstream Call Answer Statistics

The following table shows the 9-1-1 calls that were answered by the 9-1-1 PSAP, transferred to

a downstream agency (secondary PSAP), and then answered by the downstream agency. Note

that the calls shown for Penticton Fire do not include EMS incidents that are relayed from BC

Ambulance. Penticton Fire met the current NFPA 1221 standard13 of answering at least 95% of

calls from the PSAP within 15 seconds and 99% within 40 seconds.

Downstream Agency Calls

Transferred

Average

Answer Time

(Seconds)

% answered in 15

seconds or less

(Standard = 95%)

% answered in 40

seconds or less

(Standard = 99%)

SEBC RCMP 10,801 12.7 72.0% 93.1%

BC Ambulance (Kamloops) 7,667 7.4 94.9% 99.0%

Penticton Fire 1,554 5.2 97.2% 99.2%

Others 659 11.1 72.2% 92.2%

Total 20,681 7.0 82.4% 95.7%

Table 6: Downstream Call Distribution

13 Ninety-five percent of alarms received on emergency lines shall be answered within 15 seconds, and 99 percent of

alarms shall be answered within 40 seconds.

0.0

5.0

10.0

15.0

20.0

25.0

30.0

July Aug Sep Oct Nov Dec Jan Feb Mar April May June

Ans

wer

Tim

e (S

econ

ds)

Answer Timefor RDOS9-1-1 Calls

90th Percentile - Actual 90th Percentile - Standard

95th Percentile - Actual 95th Percentile - Standard


4.13 Current Contract and Costs

The cost of 9-1-1 service as provided by the CORD has risen dramatically in the past several

years as shown in Table 6. The increase from 2009 to 2010 represents more than a 50%

increase in costs.

The basis for the determination of costs was reviewed with the CORD to determine if there was

a cost allocation model that drove the share paid by the RDOS. It appears from a review of the

current agreement that this is the case and that the model relates to a percentage of assessed

value.

Year 9-1-1 Cost

2009 $ 98,263

2010 $ 154,263

2011 $ 155,000

Table 7: RDOS cost for 9-1-1 Service (2011 estimate)

On review, it was determined that the percentage of all calls handled by the Kelowna OCC that

originated in the RDOS is approximately 15%. It is therefore recommended that a cost sharing

model for 9-1-1 services be developed that reflects this ratio of the total cost of the operation

and that the ratio of calls be reviewed on a regular basis.

Recommendation: It is recommended that the existing cost allocation model for the provision

of 9-1-1 services be reviewed with the CORD and the RCMP to ensure

that the costs for service are correctly described and that the ratio of the

total costs paid by the RDOS is equitable.

Recommendation: It is recommended that the statistics for 9-1-1 call management should be

reviewed regularly with the CORD and the RCMP to ensure that calls for

service are being handled in a timely manner and within recognized


The reason for recommending a cost allocation model with call volume as a cost driver is that

this may more accurately represent the actual work required and the number of personnel

required to complete it.


5. Fire Dispatch

The review of fire dispatch was similar to that for 9-1-1 in the sense that call handling times,

costs, training and equipment were all considered as part of the assessment. To provide

background for the analysis of call handling particular to the PFD and the RDOS, the following

sections discuss technology, standards and best practices that have developed in recent years

and which apply to this analysis.

5.1 Technology

The development and implementation of technology to support fire dispatching has increased

rapidly in the past 20+ years. The principal developments include:

Computer Aided Dispatch (CAD)

Record Management Systems (RMS)

Mobile Workstations (MWS)

GIS/Mapping Systems

Global Positioning System (GPS) Unit Tracking

GPS Dispatch Recommendations

Interfaces with other services, principally with EMS services

Move up algorithms

Dispatch, Command and Tactical channels/talk groups

Combined Events channels/talk groups

Each of these has operated to increase the speed and accuracy of dispatch and the subsequent

response to the scene by fire fighters. Some of the improvements have also improved

interoperability with other fire departments as well with other service providers, in particular with

EMS.

5.1.1 Computer Aided Dispatch (CAD)

Implementation of CAD systems was probably the single biggest game changer in fire dispatch.

CAD systems serve to match a valid location with an incident type to instantly produce a

recommendation to a dispatcher of the most appropriate units to respond.

The first fire CAD system in BC may have been the one implemented for Vancouver Fire in the

spring of 1988. This was an early generation CAD and was a single jurisdiction system; it did

not support mapping but it did support mobile data terminals (MDT).

CAD systems have changed significantly from the time when they were highly customized

mainframe systems and very expensive. In the past 10 years the cost of CAD systems has

plummeted at the same time they have become orders of magnitude more efficient. Modern

CAD systems are usually Windows-based; have integrated mapping and support interoperability

with other emergency service providers. Almost without exception they also support other

peripherals such as mobile workstations and rip & run sheets for responders.


5.1.2 Record Management Systems (RMS)

The development and implementation of RMS lagged CAD by about 10 years. Early record

management systems were not complex, often times containing very limited functionality with

perhaps incidents, personnel and properties.

Contemporary RMS systems have multiple modules including elements such as asset

management, preventive maintenance, training, certification, inspections, rostering, station

journals, pre-plans, etc. The significant feature of these record systems is that they are ‗one-

write‘ systems which mean that the database contains all of the module elements. For this

reason all records are linked which reduces effort and eliminates duplication and the inevitable

data divergence found with standalone record systems.

5.1.3 Mobile Workstations (MWS)

Mobile workstations may once have seemed a frivolous addition to a fire department, but once

they were adopted, have become a basic requirement. The earliest workstations in fire

apparatus were MDT‘s; they were ‗dumb‘ terminals and all information displayed was

transmitted to and from the MDT via a wireless link. For this reason, the amount of data

displayed was very limited as the cost of wireless data coupled with the very slow baud rates in

those systems made it essentially impossible to transmit map or other graphical data.

Current systems use mobile PC‘s with large hard drives and connected with CAD systems via

very high speed commercial data networks at 3G speeds. This allows for a great deal of

information to be transmitted to and from the mobile workstation including but not limited to

mapping information, pre-plans, hazard warnings, etc. The mobile workstation units also support

a dispatch ticket and map with recommended routing as well as digital status keeping which

increases the ability to accurately record key time stamps, and to reduce radio traffic.

5.1.4 GIS/Mapping Systems

The availability and implementation of mapping systems with CAD has allowed for a major

increase in speed and accuracy, particularly with multi-jurisdictional dispatch centres. In these

CAD systems, a valid location results in a near-instant map display centred on the call location.

This is especially useful for service providers covering large distances where every dispatcher

may not be completely aware of every geographical feature. This includes the boundaries

between dispatched and non-dispatched jurisdictions allowing dispatchers to make better

decisions.

Mapping integrated with CAD, has also allowed in most cases for a much better location ‗hit‘ for

cell phones, and most recently with wireless phase two 9-1-1. Contemporary mapping tied to

CAD also should allow for the input of x/y coordinates in the case of emergencies not on a

standard road network, allowing responses to these incidents to be expedited.

5.1.5 Global Positioning System (GPS) Unit Tracking

The introduction of GPS unit tracking is yet a more recent innovation and has been introduced

to fire CAD systems in BC within the past 5-7 years. For CAD systems without GPS tracking the

Regional District of Okanagan-Similkameen Emergency 9-1-1 Dispatch Service Delivery Review of 62 dispatcher only knows what is termed the unit‘s ‗last known location‘. This may be the fire hall,

or the location of an incident to which the unit has been assigned.

What is much more ambiguous is the case of units that are moving either to or from a fire hall,

an emergency incident, a drill ground, a fueling station, the mechanical maintenance division or

while on inspections. For all of these cases the dispatchers has no reasonably accurate way of

knowing the unit‘s location and when an emergency call is received the dispatcher must call

multiple units by radio trying to determine which is the closest.

All of this takes time and increases the response time to the public. With CAD systems which

have GPS, the dispatcher knows at a glance where the unit is located and can immediately

dispatch them based on this information.

5.1.6 GPS Dispatch Recommendations

GPS dispatch recommendations are a further variation of the case above where the degree of

automation is increased and the CAD system uses the GPS locations for multiple units to make

best-case judgments to present the dispatcher with a complete recommendation of all of the

closest units based on their real time locations.

Development of these systems is somewhat complex, but when completed results in the very

quickest possible response of the right pieces of apparatus to any emergency. What this also

allows is for mutual aid units to be deployed across boundaries to ensure a timely and sufficient

response to any particular call, increasing safety for the resident as well as the fire fighter.

The final iteration of this is expected in the near future and will provide GPS recommendations

for fire units and EMS to be weighted by location to ensure that the closest capable unit

responds. This is likely to further improve service to the patient as well as eliminating needless

responses by both services to calls that are a long distance from their current locations.

5.1.7 Interfaces with other services, principally with EMS services

Within the past 3 years it has been possible to develop and implement electronic interfaces

between fire and EMS CAD systems. These interfaces have eliminated the former ‗latency‘

between EMS and fire dispatch to calls.

The interface operates to create a call in the fire CAD system at the same time that the call is

created in the EMS CAD. This completely eliminates delay in the response by the fire

department to first medical responder (FMR) calls and also provides them with a much higher

degree of information regarding the call determinants from the EMS CAD.

These interfaces also allow for a further refinement in that the fire CAD which is receiving the

incident from the EMS CAD can be configured to create, or not create a fire/FMR response.

This is especially important for fire dispatch centres, whose dispatch clients may range from

career, to composite to fully volunteer fire departments. The latter group may not wish to

respond to the full range of FMR incidents, preferring to attend only Delta or Echo calls on an

as-required basis.

Regional District of Okanagan-Similkameen Emergency 9-1-1 Dispatch Service Delivery Review of 62 The previous manual notification of fire by EMS made this more difficult as the fire dispatcher

had to remember a large number of rules for each client department and with more than 1,000

Medical Priority Dispatch System (MPDS) codes this was a challenge and sometimes led to

incorrect responses. In most cases today‘s CAD systems are capable of managing the rules

and only creating responses for those fire departments that wish to attend, reducing

unnecessary or unwanted callouts.

5.1.8 Move up algorithms

Most fire dispatch facilities are managing a larger number of calls than previously. This is

because in many cases fire departments respond to an increased number of incident types and

for a number of reasons, the overall call volume has increased.

In addition there is a trend toward consolidation of fire dispatch facilities with the result that a fire

dispatcher may be managing multiple departments. Often these departments have agreed

mutual aid or automatic aid agreements that allow for cross border responses.

For each of these examples one or more incidents may lead to a shortage of fire apparatus in

any given area that requires correction by moving units from one area to another to balance the

remaining available crews. The rules for these are complex and often change by the day of the

week and the time of day.

For many years dispatchers were required to grasp a complex set of ‗analog‘ rules for move-ups

of apparatus based on these various criteria and often the move-ups were slow to occur. This

process has now been largely automated by the implementation of automated move-up

algorithms.

These move-up systems have an interface to the CAD system and ‗listen‘ to all the apparatus

moves, and when pre-built triggers are reached, the system notifies the dispatcher with a pop-

up message to the effect that they now have an unacceptable shortage of units in one area, and

that one or more moves will resolve this.

These rules-based systems are becoming well established within contemporary dispatch

systems and provide for a much more immediate relocation process to better manage risk. The

rules that drive the move-up algorithms are developed by the fire departments to meet their

local needs and they are regularly reviewed and can be adjusted as required.

5.1.9 Dispatch, Command and Tactical channels/talk groups

The availability of multiple channels or talk groups has allowed for a much more disciplined use

of radio in support of the incident management system adopted by the North American fire

service. This is presented in greater detail in a following section which discusses the external

standard (NFPA 1561) that drives this operational model.

It is important to recognize the need to separate dispatch, command and tactical radio occurred

because of a number of fires with multiple-fire fighter deaths that were largely attributed to

failures in the communications system.

Regional District of Okanagan-Similkameen Emergency 9-1-1 Dispatch Service Delivery Review of 62 As a result of these fires, in particular the fire in 1988 in Hackensack New Jersey, new

emergency scene management models were developed that are very disciplined and

segmented, all of which requires multiple radio channels/talk groups. Many fire radio systems in

BC have been upgraded to allow for this separation of voice radio at emergency scenes; the

corollary is that dispatchers are now required to be fully familiar with the emergency scene

management system utilized by their fire department.

5.1.10 Combined Events channels/talk groups

The final major change in technology relates to the implementation of what are called combined

events channels or talk groups. This is quite recent and was first piloted by the Richmond

Fire/Rescue Department and the BC Ambulance Service (BCAS) in 2007/2008.

The combined events concept is that emergency responders from different classes of service—

in this case fire and EMS—are provided with a common talk group at the time they are

dispatched. As soon as they go on route, they switch to this channel, identify themselves and

jointly manage their response to the incident. The result is that neither service is surprised by

the response of the other, and they can manage their arrival, entrance to the building and the

quickest access to the patient. The combined talk group also reduces risk to the emergency

responders by ensuring they have the most complete knowledge of the location of the other

unit(s).

5.2 Standards

The standards of service for fire dispatch have been developed and have evolved in a series of

documents provided by the National Fire Protection Association (NFPA)14. The NFPA describes

its standards development process as non-political and requiring consensus for the approval

process. The standards are regularly reviewed, usually on a 5 year cycle.

The RDOS Request for Proposal noted that industry standards and best practices were to be

the basis for evaluation and for fire dispatch they are:

Standard 1061: Professional Qualifications for Public Safety Telecommunicator

Standard 1221: Installation, Maintenance, and Use of Emergency Services

Communications Systems

Standard 1561: Emergency Services Incident Management System

5.2.1 Standard 1061

Standard 1061 was issued December 1, 2006 with an effective date of December 20. This

standard superseded the 2002 and the original 1996 standard. The standard adopts the term

‗Telecommunicator‘ to describe fire service call takers and dispatchers and defines them as:

14

www.nfpa.org

http://www.nfpa.org/


An individual whose primary responsibility is to receive, process, or disseminate

information of a public safety nature via telecommunication devices.15

The Telecommunicator as noted is someone who receives, processes and disseminates

information, often performing each of the tasks in a near simultaneous mode. They have

provided a model for the call flow at such times as shown in Figure 9.

Figure 9: NFPA 1061 Communications Model16

The standard identifies three levels of Telecommunicator. The definitions of these are complex

and progressive but for ease of understanding can generally be considered as the first being an

entry level or call taker position, the second as a dispatcher with the third being a supervisor in a

command post scenario. The Telecommunicator 2 is required to meet the requirements for

Telecommunicator 1 with additional defined duties. Likewise the Telecommunicator 3 is required

to meet the accumulated duties of the first two as well as additional duties.

Each of the three positions is described with a separate chapter in the standard that identifies

duties, required skills and knowledge and descriptions of the duties. At a minimum the

personnel employed by the Penticton Fire Department would need to function at the level of a

Telecommunicator 2. The following generally describes their duties:

15

NFPA 1016—2007, page 6.

16 NFPA 1061—2007, page 10.


Telecommunicator 117:

Establish communications with the requester, using a communication device, a means of

collecting information, operating procedures, and a work station, so that a

communication link with the requester is achieved.

Extract pertinent information, given a request for public safety service, so that accurate

information regarding the request is obtained.

Establish nonverbal communications, given a request for public safety service through a

communications device, so that accurate information regarding the request is obtained.

Prepare data for dispatch or referral by evaluating, categorizing, formatting, and

documenting the incident per established policies, procedures, or protocols.

Generate records of public safety services requests, given agency policies, procedures,

guidelines, and resources, so that the record is correct, complete, and concise.

Analyze information provided by a service requester, given the policies, procedures, and

guidelines of the agency, so that the request is accurately categorized and prioritized.

Assess incomplete, conflicting, or inconclusive information or data, given agency

policies, procedures, guidelines, protocols, and resources, so that an allocation of

resources is determined.

Evaluate a categorized and prioritized service request, given available resources, so that

an allocation of resources is determined.

Initiate the timely addition, deletion, and correction of data, given agency policies,

procedures, guidelines, and protocols, so that documents, files, databases, maps, and

resource lists are accurately maintained.

Convey instructions, information, and directions to the service requester, given agency

policies, procedures, guidelines, and protocols, so that information appropriate to the

incident is consistent with agency policies, procedures, guidelines, and protocols, and

results in resolution, referral, or response.

Relay information to other telecommunications personnel or entities, given processed

data, so that accurate information regarding the request for service is provided.

Respond to requests for information, given an inquiry from the public or the media, so

that the policies, procedures, and guidelines are followed.

Telecommunicator 218:

Monitor public safety radio systems, given equipment used by the agency, so that

information requiring action by the telecommunicator is identified.

Monitor electronic data systems, given equipment used by the agency, so that

information requiring action by the telecommunicator is identified.

Monitor alarm systems, given equipment used by the agency, so that information

requiring action by the telecommunicator is identified.

17

Ibid, pages 6 and 7. 18

Ibid, page 7 and 8.


Evaluate incident information, given a validated request for service, available resources,

and agency policies, procedures, guidelines, and protocols, so that an appropriate

response is determined and a resource allocation prepared.

Maintain location and status of units, given the resources available to the agency and

utilizing the systems and equipment in the communications center, so that the current

availability, status, and safety of all deployable resources is known.

Analyze alarm information, given signals, messages, codes, and data, so that the

information is properly interpreted in preparation for the allocation of resources.

Assess the priority of a service request, given information provided by other

telecommunicators or field units and the agency policies, procedures, guidelines, and

protocols, so that the priority of the request is defined.

Formulate a response, using the validated and prioritized request for service and the

availability of deployable resources, so that the most appropriate response is selected

and the safety of response units is considered.

Initiate deployment of response units, using the validated and prioritized request for

service, given the agencies’ telecommunications equipment, so that service request

information is conveyed to units designated for response.

Activate the community emergency action plan, given data indicating the likelihood or

onset of a critical situation beyond the normal scope of operations, so that the

implementation is timely and in accordance with agency policies, procedures, guidelines,

and protocols.

Activate communication center emergency action plan, given internal emergency and

agency policies, procedures, guidelines, and protocols, so that the integrity of the

communications system is maintained and the safety of center personnel is achieved.

5.2.2 Standard 1221

Standard 1221 was most recently issued May 26, 2009 with an effective date of June 15, 2009

at which point it replaced the previous version. The history of the standard is interesting as it

dates from 1898, and the 2010 standard is the 31st iteration. Over this period of time the

standard has evolved and in the past number of years has begun to define call management

standards.

The 1988 version of the standard is the last one issued prior to the introduction of call

management objectives. To this time the standard only spoke of call volume and staffing in

terms of a ratio. Specifically it noted at section 2-1.8:

(b) For jurisdictions receiving 600 to 2,500 alarms per year, at least one operator

shall be on duty in the Communication Center.


(c) For jurisdictions receiving more than 2,500 to 10,000 alarms per year, at least

two operators shall be on duty in the Communication Center.19

The significant change occurred in the next edition of the standard, issued in 1994. This

standard introduced the concept of performance objectives and notes the following at section

2-1.8:

The number of operators shall be as follows:

(a) For jurisdictions receiving 600 or more alarms per year, at least one operator

shall be on duty in the communication center. The number of operators shall be

sufficient to affect the prompt receipt and processing of and other request for fire

department services as follows:

(1) Ninety-five percent of alarms shall be answered within 30 seconds, and in no

case shall the initial operator's response to an alarm exceed 60 seconds.

(2) The dispatch of the appropriate fire services shall be made within 60 seconds

after the completed receipt of an emergency alarm.20

[Emphasis added]

The concepts in sections (1) and (2) have been retained in principle in all subsequent editions

defining the time to answer the phone and then to complete the dispatch process.

The most recent standard as noted is dated as 2010 and has the following response time

objectives in section 7.4:

Ninety-five percent of alarms received on emergency lines shall be answered

within 15 seconds, and 99 percent of alarms shall be answered within 40

seconds.

Ninety percent of emergency alarm processing shall be completed within 60

seconds, and 99 percent of alarm processing shall be completed within 90

seconds.21

As noted, the principle of answering and dispatching has been retained however the time

frames have been shortened in the case of answering the phone call from 30 seconds to 15

seconds; dispatching is still at 60 seconds. These standards are not required to be for all calls

handled, but are to be managed 95% of the time for call answering, and 90% of the time for

dispatching and calculated on a monthly basis.

19

NFPA 1221 Standard—1988, page 13.

20 NFPA 1221 Standard—1994, page 10.

21 NFPA 1221 Standard—2010, page 15.

Regional District of Okanagan-Similkameen Emergency 9-1-1 Dispatch Service Delivery Review of 62 The more recent standards since 1988 have also added a defined response time objective for

9-1-1 call handling as follows:

Where alarms are transferred from the primary public safety answering point

(PSAP) to a secondary answering point, the transfer procedure shall not exceed

30 seconds for 95 percent of all alarms processed.22

These call handling standards are part of an overall response model that has been adopted by

the fire service in North America. The objective is to parse all activities from the time a 9-1-1 call

is placed until arrival of apparatus (the complete client response envelope) and can be

displayed in the following diagram.

911

Agent

Incident

Occurs

Indeterminate

Time

Incident Created in

CAD; Tone &

Voice Dispatch

Call

Answered

Public Switched

Telephone Network

Fire Fighters

‗Turnout‘ From

Fire Hall

Arrive On-Scene

Commence

Actions

< 30 Secs

95% of

the time

< 75 Seconds

90% of

the time

for pickup

+ dispatching

Turnout time

60 Seconds

for EMS;

80 Seconds

for Fires

90% of the time

Travel Time

Variable; Function

Of Distance

and Speed

Goal is to complete all tasks

in the shortest possible time but in

any case, less than 8 minutes

Figure 10: NFPA Model for management of 9-1-1 and fire dispatch

The first half of the model identifies 9-1-1 and dispatch; the second part of the model identifies

turnout and travel time. The latter two are taken from NFPA standard 1710 and the two

standards are often viewed together in the sense of providing a total response objective.

The detailed call model from the 1221 standard is shown in Figure 6 and this illustrates four key

processes:

1. The time to place a call to 9-1-1 and to have it successfully ‗down-streamed‘ to the fire

department (30 seconds)

2. The time to pick up, or answer the call reporting an emergency (15 seconds). 22

NFPA 1221-2010, section 7.4.4 page 15.


3. The time to interrogate the caller, determine the emergency, create a ‗dispatchable‘

event in the CAD system and alert crews (60 seconds).

4. The time for responders to ‗turnout‘ from the fire hall and begin their response to the

scene (60 seconds for EMS calls, 80 seconds for fires) F

23F.

Figure 11: NFPA Call Management Model

In the diagram above, there are two timelines. The upper line describes the steps which occur

from the moment at which the emergency event occurs, until the units respond to the incident.

The lower line identifies the elapsed time at which these are expected to occur.

The overall process described above, with response time objectives can be described in the

following manner:

Emergency Event.

o An emergency occurs (this can be either a fire or medical incidentF

24F).

o Until emergency services are notified in the following steps, this emergency has

not yet been noticed or reported.

Detection.

o The emergency event has been ‗detected‘ leading to notification of emergency

services.

23

This standard to turn out from the fire hall applies only to career units, i.e., ones that have their staffing complement ‗on duty‘ at the time call is received.

24 This model also applies to Police and EMS events however there are no specific defined call

management metrics for these.


Alarm Initiated.

o At this point a call to an emergency service is placed by dialling 9-1-1, or another

10 digit number and is transferred to the PSAPF

25F by the Public Switched

Telephone Network (PSTN).

Transmission.

o In this step the PSTN makes the routing decisions and ‗presents‘ the emergency

call to the 9-1-1 primary call agent(s) at the PSAP.

o The time for this to occur is indeterminate, though it may be measured by the

telephone company; to this point emergency services have yet to be notified of

the emergency.

Alarm Sounds at PSAP.

o This is the point at which the emergency call first begins to ring at the 9-1-1 call

centre.

Alarm Transferred to CC.F

26

o The 9-1-1 agent at the PSAP queries the caller to determine which emergency

service they require and then transfers them to the call taker for that class of

service.

Alarm Sounds at CC.

o This is the point at which the emergency call first begins to ring at the

communications centre.

o This is normally the first point at which the communications centre has the ability

to begin measuring the elapsed times for call management.

Answered.

o This is the time frame which measures the interval between when the emergency

call first begins ringing, until the call taker has begun speaking with the caller

reporting the emergency.

o The expectation is that all calls will be ‗answered‘ within 15 second 95% of the

time; and within 40 seconds 99% of the time.

o This measurement equates to the time taken until the phone is ‗picked up‘ by the

fire call taker.

Notification of TC.F

27

o This is the point at which the call taker begins taking information from the caller

reporting the emergency and this period of time ends when the dispatcher has

completed the dispatching process.

o The expectation is that all calls will be processed to the point at which the call

has been dispatched, within 60 seconds 90% of the time and within 90 seconds

99% of the time.

25

Public Safety Answering Point, another term for a 9-1-1 call centre.

26 Communications Centre.

27 In this document TC stands for Telecommunicator; in this context it equates to the fire call

taker/dispatcher employed by Penticton Fire.


o This measurement equates to the total time taken until fire crews have been

alerted and the information transferred to them.

Alarms Retransmitted to ERF‘sF

28F and Response Units.

o This marks the completion of the dispatch process and the commencement of

the ‗turnout phase‘ for the fire service. This is the interval between when

dispatching has been completed and when the Fire/EMS service leaves the fire

hall.

o The expectation is that turnout from the fire hall will occur within 60 seconds for

EMS calls and within 80 seconds for fire calls.29

Response Units Respond

o This marks the completion of the turnout phase, and the commencement of the

travel time which is completed when the unit(s) arrive at scene.

In summary, the expectation is that all emergency calls for service will be answered, the caller

will be interrogated, the ‗call‘ will be created on paper or in a computer aided dispatch system,

and the tones and information will be sent to the responding fire fighters within 60 seconds, 90%

of the time.

The time for this measurement begins when the phone first starts to ring in the fire dispatch

office, and lasts until the response information has been gathered and transferred to the

emergency responders. Where an agency uses a CAD system these times are normally

recorded as time stamps and thus can provide the basis for analysis.

The reason for the focus on the time required to create a call and dispatch it, is well founded in

the notion that emergency calls being reported to the Fire and EMS services are serious when

they occur and have the capacity to significantly deteriorate in a very short space of time. This in

turn requires that the initial phases—9-1-1 call taking, call assessment and dispatch—occur in

the shortest possible time to ensure the earliest possible intervention by emergency services

personnel.

A primary mandate of any fire department is to provide for a timely response to fire and medical

emergencies, as well as hazardous materials, technical rescue and other public safety

interventions. In the vast majority of these, crews respond from a fire hall and travel some

distance to the incident. Because these responses must occur within a relatively short time

frame to minimize fire damage and save lives, effective call management is crucial. This is

because emergency call management is the precursor or ‗gating‘ item for Fire and EMS

response to the scene.

The NFPA has developed response time objectives for the North American fire service over

many years and these provide applicable benchmarks. The NFPA standards are international

peer-reviewed standards that address most if not all issues related to the operation of the fire

28

Emergency Response Facility, in this case a Fire Hall.

29 The timeframe for turnout is described in an associated NFPA Standard 1710 which describes the

operation of a Career Fire Department.

Regional District of Okanagan-Similkameen Emergency 9-1-1 Dispatch Service Delivery Review of 62 service. NFPA 171030 is the standard that describes the organization and management of a

career fire department and defines response time objectives for the turnout of crews from the

fire hall, as well as 4 minute and 8 minute expectations for arrival at any emergency incident.

The graph shown in the following figure is taken directly from the NFPA 1710 standard and

demonstrates the expected fire propagation curve, which indicates the point at which a fire is

expected to spread beyond the room of origin. This is normally at or about 8 minutes from the

point of ignition.

Figure 12: Fire Propagation Curve, Modeled from NFPA 1710

From this graph it can be seen that in the range of time from 7 to 9 minutes after ignition, a fire

is expected to rapidly accelerate and the percentage of property destruction (shown on the Y

axis) increases from approximately 30% to a little less than 70%. At some point in this short

period of time, the assumption is that the fire will spread beyond the room of origin.

The significant point is that each of the steps in the fire department‘s response sequence,

including 9-1-1 call processing, call assessment, dispatch, turnout and travel timeU should all

occur prior to the time when a fire will extend beyond the room of origin, thereby creating a

much higher risk to life and property. In this regard, the NFPA notes:

30

Standard for the Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations, and Special Operations to the Public by Career Fire Departments, 2010 edition, effective June 15, 2009.

Regional District of Okanagan-Similkameen Emergency 9-1-1 Dispatch Service Delivery Review of 62 In Figure A.5.2.2.2.1, [Figure 12 above] the line represents a rate of fire

propagation in an unsprinklered room, which combines temperature rise and

time. It roughly corresponds to the percentage of property destruction. At

approximately 10 minutes into the fire sequence, the hypothetical room of origin

flashes over. Extension outside the room begins at this point.

Consequently, given that the progression of a structure fire to the point of

flashover (i.e., the very rapid spreading of the fire due to superheating of room

contents and other combustibles) generally occurs in less than 10 minutes, two

of the most important elements in limiting fire spread are the quick arrival of

sufficient numbers of personnel and equipment to attack and extinguish the fire

as close to the point of its origin as possible31F.

The key element going forward is the requirement to manage all parts of the response equation

as quickly as possible.

As part of the requirement to perform the work as quickly and accurately as possible, the 1221

standard also addresses the call handling model and notes that one of two styles of operation is

possible, the vertical or the horizontal model.

(1) Vertical Center. A single telecommunicator performs both the call-taking and

dispatching functions.

(2) Horizontal Center. Different telecommunicators perform the call-taking and

dispatching functions.

Telecommunicators working in a vertical center are known to engage in

multitasking that can inhibit their ability to perform assigned job functions.32

This initiative to separate call taking from dispatching relates in part at least to the requirement

for dispatch personnel to remain very focused on the emergency scene. The requirement to

focus on the emergency scene is noted in section A.7.3.3., as follows:

The issue of communication capabilities and/or failures is cited by the National

Institute for Occupational Safety and Health (NIOSH) as one of the top five

reasons for fire fighter fatalities. The importance of an assigned

telecommunicator for specific incidents is a critical factor in incident scene safety.

The assignment process should be outlined in specific SOPs within each agency

represented in the communications center. This assignment process is further

assisted when a command/ communications vehicle is being staffed at the

incident scene.33

[Emphasis added]

31

NFPA 1710, 2010 edition, A.5.2.2.2.1.

32 NFPA 1221—2010, page 30.

33 Ibid, page 31.


5.2.3 NFPA Standard 1561

Standard 1561 was issued December 11, 2007 with an effective date of December 31. This

standard was first issued in 1990 and was a companion document to NFPA 1500 which defines

the occupational health and safety program for fire departments. This initial standard was

superseded by revisions in 1995, 2000, 2002 and 2005. The 2008 edition is described as a

complete revision as follows:

The 2008 edition is a complete revision that provides additional emphasis in

areas of incident management to improve the safety, health, and survival of

responders. Language and terminology in the document have been revised to

ensure that users of the document are in compliance with NIMS34. Definitions

have also been revised for standardization between the health and safety

standards the committee is responsible for.

Material throughout the document has been reorganized to present the material

in a manner that makes the standard easier to use and to recognize an incident

management system as an organizational tool that should be compliant with

national standards and directives.

New requirements for a system qualification process and a requirement for

communication capability with responders when they are working in an

Immediately Dangerous to Life and Health area have been added. Substantial

annex material has also been added, including two new annexes. One provides

information on emergency operations centers, and the other provides information

on area command, including organization charts to illustrate both a unified

command organizational structure and an area command organizational

structure.35

[Emphasis added]

The revisions to the standard reflect the change in emphasis over time and a strong

understanding regarding the ways in which communications systems and personnel are

inextricably linked to fire fighter safety.

One of the areas described in NFPA 1561 is the use of radio channels or talk groups for

dispatch, response and emergency scene management. The analysis defines three types or

groupings as Command, Dispatch and Tactical.

34

National Incident Management System documented by the FEMA, the Federal Emergency Management Agency in the U.S.

35 NFPA 1561, 2008 edition, page 1.


Command Radio Channel. A radio channel designated by the emergency services

organization that is provided for communications between the incident commander and

the division/group supervisors or branch directors during an emergency incident.

Dispatch Radio Channel. A radio channel designated by the emergency services

organization that is provided for communications between the communication center and

the incident commander or single resource.

Tactical Radio Channel. A radio channel designated by the emergency services

organization that is provided for communications between resources assigned to an

incident and the incident commander.36

This configuration allows for orderly radio management to support all phases of the response

and can be shown in the following diagram taken from a system with up to 16 talk groups.

Dispatcher:

Monitors

Dispatch &

Command

Talk Groups

Fire

Stations

Dispatch

1

Dispatch

1

TG = Dispatch 1

Available on Radio; on

Inspections; at Drills, etc

TG = Command 2

Units enroute to a call;

I/C to Dispatch

Command

2

Command

2

TG = Tac 3 to 16

Trunked Talk Group

for I/C and Fire

Ground Officers

TG = Fire Ground

Simplex Talk Group

for Fire Ground

Officers & FF‘s

Command

2

Tactical

3 to 16

Fire Ground

Simplex

Fire Ground

Simplex

Dispatch

1

Incident

Command

Fire Ground

Officers

Emergency Scene Operations

Figure 12: Radio Channel Groups as per NFPA 1561

The linkage with the dispatch function is noted at section 6, specifically:

36

Ibid, page 6.


6.4.1 The incident management system shall provide SOP37s for a

telecommunicator to provide support to emergency incident operations.

6.4.2 Telecommunicators shall be trained to function effectively within the

incident management system and shall meet the qualifications required by NFPA

1061, Standard for Professional Qualifications for Public Safety

Telecommunicator.

6.4.3 The incident commander shall be provided with reports of elapsed time-on-

scene at emergency incidents in 10-minute intervals from the ESO38

communications center, until reports are terminated by the incident

commander.39

The standard is more than 50 pages in length and describes emergency incident management

in great detail; one key point is the degree to which the standard relies for its effectives on

communications systems and models as well as for Telecommunicators to be fully trained and

conversant with it.

5.3 RDOS Fire Dispatch

The fire dispatch for the RDOS is located on the second floor of the Penticton Fire Department

Hall #1 at 250 Nanaimo West in Penticton. Figure 13 shows the layout for the dispatch

equipment including telephone, radio, paging, voice logging and the alarm monitoring system.

37

Standard Operating Procedure.

38 Emergency Services Organization.

39 NFPA 1561—2008, page 14.


Figure 13: PFD Dispatch

The facility is managed by one dispatcher per shift and all personnel are members of the

Penticton Fire Department. The dispatch equipment was relocated to its current location and

expanded somewhat in size and is protected from intrusion by a door that is controlled.

The training for dispatch staff was reviewed and there is a syllabus of material to train

dispatchers in addition to standard operating guidelines. As part of the review the dispatch

facility was visited on three different occasions to discuss the operation of the centre with staff

and to observe their ability to quickly and accurately handle calls for service.

The centre appears to be well managed and all dispatch personnel were familiar with dispatch

policies and equipment. Record keeping was managed with written logs as well as various

tracking software. A number of records were requested for review and these were promptly

provided.

5.3.1 Call Taking and Dispatch

The standard for call taking and dispatch was discussed in an earlier section and the standard

which applies is that 90% of emergency calls should be dispatched within 60 seconds. The

dispatchers were observed while they dispatched emergency calls during the various visits to

the centre and based on timing of those few calls that occur in any given period of time they

appear to be promptly handled.

To get a larger perspective on call management throughout a minimum of one year a data set

was requested that included sufficient ‗time stamps‘ to allow for analysis. This would require a

data set that included the time a call was received as well as the time a call was dispatched

however at the present time this information is not complete. Specifically the dispatch time is not

recorded on all calls and so an alternative method was required.

Regional District of Okanagan-Similkameen Emergency 9-1-1 Dispatch Service Delivery Review of 62 Recommendation: It is recommended that the RDOS immediately begin to record the

dispatch time for all fire calls dispatched in addition to the time the call

was received. This data will provide a basis for calculation of call

management times for all dispatched incidents to ensure that the

appropriate standard is being achieved.

Based on a complete list of incidents handled a number of these were chosen at random by the

consultants. The Deputy Chief of the PFD then conducted a detailed review by retrieving the

logging tape of the call and manually determining the dispatch time. This data is shown in Table

8.

90th Percentile 00:01:30

Incident # Time

Received Time Tones

Sent Dispatch Time

1003290951SU 9:50:11 9:50:25 0:00:14

1006066120NA 12:05:00 12:05:23 0:00:23

10030331629OK 16:28:14 16:28:39 0:00:25

1007042255KA 22:54:13 22:54:43 0:00:30

1001201922NA 19:22:09 19:22:39 0:00:30

1001022044OK 20:43:21 20:43:57 0:00:36

1993989714HE 7:14:25 7:15:02 0:00:37

1006140912AM 9:10:45 9:11:23 0:00:38

1006082259PIB 23:02:16 23:02:56 0:00:40

1002021062OL 10:52:49 10:53:31 0:00:42

1005172258OK 22:56:18 22:57:01 0:00:43

1005091458KA 14:58:15 14:58:59 0:00:44

1003131651KA 16:51:28 16:52:12 0:00:44

1004081809OS 18:08:39 18:09:24 0:00:45

1006121933OL 19:33:02 19:33:51 0:00:49

1001190038PIB 0:38:34 0:39:28 0:00:54

1001041253KE 12:53:19 12:54:19 0:01:00

1001101205SU 12:04:50 12:05:54 0:01:04

1006200812KA 8:12:08 8:13:18 0:01:10

1004171710KE 17:08:27 17:09:50 0:01:23

1006232208KE 22:07:40 22:09:12 0:01:32

1001121229OL 12:29:55 12:31:30 0:01:35

1007101356SU 13:55:10 13:57:36 0:02:26

Table 8: RDOS Sample Dispatch Data

This data set represents calls chosen at random and details the actual dispatch time for each.

This ranges from a low of 14 seconds, to a maximum of 2 minutes and 26 seconds40. The ‗test‘

that should be applied is the ability of the dispatch provider to complete the dispatch within 60

40

This call was for a general report of smoke in the area.

Regional District of Okanagan-Similkameen Emergency 9-1-1 Dispatch Service Delivery Review of 62 seconds, 90% of the time and in the case of the data set reviewed the PFD dispatchers

complete the dispatch process within 90 seconds, 90% of the time.

Since 1994 the goal to dispatch fire apparatus has been agreed as being 60 seconds, but it

wasn‘t until 2002 that a performance completion criterion was established as being 95% of all

calls within that timeframe. The 95% time for completion of the dispatch process proved to be

challenging and so in the 2010 edition of the standard this has been relaxed to 90% of the time.

This change over time is shown in Figure 14.

1970 2012

1994

Start of Fire Dispatch

Performance

Measures

2002

Start of 911

Performance

Measures

2002

Change in Call Answer

And Dispatch

Measures

911: No Standard

Transfer to SSAP

30 seconds

or less

Staffing Level Driven by Call Volume

No Work Performance Measures

Call Answer

Within 30

Seconds, 95%

Dispatch

Within 60

Seconds

Dispatch

Within 60

Seconds

95%

Dispatch

Within 60

Seconds

90%

Call Answer

Within 15

Seconds, 95%

NFPA 1221

1970 to 2010

1973 1975 1978 1980 1984 1988 1991

2010

Change in Dispatch

Measure

1999 2007

1997

1221 Revisions

Figure 14: NFPA 1221 Changes over Time

Because performance standards for fire dispatching are relatively new their implementation by

service providers has lagged the adoption of the standard itself. Most if not all fire dispatch

providers have only recently begun to measure their performance and not unlike the situation in

the RDOS have found that when they measured it, that they did not comply.

The authors of this study have worked with a great many fire dispatch providers in Ontario,

Alberta and British Columbia and in general terms, the first time dispatch performance is

measured it is found to be at or near the standard found in the RDOS. Once the initial dispatch

performance measurement has been completed however, most agencies have begun quite

vigorously to formally adopt the new standard and then to implement Quality Assurance (QA)

programs to address any shortcomings.

For the reason that their current performance does not meet the standard and considering that

one or more of them have stated in their contracts that they will meet the NFPA standard, other

Regional District of Okanagan-Similkameen Emergency 9-1-1 Dispatch Service Delivery Review of 62 fire dispatch providers are reluctant to provide this dispatch data where it will be identified in a

study.

In summary, fire dispatch in the RDOS does not currently meet the standard, but it does meet a

reasonable benchmark of other service providers. It is strongly recommended that a complete

set of time stamps relevant to the NFPA standard be recorded for all calls handled and that

these be reviewed on a monthly basis as required. It is further recommended that these call

management statistics become the basis for a Quality Assurance program to ensure that fire

call management occurs in the shortest possible time span and with the highest degree of

accuracy.

Recommendation: It is recommended that the RDOS review its fire dispatch statistics on a

monthly basis to ensure that the performance standards in NFPA 1221

are met. It is further recommended that a Quality Assurance program be

implemented to ensure that fire call management occurs in the shortest

possible time span and with the highest degree of accuracy.

5.3.2 Technology

The various technologies utilized in the dispatch process were reviewed and for the most part

they are adequate but equally, they have various issues that should be addressed. The most

serious of these are the lack of a CAD system and the lack of capacity in the radio system.

CAD

CAD systems were discussed in an earlier section and in fact the RDOS and PFD have a CAD

system but have not yet implemented it. The CAD is still in a development phase but its

operation was reviewed with PFD and it is strongly recommended that it be put into full

operation as soon as training is completed and operational guidelines are developed.

Implementation of a CAD with its integrated mapping system will provide the dispatchers with a

much quicker ability to determine the location of a call for service and to dispatch recommended

units. CAD with mapping also increases their ability to manage incidents across jurisdictions in

particular those requiring mutual aid.

In discussions with the PFD it is estimated that the CAD could be fully implemented within a

number of months and certainly before the end of 2010.

Recommendation: It is recommended that the RDOS ensure the implementation of its fire

CAD system as soon as possible and before the end of 2010.

Radio

The radio system is functional but outdated and has a number of significant deficits. First, it

employs the same channel for paging as for voice which leads to ‗contention‘. What this means

is that while the channel is being used for paging it cannot be used effectively for a voice

message and vice versa and there is often the requirement for both functions to occur

Regional District of Okanagan-Similkameen Emergency 9-1-1 Dispatch Service Delivery Review of 62 simultaneously, especially during active fires and multiple incidents. The resulting delays in the

completion of either function should be immediately addressed.

The second issue is the use of interconnect or dial-up connections for radio. These are used

primarily for the smaller, volunteer fire departments and the biggest concern with these is that

the connection process is slow; as well it limits the dispatcher‘s ability to monitor the radio traffic

at multiple fires as it‘s ‗an either-or proposition‘. This was the single biggest concern of the fire

departments that responded to the dispatch survey.

There are other issues less serious than the first two including a lack of sufficient operational

and tactical channels to manage multiple events. We were also advised anecdotally of coverage

problems.

The recommendation would be to have a complete survey of the radio and paging requirements

for the fire departments to support dispatch and operations. This would be similar to studies

done recently in the CORD as well as the Sunshine Coast Regional District and others.

The review should be conducted by a competent radio engineering firm to ensure that

recommendations for a new radio system meet operational requirements as well those of

Industry Canada. A number of these studies including the CORD and Sunshine Coast review

have been shared with the RDOS for their consideration.

Recommendation: It is recommended that the RDOS retain the services of a competent

telecommunications engineering consultant to conduct a complete review

of the fire radio and paging systems to ensure compliance with current

standards, to address issues of contention between paging and voice and

to reduce the reliance on dial-up connections as a primary radio link.

5.3.3 Business Continuity/Disaster Recovery

The business continuity strategy for the RDOS fire dispatch was discussed and simply put there

isn‘t one that has ever been tested. This is an issue that must be addressed and a relevant

standard for this is the CSA Z160041. Although the need to relocate the dispatch facility may

only arise on rare occasions it must work seamlessly and effectively when required and this can

only be determined by developing a formal backup strategy and testing it regularly.

Recommendation: It is recommended that the RDOS completely revise the business

continuity/disaster recovery model for fire dispatch to ensure that a

suitable backup location is provide with sufficient equipment for all core

functionality and that it is tested regularly.

41

The standard is titled: Emergency Management and Business Continuity Programs, and is published by the Canadian Standards Association; www.csa.ca

http://www.csa.ca/


5.3.4 Survey of Fire Dispatch Clients

The level of service provided was reviewed with the dispatch clients by means of a survey. The

complete survey is shown at Appendix 2 and is based on a standard survey used for a number

of fire dispatch review projects.

The survey is broken into a number of sections and there were a total of 4 surveys returned out

of 19 departments surveyed. Of those that responded they noted the following:

The dispatch information they receive is correct the vast majority of the time;

The dispatchers are helpful and professional;

The radio system (interconnect) requires an upgrade as the dispatchers cannot stay

connect with multiple incidents when these occur; and

The dispatch technology could be improved with regard to determining the correct

location (note that this will be handled much more effectively with the imminent use of

CAD).

5.4 Current Contract and Costs

The issue of costs for the provision of dispatch was reviewed and the existing contract, similar

to the 9-1-1 contract utilizes a somewhat complex assessed value model as a basis for the

calculation of the cost to be paid by the RDOS. That would fairly represent the risk perhaps but

it may not be an accurate estimator of the amount of work and technologies required and thus it

may not be the most effective cost model.

An alternate model would propose that the total cost of providing the dispatch service including

dispatch salaries and technology might be allocated on the basis of call volume and the

technology to support the dispatch links, thereby tracking ‗real‘ costs.

This model is used in other areas and provides an understandable method of calculation. On

this basis it would be expected that the City of Penticton would have more than 50% of the calls

handled and thus would support that percentage of the cost of dispatch. In a similar way the

other regional dispatch clients would be responsible for the percentage of costs directly

attributable to their department(s) based on their call volume + any unique cost for technology

that was uniquely required for them.

For the year 2010, the PFD budget for dispatch (salary and administration costs) was $547,000

and that the RDOS was billed for that same amount42. The RDOS in turn bills back each

participant in the fire dispatch service, including Penticton which is billed for approximately 42%

which equated to $230,000 in 2010. At the same time, the volume of fire calls dispatched for the

RDOS in 2009 was 4,248 of which 2,889 or 68% were for Penticton.

42

Penticton does not bill the RDOS for items such as phone maintenance; in the same way it retains the revenue from alarm monitoring which in the most recent year was approximately $60,000.

Regional District of Okanagan-Similkameen Emergency 9-1-1 Dispatch Service Delivery Review of 62 The billings by Penticton for 2010 increased by approximately $120,000 with the increase being

attributable to a general wage increase plus a one-time classification increase for the dispatch

staff. It is expected that an increase of this magnitude would not occur again and would only

reflect the cost of a general increase in the IAFF collective agreement.

Recommendation: It is recommended that the RDOS and the City of Penticton review the fire

dispatch cost model currently used, to develop an agreed model that

defines the standard of service as well as all costs. The goal would be to

develop a model with clear, unambiguous cost drivers that would

equitably apportion costs and provide for a process of regular review.

5.4.1 Fire Dispatch Options

The cost of fire dispatch has been identified as a concern by the RDOS and one option would

be to obtain a cost proposal from an alternate service provider for the purposes of comparison.

Fire dispatch consolidations continue to occur for various reasons including cost and efficiency

and each of the following has added fire dispatch clients in recent years:

E-Comm, Emergency Communications for Southwest BC;

Fraser Valley Regional District;

Regional District of Fraser-Fort George;

Saanich Fire Department; and

Surrey Fire Services.

The costs for fire dispatch service have changed over time, and based on very recent dispatch

consolidations can range from $52 per call to $115 per call and higher43. These costs are in

addition to the one-time relocation costs which can be considerable as in many cases it requires

a significant capital upgrade of radio and other equipment in addition to training.

Based on this range of dispatch costs, the RDOS might anticipate that its costs for the

approximately 1,350 calls dispatched in the previous year would range from $70,000 to

$155,000 on an annual basis in addition to any one-time transition costs. This amount is lower

than what the RDOS paid in the last budget year. However if costs were allocated by the ratio of

calls dispatched, with the RDOS paying 32% based on call volume, the annual costs would be

approximately $175,000.

The most recent dispatch transition of record involves the fire departments in the Columbia-

Shuswap Regional District. These departments have an annual call volume of approximately

900 calls for service for which they are paying slightly over $50,000 per annum. Based on this

example the ‗cost per call‘ equates to approximately $56 per call, rising to $61 per call at the

conclusion of the contract in 2014. On this basis the 1,359 calls for the RDOS departments

minus Penticton would equate to an annual cost of $76,000 rising to $82,000 by 2014; for all

43

The actual formula that any dispatch provider utilizes is complex but a rule of thumb measurement is to divide the call volume by the annual cost and that is the basis for this example.

Regional District of Okanagan-Similkameen Emergency 9-1-1 Dispatch Service Delivery Review of 62 departments in the RDOS with a total call volume of 4,248 calls, the annual costs would equate

to a range of $238,000 to $257,000 per annum by 2014.

One caution is that while these costs applied at the time the CSRD dispatch transition was

negotiated, it should not be assumed that these necessarily reflect the price quoted for service

today. As discussed above there is a range of issues to be considered including the level of

service, one-time transition costs, etc.

It should be noted as well that the PFD currently provides a ‗value added‘ dispatch service in

that it also answers after hours calls, conducts person checks and monitors alarms for a number

of the RDOS clients. This is somewhat of a premium service and at least one of the current

consolidated dispatch providers does not accept clients that require such services, particularly

after-hours call answer. It should also be noted that the current dispatch clients describe

themselves as pleased with the level of professionalism and service while at the same time

describing concerns with regard to the radio and paging technology.

It should be noted that the contract price for fire dispatch changes and the estimate of costs

referred to above may not be accurate for any subsequent proposal. For the purposes of

comparison the RDOS could consider issuing a Request for Interest (RFI) based on a clear

statement of call volume and requirements including any services over and above the basic

dispatch of units. The responses to such an RFI might provide a reasonable comparison to the

service currently provided by the PFD.

Recommendation: It is recommended that the RDOS consider issuing an RFI for the

provision of fire dispatch services based on a clear description of the level

of service required, to provide a basis of comparison with its current

service.


6. Summary

The review of the RDOS 9-1-1 and fire dispatch shows that for the most part the Kelowna OCC

employs technologies that meet contemporary standards and that their call handling and

business continuity also meets or exceeds expected standards.

The RDOS fire dispatch does not appear44 to meet the NFPA standard of service for

dispatching, but is within the range found in comparable, benchmark departments. Their ability

to meet this standard may become clearer when they begin using a new CAD system before the

end of 2010. There is a concern that the capacity of the radio and paging systems to support

fire dispatch operations has been exceeded and that a high priority should be placed on a

complete radio system review to be conducted by a radio engineering consultant with

experience in this particular matter.

In terms of costs for both 9-1-1 and fire dispatch, these are currently based on assessed value

models that may require review to ensure that the recent increases passed on to the RDOS can

be justified based on the models contained within the Memoranda of Understanding with the

RCMP and CORD as well as the agreement with the City of Penticton. Alternately a new

approach to cost allocation models might be considered based on work in other areas whereby

the total costs for 9-1-1 and/or fire dispatch are allocated based on agreed cost drivers that

reflect accurately the requirements to provide the service.

44

As noted, at present the RDOS dispatch system does not track sufficient ‗time stamps‘ to provide for a calculation of the dispatch success for all calls; the estimate was performed on a random set of incidents that were in turn thoroughly audited.


7. Appendix 1: Terms and Definitions

ADSL Asymmetric Digital Subscriber Line

ALI Automatic Location Identification

ANI Automatic Number Identification

APCO Association of Public Safety Communications Officials

ASP Access Service Provider

BCAS BC Ambulance Service

CAD Computer Aided Dispatch

CIIDS Computerized Integrated Information and Dispatch System

CISC CRTC Interconnection Steering Committee

CLEC Competitive Local Exchange Carrier

CORD Central Okanagan Regional District

CPE Customer Provided Equipment

CRTC Canadian Radio-Television and Telecommunications Commission

CTIA Cellular Telephone Industry Association

CWTA Canadian Wireless Telecommunications Association

DSL Digital Subscriber Line

E9-1-1 Enhanced 9-1-1

ECNS Enhanced Community Notification System

ELIN Emergency Location Identification Number

EMD Emergency Medical Dispatch

EMS Emergency Medical Service

ERA Emergency Response Agency

ERL Emergency Response Location

ERS Emergency Response Service

ESWG Emergency Services Working Group

ESZ Emergency Response Zone

FCC Federal Communications Commission

GIS Geographic Information System

GPS Global Positioning System

ICLU In-Call Location Update

ILEC Incumbent Local Exchange Carrier

IM Instant Messaging

IP Internet Protocol

LDP Location Determination Platform

Regional District of Okanagan-Similkameen Emergency 9-1-1 Dispatch Service Delivery Review of 62 MPDS Medical Priority Dispatch System

MSAG Master Street Address Guide

NENA National Emergency Number Association

NFPA National Fire Protection Association

NG9-1-1 Next Generation 9-1-1

OCC Operations Control Centre

PBX Private Branch Exchange

PFD Penticton Fire Department

PIR PSAP Initiated Request

PSAP Public Safety Answering Point

PSN/PSTN Public Switched Network/Public Switched Telephone Network

RDOS Regional District of Okanagan Similkameen

SMS Short Messaging Service

SSAP Secondary Safety Answering Point

SOP Standard Operating Procedure (or Policy)

SWOT Strengths, Weaknesses, Opportunities, and Threats

TDD/TTY Telecommunications Device for the Deaf

T 9-1-1 Text 9-1-1

UPS Uninterruptable Power Supply

VoIP Voice over Internet Protocol

VON Voice on the Net

VSP VoIP Service Provider

WiFi Wireless Fidelity

WL2 Wireless Phase 2

WSP Wireless Service Provider


8. Appendix 2—Dispatch Survey

RDOS 911 and Fire Dispatch Review

Fire Dispatch Questionnaire

The following questionnaire is designed to provide an opportunity for you, on behalf of your fire

department to comment on the dispatch service you receive. Please provide as much

information as you feel appropriate including what works well, and what you feel might be

improved.

1. Please forward the completed questionnaire, either by email to [email protected]; or by

fax to 1-604-552-8951

2. If you wish to discuss any of these issues further, please either

a. Phone at 1-604-812-8951, or

b. Email your additional comments to [email protected]

Questionnaire

1. Survey completed by:

a. Name:__________________________

b. Fire Department_____________________

c. Do you wish the undersigned to contact you to discuss any aspect of

dispatch:______

2. Please provide your comments regarding your overall impression of your fire dispatch

service

a. What works well in your opinion?

b. What requires improvement?

3. Dispatch Information

a. When you are dispatched to an incident either by page, radio, tone-out or phone call:

i. Is the information provided by the dispatch service complete? If not, can you

provide an example?

mailto:[email protected]

mailto:[email protected]


ii. If not, what is generally missing, and why is this important to you?

iii. Is the dispatch information you receive correct; if not can you provide an

example?

iv. If you could change just one thing to improve the dispatch process, what

would it be?

v. Please provide any further comment regarding the dispatch process.

b. When you are responding to an incident or operating at the scene:

i. Are you satisfied with your ability to contact a dispatcher to receive additional

information, to request additional support, etc? Can you give a representative

example?

ii. Is there a service or support that you would like to receive while on route or at

the scene that you do not currently receive? If so, please provide details.

iii. When you attempt to contact your dispatch, is their response timely? Can you

provide a representative example?

c. Post Incident:

i. Do you receive sufficient incident details to complete your reporting or journal

entries? If not, what additional data should be provided?

d. Service overall:

i. How well does your dispatch provider respond to changes in your department

to update their CAD system, their callout lists, etc? Please provide a

representative example.

ii. Do you receive sufficient updates from your dispatch provider regarding

changes in their system, or other operational or technical issues? Please

provide a representative example.

4. Closing

a. Please provide any additional comments or concerns regarding anything not

specifically mentioned above.

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