Report. Optimum PSAP Reconfiguration Assessment. State of Maine. for. submitted to

Transcription

1 Reprt fr Optimum PSAP Recnfiguratin Assessment submitted t State f Maine January 2010

2 TABLE OF CONTENT 1. EXECUTIVE SUMMARY PROJECT OVERVIEW METHODOLOGY KEY DEFINITIONS DATA COLLECTION DATA LIMITATIONS CONSOLIDATION HISTORY CURRENT CONDITIONS AND KEY ISSUES Separatin f Call Prcessing and Dispatch Functins Transfer f Calls and Absence f Key E9-1-1 Features Ruting f Wireless Calls PSAP Rate Shpping Cst Shifting Lack f Cllabratin Amng State, Cunty and Lcal Agencies OPTIMAL PSAP CONFIGURATION OTHER PSAP CONFIGURATION SUMMARIES PSAP Cnfiguratin and 4-PSAP Cnfiguratins FULL CONSOLIDATION OF PSAP AND DISPATCH FUNCTIONS RECOMMENDATIONS ESCB SCOPE OF AUTHORITY RECOMMENDATIONS ESCB INCENTIVES FOR CONSOLIDATION RECOMMENDATIONS PROJECT OVERVIEW METHODOLOGY DATA COLLECTION ESCB Data Cllectin Survey PSAP Data Cllectin Survey Dispatch-Only Center Survey Letters and s frm Cncerned Stakehlders Stakehlder and Fcus Grup Meetings DATA ANALYSIS DATA LIMITATIONS CURRENT CONDITIONS OVERVIEW EMERGENCY SERVICES COMMUNICATION BUREAU (ESCB) CONSOLIDATION HISTORY CURRENT EMERGENCY COMMUNICATIONS OVERVIEW Separatin f Call Prcessing and Dispatch Functins Transfer f Calls/Absence f Key E9-1-1 Features in Dispatch-Only Sites Ruting f Wireless Calls PSAP Rate Shpping Cst Shifting Cllabratin Amng State, Cunty and Lcal Agencies TECHNICAL OVERVIEW Netwrk Answering Equipment/CPE Service Prvider Capability Master Street Address Guide (MSAG) Database Maintenance L.R. Kimball, January 2010 Page i

3 Autmatic Lcatin Identificatin Database (ALI DB) Prvider Capability Mapping Administrative Netwrk CAD Technical Overview Lgging Recrders Radi SURCHARGE/COSTS CURRENT REVENUES COSTS Eligible Uses fr E9-1-1 Funds ESCB Csts Lcal Csts STAKEHOLDER AND FOCUS GROUP MEETINGS RECONFIGURATION SCENARIOS EXISTING 26-PSAP CONFIGURATION Operatinal Overview Technlgical Overview Csts/Ecnmic Overview Surcharge Impact Plitical Overview Cnfiguratin Psitives and Negatives PSAP Cnfiguratin Summary TO 17-PSAP CONFIGURATION Operatinal Impact Technlgical Impact Csts/Ecnmic Impact Surcharge Impact Cnfiguratin Psitives and Negatives t 17-PSAP Cnfiguratin Summary PSAP CONFIGURATION Operatinal Impact Technlgical Impact Csts/Ecnmic Impact Surcharge Impact Cnfiguratin Psitives and Negatives PSAP Cnfiguratin Summary PSAP CONFIGURATION Operatinal Impact Technlgical Impact Csts/Ecnmic Impact Surcharge Impact Cnfiguratin Psitives and Negatives PSAP Cnfiguratin Summary CONSOLIDATION OF PSAP & DISPATCH FUNCTIONS RECOMMENDATIONS CONFIGURATION RECOMMENDATIONS ESCB SCOPE OF AUTHORITY ESCB INCENTIVES FOR CONSOLIDATION L.R. Kimball, January 2010 Page ii

4 APPENDICES APPENDIX A FOCUS GROUPS PERSPECTIVES, CONCERNS AND ISSUES APPENDIX B CONNECTICUT OFFICE OF STATEWIDE EMERGENCY TELECOMMUNICATIONS AND MASSACHUSETTS STATE DEPARTMENT APPENDIX C GLOSSARY/ACRONYM LIST GLOSSARY/ACRONYM LIST TABLES Table 1: PSAP Survey Cmpletin Table 2: Dispatch-Only Center Survey Cmpletin Table 3: Fcus Grups and Stakehlders Meetings Table 4: Cst Shifting Examples Table 5: PSAP Equipment Summary Table 6: PSAP Lgging Recrders Table 7: Emergency Services Cmmunicatin ESCB FY2010 Operating Budget Table 8: 26-PSAP Summary Table Table 9: Agency Pay Range Summary Table 10: 26-PSAP Cnfiguratin Csts Table 11: 26-PSAP Cnfiguratin Surcharge Analysis Table 12: 15 t 17-PSAP Cnfiguratin Csts Table 13: 15 t 17-PSAP Cnfiguratin Surcharge Analysis Table 14: 15 t 17-PSAP Cnfiguratin Cst Cmparisn Table 15: 4-PSAP Cnfiguratin Trunks & Wrkstatins Table 16: 4-PSAP Cnfiguratin Csts Table 17: 4-PSAP Cnfiguratin Surcharge Analysis Table 18: 4-PSAP Cnfiguratin Cst Cmparisn Table 19: Breakdwn f Trunks and Wrkstatins by PSAP Table 20: 2-PSAP Cnfiguratin Csts Table 21: 2-PSAP Cnfiguratin Surcharge Analysis Table 22: 2-PSAP Cnfiguratin Cst Cmparisn CHART Chart 1: Average Call Time With and Withut Transfers L.R. Kimball, January 2010 Page iii

5 1. EXECUTIVE SUMMARY 1.1 PROJECT OVERVIEW In respnse t P.L Chapter 219, the State f Maine, thrugh the Emergency Services Cmmunicatin Bureau (ESCB), cntracted with L.R. Kimball (Kimball) t prvide a reprt t the Jint Standing Cmmittee n Utilities and Energy. This reprt prvides recmmendatins fr the ptimal public safety answering pint (PSAP) cnfiguratin fr the state. The reprt fllws the directin f the gal statement in Chapter 219, which requires that the cnfiguratin cnsideratins include cst, benefit and verall impact n the state and municipalities. Fllwing the state Legislature s decisin regarding PSAP cnfiguratin, Kimball will als develp a Next Generatin (NG9-1-1) implementatin plan. Therefre, the secnd task is nt addressed in this reprt. The ESCB is part f the Public Utilities Cmmissin (PUC), but has brad authrity t adpt whatever plicies, prcedures, standards and rules it deems necessary t carry ut its related missin. The statute is silent abut enfrcement n everything except telephne cmpany cmpliance and, in that case, the authrity lies with the PUC fllwing the ESCB s petitin. The PUC, thrugh 35 MRSA 1508-A (1) (C), has the authrity t impse sanctins and penalties fr vilatins f any statutes r rules within its dmain (including 9-1-1). Therefre, it is the PUC nt the ESCB that has statute r rule enfrcement authrity. 1.2 METHODOLOGY First, the Kimball team defined ptimal as the number f PSAPs that prvided the best balance f service, efficiency and cst effectiveness (including the ptential impact n the surcharge). This definitin and resulting ptimal cnfiguratin will be used in the next task t develp a future NG9-1-1 implementatin plan and design. 1.3 KEY DEFINITIONS Public Safety Answering Pint (PSAP) Althugh sme variatins exist, strictly speaking, a PSAP is an agency that receives and prcesses calls nly. As the PSAP receives each call, a basic interview is cmpleted and the call is transferred t the apprpriate dispatch site. PSAP Functins PSAP functins include all actins assciated with prcessing calls fr service frm the time a citizen dials until the plice, fire, r emergency medical service (EMS) respnse is sent by a dispatcher, via radi r mbile data device. Dispatch-Only Site A dispatch-nly site is an agency that nly prvides dispatch functins. These sites d nt receive calls directly. All calls are transferred frm ther PSAPs. The majrity f the calls are transferred by a PSAP designated t receive that municipality s calls. L.R. Kimball, January 2010 Page 1

6 Dispatch Functins Dispatch functins include all functins and tasks assciated with actually sending a plice, fire, r EMS respnse t a call and any field persnnel supprt. Dispatching is dne via radi r mbile data device. These functins may begin nce the call taking prcess is cmplete r simultaneusly with the call taking prcess, depending n the PSAP/dispatch cnfiguratin. Fully Cnslidated Cmmunicatins Center Simplistically defined, a fully cnslidated center is the cmbining f call taking and dispatch functins fr multiple municipalities within a specified gegraphical area int a single cmmunicatins center. Examples in Maine include several cunty-based r reginal cmmunicatins centers. Hwever, a variety f fully cnslidated cmmunicatins center mdels exists. Sme are cunty-based and sme are nt. A cmplete list f definitins and acrnyms is lcated in the glssary. 1.4 DATA COLLECTION Data cllectin methds include: ESCB Data Cllectin Survey PSAP Data Cllectin Survey Dispatch-Only Center Survey Letters and s Frm Cncerned Stakehlders Stakehlder and Fcus Grup Meetings 1.5 DATA LIMITATIONS The prject scpe, budget and schedule limited the data that culd be used t make PSAP cnfiguratin recmmendatins. Data limitatins are as fllws: The scpe f this study is limited t a single cmpnent f emergency cmmunicatins: call handling. The reality is that emergency cmmunicatins includes tw intertwined cmpnents. These cmpnents are call taking and dispatching f field plice, fire and EMS respnse. Identifying csts, service issues and ptential cnfiguratins based nly n call handling was difficult and, at times, impssible. Therefre, it shuld be nted that recmmendatins are general in nature and represent Kimball s best estimate at the time f this reprt due t incmplete data frm the dispatch aspect f Maine emergency cmmunicatins. The final r ptimal number f PSAPs may differ nce the variables fr each ptential cnslidatin are determined. Csts evaluated within this reprt pertain nly t thse fr which the ESCB is respnsible. A cst-benefit analysis f the shifting f csts frm the state t the lcal level was nt part f this study. L.R. Kimball, January 2010 Page 2

7 Further reductin in the number f PSAPs wuld require mre calls transfers. These transfers inherently add t respnse times and impact service. The scpe f the prject was t cnduct a high-level assessment rather than t recmmend specific PSAPs fr clsing, if necessary. Withut identifying specific PSAPs in the evaluatin, it was difficult t assess the impact n service resulting frm further cnslidatin. Since PSAP participatin was nt 100 percent, sme data, such as budget csts, staffing levels and salary ranges had t be estimated. These estimates were based n agencies f similar size r knwledge and experience f the prject team. Calculatins that include estimates are nted thrughut the reprt. 1.6 CONSOLIDATION HISTORY In 2003, the Maine State Legislature passed a bill requiring the ESCB t reduce the number f remaining PSAPs frm 48 t between 16 and 24. A multi-year prcess, starting in 2005 and ending in 2008, resulted in 26 PSAPs. Althugh the PSAP cnslidatin prcess was successful in reducing the number f PSAPs, mst PSAPs that clsed cntinue t perate dispatch services. This cnslidatin resulted in the remval f E9-1-1 equipment frm the 22 frmer PSAPs. Currently, the remaining 26 PSAPs in Maine handle calls by varius methds. Sme receive and dispatch calls nly fr their municipality. Sme receive and dispatch fr multiple municipalities, many receive and dispatch fr multiple cmmunities and transfer calls t dispatch-nly lcatins. With the exceptin f a single cunty PSAP, mst wireless calls are ruted t the Department f Public Safety (DPS) PSAPs and then transferred, if apprpriate. The Legislature wishes t determine if further PSAP cnslidatin wuld be beneficial. In pursuit f this gal, it recently enacted 2009 P.L. Chapter 219, which directs the ESCB t prepare and submit a reprt by February 1, 2010, t the Jint Standing Cmmittee n Utilities and Energy. This reprt will make recmmendatins regarding the ptimum cnfiguratin f PSAPs in the state and the benefits and cnsequences f expanding the statewide surcharge t include PSAP csts nt currently cvered by the surcharge. While the mandated 2003 PSAP cnslidatin was well intentined, the result has been an emergency cmmunicatins system (9-1-1 call prcessing and dispatching) that is mre cmplex and fragmented than existed prir t the PSAP reductin. The PSAP reductin created six key issues including: 1. Separatin f call prcessing and dispatch functins 2. Transfer f calls/absence f key E9-1-1 features in dispatch-nly centers 3. Ruting f wireless calls 4. PSAP rate shpping 5. Cst shifting 6. Lack f cllabratin between ESCB, DPS, cunty and lcal agencies L.R. Kimball, January 2010 Page 3

8 1.7 CURRENT CONDITIONS AND KEY ISSUES As discussed in the sectin abve, the mandated 2003 PSAP cnslidatin has identified six key issues in the existing emergency cmmunicatins system. This sectin prvides a brief verview f each issue Separatin f Call Prcessing and Dispatch Functins Call taking and dispatch functins are intertwined and ften perfrmed by the same persn, particularly in small agencies. When these functins are perfrmed in the agency, the call infrmatin is transferred t field persnnel quickly and efficiently. In additin, the benefits f having call takers and dispatchers in the same rm cannt be underestimated. All emplyees have a big picture view f active incidents and can functin effectively as team. When call taking is lcated in a separate facility and/r agency the flw f infrmatin becmes fragmented, as transferring f calls is necessary. This fragmentatin slws dwn the verall respnse time t calls fr service. In additin, separating call taking and dispatch functins int different facilities and/r agencies eliminates the ability t quickly share incident updates amng all staff and prevents effective teamwrk during busy perids Transfer f Calls and Absence f Key E9-1-1 Features When call takers are lcated in a separate facility and/r agency, the call taker must cnduct a preliminary interview t determine the nature and lcatin f the emergency. The call must be transferred t the apprpriate dispatch agency and the dispatcher then must re-interview the caller and dispatch field persnnel. At times, a secnd transfer is needed, including a third interview, t ensure all needed services such as plice, fire and EMS are dispatched. The average length f time added t a call during this prcess is 30 secnds. While 30 secnds seems like a shrt perid, cnsider that 30 secnds may be the difference between a successful incident utcme and increased prperty damage, persnal injury, r death. In shrt, each time a call is transferred time delays ccur. In additin t the time delays are increased pprtunities fr human r technlgical errrs t ccur during each transfer. The industry generally recgnizes that minimizatin f call transfers is critical t an efficient emergency cmmunicatins system. In additin t the inherent time delays already discussed, when receiving transferred calls, dispatchnly sites n lnger have the answering equipment t receive the address and phne number f the caller thrugh autmatic lcatin infrmatin (ALI) and number infrmatin identificatin (ANI). This infrmatin is critical t lcating callers when calls are drpped frm the netwrk, when callers are in mving vehicles and when callers are unable t speak Ruting f Wireless Calls While nt a direct result f the cnslidatin, reslutin f this issue is nt pssible until the final cnfiguratin is determined. Currently, the fur DPS PSAPs answer apprximately 74 percent f the 356,745 wireless calls (55 percent f ttal calls). Mre than ne third f these wireless calls are transferred. Given that DPS is currently receiving mst f the wireless calls, these calls are ften transferred t the apprpriate PSAP r dispatch center. This prcess creates the same call transfer issues addressed in the sectin abve. L.R. Kimball, January 2010 Page 4

9 PSAP Rate Shpping Acrss the State f Maine, several fee structures prvide financial supprt and revenues t the state and lcal gvernment-perated PSAPs. The mst prevalent service fee methd is based n a per capita rate. These rates vary between state and lcal PSAPs and between individual lcal PSAPs. The range and fluctuatin f these rates have created a phenmenn called PSAP rate shpping. PSAP rate shpping is defined as the act f seeking ut less expensive and/r imprved quality f service frm ne PSAP t anther. Mving frm PSAP t PSAP may actually increase the number f call transfers and creates disjinted service prvisin and difficulty fr the ESCB in ensuring that each PSAP has the equipment it needs. When wrklads fluctuate due t rate shpping the ESCB cannt plan prperly as the needs f each PSAP becme a mving target Cst Shifting Althugh the 2003 PSAP cnslidatin was intended t prvide a mre cst effective system statewide, what actually ccurred was state csts paid fr by surcharge funds were lwered fr the state while csts fr many lcal municipalities increased. Nearly all agencies that lst PSAP functins in the cnslidatin still prvide dispatch services. These services require the same persnnel as befre the cnslidatin. Nt nly d these agencies have the same pre-cnslidatin persnnel csts, but nw they must cntract with a PSAP fr services. Fr example, if the Piscataquis Cunty PSAP was clsed annual cst savings fr ESCB wuld be apprximately $41, Hwever, the Cunty wuld then need t cntract with anther PSAP fr services while maintaining its current dispatch services. Using the high-end per-capita rate f $3.54 and based n an estimated ppulatin f 17,235, the Cunty wuld incur a cst f $61, The net result is a cst savings at the state level and an increase in csts at the cunty level. Please nte that Piscataquis Cunty is presented as an example nly as its ppulatin figures were available frm the US Census Bureau and shuld nt be interpreted as a recmmendatin that the PSAP be clsed Lack f Cllabratin Amng State, Cunty and Lcal Agencies Maine currently has an emergency cmmunicatins system (call taking [r PSAP] and dispatch functins) that is fragmented and dysfunctinal. A cmbinatin f multiple factrs has cntributed t the existing cnditins including: Legislative mandates implemented thrugh the ESCB Municipalities retaining dispatch functins Lack f cllabratin amng state, cunty and lcal agencies Failure t fully understand the impact f the cnslidatin prcess Separatin f PSAP and dispatch functins At the rt f these factrs is a failure f all parties t cllabrate n a cmmn gal fr emergency cmmunicatins statewide. L.R. Kimball, January 2010 Page 5

10 Natinally, ttal cllabratin and cperatin between state and lcal gvernments is rare. Each has its wn fcus, gals and bjectives, which ften d nt cincide with ne anther. In Maine, the 2003 mandated PSAP cnslidatin had a lasting negative impact n the relatinship between municipalities, cunties and state agencies. The ESCB, the Legislature (thrugh P.L Chapter 219) and the stakehlder representatives wh participated in the study agree that the ptimal PSAP cnfiguratin fr Maine is ne that balances service levels with csts. Further, mst agree that call taking and dispatch functins fr a regin shuld reside in the same agency and facility. The gal f all invlved in emergency cmmunicatins is the same althugh the apprach f varius agencies differs. In Kimball s pinin, the state, thrugh the ESCB, has a respnsibility fr the fllwing: Prvide Maine citizens with a system that balances cst efficiencies with public safety service. Recgnize that PSAP functins are nly ne cmpnent f the larger emergency cmmunicatin system, including dispatch. Recgnize that decisins regarding the cnfiguratin f emergency cmmunicatins systems must be based n bth call taking and dispatch functins, rather than cst alne. Practively plan fr technlgy that will quickly becme the new standard f care in the industry, Next Generatin (NG9-1-1). PSAPs, dispatch-nly sites and fully cnslidated centers have a respnsibility fr the fllwing: Prvide and dispatch services at the lcal level that are as efficient and cnsistent as pssible. Recgnize that NG9-1-1 will change emergency cmmunicatins service delivery. Implementatin f NG9-1-1 related advancements will require changes in hw PSAP and dispatch services are delivered (lcally vs. reginally). Dispatch-nly sites will nt be able t receive the benefits f new NG9-1-1 technlgy with existing equipment. Understand that there is a cst assciated with perating individual dispatch-nly sites and sme PSAPs. The cst is nt nly financial, it is service related as well. Each time a call must be transferred, service delays ccur. Each agency must cnsider if the need t retain these services lcally is based n this is hw we ve always dne it and is truly in the best interest f the citizens. Kimball is nt suggesting that dispatch-nly sites shuld nt exist, but that an hnest evaluatin f existing cnditins needs t take place. This evaluatin needs t fcus n establishing the mst effective emergency cmmunicatins system fr thse that public safety agencies serve. Cllectively, all invlved in the delivery f and dispatch services must understand that service delivery includes frm the time a citizen dials t the time plice, fire and EMS arrive at the scene f an emergency. Implementatin and management f PSAP and dispatch services requires a partnership and n-ging cllabratin t be effectively delivered. L.R. Kimball, January 2010 Page 6

11 1.8 OPTIMAL PSAP CONFIGURATION A 15 t 17-PSAP cnfiguratin, in Kimball s pinin, represents the best pprtunity fr a migratin t a system that balances csts, service levels and reginal needs. The underlying assumptin fr this recmmendatin is that PSAP and dispatch functins (t the best degree pssible) will be cnslidated int reginal facilities where pssible. In this scenari, each reginal center wuld prvide PSAP and dispatch services t its defined service area. Wireline and wireless calls wuld be ruted directly t the apprpriate reginal center, thus eliminating the majrity f the call transfers. Planning fr NG9-1-1 prvides an excellent pprtunity fr changes t the existing system thrugh the cnslidatin prcess. The fllwing issues need t be specifically addressed: Establishment f perating standards and quality assurance thrugh the ESCB. These perating standards are necessary regardless f whether NG9-1-1 is implemented r nt. Staffing t handle these respnsibilities fr the ESCB wuld need t be added. Cnslidatin studies will need t be cnducted fr each f the regins, nce they are identified. The studies will identify csts, technlgical and peratinal needs fr each f the regins. Existing PSAP/dispatch centers may need t becme new reginal PSAPs that require cllabratin and versight between all the participants. Full cnslidatin studies may nt be needed if several existing PSAPs have mutual aid and interperability arrangements with neighbring centers and they can agree n having their calls sent t ne f the PSAPs. Hwever, temprarily maintaining the current cnfiguratin until a full cnslidatin study, plan and ptential incentives can be develped is strngly recmmended. This advice is rted in the findings that the last rund f PSAP reductins led t the creatin f mre dispatch-nly sites. The resulting split f the emergency cmmunicatins prcess int separate call taking and dispatch functins has caused degradatin and disparity in service acrss the state. The P.L Chapter 219 Gal statement is explicit in the instructins t identify csts and benefits, as well as the impact n state, cunty and lcal municipalities. The bttm line is that further reductin f PSAPs withut attempting t address the separatin f call taking and dispatching will nly serve t further degrade and cause further inequality in service statewide. 1.9 OTHER PSAP CONFIGURATION SUMMARIES PSAP Cnfiguratin Althugh well intentined, the 2003 mandated PSAP cnslidatin has created sme significant issues within the emergency cmmunicatins system statewide. As discussed mre fully in Sectin 3, the lack f a partnership between thse implementing and prviding and dispatch services has fragmented the verall system s that service delays thrugh call transfer, incnsistent plicies frm agency t agency, rate shpping and shifting f csts frm ESCB t cunty and lcal municipalities are prevalent. Fr these reasns, adpting this cnfiguratin lng-term is nt recmmended. L.R. Kimball, January 2010 Page 7

12 and 4-PSAP Cnfiguratins In terms f lwering the ESCB s assciated csts, these tw cnfiguratins wuld be the mst advantageus. With tw r fur PSAPs statewide, equipment and netwrk csts wuld be cnsiderably lwer than the existing cnfiguratin. Hwever, cst is the nly perspective where this cnfiguratin is best. The lwer equipment and netwrk csts wuld nly benefit the state while lcal csts increase and service levels decrease. Virtually all calls, except pssibly thse dispatched by DPS, wuld need t be transferred at least nce. While the delay can be mitigated t sme degree by implementing technlgy such as a statewide cmputer aided dispatch (CAD) system, the lss f instant cmmunicatins between call takers and dispatchers and the ability f all emplyees t see and respnd t the big picture reginally is significant. Preparatin fr a NG9-1-1 system wuld als becme mre difficult t plan as a methd f frwarding new data types t dispatch-nly sites will need t be established. The specific technlgy needed and the assciated csts have yet t be identified FULL CONSOLIDATION OF PSAP AND DISPATCH FUNCTIONS Agencies cnsider cnslidatin fr a number f reasns. Cmmnly cited mtives are nted belw: 1. Service level imprvements are the single mst imprtant reasn t cnsider cnslidatin call takers and dispatchers are truly the first respnder n the scene and can substantially affect the utcme f an incident. The types f service imprvements typically achieved include: Reductin r eliminatin f the transfer f calls between PSAPs and dispatch nly sites imprves respnse times and lwers the ptential fr human r technlgy errrs. Quicker call prcessing and dispatch times, resulting in faster n-scene times fr field persnnel. Sharing f physical space enables cmmunicatins between call takers, law enfrcement, fire and EMS dispatchers t be virtually instantaneus. If large enugh, fully cnslidated cmmunicatins centers can utilize a call taker/dispatcher rganizatinal structure (if large enugh). This structure enables the call takers t fcus slely n the incming call and btain the best infrmatin pssible and the dispatcher s ability t fcus slely n field persnnel imprving field persnnel safety. Standardized training f all cmmunicatins center emplyees increases reginal cnsistency. Single reginal cmmunicatins centers allw resurce management during majr incidents frm a single pint f cntrl rather than fragmenting cntrl amng multiple PSAPs and dispatch-nly sites. Cnslidated envirnments ffer the pprtunity fr smaller participants t benefit frm state-f-the-art technlgy, imprved training and expanded career pprtunities that wuld nt therwise be financially r rganizatinally feasible. 2. Anther primary reasn cited fr cnslidatin is cst savings. While cst savings are pssible, tw pints are critical. L.R. Kimball, January 2010 Page 8

13 First, nt all cnslidatins result in cst savings. A cmmn miscnceptin is that cnslidating will result in significant persnnel reductins thus significant cst savings. Cnslidatins d nt nrmally invlve large staff reductins. The real cst savings cme frm the eliminatin f redundant and expensive technlgy such as CAD, answering equipment, radi cnsles and lgging recrders. The single set f technlgy and systems fund in a cnslidated envirnment reduces csts assciated with prcurement, cnnectivity and maintenance. Secnd, in thse scenaris where cst savings are achievable the actual realizatin f the savings may nt ccur fr several years. The cnslidatin prcess can be expensive and generate substantial ne-time start-up and capital csts fr facility and technlgy needs. These csts delay actual cst savings RECOMMENDATIONS The current 26-PSAP cnfiguratin shuld be maintained temprarily and n additinal PSAP cnslidatins shuld take place fr the duratin f the current FairPint cntract. The ESCB and lcal municipalities shuld wrk cllabratively t identify service level issues and slutins. Cperatin must be present at the state, cunty and lcal levels. Studies shuld be cnducted t assess the feasibility f cnslidating PSAP and dispatch functins as much as pssible. Develp a plan fr a future migratin t apprximately 15 t 17-PSAPs statewide. These PSAPs shuld be reginally lcated. In cnjunctin with the plan fr 15 t 17-PSAPs, the ESCB shuld ffer incentives t lcal municipalities t cnslidate dispatch functins in each reginal PSAP. A full and cmprehensive cnslidatin study shuld be cnducted t include all aspects f emergency cmmunicatins, including dispatch, radi, etc. t develp a lng-term cmprehensive emergency cmmunicatins plans. Each regin may need t cnduct its wn study. PSAP rate shpping shuld be addressed via regulatin thrugh a capped fee structure and restrictins n hw ften service can be shifted amng PSAPs. Wireless calls shuld be ruted directly t the apprpriate PSAP fr prcessing. Ideally, majr reruting f wireless calls shuld take place ne time nly; when a final PSAP cnfiguratin is reached ESCB SCOPE OF AUTHORITY RECOMMENDATIONS Maine s enhanced enabling legislatin, 25 MRSA 2926, sub- 2, gives the ESCB brad respnsibility fr the technical and peratinal aspects f statewide enhanced Its respnsibilities include setting minimum mandatry staff training requirements fr E9-1-1 call answering and dispatching as prvided under Sub- 2-B. The list f respnsibilities des nt specifically include quality versight f system peratins, including quality versight f PSAP cnfrmance with the ESCB s standards. That said, the intrductry language t that sectin is brad and allws fr the inclusin f necessary matters that are nt specifically identified in the statute. L.R. Kimball, January 2010 Page 9

14 In the winter f 2009, a legal questin arse abut whether the PUC had the authrity t refuse a lcal r cunty gvernment request t change PSAPs. The questin was put t the Maine Attrney General Office, which issued an pinin t the effect that the ESCB has the authrity t identify the apprpriate PSAP t serve a given municipality r cunty and the PUC has the authrity t review and apprve r disapprve any request t change that service arrangement. The sectin f the statute that addresses this matter is 25 MRSA 2926 sub- 2-A. While the Attrney General s pinin prvides adequate basis t supprt the PUC s and ESCB s decisins in that regard, the statute shuld be strengthened t make that clearer. Thus, Kimball recmmends that the Legislature amend the existing law fr the imprvement f statewide E Specifically, we make the fllwing tw recmmendatins: 1. Amend 25 MRSA 2926 sub- 1 t make it clear that the Bureau is respnsible nt nly fr the implementatin and management f E-9-1-1, but als fr adpting rules t enhance public safety in Maine thrugh the statewide E9-1-1 system. 2. Amend 2926 sub- 2-A t clarify the ESCB s authrity t make the final determinatin abut what PSAP will serve which cmmunities 1.13 ESCB INCENTIVES FOR CONSOLIDATION RECOMMENDATIONS The ESCB is directed t establish a ttal f between 16 and 24 public service answering pints by 25 MRSA 2926 sub- 2-A. The Bureau shall seek t crdinate any reductin in the number f public service answering pints t achieve this gal with any cntractual bligatins it may have r may enter int that are r culd be affected by that reductin. This wuld appear t leave it t the ESCB t determine hw t g abut accmplishing that gal. The funding f E9-1-1 services is prvided fr in 25 MRSA The ESCB is authrized by Sub- 3 t use the revenues in the E fund t fund staff and t defray csts assciated with the implementatin, peratin and management f E PSAP cnslidatin is clearly an peratinal matter. Therefre, the ESCB apprpriately culd ffer financial incentives t encurage it. The ESCB s annual budget is reviewed by the jint standing cmmittee f the Legislature that has jurisdictin ver utilities and energy. This cmmittee then makes recmmendatins regarding expenditures frm the E9-1-1 fund t the jint standing cmmittee f the Legislature that has jurisdictin ver apprpriatins and financial affairs. The fllwing is recmmended: The ESCB shuld adpt a plicy psitin favring the cnslidatin f PSAP and dispatching functins int reginal centers and then supprt cnslidatin initiatives thrugh its grant prgram. The ESCB shuld budget a certain amunt t be distributed t PSAPs as grants t study, plan and execute cnslidatin. 25 MRSA 2927 Sub- 8 shuld be amended t give the ESCB authrity t adpt rules establishing and gverning a cnslidatin incentive grant prgram. L.R. Kimball, January 2010 Page 10

15 2. PROJECT OVERVIEW The State f Maine cntracted with L.R. Kimball (Kimball) fr tw primary purpses. First, in respnse t P.L Chapter 219, An Act t Prmte Public Safety Answering Pint Efficiency, the ESCB must supply a reprt t the Jint Standing Cmmittee n Utilities and Energy that prvides recmmendatins fr the ptimal public safety answering pint (PSAP) cnfiguratin fr the state. Chapter 219 als cntains a gal statement that explicitly states that csts, benefits, as well as impact n state, cunty and lcal municipalities must be cnsidered when studying PSAP recnfiguratin. This reprt prvides thse recmmendatins. As utlined in the prject scpe f wrk, Kimball has reviewed 2, 4, 16 and 26-PSAP cnfiguratins. The ptin t add ther scenaris f the prject team s chsing was als available, but was nt needed. Recmmending the clsing f specific PSAPs was nt part f the prject team s charge. The fllwing sectins prvide an verview f the methdlgy used t develp the recmmendatins in this reprt. Secnd, in an effrt t practively plan fr a statewide migratin t the next majr evlutin in 9-1-1, the ESCB has requested the develpment f a Next Generatin (NG9-1-1) implementatin plan. The secnd task will begin nce the first task is cmplete and a final decisin n PSAP recnfiguratin is reached. Therefre, addressing the secnd task is nt part f this reprt. 2.1 METHODOLOGY The first task was t define what ptimal PSAP cnfiguratin meant t thse cmmissining this study. In cnjunctin with ESCB staff, the Kimball team defined ptimal as the number f PSAPs that prvided the best balance f service, efficiency and cst effectiveness (including ptential impact n the surcharge). This definitin and resulting ptimal cnfiguratin will als be used in the next task t develp a future NG9-1-1 plan and design. 2.2 DATA COLLECTION Several methds were used t cllect the infrmatin needed t cnduct the study. The fllwing sectins prvide an verview f each f these methds ESCB Data Cllectin Survey The survey was a spreadsheet-based frm distributed t ESCB staff fr cmpletin. The cmpleted survey prvided csts assciated with netwrks and technlgy, call statistics, training infrmatin, surcharge revenue, PSAP facilities verviews and histrical infrmatin regarding previus cnslidatin effrts. L.R. Kimball, January 2010 Page 11

16 PSAP Data Cllectin Survey Staff frm all the 26 PSAPs statewide was asked t cmplete a cmprehensive, spreadsheet-based survey frm. This frm included questins regarding staffing, budget, technlgy, pay scales, peratinal methds and pinins n further cnslidatin. Respnse t the survey was excellent. Twenty-three f 26 PSAPs returned a survey resulting in an 88.46percent participatin rate. Table 1 indicates agency participatin. Table 1: PSAP Survey Cmpletin PSAP Survey Cmpletin Agency Andrscggin Cunty Sheriff s Department Bangr Plice Department Biddefrd Plice Department Brunswick Plice Department Cumberland Cunty Cmmunicatins DPS - Central Maine Reginal Cmmunicatins Center (CMRCC Augusta) DPS - Gray Reginal Cmmunicatins Center DPS - Hultn Reginal Cmmunicatins Center DPS - Orn Reginal Cmmunicatins Center Franklin Cunty Sheriff s Department Hancck Cunty Reginal Cmmunicatins Center Knx Cunty Reginal Cmmunicatins Center Lewistn/Auburn Center Lincln Cunty Center Oxfrd Cunty Reginal Cmmunicatins Center Penbsct Cunty Reginal Cmmunicatins Center Piscataquis Cunty Sheriff s Department Prtland Plice Department Sagadahc Cunty Cmmunicatins Sanfrd Reginal Cmmunicatins Center Scarbrugh Plice Department Smerset Cunty Cmmunicatins Wald Cunty Reginal Cmmunicatins Center Washingtn Cunty Reginal Cmmunicatins Center Westbrk Plice Department Yrk Plice Department Survey Returned Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes N N Yes Yes Yes Yes Yes Yes N Yes L.R. Kimball, January 2010 Page 12

17 Dispatch-Only Center Survey Althugh assessing dispatch-nly centers is nt part f the scpe f this study, Kimball strngly feels that the impact n dispatch functins and service levels must be taken int cnsideratin. Given that there are 60-plus dispatch centers statewide, gathering infrmatin frm all f them was nt pssible within the scpe, budget and time cnstraints f this prject. Therefre, t btain a crss sectin f dispatch-nly centers a survey was distributed t thse dispatch centers that lst r gave up PSAP functinality during the 2005 PSAP reductin initiative. Of the 18 surveys distributed, nine were returned. Table 2 indicates agency participatin in the survey prcess. Table 2: Dispatch-Only Center Survey Cmpletin Dispatch-Only Center Survey Cmpletin Agency Augusta Plice Department Bar Harbr Plice Department Cape Elizabeth Plice Department Falmuth Plice Department Freeprt Plice Department Kennebec Cunty Kennebunk Plice Department Kennebunkprt Plice Department Kittery Plice Department Lisbn Plice Department Old Orchard Beach Sac Plice Department Suth Berwick Plice Department Suth Prtland Plice Department Waterville Plice Department Wells Plice Department Windham Plice Department Yarmuth Plice Department Survey Returned N N N N Yes N Yes Yes N Yes Yes Yes N Yes Yes Yes N N Letters and s frm Cncerned Stakehlders Althugh nt a data cllectin methd initiated by Kimball, 13 letters and fur s frm public safety respnders, municipal decisin makers and citizens were received by the Kimball team. These letters viced strng ppsitin t further PSAP reductins and the ptential clsing f specific PSAPs. Since the scpe f this prject des nt include analysis f and recmmendatins fr the clsing f specific PSAPs, the individual cncerns frm each letter r that culd be generically applied t this study were gathered fr inclusin in this reprt. All crrespndence has been frwarded t ESCB Directr Maria Jacques fr review. L.R. Kimball, January 2010 Page 13

18 Stakehlder and Fcus Grup Meetings In additin t a cst-benefit analysis, determining the ptimal cnfiguratin f PSAPs includes examining the impact f cnslidatin n the stakehlders, including existing PSAPs, field persnnel and dispatch centers. Fr the purpses f cllecting stakehlder input, 13 fcus grup meetings were cnducted. Each meeting was designed t bring tgether similar grups f stakehlders. Three f the meetings were cnducted via cnference call. All thers were cnducted n-site in either Augusta r Old Orchard Beach. Table 3 prvides an verview f the meetings held, dates and times, and number f participants. Table 3: Fcus Grups and Stakehlders Meetings Fcus Grups and Stakehlder Meetings Grup Meeting Date/Time PSAP Data Cllectin Questin and Answer Cnference Call 09/30/09 2:00 PM Maine Emergency Cunty Cmmunicatins Assciatin 10/19/2009 1:30 PM Maine Natinal Emergency Number Assciatin (NENA) 10/20/ :00 AM Maine E9-1-1 Cuncil 10/20/2009 2:30 PM Fire Cmmissiners and Maine Fire Chiefs' Assciatin 10/21/2009 8:30 AM Maine Cunty Cmmissiners 10/21/ :30 AM Maine Emergency Medical Services 10/21/ :00 AM Maine Cunty Emergency Management Directrs 10/28/2009 (Cnference Call) 1:00 PM Maine State Agencies 10/22/2009 8:30 AM # f Participants * 14* DATA ANALYSIS Data analysis included the use f straightfrward mathematical calculatins, staffing frmulas and calculatrs such as Erlang C 1 and Assciatin f Public Safety Cmmunicatins Officials (APCO) RETAINS 2 and a review f existing dcuments and anecdtal infrmatin received frm stakehlders. Erlang C and APCO RETAINS prvide the mst current methdlgy fr estimating staffing fr call centers and public safety dispatching 3. 1 Call center traffic engineering mdel and calculatr. 2 Assciatin f Public-Safety Cmmunicatins Officials (APCO) Respnsive Effrts t Address Integral Needs in Staffing (RETAINS). 3 The 1980 US Department f Justice reprt titled Design and Csting f 911 Systems A Technical Manual Final Reprt was nt used as tw mre current mdels exist (RETAINS and Erlang C). L.R. Kimball, January 2010 Page 14

19 2.4 DATA LIMITATIONS The prject scpe, budget and schedule limited the data that culd be used t make PSAP cnfiguratin recmmendatins. Data limitatins are as fllws: The scpe f this study is limited t a single cmpnent f emergency cmmunicatins: call handling. The reality is that emergency cmmunicatins includes tw intertwined cmpnents. These cmpnents are call taking and dispatching f field plice, fire and EMS respnse. Identifying csts, service issues and ptential cnfiguratins based nly n call handling was difficult and, at times, nt pssible. Therefre, it shuld be nted that recmmendatins are general in nature and represent Kimball s best estimate at the time f this reprt due t incmplete data frm the dispatch aspect f Maine emergency cmmunicatins. There are many variables assciated with any cnslidatin, particularly thse invlving call taking and dispatching. The final r ptimal number f PSAPs may differ nce the variables fr each ptential cnslidatin are determined. Csts evaluated within this reprt pertain nly t thse fr which the ESCB is respnsible. A cst-benefit analysis f the shifting f csts frm the state t the lcal level was nt part f this study. Therefre, while the ESCB may be able t reduce csts thrugh further PSAP cnslidatin, csts at the lcal level increase as agencies must then pay fr PSAP services. The increase in csts results frm the agencies having t maintain the same dispatch staff while paying anther agency t prcess calls fr them. Further reductin in the number f PSAPs wuld require mre transfers f calls. These transfers inherently add t respnse times and impact service. The scpe f the prject was t cnduct a high-level assessment rather than recmmend specific PSAPs fr clsing. Withut identifying specific PSAPs in the evaluatin, it was difficult t assess the impact n service resulting frm further cnslidatin. Since agency participatin was nt 100 percent sme data, such as budget csts, staffing levels and salary ranges, had t be estimated. These estimates were based n agencies f similar size r knwledge and experience f the prject team. Calculatins that include estimates are nted thrughut the reprt. L.R. Kimball, January 2010 Page 15

20 3. CURRENT CONDITIONS OVERVIEW 3.1 EMERGENCY SERVICES COMMUNICATION BUREAU (ESCB) In 1994, the Maine Legislature created the Maine ESCB t bring enhanced (E9-1-1) service t the residents f Maine. In that same year, the Legislature implemented a surcharge n all telephne lines t fund the ESCB s activities and statutry respnsibilities. In December 1998, the ESCB signed a cntract with Bell Atlantic (subsequently Verizn and nw FairPint Cmmunicatins) t prvide the netwrk, database services and the infrastructure fr a statewide E9-1-1 system. E9-1-1 implementatin was essentially cmpleted in the fall f 2001 fr all wireline telephnes. At ne time, the netwrk included 48 primary PSAPs acrss the state s 16 cunties. In 2005, the ESCB began implementatin f wireless By 2006, Wireless Phase II deplyment, as prescribed by Federal Cmmunicatins Cmmissin (FCC) Dcket , was cmpleted by all carriers with service in Maine. In 2007, the E9-1-1 system added vice ver internet prtcl (VIP) calls t its services, meeting the requirements f FCC Dcket Over the years, the ESCB has wrked clsely with the public safety cmmunity develping an effective and efficient system. The ESCB has been instrumental in fllwing effrts: Deplyment f E9-1-1 fr landline, wireless and VIP phnes thrughut the state. After the wireless deplyments, the ESCB prvided mapping at every PSAP, in rder t prvide the lcatin f the caller requesting assistance. During the difficult PSAP recnfiguratin effrt in 2005, the ESCB identified the need t prvide the decmmissined PSAPs (but cntinued t prvide dispatch services) with vital call data frm the initial call. Thrugh a grant prgram, the ESCB paid fr initial cmputer aided dispatch (CAD) interface csts that allwed sme dispatch agencies t receive call data. PSAP staff training and certificatin is prvided by the ESCB. The training lab in Vassalbr allws new call takers t simulate real calls n the actual systems they will be using at their assigned PSAPs. Emergency Medical Dispatch (EMD) was recently added t the call taker training by the ESCB. EMD enables all the call takers t assist distressed callers with basic life supprt instructin prir t the arrival f emergency respnse persnnel. Just recently, the ESCB began implementatin f a basic dispatcher curse that is required f all newly hired emplyees f bth PSAPs and dispatch nly agencies. The quality f the service f the call takers in Maine has always been a high pririty f the ESCB. During the current service cntract, MagIC Enterprise and Data Repsitry were linked t the MagIC Mnitr Call Detail Recrd systems at each PSAP. MagIC Enterprise and Data Repsitry are infrmatin management systems fr multiple call-centers. These tls allw the ESCB t mnitr the entire system. Enterprise gathers system data frm all 26 PSAPs and can prduce reprts that prvide a very cmprehensive lk at the netwrk and PSAP call taking peratins. MagIC Data Repsitry dwnlads MagIC Mnitr detail f each call frm each f the state s PSAPs. The calls are crrelated int a single chrnlgical file that is invaluable fr reviewing specific incidents invlving multiple agencies as well as system wide issues affecting multiple PSAPs. L.R. Kimball, January 2010 Page 16

21 In early 2009, the ESCB versaw the successful transitin f Maine s system frm Verizn t FairPint Cmmunicatins. The ESCB is currently wrking t develp a statewide implementatin plan fr NG9-1-1 fr all PSAPs. The ESCB is part f the PUC, but has brad authrity t adpt whatever plicies, prcedures, standards and rules it deems necessary t carry ut its related missin. The statute is silent abut enfrcement n everything except telephne cmpany cmpliance and, in that case, the authrity lies with the PUC fllwing the ESCB s petitin. The PUC s authrity, derived frm 35 MRSA 1508-A (1) (C), allws it t impse sanctins and penalties fr vilatins f any statutes r rules within its dmain (including 9-1-1), Thus, it is the PUC nt the ESCB that has enfrcement authrity. 3.2 CONSOLIDATION HISTORY In 2003, the Maine State Legislature passed a bill requiring the ESCB t reduce the number f PSAPs frm 48 t between 16 and 24. A multi-year prcess, starting in 2005 and ending in 2008, resulted in 26 remaining PSAPs. Althugh the PSAP cnslidatin prcess was successful in reducing the number f PSAPs, mst PSAPs that clsed cntinue t perate dispatch services. This cnslidatin resulted in the remval f E9-1-1 equipment frm 22 frmer PSAPs. Currently, the remaining 26 PSAPs in Maine handle calls by varius methds. Sme receive and dispatch calls nly fr their municipality. Sme receive and dispatch calls fr multiple municipalities, many receive and dispatch fr multiple cmmunities and transfer calls t dispatch-nly lcatins. With the exceptin f a single cunty PSAP, mst wireless calls are ruted t DPS PSAPs and then, if necessary, transferred. The Legislature wishes t determine if further PSAP cnslidatin wuld be beneficial. In pursuit f this gal, it recently enacted 2009 P.L. Chapter 219, which directs the ESCB t prepare and submit a reprt by February 1, 2010, t the Jint Standing Cmmittee n Utilities and Energy. This reprt will make recmmendatins regarding the ptimum cnfiguratin f PSAPs in the state and the benefits and cnsequences f expanding the statewide surcharge t include PSAP csts nt currently cvered by the surcharge. 3.3 CURRENT EMERGENCY COMMUNICATIONS OVERVIEW The 2003 state mandated PSAP cnslidatin mved the state, intentinally r by default, twards a smewhat unique mdel that separates call taking and dispatch functins int separate agencies and/r facilities. The 2003 cnslidatin resulted in the clsing f 22 PSAPs. Hwever, a large prtin f these PSAPs als prvided dispatch services and remained pen as dispatch-nly sites. These new dispatchnly sites were then required t cntract with a PSAP fr call prcessing, effectively separating call taking and dispatch functins peratinally and fiscally. Further cnslidatin f nly PSAP functins will increase the number f dispatch-nly sites and widen the separatin in functins. L.R. Kimball, January 2010 Page 17

22 Natinally, it is cmmn, but nt recmmended, t find transfers between primary and secndary PSAPs. Hwever, mst ften these transfers are frm a central cmbined PSAP/dispatch t PSAP and/r dispatch centers that have chsen nt t cnslidate. In ther wrds, PSAP and dispatch functins are kept tgether. Althugh there are ther New England states that functin in this manner, this mdel is rare and ppsite f natinal trends, which supprt full cnslidatin f nt nly call taking and dispatch functins, but agencies as well. When a citizen dials frm a wireline phne, the call is autmatically ruted t ne f the current 26 PSAPs. This autmatic ruting distributes calls by PSAP service area. The call is either dispatched by the receiving PSAP r transferred t the apprpriate PSAP r dispatch-nly site. There are currently apprximately 60 dispatch centers statewide. At times, a secnd transfer is necessary t dispatch all required emergency services, plice, fire and EMS, t a single call fr service. Wireless calls are predminantly answered by the fur DPS PSAPs wh prcess and either dispatch r transfer the call t the apprpriate PSAP r dispatch agency. The PSAPs als prvide EMD r pre-arrival medical instructins fr medical calls. Hwever, sme dispatch-nly sites have elected t prvide EMD. In this case, EMD wuld cmmence fllwing the call transfer. While the mandated 2003 PSAP cnslidatin was well intentined, the result has been an emergency cmmunicatins system (9-1-1 call prcessing and dispatching) that is mre cmplex and fragmented than existed prir t the PSAP reductin. The PSAP reductin created six key issues including: 1. Separatin f call prcessing and dispatch functins 2. Transfer f calls/absence f key E9-1-1 features in dispatch-nly sites 3. Ruting f wireless calls 4. PSAP rate shpping 5. Cst Shifting 6. Lack f cllabratin amng ESCB, DPS and lcal agencies Separatin f Call Prcessing and Dispatch Functins When assessing emergency cmmunicatins tw perspectives must be examined; peratinal and fiscal. Frm an peratinal perspective, emergency cmmunicatins has tw cmpnents call taking r PSAPing and dispatch f field persnnel, including maintaining the status f and prviding supprt t plice, fire and EMS field units. Fiscally, types f funding fr and dispatch functins can vary widely. Operatinal Perspective Call taking and dispatch functins are intertwined and ften perfrmed by the same persn, particularly in small agencies. As the call taker interviews the caller, he r she either is entering the infrmatin int the CAD system fr dispatch frm anther emplyee in the same rm r is dispatching the call themselves. In either case, the infrmatin received frm the caller is quickly disseminated t respnding field persnnel. L.R. Kimball, January 2010 Page 18

23 The transfer f infrmatin frm caller t field respnder is quick and efficient. In additin, the benefits f having call takers and dispatchers in the same rm cannt be underestimated. All emplyees have a big picture view f active incidents and can functin effectively as team. When call taking is lcated in a separate facility and/r agency the flw f infrmatin becmes fragmented, as transferring f calls is necessary. This fragmentatin slws dwn the verall respnse time t calls fr service. In additin, separating call taking and dispatch functins int different facilities and/r agencies eliminates the ability t quickly share incident updates amng all staff and prevents effective teamwrk during busy perids. Surveys cmpleted by PSAPs, dispatch-nly sites and fcus grup interviews with varius stakehlders reveal that dispatch functins perfrmed by well-staffed, trained and equipped centers are preferred. Unfrtunately, almst all survey and interview respnses als reveal the disparity f dispatching services acrss the state. The impact f the different methds f call taking and transfer prtcls n the dispatch functins f all respnse agencies is detrimental t the quality f service at the respnse and citizen service levels. Cnslidated PSAP/dispatch centers that dispatch all respnse agencies fr a specific gegraphical area appear t have the mst efficient peratin, as calls are nt typically transferred t/frm these agencies. Fiscal Perspective Methds f funding fr PSAP and dispatch functins vary widely. It is cmmn fr states t prvide funding supprt fr the netwrk and answering equipment that supprt call taking thrugh surcharge funds while dispatch systems, equipment and persnnel are funded at the lcal level. In many states, netwrks and call handling are regulated and/r funded by a state agency similar t the ESCB. Methds f funding and regulatin vary frm state t state. The differences in managing related issues are illustrated in the fllwing examples: Illinis passed the Emergency Telephne Systems Act 4 t manage its system. This act prvides requirements fr systems and assciated issues. It als prvides fr the establishment f individual Emergency Telephne Safety Bards (ETSB). Each ETSB is established at the cunty level and is respnsible fr cllecting surcharge funds and the disbursement f funds accrding t the criteria set frth in the Emergency Telephne Systems Act. Simplistically, this means while the state is respnsible fr setting system requirements, actual management f the systems and surcharge funds are dne at the cunty level in accrdance with state regulatins. Persnnel and ther csts assciated with dispatch are funded thrugh a separate peratinal budget fr each center (PSAP and dispatch cmbined). Althugh cmpletely separate and with distinct respnsibilities, the ETSB crdinatr and the center directr cllabrate n expenditures and systems planning. 4 CAL%20GOVERNMENT&ActName=Emergency%20Telephne%20System%20Act. L.R. Kimball, January 2010 Page 19

24 The State f New Jersey passed the statewide Emergency Telephny System Statute 5 t regulate its system. This statute states that the state will pay fr csts assciated with the netwrk and establishes system/netwrk requirements. Surcharge funds are cllected and managed by the state. Lcal bdies f gvernment apply t the state fr grant mney fr ther systems such CAD r lgging recrders. Bth f these examples apply nly t the system / netwrk and persnnel csts assciated with the supprt f the system / netwrk. Hwever, verwhelming, the majrity f centers in these states include bth PSAP and dispatch functins. These funding examples demnstrate methds that can be used t fund netwrks and equipment at the state level, in cnjunctin with lcal gvernments, withut damaging service levels by splitting functins int different facilities and/r agencies Transfer f Calls/Absence f Key E9-1-1 Features in Dispatch-Only Sites When call takers are lcated in a separate facility and/r agency, the call taker must cnduct a preliminary interview t determine the nature and lcatin f the emergency. The call must then be transferred t the apprpriate dispatch agency. The dispatcher then must re-interview the caller and dispatch field persnnel. At times, a secnd transfer is needed, including a third interview, t ensure all needed services such as plice, fire and EMS are dispatched. The average length f time added t a call during this prcess is 30 secnds. While 30 secnds seems like a shrt perid f time, cnsider that 30 secnds may be the difference between: A persn being rescued frm a huse fire r a fatality A vilent criminal being apprehended r escaping A heart attack victim being resuscitated r dying A drwning victim suffering brain damage r recvering fully A hunting accident victim bleeding t death r recvering In emergencies, secnds cunt. Shuld a call need t be transferred a secnd time, anther 30 secnds is added t the call prcessing time. Further, additinal infrmatin that is received frm ther callers is als delayed when the call is prcessed in this manner. This means that infrmatin critical t respnding agencies safety and ability t effectively manage the emergency is delayed, as the call must be prcessed by the receiving PSAP first. This delay may be the difference between: A plice fficer knwing that a dmestic disturbance nw invlves a gun r the fficer walking in unaware. A fire cmpany knwing exactly where a victim is lcated upn arrival and having t search fr them, thereby delaying rescue and treatment. All emergency respnders being aware f txic chemicals at a scene, taking apprpriate preventative measures r nt knwing and entering the scene and sustaining persnal injury. 5 L.R. Kimball, January 2010 Page 20

25 In shrt, each time a call is transferred time delays ccur. Chart 1 belw prvides a graphic depictin f the transfer delays. Chart 1: Average Call Time With and Withut Transfers In additin t the time delays are the increased pprtunities fr human r technlgical errrs t ccur during each transfer. Althugh time delays and the ptential fr human errr is mitigated by technlgy such as a statewide CAD system, the lss f cmmunicatin between call takers and dispatchers wh are in the same rm is substantial. The industry generally recgnizes that minimizatin f call transfers is critical t an efficient emergency cmmunicatins system. As well as the inherent time delays already discussed, when receiving transferred calls, dispatchnly sites n lnger have the answering equipment t receive ALI and ANI. This infrmatin is critical t lcating callers when calls are drpped frm the netwrk, when callers are in mving vehicles and when callers are unable t speak. The fllwing pints shuld be nted: While the PSAP that riginally receives a call can pass alng lcatin infrmatin verbally t the PSAP r dispatch-nly site receiving the transfer, this verbal exchange adds anther pprtunity fr human errr. L.R. Kimball, January 2010 Page 21

26 PSAPs statewide d nt fllw the same call transfer prcess. Sme PSAPs d nt prvide a verbal handff t the receiving PSAP (blind transfer), while thers annunce their PSAP name and the nature and lcatin f the emergency t the agency receiving the call. A blind transfer may cause further delays because the secnd PSAP may be unable t quickly lcate callers that are lst during the transfer prcess r because the caller can n lnger cmmunicate. Fr wireless calls, the PSAP receiving a call frm a mving vehicle wuld need t stay n the phne with the caller and the receiving dispatch-nly site t update lcatins via the re-bid prcess. One f the fcuses f NG9-1-1 will be t enable callers t transmit a variety f data types t PSAPs including text, phts and vide. While the technlgy t accmplish this has yet t be determined, it is certain that a mechanism will be needed t get these new data frms t dispatchnly sites. This mechanism may take the frm f new equipment r re-installing NG9-1-1 capable answering equipment at dispatch-nly sites s new data types can be exchanged effectively. In the current cnfiguratin, tw ptential slutins culd prvide the critical data t the dispatch-nly site. A statewide CAD system installed at every PSAP and dispatch-nly site wuld prvide timely delivery f critical call data. Custmer premise equipment (CPE) at each dispatch-nly site t receive call data with each transfer. Either f these ptins wuld require imprtant plicy decisins. A determinatin wuld have t be made as t wh wuld pay fr and maintain the equipment and netwrk required fr the system. The ESCB will need t cnsider whether future plicy will include payment fr this type f equipment Ruting f Wireless Calls While nt a direct result f the cnslidatin, reslutin f this issue is nt pssible until the final cnfiguratin is determined. Currently, the fur DPS PSAPs answer apprximately 74 percent f the 356,745 wireless calls (55 percent f ttal calls). Mre than ne third f these wireless calls are transferred. Given that DPS is currently receiving mst f the wireless calls, these calls ften must be transferred t the apprpriate PSAP r dispatch center. This prcess creates the same call transfer issues addressed in the sectin abve. Based n PSAP survey and fcus grup meetings, many f the cunty and municipal PSAPs wuld like t get their wn wireless calls directly frm the system. They cite delayed respnse, blind transfer, misruted calls and drpped calls as n-ging prblems with the current system. Kimball agrees that the wireless calls shuld be ruted t the apprpriate PSAP initially. Hwever, the prcess f re-ruting all wireless calls t the apprpriate PSAP is a time cnsuming, cmplex and expensive ne. Re-ruting cell calls t the clsest available PSAP shuld be a pririty, but nly after the final PSAP cnfiguratin is determined. The ESCB will require additinal staff r sme ther frm f assistance in this effrt. The fllwing steps are required in any wireless deplyment: 1. A letter fficially requesting wireless deplyments t each carrier r wireless service prviders (WSP). 2. WSPs are allwed six mnths t respnd t the request letter. L.R. Kimball, January 2010 Page 22

27 3. The WSPs database prvider submits the carrier s cell twer list t the ESCB fr PSAP deplyment designatins. Cell site lcatin and sectr rientatin 6 and wireless call data has t be reviewed and assigned t the crrect PSAP. 4. The database prvider will prepare the cmpleted cell site ruting designatins table fr lading int the WSP ruting database. 5. Upn cmpletin f the ruting table by the database prvider, a quality assurance (QA) review by the ESCB f the new ruting table will be required. 6. After final apprval f the ruting table, the database prvider will schedule a drive test f every cell site and sectr t verify ruting and data delivery t the designated PSAP. 7. After all sites are successfully tested, the database prviders will lad the ruting table. 8. This prcess will be required fr each wireless service prvider PSAP Rate Shpping Acrss the State f Maine, several fee structures prvide financial supprt and revenues t the state, cunty and lcal gvernment-perated PSAPs. The mst prevalent service fee methd is based n a per capita rate. These rates vary between DPS, cunty and lcal PSAPs and between individual lcal PSAPs. The range and fluctuatin f these rates have created a phenmenn called PSAP rate shpping. This sectin prvides backgrund and identifies the causes f the current issues stemming frm rate variatins. Fr the purpse f this reprt, PSAP rate shpping is defined as the act f seeking ut less expensive and/r imprved quality f service frm ne PSAP t anther. There are key histrical ccurrences that appear t have sparked the trend f shifting service between PSAPs. The initial push came frm the first rund f legislatively mandated PSAP reductins where lw call vlume agencies and municipalities were able t select a PSAP t field and transfer r field and dispatch their emergency calls. While all citizens pay a surcharge n wireline and wireless phnes, the surcharge funds are limited, by law, t funding systems, equipment, netwrk, mapping and EMD. All dispatching functins and systems, as well as ther cmmunicatins systems and equipment, are funded at the lcal level. These functins and systems include lgging recrders, CAD systems, radi cnsles, furniture cnsles, recrds management systems and recrds repsitries r interfaces. The recent surge in PSAP rate shpping fllwed a sharp increase in DPS rates. During fcus grup meetings, several lcal stakehlders stated they were assured DPS rates wuld nt increase. Hwever, there was n supprting dcumentatin fr this pledge lcated during the research fr this study. Research and anecdtal infrmatin did reveal a significant event that affected the rates and the curse f the previus PSAP reductin prcess. This event was the retractive pay due t the DPS emplyees, which included a 15 percent retentin stipend paid t DPS emplyees t encurage cntinued service t DPS. In additin, the Legislature passed a law requiring the PUC t review and apprve the prpsed rates f DPS. 6 Mst cellular twers have three sectrs, which prvide 360º cverage. L.R. Kimball, January 2010 Page 23

28 The retractive pay t DPS emplyees caused a temprary but significant increase in the budget fr DPS. As a state run department, the DPS has little cntrl ver its budget r the curt rdered retractive pay t its emplyees. Their budget has external determinants frm ther state departments, such as the Office f Infrmatin Technlgy (OIT) and thers that prvide services fr a fee. As a whle, DPS and ther state departments are nt able t limit the impact that such events r practices have n their annual peratinal budgets. The shift f services t/frm DPS PSAPs and lcal PSAPs is a direct effrt t secure what is perceived t be the best service at the best price. Frm the fcus grup meetings and survey results, the shpping trend appears t be ccurring mst ften in Kennebec, Arstk and Yrk cunties. Of great influence n the demeanr f frmer-psap representatives are the experiences f thse agencies that felt frced t clse their PSAP, mve their service t a DPS PSAP and nw have chsen (r attempted) t shift services a secnd time. While a small number f vcal agencies are citing service issues fr shpping, lcal gvernment representatives cite csts. A review f the per capita rates and ther fee structures identified in the data cllectin survey, reveal a vast range frm n charge t $3.54 fr PSAP-nly services and up t $16.22 fr full dispatch services fr plice fire and EMS agencies. There are frmula based mill rates and cunty taxes cvering the service fees f a small number f PSAP services. The actual value f these payments is unknwn, but payments are purprted t be less than the current per capita rates. Regardless f which service prvider is less expensive r prvides the best service, it is clear that the significant difference in fees encurages the PSAP rate shpping trend. Kimball recmmends that such shifting be limited t n mre than nce in five years (the length f Fairpint cntract) Cst Shifting Althugh the 2003 PSAP cnslidatin was intended t prvide a mre cst effective system statewide, what actually ccurred was that csts fr which the ESCB is respnsible decreased while csts fr many lcal municipalities increased. Thse agencies that lst PSAP functins in the cnslidatin still prvide dispatch services. These services require the same persnnel as befre the cnslidatin. Nt nly d these agencies have the same pre-cnslidatin persnnel csts, but they als must nw cntract with a PSAP fr services. Table 4 belw illustrates the ptential cst shifting that wuld result shuld further PSAP cnslidatin take place. The table makes the fllwing assumptins: The clsed PSAP wuld still prvide dispatch services. Therefre, n reductin in persnnel wuld ccur t ffset the csts assciated with cntracting fr PSAP services. The municipality wuld cntract with DPS. Given that DPS currently charges the highest percapita rate ($3.54), it was chsen t prvide a wrst-case cst scenari. The table is nt intended t identify r recmmend clsing any f the cunty PSAPs listed belw. These PSAPs were chsen because cunty ppulatin numbers were available fr the sample calculatins and they were used fr illustratin purpses nly. If the State f Maine were t clse any f these eight standalne cunty PSAPs, it wuld save the ESCB between $41,369 and $119,579 per PSAP in yearly equipment csts. Hwever, csts at the lcal level will increase dramatically. L.R. Kimball, January 2010 Page 24

29 Any PSAP that is clsed will have t cntract with ne f the remaining PSAPs in rder t prcess their calls. This wuld cst the cunties between $61,012 and $193,833 a year. If a clsed PSAP wanted t cntinue t prvide EMD instructins, they wuld incur additinal csts because the fund des nt pay fr EMD frm nn-psaps. Table 4: Cst Shifting Examples Cst Shifting Examples Cunty Ppulatin 7 Mnthly ESCB Csts Annual ESCB Csts/Savings Csts Shifted t Municipalities Franklin Cunty 29,467 $8, $ 96, $104, Hancck Cunty 51,791 $7, $ 94, $183, Lincln Cunty 33,616 $9, $112, $119, Oxfrd Cunty 54,755 $9, $119, $193, Piscataquis Cunty 17,235 $3, $ 41, $ 61, Sagadahc Cunty 35,214 $9, $112, $124, Wald Cunty 36,280 $9, $113, $128, Washingtn Cunty 33,941 $6, $ 78, $120, Cllabratin Amng State, Cunty and Lcal Agencies Natinally, ttal cllabratin and cperatin between state, cunty and lcal gvernments is rare. Each has its wn fcus, gals and bjectives, which ften d nt cincide. In Maine, the 2003 mandated PSAP cnslidatin had a lasting negative impact n the relatinship between municipalities, cunties and state agencies. The ESCB, the Legislature (thrugh P.L Chapter 219) and the stakehlder representatives wh participated in the study agree that the ptimal PSAP cnfiguratin fr Maine is ne that balances service levels with csts. Further, mst agree that call taking and dispatch functins fr a regin shuld reside in the same agency and facility. The gal f all invlved in emergency cmmunicatins is the same althugh the apprach f varius agencies differs. Maine currently has an emergency cmmunicatins system that is fragmented and dysfunctinal. Legislative mandates implemented thrugh the ESCB, lcal cntrl f the dispatch prtin, cmbined with a lack f cllabratin between all parties, failure t fully understand the impact f the cnslidatin prcess n emergency cmmunicatins as a whle and the verlap between PSAP and dispatch functins has resulted in the six key issues previusly discussed. One issue cnsistently pinted ut t the Kimball team illustrates the lack f cllabratin. This issue is hw calls are transferred frm PSAP-t-PSAP r PSAP-t-dispatch-nly site. Mst PSAPs stay n the phne when the receiving agency answers and prvide a verbal hand-ff f the call. Other PSAPs, as a matter f plicy, d nt prvide this hand-ff and transfer the call withut a verbal hand-ff (blind transfer). Please nte that ESCB training supprts a verbal hand-ff. While this may seem like a small issue, it is nt. Failure t prvide a verbal hand-ff f calls increases the pprtunity f technlgical r human errr when prcessing these calls. 7 Based n US Census Bureau Estimated 2008 Ppulatin. ge_id=04000us23&-_bx_head_nbr=gct-t1&-ds_name=pep_2008_est&-_lang=en&-frmat=st-2&-_sse=n L.R. Kimball, January 2010 Page 25

30 This plicy difference is an bvius pint f cntentin between agencies and ne that needs t be reslved. Hwever, there des nt appear t be any mechanism in place that allws agencies t wrk ut these differences r any standards t which all PSAPs must adhere. On a side nte, Natinal Emergency Number Assciatin (NENA) Dcument NENA Call Answering Standard/Mdel Recmmendatin, Sectin states: When emergency calls need t be transferred t anther PSAP, the telecmmunicatr will transfer the call withut delay. The telecmmunicatr will advise the caller: Please d nt hang up. I am cnnecting yu with (name f the agency). The telecmmunicatr shuld stay n the line until the cnnectin is cmplete and all pertinent infrmatin has been relayed t the answering PSAP. In Kimball s pinin, the state, thrugh the ESCB, has a respnsibility fr the fllwing: Prvide Maine citizens with a system that balances cst efficiencies with public safety service. Recgnize that PSAP functins are nly ne cmpnent f the larger emergency cmmunicatins system and PSAP cnfiguratin decisins shuld be based n a balancing f service levels and cst, rather than cst r call vlume alne. Wrk cllabratively with the lcal PSAPs and dispatch nly sites n establishing the mst effective emergency cmmunicatins services system statewide. Practively plan fr Next Generatin technlgy which will quickly becme the new standard f care in the industry. PSAPs, dispatch-nly sites and agencies that prvide bth services have a respnsibility fr the fllwing: Prvide and dispatch services at the lcal level that are as efficient and cnsistent as pssible. Wrk cllabratively with ESCB, ther PSAPs and dispatch-nly sites t establish the mst effective emergency cmmunicatins services system statewide. Recgnize that NG9-1-1 will change emergency cmmunicatins service delivery. T implement the advances the public will expect, hw PSAP and dispatch services are delivered (lcally vs. reginally) may have t change. Dispatch-nly sites will nt be able t receive the benefits f new NG9-1-1technlgy with existing equipment. 8 L.R. Kimball, January 2010 Page 26

31 Understand that there is a cst assciated with perating individual dispatch-nly sites and sme PSAPs. The cst is nt nly financial, but service related as well. Each time a call must be transferred, service delays ccur. Each agency must cnsider if the need t retain these services lcally is based n this is hw we ve always dne it and/r the desire t retain lcal cntrl and is truly in the best interest f the citizens. Kimball is nt suggesting that dispatch-nly sites shuld nt exist, but that an hnest evaluatin f existing cnditins needs t take place. This evaluatin needs t fcus n establishing the mst effective emergency cmmunicatins system fr thse that public safety agencies serve. PSAPs and dispatch-nly sites have a respnsibility t keep an pen mind t an analysis f what advantages and disadvantages a cnslidatin effrt might bring. Cllectively, all invlved in the delivery f and dispatch services must understand that service delivery includes frm the time a citizen dials t the time plice, fire and EMS arrive at the scene f an emergency. Implementatin and management f PSAP and dispatch services requires a partnership and n-ging cllabratin t be effectively delivered. Other pints that shuld be nted are: Lcal gvernment representatives expressed the desire fr the ESCB t have mre cntrl in implementing peratinal standards and prviding versight fr quality assurance and training prgrams. Staff frm lcal gvernments ften refer t multiple state agencies cllectively as the state when referring t issues r prblems. When these issues r prblems are examined they can generally be attributed t ne f fur agencies within state gvernment, including ESCB, DPS, legislative staff and executive staff. Attributing issues, cncerns, r cmplements t the crrect agency is imprtant in prblem slving and maintaining a cllabrative wrking relatinship. 3.4 TECHNICAL OVERVIEW In rder t deliver emergency aid t the citizens f Maine a cmprehensive system f varius technlgies has been develped. Each system is vital t the emergency respnse system. These systems include: Netwrk and custmer premise equipment (CPE) Cmputer aided dispatch (CAD) Lgging recrders Radi Netwrk In Maine, FairPint Cmmunicatins delivers calls t the PSAPs via an E9-1-1 service cntract. The technlgy includes CPE (the call answering system), MagIC (Call Detail Recrd) and mapping. The service cntract with FairPint prvides fr the fllwing: Netwrk Services L.R. Kimball, January 2010 Page 27

32 Database Services Managed Services including 24x7x365 (24-hurs a day, seven days a week, 365 days a year) maintenance and remte mnitring, servicing f hardware, security and sftware updates. Equipment csts Wrkstatins (Vesta Systems) Data Sync/Mapping Uninterrupted Pwer Supply (UPS) and System Mnitring Answering Equipment/CPE Twenty f the 26 PSAPs have Plant/CML Pallas systems and six f the sites have Plant/CML Meridian. The Meridian and the Pallas systems are designed t perate in a client/server envirnment. They run n a standard Micrsft Windws PC platfrm. Each wrkstatin functins independently, but still shares all f the cmmn files needed fr the applicatin via the netwrk server. 9 The Pallas system is designed fr a tw t seven psitin PSAP and Meridian is designed fr larger centers. This CPE equipment was installed between Octber 2005 and February Accrding t the ESCB, mst f the Pallas systems are due fr an upgrade because the internal private branch exchange (PBX) is n lnger supprted by Plant/CML. Funds have been budgeted t make the upgrades in FY2010. The system has 222 centralized autmated message accunting (CAMA) trunks int the 26 PSAPs and Plant/CML CPE equipment is used at all f 134 PSAP wrkstatins exclusive f the training center wrkstatins. Table 5 is a breakdwn f the trunks and wrkstatins by PSAP. 9 Amendment IV t Cntract fr Special Services (E Service): signed 8/11/2006, p. 13 L.R. Kimball, January 2010 Page 28

33 Table 5: PSAP Equipment Summary PSAP Equipment Summary PSAP # f Trunks # f Wrk Statins Plant/CML CPE Type Andrscggin Cunty Sheriff's Office 6 3 Pallas Bangr Plice Department 6 4 Pallas Biddefrd Plice Department 8 4 Pallas Brunswick Plice Department 6 3 Pallas Cumberland Cunty Cmmunicatins Vesta Meridian Dept. f Public Safety CMRCC Vesta Meridian Dept. f Public Safety-Gray RCC Vesta Meridian Dept. f Public Safety-Hultn RCC 8 4 Pallas Dept. f Public Safety-Orn RCC 8 4 Pallas Franklin Cunty Sheriff's Office 6 3 Pallas Hancck Cunty RCC 6 3 Pallas Knx Reginal Cmmunicatins Center 8 4 Pallas Lewistn/Auburn Vesta Meridian Lincln Cunty Cmmunicatins Center 8 4 Pallas Oxfrd Cunty RCC 8 4 Pallas Penbsct RCC 12 8 Vesta Meridian Piscataquis Cunty Sheriff's Office 4 2 Pallas Prtland Plice Department Vesta Meridian Sagadahc Cunty Cmmunicatins Center 6 4 Pallas Sanfrd Plice Department 6 4 Pallas Scarbrugh Plice Department 6 3 Pallas Smerset Cunty Cmmunicatins 8 5 Pallas Wald Cunty RCC 8 4 Pallas Washingtn RCC 6 3 Pallas Westbrk Plice Department 6 4 Pallas Yrk Plice Department 6 3 Pallas Ttals L.R. Kimball, January 2010 Page 29

34 Service Prvider Capability FairPint uses a netwrk f dedicated lines r trunks fr call ruting. When a caller dials 9-1-1, the call is immediately ruted thrugh this dedicated netwrk t the Prtland r Lewistn tandem ffices. The system queries the FairPint ruting database, which is maintained by Intrad, and then delivers the call t the crrect PSAP. When the call is answered at the PSAP, the telephne equipment autmatically retrieves the lcatin f the phne frm the ALI database, maintained by Intrad fr FairPint. The table abve illustrates the number f trunks available t each PSAP. The netwrk was designed t prvide the multiple levels f redundancy. Each PSAP has a primary and an alternate path fr call and data delivery. Each f the tw tandems has cnnectivity t each PSAP, each f the tw selective ruters and each f the tw ALI databases. Either tandem is capable f prcessing all calls Master Street Address Guide (MSAG) Database Maintenance The MSAG Database is a list f street names and huse number ranges in every cmmunity, which allws fr the prper ruting f calls. In Maine, this database is maintained by Intrad with assistance frm FairPint and the ESCB. When is dialed in Maine, the redundant selective ruters will deliver the lcatin f the wireline phne and callback number t the crrect PSAP Autmatic Lcatin Identificatin Database (ALI DB) Prvider Capability ALI prvides the PSAPs with the callers telephne number, address and ther emergency service infrmatin regarding the lcatin f the call. While vice cnnectin is established during a call, the ALI database (ALI DB) is queried by the CPE fr the caller s lcatin. The ALI data is sent t the PSAPs via the TDM netwrk. FairPint cntracted with Intrad t prvide ALI DBs fr the State f Maine. Intrad maintains tw mirrred (redundant) gegraphically diverse databases.. Queries are made t the DB via Intrad s MPLS netwrk. ALI links cnnect bth tandems t each f Intrad s databases Mapping Mapping became a vital part f E9-1-1 during the deplyment f wireless systems. Cellular calls d nt prvide the traditinal addresses assciated with landline calls. The lcatin f cell callers has t be pltted by the lcatin determinatin equipment develped by each wireless service prvider. The lcatin is delivered as latitude / lngitude. Mapping systems can precisely plt these crdinates fr the call taker, prviding a meaningful descriptin fr determining the lcatin f a wireless caller. The Maine ESCB prvides mapping t all PSAPs thrugh the FairPint cntract. Plant/CML Vesta slutin prvides ORION MapStar at every wrkstatin. ORION MapStar is a cmprehensive and scalable mapping slutin that can meet many PSAP needs and wrks in tandem with Plant/CML Vesta system. This system is based n using Micrsft s Windws sftware platfrm. In additin t fast and easy lcatin f wireless and wireline calls, MapStar can prvide directins, site infrmatin, mapped ALI bradcasting, event/unit filtering, structure based ALI matching and mre. L.R. Kimball, January 2010 Page 30

35 In rder t maximize MapStar's capabilities in addressing emergency respnse, it is integrated with the enterprise GIS (Gegraphic Infrmatin System) technlgy. When a call is received at a PSAP, the lcatin is autmatically pltted n the map. The system uses either the latitude / lngitude f a VIP r wireless call r the street address f a landline call. The Maine Office f Gegraphic Infrmatin System maintains and updates the mapping infrmatin fr all the PSAPs Administrative Netwrk The administrative netwrk includes: FairPint (Plant/CML) Managed Services Call Recrd Systems Data Updates Mapping Updates UPS Alarms Mnitring These system administrative functins are cnducted ver the state frame relay netwrk. The ESCB shares the netwrk with the DPS. Access is gained thrugh a firewall at tw gegraphically diverse entry pints. Plant/CML s Missin Cntrl is allwed limited access t the PSAPs equipment thrugh these tw pints. The data updates are fr the call recrd systems, mapping and alarms are mnitred using this netwrk. System updates and data dwnlads are allwed during the early mrning hurs. The ESCB has requested and received a qute frm FairPint fr an internet prtcl (IP) netwrk fr these system administratin functins. At this time, the ESCB pays $3300 a mnth fr their prtin f the netwrk. A stand-alne IP netwrk was priced at $4800 mnth. The IP netwrk wuld prvide greater access and increased speed and flexibility. FairPint Managed Services includes access, security, perating system, data and virus prtectin updates, disaster recvery capability and mnitring f PSAP hardware and sftware. Call recrd system includes Plant/CML s MagIC Mnitr, Enterprise and Repsitry. There is a MagIC Mnitr server at each f the 26 PSAPs. This system recrds the details f every incming and utging call received n the PSAP CPE wrkstatins. It prvides pre-designed reprts that dcument system, PSAP and persnnel perfrmance levels. MagIC Enterprise and MagIC Data Repsitry cmbine the data frm each f the MagIC servers int a master file f all the incming and utging calls at all f the 26 PSAPs. They prvide pre-designed reprts that analyze the data that is accumulated frm all f the PSAPs. Enterprise evaluates the data but Data Repsitry dwnlads MagIC Mnitr call details f each call in each f the state s PSAPs. The calls are crrelated int a single chrnlgical file. Bth systems prvide the ESCB valuable tls in their versight f E9-1-1 in Maine. Mapping updates are made n an as-needed basis using this administrative netwrk. L.R. Kimball, January 2010 Page 31

36 CAD Technical Overview CAD systems are the nerve center f the E9-1-1/ dispatch functin. The ESCB des nt prvide CAD t any agency. CAD is used by bth PSAPs and dispatch-nly public safety cmmunicatins centers t verify incidents and caller lcatins, create incident recrds, dcument field activity, track first respnder status and activity and interface with mbile cmputing devices and user agency recrds management systems (RMS). The CAD system is interfaced t the E9-1-1 system t receive ALI, mapping and state and federal criminal infrmatin systems t perfrm inquiries, radi and mbile data systems and GIS fr lcatin verificatin and mapping. Maine s PSAPs and dispatch-nly centers use CAD systems prvided by several vendrs. The primary vendr is Infrmatin Management Crpratin (IMC), Spillman, Mtrla and thers. Disparate CAD systems present a challenge t any public safety cmmunicatins enterprise where infrmatin needs t be shared in a real-time manner due t the prprietary nature f this specialized sftware. Great strides have been made in the industry, althugh much wrk remains t be dne, twards develping pen systems that can freely share data withut cmprmising the intellectual prperty f the develpers. Maine has undertaken a prject t develp a data brker system, which is intended t prvide a dataswitching hub t autmatically receive standardized sets f public safety data frm ne CAD system, PSAP r ther surce and deliver it t ther systems fr use in their native methd f peratin. Each cntributing user agency wuld have the authrity and ability t define what data is shared and with which ther agencies. These cnsideratins wuld be detailed in apprpriate inter-lcal agreements as necessary. This apprach appears t be preferable t the enrmus task f defining, prcuring and implementing a statewide CAD r mandating the use f a particular CAD system acrss the state withut regard fr lcal needs, budgets and schedules, RMS requirements and ther limiting factrs. The current PSAP, dispatch-nly center, CAD and E9-1-1 landscape in Maine presents many challenges tday t the equal and efficient delivery f E9-1-1 services t the citizens f the state. E9-1-1 features such as ALI are nly available t dispatch-nly centers if they use the IMC CAD system and the ALI is cnveyed ver the IMC interface. This als requires that bth the PSAP and the dispatch nly agency use IMC CAD. The interface is an additinal cst item fr initial installatin plus yearly maintenance t the dispatch centers. Unfrtunately, the IMC CAD interface has been implemented with varying degrees f success statewide. Kimball understands that the data is ften delivered thirty secnds t minutes after the vice call is transferred r nt at all. T be effective, the data shuld arrive simultaneusly with the vice call t enable the call taker at the receiving end t verify all f the infrmatin with the caller t rapidly effect dispatch f first respnders. Many dispatch centers reprt they d nt use the IMC interface due t its lack f reliability. Pssible reasns fr the perceived shrtcmings f the interface culd include sftware, netwrk, setup and maintenance r training issues Lgging Recrders Lgging recrders are nt prvided by the ESCB. Each PSAP must prvide its wn recrders. Of the twenty-three PSAP survey respndents, twenty identified their lgging recrder equipment type. Table 6 is an verview f the equipment currently in use: L.R. Kimball, January 2010 Page 32

37 Table 6: PSAP Lgging Recrders PSAP Lgging Recrders Vendr # f PSAPs DSS-Acrn 12 CVDS, Inc. 5 Exacm 2 Dictaphne 1 The majrity f the equipment is either new in the last tw years r still well within its expected lifecycle. Only ne recrder culd be cnsidered ut f its expected lifecycle Radi PSAPs and dispatch-nly public safety cmmunicatins centers utilize a variety f lcal and reginal radi systems t prvide dispatch and cmmand-and-cntrl cmmunicatins services t plice, fire and EMS first respnders statewide. These radi systems are primarily very high frequency (VHF) with sme ultra high frequency (UHF) and 800 MHz systems as well. Based n the PSAP and dispatch-nly survey respnses fr this study, respndents reprted they have generally have gd cverage fr their service area and d nt have serius capacity issues pertaining t radi cmmunicatins. Hwever, a substantial number f mbile and prtable radis plus fixed-end transmitting and receiving equipment are several years ld. This equipment will be in need f eventual replacement as part f the nging task f keeping vital public safety cmmunicatins systems in missin critical readiness. The varius PSAP and dispatch agencies achieve functinal interperability by different means t ensure they can cmmunicate agency-t-agency when needed. This is accmplished by mnitring each ther s channels, exchanging radis, use f reginal r statewide channels and ther strategies. The prject team s impressin is that there is substantial histrical and nging cperatin amng the public safety agencies in this regard. The upcming statewide radi system upgrade will prvide additinal pprtunities fr interperable cmmunicatins. Once the currently planned system upgrade is cmplete, an assessment f cverage, capacity and capabilities will need t be undertaken t determine hw the statewide system fits int the verall radi cmmunicatins strategy fr the state. This will assist lcal and reginal PSAPs and dispatch-nly centers in determining what their future migratin r lcal upgrade shuld be. 3.5 SURCHARGE/COSTS Maine s statutry prvisin fr funding is fund in 25 MRSA 2927, sub- 1-B. A single statewide E9-1-1 surcharge is levied n each residential and business telephne exchange line (including PBX lines and Centrex lines), wireless telecmmunicatins service custmers (including prepaid wireless), intercnnected VIP custmers and semipublic cin and public access lines. The current rate is $.37 per mnth per line r number. The state, its plitical subdivisins r any intergvernmental agency is prhibited frm impsing anther charge fr E9-1-1 by Sec MRSA 2927, sub- 1-G. Thus, all funding fr is centralized at the state level. L.R. Kimball, January 2010 Page 33

38 Each service prvider cllects the surcharge mnthly frm its subscribers / custmers. The ESCB prescribes the frm the service prviders are required t use in making their remittances and the supprting data that they are required t include. Surcharges are remitted t the Treasurer f State within ne mnth f the mnth in which they were cllected. The Treasurer depsits the remittances int a special E9-1-1 fund (Fund). Unexpended funds frm ne fiscal year carry frward t the next and remain in the Fund. 3.6 CURRENT REVENUES Based n the available histrical infrmatin, Maine s E9-1-1 revenues were stable between $8.3 and $8.5 millin annually in the fur years frm fiscal year (FY) 2005 thrugh In FY2009, $2.6 millin frm the fund surplus was used t augment the state s general fund (Chapter 539, H.P L.D. 2289, PART EEEE). In an effrt t reduce the surplus, the surcharge was reduced t 30 cents. The lss in revenue was mre than $2.8 millin dllars. The fund balance is being used t supplement the ESCB budget due t this lss in revenue. In FY2010, the surcharge was increased t 37 cents, which will prvide revenue f $6.3 millin by the end f the current FY2010. In FY 2011, the surcharge is set t increase t 52 cents. The fund surplus will again be used t cver a $4.1 millin shrtfall. 3.7 COSTS Eligible Uses fr E9-1-1 Funds Eligible uses fr E9-1-1 funds are defined in Sec MRSA 2927, sub- 3. The ESCB has authrity t use E9-1-1 revenues t pay fr its staff and fr the implementatin, peratin and management f the statewide E9-1-1 system. The state is the custmer f recrd fr the statewide E9-1-1 system service cntract with FairPint and directly pays all assciated csts. The law als prvides fr the ESCB t transfer funds t the EMS accunt within the DPS t cver the csts f the EMS Bard, which in cperatin with the ESCB, versees the licensing and quality assurance f PSAP call takers handling f EMD. EMD is gverned by statute sectin 32 MRSA 85-A. The ESCB cvers the EMD training tuitin csts fr PSAP persnnel. If the ESCB determines the E9-1-1 fund has sufficient funds, it is required t reimburse lcal exchange carriers (LEC) and wireless telecmmunicatins service prviders fr their eligible expenses. The statute defines eligible expenses in this cntext t mean expenses: Incurred in preparing, crrecting, verifying r updating subscriber infrmatin fr use in databases necessary t implement the E system. Determined by the PUC t meet the requirements f 32 MRSA 85 paragraph A and t be a reasnable expenses fr the services prvided When incurred by a cellular r wireless telecmmunicatins service prvider the fllwing applies: Apprved by the ESCB t be prperly incurred fr the implementatin f E9-1-1 technlgies and prcedures Are nt separately billed t custmers and fr which the prvider is nt reimbursed L.R. Kimball, January 2010 Page 34

39 ESCB Csts The FairPint cntract csts the ESCB abut $7.2 millin each year in recurring csts fr the netwrk, databases and PSAP equipment cmpnents f the system. In additin t this cntract, the ESCB s FY2010 prgram perating budget is an additinal $3,246,726. Table 7: Emergency Services Cmmunicatin ESCB FY2010 Operating Budget Emergency Services Cmmunicatin ESCB FY2010 Operating Budget ESCB Salaries and Benefits $ 521,726 All Other $ 115,000 MEGIS Cntract fr Addressing & Mapping Supprt Related Expenses $ 475,000 EMS Emplyee fr EMD Licensing $ 100,000 EMD Cntract fr training, materials, etc. $ 600,000 Basic Dispatcher & Cntinuing Educatin Training $ 35,000 Telc Reimbursement & FairPint csts utside f cntract $ 500,000 Cnsulting services fr Next Gen planning $ 300,000 Matching Mney fr Federal ENHANCE Act Grant 10 $ 500,000 PSAP Cntingency Fund $ 100,000 FairPint Cntract $ 7,210,980 Ttal FY2010 Budget Prjectin $10,457, Lcal Csts Lcal gvernments experience related E9-1-1 csts that are nt funded thrugh the surcharge. Lcal gvernments fund these csts thrugh general taxes and service fees. The PSAPs nn-state funded csts fall largely int the fllwing categries: Administrative phne systems CAD systems Radi dispatch systems Office equipment Office supplies PSAP facilities and related verhead Heating, ventilatin, air cnditining (HVAC) 10 The State did nt qualify fr this grant since surcharge funds were diverted t assist in balancing the state budget. L.R. Kimball, January 2010 Page 35

40 Utilities Backup pwer, etc. Additinal sftware licenses Other equipment TDD/TTY Headsets Unifrms Training Emplyee salaries Kimball surveyed Maine s 26 PSAPs t btain infrmatin abut these csts. Respnses were received frm 23 PSAPs. The three nn-respndents were the Westbrk and Prtland Plice Departments and the Piscataquis Cunty Sheriff. In rder t prvide as cmplete a picture as pssible, the csts fr tw f these three PSAPs were assumed t be clse t the csts f similarly sized PSAPs fr which we did have data. Please nte that there were n cmparable PSAP csts available t estimate csts fr Prtland, s ur analysis must be cnsidered in that cntext. L.R. Kimball, January 2010 Page 36

41 4. STAKEHOLDER AND FOCUS GROUP MEETINGS A key cmpnent in this study was gathering data and input frm identified stakehlders. This cmpnent was accmplished by cnducting a series f stakehlder and fcus grup meetings. The purpse f these meetings was t prvide a frum in which stakehlders culd share their pinins, cncerns and perspectives regarding further PSAP cnslidatin. In additin, these meetings ensured that Kimball gained a clear understanding f the current emergency cmmunicatins envirnment at the state, cunty and lcal levels. The meetings tk place frm Octber 19 thrugh Octber 23, A cmplete list f meetings is lcated in Sectin 2. In additin t these meetings, 13 letters and fur s were received vicing strng supprt fr keeping specific PSAPs pen. The issues and cncerns cntained in these dcuments are included in the infrmatin that fllws. Cncerns and issues raised by the stakehlders that attended the interviews and fcus grup meetings are summarized in this sectin. Care has been taken t nt attribute specific cncerns, issues, r psitins t specific grups r individuals unless a public psitin was shared with Kimball. N attempt was made t verify the validity f any individual cmplaint r issue. The infrmatin gathered was used as anecdtal evidence f existing issues and cncerns and t gage the plitical envirnment amng the stakehlders as it relates t past and future PSAP cnslidatin. A cmplete listing f issues and cncerns is lcated in Appendix A. Fllwing is a listing f the key pinins, cncerns and issues expressed pertaining t PSAP recnfiguratin: Mst stakehlders want t leave the cnfiguratin as it currently is r pursue further reginalizatin as fully cnslidated (call taking and dispatching) centers. Many feel that separating call taking functins frm dispatching functins int separate facilities needs t stp as it lwers the quality f service. Any recnfiguratin initiative shuld include a prcess fr minimizing r eliminating transferred calls. PSAP rate shpping has negatively impacted service levels. Selectin f PSAP sites shuld be based n quality f service rather than the rates charged. Stakehlders see staffing and service degradatin as challenges resulting frm cnslidatin. Recnfiguratin decisins shuld be based n service and stakehlder input first, then csts. Dispatch-nly sites are cncerned abut the inability t measure true call prcessing time t identify hw much time elapses befre call transfers are received. Csts and funding cncerns were expressed. Use f surcharge funds by the State fr the purpses f balancing the state budget (raiding f the surcharge fund). Althugh mst recgnized this issue is ut f the cntrl f the PUC, sme felt that the PUC culd have taken additinal measures t ensure the fund raiding did nt happen. L.R. Kimball, January 2010 Page 37

42 Differing fee structures acrss the state. True csts t municipalities may be difficult t identify with a shift frm a lcal t a State fee structure. Mechanism t cntrl fees and csts needs t be established. Sme lcal level participants feel the State is nw charging fr services it tk away. Many tied studying further cnslidatin t the E9-1-1 fund raids. The thught prcess by many being that there was n lnger enugh mney t run the system. Lcal gvernment and respnse agencies feel strngly that the state was the nly entity t save mney in last rund f PSAP reductins, while lcal csts increased. Lcal gvernment needs financial incentives t participate in cnslidatin. Lcal gvernments ppse state frced initiatives, nt necessarily against cnslidatin. Several cunties want all wireless calls ruted directly t their PSAPs t alleviate the transferred and drpped calls and blind transfers. L.R. Kimball, January 2010 Page 38

43 5. RECONFIGURATION SCENARIOS 5.1 EXISTING 26-PSAP CONFIGURATION Operatinal Overview Staffing Table 8 belw summarizes the 26-PSAP call data fr 2009, recmmended minimum staffing and equipment levels. The infrmatin includes: Call Vlume Average number f calls received during the busiest hur f the busiest mnth Wrkstatins needed t prcess the busy hur calls plus an verflw psitin Staff needed t handle the call vlume. The call vlume was used t calculate the number f call takers needed. Please Nte: The staffing estimates were calculated based n call vlume nly. These staffing numbers d nt reflect additinal staff needs t handle the fllwing: Dispatch Respnsibilities Administrative calls Other nn-emergency cmmunicatins tasks Therefre, these estimates shuld nt be used t estimate the verall staffing levels needs at each individual PSAP as the estimates d nt reflect the ttal wrklad PSAP emplyees are currently handling. L.R. Kimball, January 2010 Page 39

44 Table 8: 26-PSAP Summary Table # PSAP 26-PSAP Summary Table 2009 Wireline Calls 2009 Wireless Calls Ttal Calls 11 # Calls Busy Hr. 12 Wrk Statins Needed 13 Staffing/ Call Vlume 14 1 Andrscggin Sheriff's Office 6,583 2,174 8, Bangr Plice Department 12,852 7,120 19, Biddefrd Plice Department 8,263 3,301 11, Brunswick PD 10,014 2,703 12, Cumberland C Cmm 13,397 4,199 17, DPS - Augusta (CMRCC) 17,335 50,934 68, DPS - Gray RCC 12, , , DPS - Hultn RCC 10,302 7,162 17, DPS - Orn RCC 0 48,128 48, Franklin C SO 6,097 3,291 9, Hancck Cunty RCC 9,545 1,014 10, Knx RCC 16,904 4,666 21, Lewistn / Auburn ,150 9,083 30, Lincln C Cmm Center 6,521 5,317 11, Oxfrd Cunty RCC 14,449 4,881 19, Penbsct RCC 23,859 7,417 31, Piscataquis Sheriff's Office 4, , Prtland Plice Department 31,109 15,601 46, Sagadahc C Cmm Center 9,599 2,551 12, Sanfrd Plice Department 7,014 4,176 11, Scarbrugh PD 7,526 2,085 9, Smerset C Cmm 16,937 4,554 21, Wald Cunty RCC 6,751 1,049 7, Washingtn Cunty RCC 6,131 3,646 9, Westbrk PD 9,805 2,780 12, Yrk PD 5, , Ttal 294, , , All statistics were prvided by the ESCB figures include January - Octber. The remaining tw mnths were estimated. 12 Number f calls during the PSAPs busiest hur and mnth. Based n data received frm the ESCB. 13 Based n number f wrk statins needed fr call vlume during the average busiest hur/mnth. One extra psitin was added t each PSAP fr call verflw. 14 Reflects that ttal number f full time emplyees required t handle the call vlume nly. Based n 150 secnds f ttal call time including 120 secnds f talk and 30 secnds f wrap up time. In additin, NENA standards fr call answering were applied (90 percent answered within 10 secnds). L.R. Kimball, January 2010 Page 40

45 Table 9 belw lists the pay ranges fr each f the 26 PSAPs. These pay ranges are limited t wages nly (n benefits csts are included). This infrmatin was btained thrugh the data cllectin survey distributed t the PSAPs. N/A dentes that either a survey respnse was nt received r the infrmatin was nt cntained in the respnse. The pay ranges were then calculated t determine an average hurly rate f $16.88 fr a dispatcher. This figure was used t prject persnnel csts in subsequent sectins. Table 9: Agency Pay Range Summary Agency Pay Range Summary Agency Full Time Dispatchers Part Time Lw High Lw High Andrscggin Cunty SD $13.09 $16.43 $10.00 $11.75 Bangr PD $15.38 $18.75 $15.00 $21.00 Biddefrd PD N/A N/A N/A N/A Brunswick PD $14.81 $17.64 N/A N/A Cumberland Cunty Cmmunicatins $15.84 N/A $12.01 N/A DPS CMRCC* $14.44 $19.30 N/A N/A DPS - Gray RCC* $14.44 $19.30 N/A N/A DPS - Hultn RCC* $14.44 $19.30 N/A N/A DPS - Orn RCC* $14.44 $19.30 N/A N/A Franklin Cunty SD $12.31 $16.00 $9.25 $10.25 Hancck Cunty RCC $14.01 $18.83 N/A N/A Knx Cunty RCC $14.11 $16.61 $14.11 N/A Lewistn/Auburn $14.00 $18.86 $13.03 $15.07 Lincln Cunty $14.85 $19.57 N/A N/A Oxfrd Cunty RCC $13.03 $15.67 $12.00 N/A Penbsct Cunty RCC N/A $17.56 N/A N/A Piscataquis Cunty SD N/A N/A N/A N/A Prtland PD N/A N/A N/A N/A Sagadahc C. Cmmunicatins $14.09 $17.77 N/A N/A Sanfrd RCC $15.24 $19.00 $15.24 $19.00 Scarbrugh PD $17.45 $20.20 $14.13 N/A Smerset Cunty Cmmunicatins $14.50 $17.75 $15.95 $19.53 Wald Cunty RCC $14.51 $20.37 $11.80 $14.51 Washingtn Cunty RCC $12.36 $15.69 $10.04 N/A Westbrk PD N/A N/A N/A N/A Yrk PD $15.26 $21.39 $13.88 $18.62 Pay Range Hi/Lw: $12.36 $21.39 $9.25 $21.00 Average Full Time Per-Hur Rate: $16.88 *Pay range des nt include 15 percent stipend paid t DPS emplyees. L.R. Kimball, January 2010 Page 41

46 Technlgical Overview Sectin 3 prvides an verview f current technlgy Csts/Ecnmic Overview There are 327 authrized full time emplyees and 62 authrized part time emplyees wrking in Maine s 26 PSAPs (excluding Prtland, fr which Kimball had n data). Based n actual call vlume, 197 full time call taking persnnel are needed just t answer calls. Sixty-six wrkstatins are needed t answer the state s call vlume as cmpared with the 134 that are currently installed. Purchasing equipment was an ptin that was evaluated, but quickly eliminated as viable. It is imprtant t keep in mind that there are csts assciated with wning the equipment in additin t purchasing it. The fllwing nn-quantifiable cst cnsideratins were evaluated and resulted in remving this ptin frm cnsideratin. The ESCB wuld still have t prvide truble supprt fr the equipment. If the ESCB wants t prvide truble supprt in huse, it will require additinal staff with the requisite expertise available 24x7x365. If the ESCB wants the equipment vendr t prvide truble supprt, the vendr will have t arrange fr a technician t be nearby s he (r she can) respnd within the required timeframe, which increases cst. Vendrs typically prvide truble supprt fr wned equipment at a cst higher than they wuld if the equipment were leased frm them. The ESCB will want t cnsider maintaining an inventry f spare equipment in the event a piece f equipment fails and has t be replaced immediately. Table 10 shws a five-year cst prjectin fr the 26-PSAP cnfiguratin. The ecnmic impact assessment began with the fllwing basic assumptins: The ESCB s prgram perating csts, separate frm E9-1-1 system csts, wuld remain level in FY Ttal csts have been estimated at $9,470,702. Existing managed services wuld be mved t an IP netwrk in 2011 ESCB wuld chse nt t exercise its ptin t renew the FairPint cntract in Octber 2011 ESCB wuld fund the fllwing equipment hardware and sftware, and services: call handling Mapping 24x7x365 system maintenance and mnitring Uninterrupted Pwer Supply (UPS) and UPS mnitring FairPint s equipment lease csts wuld be cmparable t anther vendr s pricing In anticipatin f replacing existing equipment in 2012, ten percent f the current equipment csts were added t ttals L.R. Kimball, January 2010 Page 42

47 Csts fr deplyment and installatin f new equipment were nt factred int cnfiguratin csts. Accrding t the ESCB, Verizn was paid $294,840 fr installing equipment at the 26 PSAPs These csts are shwn in cnjunctin with the ESCB s current cst Table 10: 26-PSAP Cnfiguratin Csts 26-PSAP Cnfiguratin Csts Csts 2011 Ttal 2012 Ttal 2013 Ttal 2014 Ttal 2015 Ttal 5 Year Ttal Current $9,470,702 $ 9,927,707 $ 9,927,707 $ 9,927,707 $ 9,927,707 $49,181, PSAP $9,494,702 $ 9,951,707 $ 9,951,707 $ 9,951,707 $ 9,951,707 $49,301,531 Staffing 0 $ 9,130,108 $ 9,130,108 $ 9,130,108 $ 9,130,108 $36,520, With Staffing $9,494,702 $19,081,816 $19,081,816 $19,081,816 $19,081,816 $85,821,965 In cnducting this analysis, the staffing levels that wuld be needed t handle Maine s existing call vlume were calculated. This prvided a basis fr cmparisn with the actual staffing levels that exist at Maine s PSAPs. As nted in earlier sectins f this reprt, there are 327 authrized full time staff members and 62 authrized part time staff members wrking in Maine s 26 PSAPs (excluding Prtland, fr which Kimball had n data). These emplyees answer calls, dispatch emergency respnders and handle ther administrative duties within their agency such as answering the department s administrative telephne lines. Based n actual call vlume, 210 full time call takers are needed just t answer calls. The csts with staffing uses an estimated salary fr 197 call takers in the 26-PSAP cnfiguratin tables and sixty-six wrkstatins are needed t answer the state s call vlume (cmpared with the 134 that are currently installed). An additinal furteen training wrkstatins lcated in Vassalbr have been included in ttal cst estimates. The cst cmparisn tables use current equipment level f 148 wrkstatins in its calculatin. In cnclusin, this cnfiguratin is the mst cstly fr the state as cmpared t the 2, 4 and 15 t 17- PSAP cnfiguratins Surcharge Impact The ESCB s published budget prjectins fr 2011 prvided the baseline fr this analysis. The ESCB s prgram perating csts, separate frm E9-1-1 system csts, were assumed t remain level. This infrmatin is reflected in the Current Csts rw in Table 10. In the face f market trends and an uncertain ecnmy, we assumed a level subscriber cunt at the current 1,425,767. The surcharge rates presented reflect the rate needed t cver the csts discussed in the previus sectin. L.R. Kimball, January 2010 Page 43

48 Table 11 identifies the surcharge rates ver a six-year perid fr the 26-PSAP cnfiguratin. The varius Csts sectins identify anticipated csts fr the varius ptins. The Surcharge Funds rw identifies the actual surcharge revenue that will be cllected based n the surcharge. The 5 Year Ttal clumn shws the difference between anticipated csts and the surcharge rate. In each example, the surcharge will nt meet the anticipated csts. The ESCB plans t use existing fund mney t cver the anticipated shrtfall. In July 2009, the surcharge rate was increased frm 30 cents t 37 cents. The FY2011 rate has been set t increase t 52 cents. Hwever, the Legislature has given itself the authrity t review actual need in the upcming legislative sessin. The rate set fr FY2010 was 37 cents. This rate will bring in $6.3 millin, which is far shrt f the $10.5 millin in prjected csts. In FY2011, the surcharge tables are based n the assumptin that the 52 cents rate will nt change. Again, this rate will nt cver the prjected budget and it anticipated that existing fund mney will be used t cver the shrtage. Fr FY2012 thrugh 2015, the surcharge rates shwn in the table reflect the rate needed t cver mst f the identified csts. Table 11: 26-PSAP Cnfiguratin Surcharge Analysis Csts Cmm. Devices 2010 Ttal 26-PSAP Cnfiguratin Surcharge Analysis Ttal Ttal Ttal 2014 Ttal 2015 Ttal 5 Year Ttal Current Csts 1,425,767 10,457,706 9,470,702 9,927,707 9,927,707 9,927,707 9,927,707 $49,181,531 Surcharge $.37 $.52 $.58 $.58 $.58 $.58 Surcharge Revenue 6,330,405 8,896,786 9,923,338 9,923,338 9,923,338 9,923,338 $48,590, PSAP Csts 1,425,767 10,457,706 9,494,702 9,951,707 9,951,707 9,951,707 9,951,707 $49,301,531 Surcharge $.37 $.52 $.58 $.58 $.58 $.58 Surcharge Revenue 6,330,405 8,896,786 9,923,338 9,923,338 9,923,338 9,923,338 $48,590, Csts with Staffing 1,425,767 10,457,706 9,494,702 19,081,816 19,081,816 19,081,816 19,081,816 $85,821,965 Surcharge $.37 $.52 $1.11 $1.11 $1.11 $1.11 Surcharge Revenue 6,330,405 8,896,786 18,991,216 18,991,216 18,991,216 18,991,216 $84,861, Plitical Overview Maintaining the current 26-PSAP cnfiguratin will ffer the least plitically challenging curse f actin fr the ESCB and the state and lcal gvernments. It prvides an pprtunity t stabilize existing PSAP peratins and make imprvements t the current statewide system. This can ccur while the ESCB prepares fr the anticipated verall enhancement f the netwrk that NG9-1-1 will present t the public safety cmmunicatins cmmunity. Immediate additinal PSAP cnslidatin wuld add t the current plitical rift between the ESCB, cunty and lcal gvernments and respnse agencies. The psitive impact f maintaining the current cnfiguratin can be realized nly if actin is taken t rectify the separatin f call taking and dispatching functins between the PSAPs and dispatch centers. L.R. Kimball, January 2010 Page 44

49 The plitical impact f cntinuing the current cnfiguratin withut state, cunty and lcal gvernments and respnse agencies cllabrating, planning and implementing a reslutin t the separatin f call taking and dispatching functins, will nly cntinued the degradatin f service and dysfunctin trend in respnse, relatinships and services at all levels statewide. This is the case regardless f the final cnfiguratin. Apart frm the service issues, the cncept f cst savings has and will cntinue t have, a significant plitical impact. While further cnslidatin f PSAPs can be viewed as ptential cst savings fr the state, this is nt the case lcally. Unfrtunately, reductin f PSAPs has nt and des nt, autmatically lead t reductins in necessary facilities, staffing and csts required t prvide public safety cmmunicatins services t the citizens f Maine Cnfiguratin Psitives and Negatives Psitives Thugh additinal reductin in the number f PSAPs may appear t be a methd f further simplifying the netwrk and technlgy in size and cst, there are benefits t maintaining the current 26-PSAP cnfiguratin. This cnfiguratin: Allws the ESCB t further review and repair degradatin in service resulting frm the separatin f call prcessing between call taking (PSAPs) and dispatching (dispatch-nly centers). Maintains integrity f lcal based respnse by lcal agencies, while state based respnses remain under cntrl f state agencies Maintaining this cnfiguratin will temprarily affrd an pprtunity fr state, cunty and lcal gvernment entities t better balance and regulate the service fees/rates structures prir t any additinal cnslidatin. Negatives Inherent flaws in the current call prcessing methdlgy statewide may nt be addressed prperly if the cnfiguratin remains status qu. This methdlgy includes the need t transfer calls and the statewide plicy fr ding s. Cntinuatin f the current degraded services trend resulting frm the separatin f call taking and dispatching functins. The mst recent reductin did nt result in verall reduced csts, nly a shift in csts frm the state t cunty and lcal levels. This shift created further disparity in the types f systems, levels f service and further separatin f crdinatin amng respnse agencies. Maintaining the status qu wuld nt change these issues. Cntinuatin f the PSAP rate shpping Increased csts t ESCB Upgraded r replaced equipment Netwrk cmpnents L.R. Kimball, January 2010 Page 45

50 Training Persnnel Increased csts t ESCB, cunty and lcal agencies Facilities maintenance Renvatin r replacement Peripheral equipment and systems PSAP Cnfiguratin Summary Althugh well intentined, the 2003 mandated PSAP cnslidatin has created sme significant issues within the emergency cmmunicatins system statewide. As discussed mre fully in Sectin 3, the lack f a partnership between thse implementing and prviding and dispatch services has fragmented the verall system s that service delays thrugh call transfer, incnsistent plicies frm agency t agency, rate shpping and shifting f csts frm the state t cunty and lcal municipalities are prevalent. Fr these reasns, adpting this cnfiguratin lng-term is nt recmmended TO 17-PSAP CONFIGURATION The number f PSAPs in this cnfiguratin is apprximately the same as the number f cunties in the state. While a single PSAP per cunty is a widely used mdel natinwide, Kimball is nt suggesting that the PSAPs in this scenari r in Maine necessarily be defined by cunty gegraphical bundaries r perated by cunty gvernments. The ptimal cnfiguratin may be a cmbinatin f cunties that cntain mre than ne PSAP and PSAPs that handle mre than ne cunty. The state, cunty r lcal gvernments r new reginal rganizatins may perate the PSAPs. There are simply t many undetermined variables t identify specifically what the final cnfiguratin will lk like. Hwever, a reginal apprach that cmbines PSAP and dispatch functins is highly recmmended. All calculatins in this sectin are based n a mid-pint f 16 PSAPs Operatinal Impact The number f PSAPs in this scenari is based n cnslidating and dispatch functins as much as pssible. The data available t Kimball suggests that the fully cnslidated PSAP scenari (cmbining and dispatch int a single facility) wuld prvide best balance f service levels and csts. Hwever, each ptential full cnslidatin effrt will require an individual feasibility study that identifies all pertinent variables fr and dispatch functins. Staffing Based n call vlume nly, 171 call takers wuld be needed. This number is based n ttal call vlume and des nt take int cnsideratin the disbursement f staff amng the PSAPs. A direct cmparisn f staff between the existing cnfiguratin and this ne is nt pssible. Althugh staffing levels in the existing 26-PSAP cnfiguratin is at 327 full time and 62 part time emplyees, these numbers include staff needed fr dispatch functins. It is als nt pssible t estimate the additinal number f emplyees needed fr dispatch functins in the 15 t 17-PSAP scenari since the relevant dispatch data was nt available and specific PSAPs are nt identified. L.R. Kimball, January 2010 Page 46

51 Shuld the apprximately ten PSAPs that are clsed chse t cntinue prviding dispatch services, lcal csts may increase as persnnel levels stay the same, but PSAP services must be cntracted and paid fr elsewhere. Call Taking Wrkstatins The number f call taking wrkstatins wuld be significantly reduced in a 15 t 17-PSAP cnfiguratin. In rder t handle the state s call vlume in the new cnfiguratin call taking wrkstatins wuld be required. The current cnfiguratin has 134 wrkstatins in the 26 PSAPs. Careful cnsideratin needs t be used in the recnfiguratin because a large number f calls annually will be redistributed when ten PSAPs are clsed. Wherever pssible, the calls shuld be answered and dispatched frm the same PSAP. Based n histrical data and actual cnslidatin initiatives that are nging, eight f the ten PSAPs that are clsed wuld be expected chse t cntinue t dispatch fr the agencies they nw serve. Shuld these PSAPs becme dispatch-nly sites, delays caused by the transfer f calls will be an issue Technlgical Impact Based n the expected lifecycle f existing wrkstatins, the ESCB will be prcuring new equipment in a 15 t 17-PSAP cnfiguratin. Existing equipment they currently lease thrugh the service cntract with FairPint culd be used during the rll-ut f the new equipment. The recnfiguratin prcess will need t start as sn as pssible. Mst f the actual wrk will take place when the current cntract with FairPint expires. This cnfiguratin prvides fr the same level f redundancy that exists in the current system. The system fr the 15 t 17-PSAP cnfiguratin wuld reduce the number f centralized autmatic message accunting (CAMA) trunks frm 222 t 144. (Trunking needs were based n existing trunking fr 26 PSAPs minus the trunking fr 10 PSAPs) Call taking wrkstatins wuld be reduced frm 134 t 92, ffering substantial equipment savings. At the end f the FairPint cntract, the ESCB, thrugh the prcurement prcess, will have the ability t identify ther system ptins Csts/Ecnmic Impact Table 12 includes a five-year ttal cst clumn reflecting prjectins fr the 15 t 17-PSAP cnfiguratin. Budgetary pricing with and withut staffing csts are prvided. The budgetary csts include the ESCB s prgram perating csts. Unless these PSAPs als have the capability t dispatch the first respnders f the decmmissined PSAPs, there still wuld be the need fr lcal gvernments t huse, staff and fund dispatching services fr the first respnders. The ecnmic impact assessment began with the fllwing basic assumptins: Lcal agencies wuld perate the PSAPs L.R. Kimball, January 2010 Page 47

52 Equipment frm the decmmissined PSAPs wuld nt be reused due t lifecycle limitatins The ESCB s prgram perating csts, separate frm E9-1-1 system csts, wuld remain level ESCB wuld fund the fllwing equipment hardware and sftware, and services: call handling Mapping 24x7x365 system maintenance and mnitring Uninterrupted Pwer Supply (UPS) and UPS mnitring Existing managed services wuld be mved t an IP netwrk in 2011 ESCB wuld chse nt t exercise its ptin t renew the FairPint cntract in FY2012 As previusly nted, the ESCB currently leases equipment frm FairPint. Leased csts fr the 15 t 17- PSAP cnfiguratin reflects a savings ver the current FairPint cntract pricing fr the existing 26 PSAPs, even with the additin f csts t mve existing managed services t an IP netwrk. Lease ptin assumptins include: FairPint s equipment lease csts wuld be cmparable with ther vendrs equipment lease csts In anticipatin f replacing existing equipment in 2012, ten percent f the current equipment csts were added t Current Csts Ttals. Csts fr the deplyment and installatin f new equipment were nt factred int the cnfiguratin csts. Accrding t the ESCB, Verizn was paid $294,840 fr installing new equipment at the 26 PSAPs. Kimball used the average f existing hurly wages and benefits in determining persnnel csts. Our cst analysis fr this PSAP cnfiguratin did nt include supervisry persnnel. Supervisry persnnel were nt included because a senir call taker r an n-duty swrn fficer ften handles the supervisry functin in small PSAPs during any given shift. In additin, these PSAPs may nly staff supervisrs n the busiest shifts, but nt n the slw perids. The number f full-time call takers needed t perate 16 cmmunicatin centers n a 24 hur, 365 day basis wuld be 171, at a budgetary cst f nearly $8 millin each year. Seventy-eight wrkstatins wuld be required t handle the state s call vlume plus an additinal 14 wrkstatins at the training lab in Vassalbr. Maine s existing 26 PSAPs 327 authrized full time staffers and 62 authrized part time staffers. While the 15 t 17-PSAP cnfiguratin might appear t reflect a significant reductin in staff and assciated csts, unless these 16 PSAPs can als dispatch first respnders fr the entire state, affected lcal gvernments will still need t prvide, equip and pay fr persnnel t d that wrk. Kimball s cst analysis is presented in Table 12 belw in cnjunctin with the ESCB s current csts fr purpses f cmparisn. L.R. Kimball, January 2010 Page 48

53 Table 12: 15 t 17-PSAP Cnfiguratin Csts Csts 2011 Ttal 15 t 17-PSAP Cnfiguratin Csts Ttal Ttal Ttal 2015 Ttal 5 Year Ttal Current $9,470,702 $ 9,927,707 $ 9,927,707 $ 9,927,707 $ 9,927,707 $49,181, t 17 PSAP $9,476,702 $ 8,320,523 $ 8,320,523 $ 8,320,523 $ 8,320,523 $42,758,795 Staffing 0 $ 7,925,119 $ 7,925,119 $ 7,925,119 $ 7,925,119 $31,700, With Staffing $9,476,702 $16,245,643 $16,245,643 $16,245,643 $16,245,643 $74,459,273 In cnclusin, the 15 t17-psap (withut persnnel) cnfiguratin wuld prvide the ESCB with a savings ver the current 26-PSAP cnfiguratin Surcharge Impact As the previus sectin indicates, the baseline fr analysis is the ESCB s published budget prjectins fr Assumptins that the ESCB s prgram perating csts, separate frm the FairPint cntract csts fr the E9-1-1 system, wuld remain level were made. This infrmatin is reflected in the Current Csts rw in Table 12. In the face f market trends bserved in ur present uncertain ecnmy, ur analysis assumed a cnstant number f subscribers at the current 1,425,767 level. Table 13 identifies surcharge rates ver a six-year perid fr the PSAP cnfiguratin. The varius Csts sectins identify anticipated csts based n the varius ptins. The Surcharge Funds clumn identifies actual surcharge revenues anticipated n the surcharge shwn. The 5 Year Ttal shws the difference between anticipated csts and the surcharge rate. In each example, the surcharge will nt meet anticipated csts. In July 2009, the surcharge rate was increased frm 30 cents t 37 cents. The 2011 rate has been set t increase t 52 cents n July 1, 2010 but the legislative will review actual need in its upcming sessin. The rate set fr FY2010 was 37 cents. This rate will bring in $6.3 millin, which is far shrt f the $10.5 millin in prjected csts. In FY2011, the surcharge tables are based n the assumptin that the 52 cents rate will nt change. Existing fund mney will be used t cver the shrtages in bth years. In FY2012 thru 2015 the surcharge rates in the table reflects the rate needed t cver the csts f the varius ptins. L.R. Kimball, January 2010 Page 49

54 Table 13: 15 t 17-PSAP Cnfiguratin Surcharge Analysis Cmm. Devices 15 t 17-PSAP Cnfiguratin Surcharge Analysis Ttal Ttal Ttal Ttal Ttal 2015 Ttal 5 Year Ttal Current Csts 1,425,767 10,457,706 9,470,702 9,927,707 9,927,707 9,927,707 9,927,707 $49,181,531 Surcharge $.37 $.52 $.58 $.58 $.58 $.58 Surcharge Revenue 6,330,405 8,896,786 9,923,338 9,923,338 9,923,338 9,923,338 $48,590, t 17- PSAP Csts 1,425,767 10,457,706 9,476,702 8,320,523 8,320,523 8,320,523 8,320,523 $42,758,795 Surcharge $.37 $.52 $.48 $.48 $.48 $.48 Surcharge Revenue 6,330,405 8,896,786 8,212,418 8,212,418 8,212,418 8,212,418 $41,746, Csts with Staffing 1,425,767 10,457,706 9,476,702 16,245,643 16,245,643 16,245,643 16,245,643 $74,459,273 Surcharge $.37 $.52 $.94 $.94 $.94 $.94 Surcharge Revenue 6,330,405 8,896,786 16,082,652 16,082,652 16,082,652 16,082,652 $73,227,393 Based n the current prjected csts f prviding equipment and services in Maine the prjected csts are as fllws: Table 14: 15 t 17-PSAP Cnfiguratin Cst Cmparisn 15 t 17-PSAP Cnfiguratin Cst Cmparisn 2012 Current Prjected Csts $9,927, t 17-PSAPs Prjected Csts $8,320,523 Difference $1,607,184 In cnclusin, this is the secnd mst cstly ptin fr the state when fcusing nly n system csts. As nted in previus sectins, the lcal csts remain Cnfiguratin Psitives and Negatives Psitives When cmbined with dispatch services, the 15 t 17-PSAP cnfiguratin scenari, wuld be very effective in prviding cmplete services (call taking and dispatch) statewide. Call transfers wuld be significantly reduced, thereby eliminating the service delay assciated with each transfer. Based n the existing call vlume, a 15 t 17-PSAP cnfiguratin is capable f handling the call vlume within the State f Maine. L.R. Kimball, January 2010 Page 50

55 Existing CPE systems can be used in a 15 t 17-PSAP cnfiguratin, while new equipment is being installed. When cmpared t the existing cnfiguratin, savings in CPE and wrkstatin csts are achievable. Larger reginal cmbined cmmunicatins centers ffer career pprtunities fr its emplyees nt readily available in small PSAP r dispatch centers. Reginal emergency cmmunicatins centers prvide mre lcal knwledge, incident management and mutual aid crdinatin that cannt be replicated in large PSAPs. Negatives Apprximately ten existing PSAPs will clse. Hwever, the clsing f PSAPs des nt necessarily equate t jb lss. Often when larger reginal centers are established all emplyees frm the clsing PSAPs are needed. Individual cnslidatin assessments are needed t determine this cmpnent. Shuld the PSAPs that clse cntinue t prvide dispatch services, then the number f call transfers will increase. Shuld the PSAPs that clse cntinue t prvide dispatch services, lcal csts may increase if anther PSAP must be paid t receive calls t 17-PSAP Cnfiguratin Summary This cnfiguratin, in Kimball s pinin represents the best pprtunity fr migratin t a system that balances csts, service levels and reginal needs. The underlying assumptin fr this recmmendatin is that PSAP and dispatch functins will be cnslidated int reginal facilities where pssible. In this scenari, each reginal center wuld prvide PSAP and dispatch services t its defined service area. Wireline and wireless calls wuld be ruted directly t the apprpriate reginal center, thus eliminating the majrity f call transfers. Planning fr NG9-1-1 prvides an excellent pprtunity fr changes t the existing system thrugh the cnslidatin prcess. Issues that will need t be specifically addressed include: Establishment f perating standards and quality assurance, ptentially thrugh the ESCB. Staffing t handle these respnsibilities fr the ESCB wuld need t be added t their budget. Prpsed staffing fr QA was nt included in any f the cst tables. Cnslidatin studies will need t be cnducted fr each f the regins, nce they are identified. The studies will identify csts, technlgical and peratinal needs fr each f the regins. Existing PSAP/dispatch centers may need t becme new reginal cmmunicatins centers that require cllabratin and versight between all the participants. Full cnslidatin studies may nt be needed if several existing PSAPs have mutual aid and interperability arrangements with neighbring centers and agreement can be reached in sending calls t ne f the PSAPs. L.R. Kimball, January 2010 Page 51

56 5.3 4-PSAP CONFIGURATION Operatinal Impact REPORT FOR: The 4-PSAP cnfiguratin wuld significantly impact the system in Maine. The number f call taking wrkstatins and call takers wuld be significantly reduced. In rder t handle the state s call vlume in the new cnfiguratin call taking wrkstatins wuld be required. The current cnfiguratin has 134 wrkstatins in 26 PSAPs. Based n the limited data available fr this reprt, the 4-PSAP cnfiguratin wuld likely perate best under a state agency such as the DPS. This recmmendatin will nt be well received amng cunty and lcal gvernments and respnse agencies wh have repeatedly viced cncerns abut further state mandates and lss f lcal cntrl. Twenty-tw PSAPs wuld be clsed. Eighty percent f calls will need t be transferred in rder t dispatch emergency persnnel t the scene f an incident. As a result, each transferred call fr service will have a delayed respnse. All f the clsed PSAPs will need t cntinue t dispatch fr the agencies that they nw serve. Delays caused by the transfer f calls will be an issue. Drpped calls, blind transfers and lack f call data will als create prblems. Service levels statewide will be negatively impacted. Staffing Based n current call vlumes, the number f full-time staff needed t perate fur cmmunicatin centers n a 24 hur, 365-day basis wuld be 80 call takers and 25 supervisrs. The 24 PSAPs that are clsed will nt realize any savings because all f the agencies will need t cntinue t prvide dispatch fr their cmmunities and will need t cntract fr PSAP services Technlgical Impact Based n the expected lifecycle f the existing wrkstatins, the ESCB will be prcuring new equipment in a 4-PSAP cnfiguratin using equipment currently leased thrugh the service cntract with FairPint. In the 4-PSAP cnfiguratin, the number f CAMA trunks required wuld be reduced frm 222 t 64. Call taking wrkstatin equipment wuld be reduced frm 134 t 32. Table 15 is a breakdwn f the trunks and wrkstatins by PSAP. Table 15: 4-PSAP Cnfiguratin Trunks & Wrkstatins 4-PSAP Cnfiguratin Trunks & Wrkstatins PSAP # f Trunks Wrkstatins PSAP PSAP PSAP PSAP L.R. Kimball, January 2010 Page 52

57 All fur PSAP lcatins wuld require a Plant/CML VESTA Meridian type slutin. There are currently six Meridian systems currently deplyed in Maine. Fur f these culd be reused during the transitin phase f the new statewide call center cnfiguratin. The fllwing systems shuld be incrprated int each wrkstatin: UPS, instant recall recrders (IRR) and Spectracm NetClck. The individual PSAPs culd cntinue t prvide their wn lgging recrder, but the ESCB shuld cnsider prviding recrders fr this cnfiguratin. In a 4-PSAP cnfiguratin, calls will be delivered ver 64 CAMA trunks 16 CAMA trunks t each PSAP and eight CAMA trunks t each tandem. This cnfiguratin prvides fr the same level f redundancy that exists in the current system. The Prtland Central Office shuld be engineered as a primary fr tw PSAPs and the Lewistn Central Office shuld be engineered as a primary fr the remaining tw PSAPs lcatins. FairPint (Plant/CML) can still use the state frame-relay netwrk fr the managed services prtin f their cntract but based n the qute the ESCB received frm FairPint fr an IP netwrk, it wuld be cmparable t current csts. The IP netwrk wuld allw better and faster access t their system. The MSAG database and the ALI database will need t be updated in rder t rute the calls t the crrect PSAP in a 4-PSAP cnfiguratin. FairPint and the ESCB will have t wrk with Intrad t assign the varius cmmunities t the apprpriate PSAP. At the end f the FairPint cntract, the ESCB, thrugh the prcurement prcess, will have the ability t identify ther call delivery ptins Csts/Ecnmic Impact Table 16 shws a five-year cst prjectin. The current csts line reflects the ESCB s 2011 budget prjectin under the existing arrangement with FairPint. Any recnfiguratin prir t the expiratin f the current cntract will nt affect the ESCB s bligatin under the existing cntract with FairPint. As with the ther PSAP cnfiguratins, budgetary pricing is prvided with and withut staffing csts. There may be additinal csts nt included in this study assciated with preparing, mdifying and leasing new r existing facilities t huse the fur PSAPs. Current statutes d nt allw fr the payment f cnstructin csts with funds. The baseline fr analysis is the ESCB s published budget prjectins fr Assumptins that the ESCB s prgram perating csts, separate frm the FairPint cntract csts fr the E9-1-1 system, wuld remain level were made. In the light f the market trends bserved in the present uncertain ecnmy, the analysis assumed a cnstant number f subscribers at the current 1,425,767 level. The nly difference between the csts f the 2-PSAP and 4-PSAP cnfiguratins are the number f wrkstatins needed and the number f persnnel needed t staff the facilities 24x7x365. Based n current call vlumes, staff needed t perate fur cmmunicatin centers 24x7x365 wuld be 80 call takers and 25 supervisrs at a budgetary cst f $5 millin each year. The 4-PSAP cnfiguratin wuld require the ESCB t prvide persnnel t answer calls fr the entire state. The fllwing assumptin was used fr this analysis: Persnnel csts wuld be based n the existing average hurly wages and benefits in Maine s DPS PSAPs L.R. Kimball, January 2010 Page 53

58 Thirty-nine wrkstatins wuld be needed in the 4-PSAP cnfiguratin. Lease ptin assumptins include: FairPint s equipment lease csts wuld be cmparable with ther vendrs equipment lease csts ESCB wuld fund the fllwing equipment hardware and sftware, and services: call handling Mapping 24x7x365 system maintenance and mnitring Uninterrupted Pwer Supply (UPS) and UPS mnitring In anticipatin f replacing existing equipment in 2012, ten percent f the current equipment csts were added t Current Csts Ttals. It is assumed in a 4 PSAP cnfiguratin the additinal ten percent wuld cver the csts f installatin f new equipment. These csts are reflected in the table belw and are presented in cnjunctin with the ESCB s current csts. Table 16: 4-PSAP Cnfiguratin Csts 4-PSAP Cnfiguratin Csts Csts 2011 Ttal 2012 Ttal 2013 Ttal 2014 Ttal 2015 Ttal 5 Year Ttal Current $9,470,702 $ 9,927,707 $ 9,927,707 $ 9,927,707 $ 9,927,707 $49,181,531 4-PSAP $9,460,502 $ 6,785,336 $ 6,481,336 $ 6,481,336 $ 6,481,336 $35,689,847 Staffing Csts 0 $ 5,030,900 $ 5,030,900 $ 5,030,900 $ 5,030,900 $20,123, With Staffing $9,460,502 $11,816,236 $11,512,236 $11,512,236 $11,512,236 $55,813,448 In cnclusin, the 4-PSAP ptin wuld result in a savings t the ESCB ver the current FairPint cntract pricing arrangement fr the existing 26 PSAPs Surcharge Impact The baseline fr analysis is the ESCB s published budget prjectins fr The assumptin was made that the ESCB s prgram perating csts, separate frm the FairPint cntract csts fr the E9-1-1 system wuld remain level. The analysis als assumed a cnstant number f subscribers at the current 1,425,767 level. Table 17 identifies the surcharge rates ver a six-year perid fr the 4-PSAP cnfiguratin. The varius Csts sectins identify anticipated csts based n the varius ptins. The Surcharge Funds rw identifies the actual revenues prjectin based n the listed surcharge rate. The 5 Year Ttal shws the difference between anticipated csts and the surcharge rate. In each example, the surcharge will nt meet the anticipated csts. L.R. Kimball, January 2010 Page 54

59 The surcharge rates fr the 4-PSAP cnfiguratin have the same limitatin nted in the 26 and the 15 t 17-PSAP cnfiguratin regarding 2010 and Rates have already been set by the Legislature, but the Legislature des have the ability t adjust the rate based n actual need. Prjected budget shrtfalls will be cvered by available fund mney. FY2012 thru 2015, the surcharge rates in the table reflect the fiscal year rate needed t cver the 4-PSAP Csts identified in the Table 16 Table 17: 4-PSAP Cnfiguratin Surcharge Analysis Cmm. Devices 2010 Ttal 4-PSAP Cnfiguratin Surcharge Analysis Ttal Ttal Ttal 2014 Ttal 2015 Ttal 5 Year Ttal Current Csts 1,425,767 10,457,706 9,470,702 9,927,707 9,927,707 9,927,707 9,927,707 $49,181,531 Surcharge $.37 $.52 $.58 $.58 $.58 $.58 Surcharge Revenue 6,330,405 8,896,786 9,923,338 9,923,338 9,923,338 9,923,338 $48,590,139 4-PSAP Csts 1,425,767 10,457,706 9,460,502 6,785,336 6,481,336 6,481,336 6,481,336 $35,689,847 Surcharge $.37 $.52 $.37 $.37 $.37 $.37 Surcharge Revenue 911 Csts with Staffing 6,330,405 8,896,786 6,330,405 6,330,405 6,330,405 6,330,405 $34,218,408 1,425,767 10,457,706 9,460,502 11,816,236 11,512,236 11,512,236 11,512,236 $55,813,448 Surcharge $.37 $.52 $.69 $.67 $.67 $.67 Surcharge Revenue 6,330,405 8,896,786 11,805,351 11,463,167 11,463,167 11,463,167 $55,091,637 *Based n the current prjected csts f prviding equipment and services in Maine. Table 18: 4-PSAP Cnfiguratin Cst Cmparisn 4-PSAP Cnfiguratin Cst Cmparisn 2012 Current Prjected Csts $9,927,707 4-PSAP Prjected Csts $6,785,336 Difference $3,142, Cnfiguratin Psitives and Negatives Psitives A 4-PSAP cnfiguratin based n a statewide reginal plan wuld be effective in prviding call taking services. Based n the existing call vlume, a 4-PSAP cnfiguratin is capable f handling the call vlume within Maine. L.R. Kimball, January 2010 Page 55

60 Existing CPE systems can be used in a 4-PSAP cnfiguratin. Savings in CPE, trunking, and wrkstatin csts Negatives Twenty-tw agencies will n lnger be taking calls directly. The majrity f these frmer PSAPs are assumed t cntinue t dispatch plice, fire and EMS. Over 80 percent f the calls will have t be transferred t dispatch agencies. Respnse time will be increased because the dispatch agencies will have t re-interview callers t determine the lcatin and the nature f the emergencies. After the infrmatin is cnfirmed, the apprpriate respnse agency will be dispatched. Lcal csts will increase Critical data that arrives with the E call cannt be transmitted t these dispatch agencies. The 4-PSAP cnfiguratin will require an additinal system t prvide the dispatch agencies with the vital call data when the calls are transferred. The call data must arrive at the same time as the call transfer. Technlgy, such as a statewide CAD system, can deliver this data t these emergency respnders. Currently, Maine des nt have a statewide CAD system. This cnfiguratin wuld be unppular plitically. The majrity f stakehlders viced pinins that service levels were best when and dispatch functins were kept tgether when pssible. This cnfiguratin is unlikely t prmte the cnslidatin f dispatch services PSAP Cnfiguratin Summary In terms f lwering the state s assciated csts, this cnfiguratin wuld be the secnd mst advantageus. With fur PSAPs statewide, equipment and netwrk csts wuld be cnsiderably lwer than the existing cnfiguratin. Hwever, cst is the nly perspective where this cnfiguratin is best. The lwer equipment and netwrk csts wuld nly benefit the state while lcal csts increase and service levels decrease. Virtually all calls, except pssibly thse dispatched by DPS, wuld need t be transferred at least nce. While the delay can be mitigated t sme degree by implementing technlgy such as a statewide CAD, the lss f instant cmmunicatins between call takers and dispatchers and the ability f all emplyees t see and respnd t the big picture reginally is significant. Preparatin fr a NG9-1-1 system wuld als becme mre difficult t plan as a methd f frwarding new data types t dispatch-nly sites will need t be established. The specific technlgy needed and the assciated csts have yet t be identified PSAP CONFIGURATION Operatinal Impact The number f call taking wrkstatins and call takers wuld be significantly reduced in a 2-PSAP cnfiguratin. In rder t handle the state s call vlume in the new cnfiguratin twenty-fur call taking wrkstatins wuld be required. The current cnfiguratin has 134 wrkstatins in 26 PSAPs. L.R. Kimball, January 2010 Page 56

61 Based n the limited data available fr this reprt, the 2-PSAP cnfiguratin wuld likely perate best under a state agency such as the DPS. This recmmendatin will nt be well received amng cunty and lcal gvernments and respnse agencies wh have repeatedly viced cncerns abut further state mandates and lss f lcal cntrl. Twenty-fur PSAPs will be clsed. Mst f the calls will need t be transferred in rder t dispatch emergency persnnel t the scene f an incident. As a result, each call fr service will have a delayed respnse. All f the clsed PSAPs will need t cntinue t dispatch fr the agencies that they nw serve. Delays caused by the transfer f calls will be an issue. Drpped calls, blind transfers and the lack f call data will als create prblems. Service levels wuld decrease as a result. Staffing Sixty-five full time equivalents (13 supervisrs and 52 call takers) wuld be needed t handle the state s entire call vlume. The 22 PSAPs that are clsed will nt realize any savings and csts culd increase because all f the agencies will need t cntinue t prvide dispatch fr their cmmunities and cntract with a PSAP fr call prcessing services Technlgical Impact Based n the expected lifecycle f the existing wrkstatins, the ESCB will be prcuring new equipment in a 2-PSAP cnfiguratin. Existing equipment currently leased thrugh the service cntract prvided by FairPint Cmmunicatins culd be used during the transitin perid. Each PSAP must be capable f handling traffic fr the entire state. The systems at each PSAP must be redundant with n single pint f failure. The 2-PSAP cnfiguratin system wuld reduce the number f CAMA trunks frm 222 t 48. Call taking equipment wuld be reduced frm 134 t 24 wrkstatins. Table 19 is a breakdwn f the trunks and wrkstatins by PSAP. Table 19: Breakdwn f Trunks and Wrkstatins by PSAP 911 Trunks and Wrkstatins by PSAP PSAP # f Trunks Wrkstatins PSAP PSAP Bth PSAP lcatins wuld require using a Plant/CML VESTA Meridian slutin. There are currently six Meridian systems currently deplyed in Maine. Tw f these culd be reused fr a new statewide call center cnfiguratin. The fllwing systems will still be incrprated int each wrkstatin: UPS, Instant Recall Recrder (IRR) and Spectracm NetClck. The ESCB will need t prvide lgging recrders fr the 2-PSAP cnfiguratin. L.R. Kimball, January 2010 Page 57

62 In a 2-PSAP cnfiguratin, calls will be delivered t the tw PSAPs ver same trunks. There wuld be 24 CAMA trunks t each PSAP and 12 CAMA trunks t each selective ruter lcatin. FairPint (Plant/CML) wuld be able t cntinue using the state frame-relay netwrk fr the managed services prtin f their cntract but based n the qute the ESCB received frm FairPint fr an IP netwrk, it wuld be cmparable t the current csts. The IP netwrk wuld allw better and faster access t their system. The MSAG database and the ALI database will need t be updated in rder t rute the calls t the crrect PSAP in a 2-PSAP cnfiguratin. FairPint and the ESCB will need t wrk with Intrad t assign the varius cmmunities t the apprpriate PSAP. At the end f the FairPint cntract, the ESCB, thrugh the prcurement prcess, will have the ability t identify ther call delivery ptins Csts/Ecnmic Impact Table 20 shws a five-year cst prjectin. Current csts reflect the ESCB s budget prjectin fr Budgetary pricing with and withut staffing csts are prvided. Thirty-ne (24 PSAP and 7 training) wrkstatins wuld be needed. The ESCB may incur additinal csts nt included in this study assciated with preparing r mdifying new r existing facilities t huse the tw PSAPs. This ecnmic impact assessment began with five basic assumptins: 1. The state (DPS) wuld perate bth PSAPs. This assumptin is based n use f existing facilities with adequate space such as CMRCC as a significant cst saving measure. 2. The ESCB s prgram perating csts, separate frm E9-1-1 system csts, wuld remain level. 3. Equipment frm the decmmissined PSAPs wuld nt be reused. 4. The ESCB wuld chse nt t exercise its ptin t renew the FairPint cntract in FY Existing managed services wuld be mved t an IP netwrk in The current FairPint cntract is a lease arrangement. The ESCB leases all equipment. ESCB wuld fund the fllwing equipment hardware and sftware, and services: call handling Mapping 24x7x365 system maintenance and mnitring Uninterrupted Pwer Supply (UPS) and UPS mnitring call handling hardware/sftware Mapping hardware/sftware UPS and UPS mnitring capability Csts in 2011 reflect a savings ver the current FairPint cntract pricing fr the existing 26 PSAPs due t the mve f existing managed services t an IP netwrk. L.R. Kimball, January 2010 Page 58

63 Prvisining the tw PSAPs wuld cmmence in 2012 FairPint s equipment lease csts wuld be cmparable t any ther vendr s equipment lease csts In anticipatin f replacing existing equipment in 2012, ten percent f the current equipment csts were added t Current Csts Ttals. It is assumed in a 2-PSAP cnfiguratin, the additinal ten percent wuld cver the csts f installatin f new equipment. The 2012 pricing reflects the cst f the IP netwrk fr managed services and the purchase f a master lgging recrder fr each PSAP. The 2-PSAP cnfiguratin wuld require the ESCB t prvide persnnel t answer calls fr the entire state. The fllwing assumptin was used fr this analysis: Persnnel csts wuld be based n the existing average hurly wages and benefits in Maine s DPS PSAPs Kimball calculated an average hurly pay rate based n the PSAP survey results. On that basis and the number f full-time call takers and supervisry staff needed t perate these cmmunicatin centers 24/7, the budgetary cst fr persnnel wuld be $3.1 millin each year. Sixty-five full time equivalents (13 supervisrs and 52 call takers) wuld be needed t handle the state s entire call vlume. In the state s current 26-PSAP cnfiguratin (excluding Prtland, fr which Kimball had n data), there are 327 authrized full time staffers and 62 authrized part time emplyees. These emplyees handle call taking, emergency dispatching and ther administrative duties within their agency (fr example, answering the department s administrative telephne lines). While having DPS take ver the answering f calls might appear t have the ptential t reduce csts significantly, lcal agencies must still dispatch the calls fr service, crdinate the respnders and cnduct their day-t-day business. They will still need mst, if nt all, f the persnnel they currently have nw. Lcal csts will remain the same and ptentially increase in cming years. The state s fiscal year csts fr a 2-PSAP cnfiguratin are reflected in the table belw and are presented in cnjunctin with the ESCB s current csts. Table 20: 2-PSAP Cnfiguratin Csts 2-PSAP Cnfiguratin Csts Year Csts Ttal Ttal Ttal Ttal Ttal Ttal Current $9,470,702 $9,927,707 $9,927,707 $9,927,707 $9,927,707 $49,181,531 2-PSAP $9,446,702 $6,728,402 $6,576,402 $6,576,402 $6,576,402 $35,904,311 Staffing 0 $3,097,778 $3,097,778 $3,097,778 $3,097,778 $12,391,112 2-PSAP with Staffing $9,446,702 $9,826,180 $9,674,180 $9,674,180 $9,674,180 $48,295,423 When examining csts frm a r PSAP perspective nly, the 2-PSAP ptin wuld bring a significant savings t the ESCB s budget, althugh nt t lcal budgets. L.R. Kimball, January 2010 Page 59

64 Surcharge Impact The ESCB s published budget prjectins fr 2011 prvided the baseline fr this analysis. The ESCB s prgram perating csts, separate frm E9-1-1 system csts, were assumed t remain level. In Maine, as in much f the rest f the cuntry, landlines are declining and wireless and VIP lines are increasing. In the face f that fact and the uncertain ecnmy, neither grwth nr decline was assumed in the verall numbers f cnsumers using ne r the ther f these services. The ESCB s staff prvided the current number f subscribers, 1,425,767, which was used fr this surcharge analysis. Table 21 identifies the surcharge rates ver a six-year perid fr the 2-PSAP cnfiguratin. The varius Csts sectins identify anticipated csts based n the varius ptins. The Surcharge Funds rw identifies the actual mney that will be cllected, based n the listed Surcharge. The 5 Year Ttal shws the difference between anticipated csts and the surcharge rate. In each example, the surcharge will nt meet the anticipated csts. The surcharge rates fr the 2-PSAP cnfiguratin have the same limitatins that were nted in the ther PSAP cnfiguratins. The surcharge rate fr FY2010 was 37 cents and FY2011 has been set at 52 cents, but the Legislature des have the ability t adjust the rate. In the surcharge analysis table it is assumed that the rates fr will remain at 52 cents. Shrtfalls will be cvered by available fund mney and FY2012 thru 2015 rates presented in the table reflect the amunt needed t cver the 2-PSAP Csts identified in the Table 20. Table 21: 2-PSAP Cnfiguratin Surcharge Analysis Cmm. Devices 2-PSAP Cnfiguratin Surcharge Analysis Ttal Ttal Ttal Ttal Ttal 2015 Ttal 5 Year Ttal Current Csts 1,425,767 10,457,706 9,470,702 9,927,707 9,927,707 9,927,707 9,927,707 $49,181,531 Surcharge $.37 $.52 $.58 $.58 $.58 $.58 Surcharge Revenue 6,330,405 8,896,786 9,923,338 9,923,338 9,923,338 9,923,338 $48,590,139 2-PSAP Csts 1,425,767 10,457,706 9,446,702 6,728,402 6,576,402 6,576,402 6,576,402 $35,904,311 Surcharge $.37 $.52 $.39 $.38 $.38 $.38 Surcharge Revenue 6,330,405 8,896,786 6,672,590 6,501,498 6,501,498 6,501,498 $35,073, Csts with Staffing 1,425,767 10,457,706 9,446,702 9,826,180 9,674,180 9,674,180 9,674,180 $48,295,423 Surcharge $.37 $.52 $.57 $.56 $.56 $.56 Surcharge Revenue 6,330,405 8,896,786 9,752,246 9,581,154 9,581,154 9,581,154 $47,392,495 *Based n the current prjected csts f prviding equipment and services in Maine. L.R. Kimball, January 2010 Page 60

65 Table 22: 2-PSAP Cnfiguratin Cst Cmparisn 2-PSAP Cnfiguratin Cst Cmparisn 2012 Current Prjected Csts $9,927,707 2-PSAP Prjected Csts $6,728,402 Difference $3,199, Cnfiguratin Psitives and Negatives Psitives Based n the existing call vlume, a 2-PSAP cnfiguratin is capable f handling the call vlume within the State f Maine. Existing CPE systems can be used in a 2-PSAP cnfiguratin. This chice wuld be the least expensive fr the ESCB shuld it chse t evaluate nly related csts. Negatives Every 911 call made in the State f Maine will need t be transferred t a dispatch center in rder t prvide emergency respnse t calls fr help. Each emergency respnse will be delayed because f these transfers. If ne PSAP is ut f service, it places the entire burden n the surviving PSAP. This scenari wuld cmpletely separate PSAP and dispatch functins, dramatically increasing the number f dispatch-nly sites. While the csts t the ESCB wuld be reduced, csts t lcal municipalities wuld increase. Ptential jb lss in rural areas. While nly tw larger PSAPs wuld create a demand fr staff, it is unlikely that it wuld be gegraphically pssible fr sme emplyees t cmmute t either f the tw PSAPs. Ensuring that dispatch-nly sites receive data types assciated with NG9-1-1 culd be difficult and cstly. Critical data that arrives with the E9-1-1 call cannt be transmitted t these dispatch agencies. The 2-PSAP cnfiguratin will require an additinal system t prvide the dispatch agencies with the vital call data when the calls are transferred. The call data must arrive at the same time as the call transfer. Technlgy, such as statewide CAD systems, is capable f delivering this data t these emergency respnders but it is nt prvided in Maine at this time. This cnfiguratin wuld be unppular plitically. The majrity f stakehlders have viced their pinin that service levels were best when and dispatch functins were kept tgether when pssible. L.R. Kimball, January 2010 Page 61

66 PSAP Cnfiguratin Summary In terms f lwering the state s assciated csts, this cnfiguratin is the mst advantageus. With nly tw PSAPs statewide, equipment and netwrk csts wuld be the lwest. Hwever, cst is the nly perspective where this cnfiguratin is best. The lwer equipment and netwrk csts wuld nly benefit the state while lcal csts increase and service levels decrease. Virtually all calls, except pssibly thse dispatched by DPS, wuld need t be transferred at least nce. While the delay can be mitigated t sme degree by implementing technlgy such as a statewide CAD, the lss f instant cmmunicatins between call takers and dispatchers and the ability f all emplyees t see and respnd t the big picture reginally is significant. Preparatin fr a NG9-1-1 system wuld als becme mre difficult t plan as a methd f frwarding new data types t dispatch-nly sites will need t be established. The specific technlgy needed and the assciated csts have yet t be identified. (The cst f making the data available t the dispatch-nly sites shuld be the respnsibility f the ESCB using fund mney. Csts related t the cnnectivity and data retrieval are the respnsibility f the dispatch-nly sites.) L.R. Kimball, January 2010 Page 62

67 6. CONSOLIDATION OF PSAP & DISPATCH FUNCTIONS This reprt refers repeatedly t the benefits f full cnslidatin f PSAP and dispatch functins int a single cmmunicatins center (usually cunty r reginally based). This sectin prvides a brief verview f the benefits f full cnslidatin. Please nte that full cnslidatin can take a variety f frms including lcal, cunty and reginal PSAP/dispatch centers. Agencies cnsider cnslidatin fr a number f reasns. Cmmnly cited mtives include the fllwing: 1. Service level imprvements are the single mst imprtant reasn cnslidatin shuld be cnsidered call takers and dispatchers are truly the first respnder n the scene and can substantially affect the utcme f an incident. Fllwing are the types f service imprvements typically achieved: Reductin r eliminatin f the transfer f calls between PSAPs and dispatch nly sites imprves respnse times and lwers the ptential fr human r technlgy errrs. Quicker call prcessing and dispatch times, resulting in faster n-scene times fr field persnnel. Sharing f physical space enables cmmunicatins between call takers, law enfrcement, fire and EMS dispatchers t be virtually instantaneus. This imprved cmmunicatins enables field persnnel t receive infrmatin mre quickly and accurately which is particularly imprtant in multi-jurisdictinal incidents. This cmmunicatin is the least tangible quantifiable benefit f cnslidatin, but is ne f the mst imprtant. If large enugh, a fully cnslidated cmmunicatins center can utilize a call taker/dispatcher rganizatinal structure. This structure enables the call takers t fcus slely n the incming call and btain the best infrmatin pssible. The dispatcher s ability t fcus slely n field persnnel imprves field persnnel safety. Standardized training f all cmmunicatins center emplyees increases reginal cnsistency. A single reginal cmmunicatins center allws resurce management during majr incidents frm a single pint f cntrl rather than fragmenting cntrl amng multiple PSAPs and dispatch-nly sites. A cnslidated envirnment will ffer the pprtunity fr smaller participants t benefit frm state-f-the-art technlgy, imprved training and expanded career pprtunities that wuld nt be therwise financially r rganizatinally feasible. 2. Individual agencies n lnger wish t supprt the training and technlgy needed r handle the persnnel issues fr PSAP and/r dispatch staff. Reassigning swrn persnnel functining as management and supprt staff t ther psitins is pssible by eliminating the PSAP r dispatchnly site. 3. Anther primary reasn cited fr cnslidatin is cst savings. While cst savings are pssible, tw pints are critical. L.R. Kimball, January 2010 Page 63

68 First, nt all cnslidatins result in cst savings. A cmmn miscnceptin is that cnslidating will result in significant persnnel reductins thus significant cst savings. Cnslidatins d nt nrmally invlve large staff reductins. The real cst savings cme frm the eliminatin f redundant and expensive technlgy such as CAD, answering equipment, radi cnsles and lgging recrders. The single set f technlgy and systems fund in a cnslidated envirnment reduces csts assciated with prcurement, cnnectivity and maintenance csts. Secnd, in thse scenaris where cst savings are achievable the actual realizatin f the savings may nt ccur fr several years. The cnslidatin prcess can be expensive and can generate substantial ne-time start-up and capital csts fr facility and technlgy needs. These csts delay the actual cst savings. L.R. Kimball, January 2010 Page 64

69 7. RECOMMENDATIONS REPORT FOR: 7.1 CONFIGURATION RECOMMENDATIONS The ESCB shuld maintain the current 26-PSAP cnfiguratin temprarily and refrain frm any additinal cnslidatins fr the duratin f the current FairPint cntract, at minimum. The state, cunty and lcal municipalities shuld wrk cllabratively t identify service level issues and slutins. Cperatin must be present at the state, cunty and lcal levels. Studies shuld be cnducted t assess the feasibility f cnslidating PSAP and dispatch functins as much as pssible. Develp a plan fr a future migratin t apprximately 15 t 17-PSAPs statewide. These PSAPs shuld be reginally lcated. In cnjunctin with the plan fr 15 t 17-PSAPs, the ESCB shuld ffer incentives t lcal municipalities t cnslidate dispatch functins in each reginal PSAP prgrams in Cnnecticut and Massachusetts ffer grants and/r subsidies t encurage cnslidatin effrts (see Appendix B) A full and cmprehensive cnslidatin study shuld be dne t include all aspects f emergency cmmunicatins (including dispatch, radi, etc.) t develp a lng-term cmprehensive emergency cmmunicatins plans. Each regin may need t cnduct its wn study. PSAP rate shpping shuld be addressed via regulatin thrugh a capped fee structure and restrictins n hw ften service can be shifted amng PSAPs Wireless calls shuld be ruted directly t the apprpriate PSAP fr prcessing. Hwever, the redirectin f these calls shuld nt take place until a final cnfiguratin is in place. Given cmplexity, time needed and cst, majr re-cnfiguratin f ruting shuld wait until the PSAP recnfiguratin is decided. (Additinal staffing r assistance will be required fr any reruting effrt). Shuld the timeline fr achieving a final cnfiguratin be lengthy, a decisin t rerute calls in the interim may need t be cnsidered. 7.2 ESCB SCOPE OF AUTHORITY Maine s enhanced enabling legislatin at 25 MRSA 2926, sub- 2 gives the ESCB brad respnsibility fr the technical and peratinal aspects f a statewide enhanced Its respnsibilities include setting minimum mandatry staff training requirements fr E9-1-1 call answering and dispatching as prvided under Sub- 2-B. The list f respnsibilities des nt specifically include quality versight f system peratins, including quality versight f PSAP cnfrmance with the ESCB s call handling standards. The statute specifically states the list is nt all-inclusive and that gives the ESCB brad authrity t address any tpic it deems necessary fr the prudent peratin and administratin f the statewide system. L.R. Kimball, January 2010 Page 65

70 During the curse f this study, Kimball learned that a questin had arisen abut the ESCB s authrity t make the final determinatin abut what PSAP serves a particular cmmunity and the PUC s authrity t refuse a lcal r cunty gvernment request t change its PSAP. Rep. H. David Ctta asked the Maine Attrney General Office fr an interpretatin f the law and the Attrney General issued an pinin cnfirming that the ESCB and the PUC d have that authrity. We think an Attrney General s pinin prvides an adequate basis fr the PUC and ESCB t take effective actin. A cpy f this pinin is lcated in Appendix C. Nevertheless, the fact that the legal questin arse indicates the statute needs t be clearer n that pint. This is particularly imprtant in the cntext f this study. Kimball recmmends that the Legislature amend the existing law fr the imprvement f statewide enhanced Specifically, the fllwing is recmmended: Amend 25 MRSA 2926 sub- 1 t make it clear that the Bureau is respnsible nt nly fr the implementatin and management f E-9-1-1, but als fr adpting rules t standardize PSAP peratinal prcedures that enhance public safety in Maine thrugh the statewide E9-1-1 system. Amend 2926 sub- 2-A t clarify the ESCB s authrity t make the final determinatin abut which PSAP will serve which cmmunity and the PUC s authrity t accept r reject a municipality s r cunty s request t change frm ne PSAP t anther. 7.3 ESCB INCENTIVES FOR CONSOLIDATION 25 MRSA 2926 sub- 2-A directs the ESCB t establish a ttal f between 16 and 24 public service answering pints. The Bureau shall seek t crdinate any reductin in the number f public service answering pints t achieve this gal with any cntractual bligatins it may have r may enter int that are r culd be affected by that reductin. This wuld appear t leave it t the ESCB t determine hw t g abut accmplishing that gal. The funding f E9-1-1 services is prvided fr in 25 MRSA The ESCB is authrized by Sub- 3 t use the revenues in the E fund t fund staff and t defray csts assciated with the implementatin, peratin and management f E PSAP cnslidatin is clearly an peratinal matter ver which the ESCB apprpriately culd ffer financial incentives. The ESCB s annual budget is reviewed by the jint standing cmmittee f the Legislature having jurisdictin ver utilities and energy, which then makes recmmendatins regarding expenditures frm the E9-1-1 fund t the jint standing cmmittee f the Legislature, having jurisdictin ver apprpriatins and financial affairs. The fllwing is recmmended: The ESCB shuld budget a certain amunt t be distributed t PSAPs as grants fr the purpse f studying, planning and executing full cnslidatins. The ESCB shuld adpt a plicy psitin favring the cnslidatin f PSAP and dispatching functins int reginal centers and then supprt cnslidatin initiatives thrugh its grant prgram. 25 MRSA 2927 Sub- 8 shuld be amended t give the ESCB authrity t adpt rules establishing and gverning a cnslidatin incentive grant prgram. L.R. Kimball, January 2010 Page 66

71 APPENDIX A FOCUS GROUPS PERSPECTIVES, CONCERNS AND ISSUES L.R. Kimball, January 2010 Page 67

72 State, ESCB and DPS Fcus Grups: REPORT FOR: Appendix A Fcus Grups Perspectives, Cncerns and Issues The fllwing State f Maine (ESCB and DPS) pinins, cncerns and issues were expressed: Lcal units f gvernment are against state frced initiatives (unfunded mandates), nt necessarily against cnslidatin. Issues with hw the ESCB is managed by state gvernment including: Surcharge funds being raided by the state at the executive level. ESCB appears t be a cnduit frm PUC t PSAPs, nt the ther way arund. The make-up f the Bard shuld be adjusted t include direct cunty representatin. The Bard appears t shw favritism t state agencies. The ESCB shuld have equal influence frm all agencies served. Lcal gvernment and respnse agencies feel strngly that the state was the nly entity t save mney in last rund f PSAP reductins, while lcal csts increased. Lcal gvernments and respnse agency representatives are cncerned abut arbitrary cnslidatin decisins made withut lcal input. Specific cncerns are: PSAPs shuld be strategically placed and agency input shuld be included if further cnslidatin ccurs. Cnslidatin shuld imprve services and create cst efficiencies fr all participants. Sme participants are cncerned that the cnslidatin prcess will lead t further pressure tward DPS handling all call taking statewide. Stakehlders believe the state makes decisins based n csts nt service and are cncerned this apprach will lead t negative plitical impact and fluctuating csts and fees. There is n cnfidence in the state t successfully plan and perate a PSAP recnfiguratin based n histrical effrts. Lcal units f gvernment need financial incentives t participate in cnslidatin. Stakehlders at the lcal level d nt want state mandated cnslidatin. Sme lcal level participants feel state is nw charging fr services it tk away. Cnslidatin Challenges and Related Service Issues Stakehlders see staffing and service degradatin as challenges resulting frm cnslidatin. Many lcal agencies believe incentives shuld be prvided t encurage cnslidatin Recnfiguratin decisins shuld be based n service and stakehlder input first, then csts. L.R. Kimball, January 2010 Page 68

73 Mst stakehlders supprt minimizing the number f call transfers. Mst stakehlders want t leave cnfiguratin as it currently is r pursue further reginalizatin as fully cnslidated (call taking and dispatching) centers. Stakehlders are supprtive f lcalized service fr familiarity with gegraphy and agencies served. It wuld be difficult t have a large area cvered by a single PSAP due t disparate gegraphy, cultural differences and unin issues. Therefre, stakehlders feel service levels will be adversely affected. Persnal cntact with citizens and agencies dispatched was lst during the last cnslidatin effrt. Service issues including the lss f gegraphic knwledge, even with use f mapping, ersin f public cnfidence in (An example given f bank manager admitted using nn-emergency line rather than suffer delays f dialing 9-1-1) and multiple examples f misruted calls and misdirected respnders. Cncerns that the state will nt develp and enfrce requirements and prtcls (standardizatin). Reprtedly, DPS des nt have the same service level plicies and quality f service as cunty and municipal PSAPs. The culture f splitting call taking and dispatching functins needs t change as it causes a splintering f service. The splintering lwers the quality f service. Cncerns abut the impact f rate shpping, due t ecnmic cnditins, has n service. Cncerns abut crdinating respnse and recvery initiatives, if further reductins ccur. Mst EOCs are cllcated with reginal cmmunicatins centers. Cnslidatin related service issues have cmpelled sme lcal municipalities t advise citizens t dial the respnding agency directly rather than call Natural cnslidatin/reginalizatin shuld be encuraged and will happen. Cunty PSAP representatives believe the thirteen existing cunty PSAPs shuld remain intact. Participants expressed cncerns that DPS was taking n a larger wrklad than it can effectively handle. Stakehlders wuld like the ESCB t take the lead n establishing standardizatin f services and csts. Cunty/municipal agencies will still need t prvide dispatch services n matter hw many PSAPs exist. Selectin f PSAP sites shuld be based n quality f service rather than the rates charged. All stakehlders want equal and cnsistent service statewide. L.R. Kimball, January 2010 Page 69

74 Lcal Impact Sme stakehlders are cncerned abut legislative impact n plans and budgets already in place fr new facilities r ther capital expenses. Fear that further cnslidatin will increase lcal financial burdens and result in a decrease in service levels. Sme stakehlders d nt believe further PSAP cnslidatin will save mney. Dispatch centers saw n decrease in staff nly, an increase in time and difficulty in prcessing calls. Csts als increased: Sme agencies increased staff Increased lcal csts experienced due t training Rate shpping is a deterrent t further cnslidatin. Dispatch-nly sites are cncerned abut the inability t measure true call prcessing time t identify hw much time elapses befre call transfers are received. Municipal stakehlders want surcharge dllars used at the lcal level t reduce the burden n taxpayers. Cst cncerns including: Differing fee structures acrss the state Rate shpping, fee structure changes and incnsistencies are issues True csts t municipalities may be difficult t identify with a shift frm lcal t a state fee structure. A mechanism t cntrl fees and csts needs t be established. Cunty and municipal PSAPs feel they are able t prvide services fr less cst than the DPS sites as cunties are in better financial cnditin than is the state/dps. Sme gvernment entities are augmenting their revenue by taking n additinal dispatch functins fr ther municipalities. Stakehlders expressed the fllwing survey / study cncerns: The survey results d nt reflect real user agencies. The surveys may nt cntain crrect data. There is n pprtunity fr stakehlders t review the study befre it is released t public and decisins are made at state level. Stakehlders wuld like an pprtunity t questin findings and recmmendatins. Funding Issues and Cnslidatin Incentives State and lcal gvernments have differing views, pinins and knwledge bases regarding rate increases, surcharge usage and lcal service fees. Fr example: L.R. Kimball, January 2010 Page 70

75 DPS cncerned that lcal gvernment entities d nt knw that DPS has n cntrl ver what is r is nt cvered by their budget. DPS is tld what they will pay fr services by ther state agencies (e.g. OIT). DPS cannt cntrl csts. The state shuld prvide incentives instead f frcing a cnslidatin initiative. Cnslidatin effrts need t fcus n service. The reginal cmmunicatins centers are successful because cllabratin was nt frced. Need incentives supprting cllabrative initiatives. Cncerns abut hw services will be paid fr including: Larger agencies feel as if they are subsidizing smaller agencies. Feels like taxpayers are nt receiving service they are paying fr. Affected stakehlders feel they have n cntrl and suggest: Regulatin and standardizatin f csts, fees and structure. Cntrl f fees t reduce rate shpping. Review rate case hearings. Stakehlders want the state, thrugh ESCB, t pay t imprve staffing, training, technlgy and EMD in PSAPs and dispatch centers. A cnslidatin incentive culd be funding t supprt data and vice interperability. Rate shpping culd be cntrlled thrugh legislatin. Lcal agencies are cncerned that state gvernment des nt have a mechanism t adjust peratins budget r staffing. Fee structures and frmulas are different amng lcals Sme PSAPs wuld like t see a per call basis fee, hwever they cncerned that larger agencies will resist as they see it as having t carry the larger lad. Technlgy Need mre technlgy (faster access t ALI, mapping and prtcls) available t all agencies. Dispatch-nly sites have n ALI, r have IMC ALI interface (which is reprtedly nt reliable). Lcatin infrmatin must be manually typed int CAD. All agencies are cncerned abut lsing ANI/ALI and mapping if they lse PSAP status. Sites that currently d nt receive ALI must receive verbal relay f lcatin. Lcating callers will becme mre difficult if further separatin between dispatch and call taking ccurs thrugh further cnslidatin. Disparity amng CAD systems prevents sharing f data with ther agencies. L.R. Kimball, January 2010 Page 71

76 Stakehlders are interested t knw hw radi and data systems will be affected by further cnslidatins, specifically hw and if the statewide radi and data systems may be leveraged t supprt mre daily peratins f lcal gvernment respnse agencies. Stakehlders want t knw hw t address radi interperability t allw further cnslidatin. MSCmmNet will n lnger allw lcal mnitring f state frequencies. EMD and Staffing The methd f prviding EMD is incnsistent. What agency will prvide EMD is call specific rather than agency specific. Agency that perfrms EMD shuld als dispatch call. Dispatch-nly centers that perfrm EMD d nt receive funding r training. EMD mandate ccurred at same time f last recnfiguratin. The ESCB prvides EMD training t PSAP staffs, but additinal csts are nt cvered. PSAPs are required t staff tw wrkstatins 24x7, hwever many dispatch-nly sites staff nly ne psitin 24x7. Prtcls and Training Agencies are fllwing different caller transfer prtcls. A single prtcl shuld be fllwed by all agencies. Blind transfers are cmmn. N standard regarding call annuncements n transfers exists. There are training differences between DPS and cunty/municipal PSAPs including: Insufficient SOPs and crdinated training. Training issues cited at DPS sites. Wireless Call Ruting and Prcessing Several cunties want all wireless calls ruted directly t their PSAPs t alleviate the transferred and drpped calls (particularly wireless) and blind transfers. Any recnfiguratin initiative shuld minimize r eliminate transferred calls. Other Stakehlder Input Kimball received crrespndence frm a variety f individual stakehlders. Key issues and cncerns are as fllws: Any further cnslidatin shuld take int accunt mre than just the call vlume f each PSAP. Gegraphy and lcal knwledge pay a significant rle in the high level f service being prvided by small PSAPs with lw call vlume. The state and lcal agencies wuld be best served by maintaining at least ne PSAP in each cunty. L.R. Kimball, January 2010 Page 72

77 Emergency management needs a direct line f cmmunicatin with its wn PSAP t prvide the mst efficient incident management fr the citizens. Maintaining a cunty PSAP/dispatch center is mre ecnmically feasible as PSAP services d nt need t be paid fr in additin t a dispatch staff. Further cnslidatin will increase call transfers, thereby increasing emergency respnse times and the pssibility f drpped calls and will lwer safety levels fr citizens and respnders. Lsing equipment and mapping wuld impact the ability f small dispatch centers t prvide safe and reliable service t the cmmunity. Cnfiguratin Preferences During the stakehlder and fcus grup meetings, tw cnfiguratin preferences were shared by multiple grups and individuals. The number ne cnfiguratin preference amng stakehlders is t maintain the current cnfiguratin with imprvements t technlgy and standardizatin f prtcls statewide. This preference is viewed as ne that will fster natural cnslidatin amng agencies. This is als seen as an pprtunity fr the state, thrugh ESCB, t develp and prvide funding r technlgy incentives fr further cnslidatin. The secnd mst frequently mentined cnfiguratin preference is t maintain the 13 reginal centers (cunty run peratins) with imprvements t technlgy and standardizatin f prtcls statewide. This preference is seen as ne that can be mst successful in reuniting the call taking and dispatch prcesses int ne peratin. It is imprtant t nte that the secnd preferred cnfiguratin cmes in tw different frms: 13 reginal centers with DPS sites handling nly state agencies 13 reginal centers, plus a pre-determined number f municipal run centers based n call vlume and DPS sites t handle nly state agencies All cited preferences included expansin f state funding tward additinal technlgy, equipment and services. They als included fcus n imprving services, regulating fees and standardizatin f prtcls statewide. L.R. Kimball, January 2010 Page 73

78 APPENDIX B CONNECTICUT OFFICE OF STATEWIDE EMERGENCY TELECOMMUNICATIONS MASSACHUSETTS STATE DEPARTMENT L.R. Kimball, January 2010 Page 74

79 Appendix B CONNECTICUT The Office f Statewide Emergency Telecmmunicatins (OSET) versees the develpment and maintenance f crdinated statewide emergency service telecmmunicatins fr public safety rganizatins and the residents f the state f Cnnecticut. The OSET versees the system in state f Cnnecticut. They prvide several subsidies t ffset the cst f PSAP peratins fr municipalities. Municipalities with ppulatin f 70,000 r mre receive an annual subsidy frm OSET t ffset the cst f PSAP peratins. Reginal Emergency Cmmunicatins Centers (RECCs) receive an annual subsidy t prvide services. A minimum f three municipalities are needed t frm an RECC. The frmula fr the calculatin f the subsidies t RECC is based n: 1. Aggregate ppulatin f the municipalities 2. A calculatin f calls received in relatinship t the state median number f calls in the previus calendar year shall be used. 3. The emergency service cunt fr the municipalities served. OSET prvides funding t ffset the cst frming new RECCs and prvides an annual subsidy t existing RECCs. This subsidy is based n a funding frmula. Currently, eight reginal dispatch centers in the state receive subsidy funding. RECC transitin grants fr reimbursable expenses are limited t csts assciated with the relcatin f existing emergency telecmmunicatins systems and nn-recurring csts. It shall nt exceed tw hundred fifty thusand dllars. Reimbursable expenses include the fllwing: 1. Mving telephne lines related t emergency telecmmunicatins radi systems 2. Changes t existing radi systems f the affected parties that are required by the mve 3. Emergency telecmmunicatins equipment required by the reginal telecmmunicatins center t facilitate the incrpratin f anther municipality. 4. Analysis, design r planning f a new reginal emergency telecmmunicatins center r multitwn PSAP. Municipalities are eligible fr analysis, design and planning csts, allcated n a ne-time basis, fr new reginal centers at the rate f fifteen thusand dllars fr the first tw member municipalities plus an additinal five thusand dllars fr each additinal member municipality. 1_fund_regulatins_fr_web_site_ pdf (Adpted, effective January 24, 1997, amended March 6, 2006) L.R. Kimball, January 2010 Page 75

80 MASSACHUSETTS The State Department versees the prgram in Massachusetts. The Department has a grant prgram that encurages the develpment and/r imprvement f Reginal Emergency Cmmunicatin effrts. The funding fr feasibility study and Reginal develpment, expansin, r upgrade is distributed n a cmpetitive basis. The Department had a ttal f $8 millin available fr Fiscal Year All cnstructin and structural imprvement items funded thrugh this grant need pre-apprved by the Department. The grant is nly permitted t fund cnstructin and structural imprvement csts t physical space used directly fr the prvisin f enhanced service. Such funds may be used t defray csts assciated with cnstructin r structural imprvement f a multi-purpse building nly t the extent that such funding is applied t a specific prtin f the building s ttal space that is dedicated directly t the prvisin f enhanced service. Allwable items t be funded thrugh this grant include: Architectural and engineering services, including creatin f specificatins, blueprints, flr plans, etc. Cnstructin materials. Plumbing, electrical and cabling materials. Labr. Other facility cnstructin r structural imprvement items pre-apprved by the Department. The State 911 Department has established the fllwing rder f pririty: 1. Develpment f reginal PSAPs and reginal emergency cmmunicatin centers. 2. Expansin f reginal PSAPs and reginal emergency cmmunicatin centers. Within each f these categries, additinal pririty cnsideratin will be given t applicants wh have received funds t supprt develping, starting up, r expanding reginal PSAP r RECC facilities in the 2009 Fiscal Year State 911 Department Reginal PSAP and RECC Develpment Grant. State+911+Department&sid=Eeps&b=terminalcntent&f=setb_REGIONAL_+and_+REGIONAL_+SE CONDARY_+PSAP_+and_+RECC_+DEVELOPMENT_+GRANT_2009&csid=Eeps 2009 Cmmnwealth f Massachusetts L.R. Kimball, January 2010 Page 76

81 APPENDIX C GLOSSARY/ACRONYM LIST L.R. Kimball, January 2010 Page 77

82 GLOSSARY/ACRONYM LIST L.R. Kimball, January 2010 Page 78

83 L.R. Kimball, January 2010 Page 79

84 L.R. Kimball, January 2010 Page 80