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Cuyahoga County: PSAP Assessment

January 6, 2012

Cuyahoga County: Public Safety Answering Point Assessment

Prepared by: Attevo, Inc. One Cleveland Center 1375 E. 9th Street, Suite 2500 Cleveland, OH 44114


Document Reference

Property Description

Customer Cuyahoga County, Department of Public Safety and Justice Services

Executive Sponsor Norberto Colón, Deputy Chief of Staff, Justice

Title Public Safety Answering Point Assessment

Document Owner Amy Johnson, Attevo Manager

Document Author Amy Johnson, Attevo Manager

Document Reviewer Kindra Helm, Attevo Director

Creation Date January 6, 2012 (Version 1)

Document Change History

Version Date Description of Change

Version 1.1 Jan 19, 2012 Additions to PSAP Table, Bedford Hts Fire Chief, Location of UH Hospital, Location of SouthWest Hospital, Updated Risk Section, Glossary Update, Note on Cost per Call Table, Roundtable Discussion Notes

Version 1.2 Feb 6, 2012 Grammatical and wording changes to various sections throughout the assessment


Table of Contents

1. Project Overview........................................................................................5

2. Project Approach...........................................................................................72.1 Approach...........................................................................................................................72.2 PSAPs Included in the Study ..........................................................................................82.3 Project Tasks & Deliverables.....................................................................................92.4 Project Assumptions ..................................................................................................102.5 Assessment Results Summary .....................................................................................11

3. Data Collection............................................................................................123.1 Data Limitations..............................................................................................................12

4. PSAP Survey & Results ..............................................................................144.1 PSAP Survey..................................................................................................................144.2 Annual Dispatch Budget & Call Volume Results .........................................................154.3 Computer Aided Dispatch (CAD) Vendors...................................................................164.4 9-1-1 Technology Deployed and Age of Equipment....................................................174.5 Number of Call Dispatchers, Takers and Workstations ..............................................194.6 Telephony Types............................................................................................................204.7 Volume of Incoming Calls and Dispatched Calls by PSAP.........................................214.8 Annual Cost of Individual PSAPs..................................................................................26

5. Roundtable Discussions..............................................................................285.1 Participants .....................................................................................................................285.2 Roundtable Discussion Points ......................................................................................29

6. Time Motion Studies ...................................................................................31

7. Failover Site for Cleveland ..........................................................................33

8. CECOMS Call Counts.................................................................................35

9. Recommendations ......................................................................................379.1 PSAP Consolidation.......................................................................................................38

9.1.1 Solon/Chagrin Valley .............................................................................................389.1.2 SouthEast ...............................................................................................................399.1.3 SouthWest..............................................................................................................399.1.4 Shaker Heights/Euclid/Beachwood/South Euclid ................................................409.1.5 Cleveland................................................................................................................409.1.6 Eastcom and Westcom .........................................................................................40

9.2 CECOMS 9-1-1 Wireless Calls .....................................................................................419.3 Infrastructure ..................................................................................................................439.4 Technology Roadmap....................................................................................................439.5 Governance Model.........................................................................................................44

9.5.1 Advisory Committee ..............................................................................................44

10.Risks ...........................................................................................................45

11.Appendix .....................................................................................................4611.1 PSAP Definition & Overview .........................................................................................46


11.1.1Cuyahoga County PSAP Overview ......................................................................4611.2 9-1-1 Overview ...............................................................................................................4611.3 Cost per Call Analysis by Individual PSAP ..................................................................50

12.Appendix .....................................................................................................5212.1 Correspondence to PSAPs ...........................................................................................5212.2 Operational Budget Guidelines .....................................................................................56

13. Glossary of Terms ............................................................................58


1. Project Overview Cuyahoga County currently has 47 Public Safety Answering Points (PSAPs) within its geographic footprint. For those PSAPs that participated in the study, it was clear that each takes great care in the handling of emergency calls and their quality of services. However, the sheer number of PSAPs throughout the County poses some obvious issues that range from limited interoperability in the region to the inability to maximize cost efficiencies. At a high level, the consolidation of a select number of PSAPs can provide the following benefits:

• Service improvements and efficiencies designed to improve multi-jurisdictional responses

• Technology advancements by leveraging enterprise applications • Cost advantages by increasing buying power and decreasing the burden

on the individual municipalities and taxpayers • Regional, state, and federal partnering opportunities

This project conducts detailed analysis to better understand where overlap exists amongst the PSAPs in Cuyahoga County. The overall objective of this


assessment is to determine the feasibility of reducing the number of PSAPs within the County, to both reduce costs for the areas of duplication identified and improve services. Listed below were the six key goals of the study:

1. Assess the current 47 PSAPs that exist within Cuyahoga County 2. Update the 9-1-1 Plan with relevant documented and collected data 3. Research and if possible, recommend a disaster recovery back-up site for

the City of Cleveland 4. Research and document recommendations for efficiencies related to the

47 existing PSAPs that include regional consolidation suggestions 5. Research and recommend changes to the current CECOMS structure and

organization 6. Research and recommend technology improvements to the 9-1-1

infrastructure where applicable


2. Project Approach 2.1 Approach Attevo applied our Project Management methodology to performing the following activities during the feasibility study: project management, strategic planning, information and requirements gathering, documentation, discovery, and project governance. Each agency was evaluated using a combination of survey results, focus group interviews, personal interviews, and public records searches. The Project Team was tasked with the following responsibilities throughout the duration of the project:

• Create a tailored questionnaire to be administered to all 47 PSAPs • Review data returned from the questionnaire • Conduct 12-14 in-person focus group interviews to understand any ad-hoc

functionality that exists within the county PSAPs • Review budget and organizational information from county PSAPs • Research information on other counties that have consolidated PSAPs of

similar size, functionality and technological complexity • Research industry trends within key equipment areas (Positron, etc.) • Research telephone industry trends within emergency management

including voice phone systems and hearing impaired options • Update the primary and secondary PSAP information in appendices of the

County 9-1-1 plan • Research the feasibility of consolidation recommendations for reducing the

total number of PSAPs • Derive recommendations to determine if any current PSAPs would be a

logical choice for the failover of Cleveland’s Dispatch Center • Conduct time motion studies for a select group of PSAPs that tracked call

times and call types • Provide final recommendations delivered via a presentation and final

report


2.2 PSAPs Included in the Study The following is the list of PSAPs that were approached during the project.

Note: Following a review of all PSAPs and in conjunction with AT&T, it was determined that there are two regional secondary PSAPs that exist within the County noted at the end of the table below.

# PSAP Number Name of Community 1 456 BAY VILLAGE POLICE

2 457 BEACHWOOD POLICE

3 460 BEDFORD HEIGHTS POLICE

4 461 BEDFORD POLICE

5 466 BEREA POLICE

6 469 BRATENAHL POLICE

7 470 BRECKSVILLE POLICE

8 471 BROADVIEW HEIGHTS POLICE

9 472 BROOKLYN FIRE and POLICE

10 474 BROOK PARK POLICE

11 477 CHAGRIN FALLS POLICE

12 483 CLEVELAND HEIGHTS POLICE

13 486 CLEVELAND POLICE DEPT1

14 494 CUYAHOGA CECOMS2

15 497 CUYAHOGA HEIGHTS POLICE

16 500 EAST CLEVELAND FIRE and POLICE

17 504 EUCLID POLICE

18 508 FAIRVIEW PARK FIRE and POLICE

19 516 GARFIELD HEIGHTS POLICE

20 524 HIGHLAND HEIGHTS POLICE

21 GATES MILLS POLICE

22 530 INDEPENDENCE POLICE

23 538 LAKEWOOD POLICE

24 545 LYNDHURST POLICE

25 550 MAPLE HEIGHTS POLICE

26 554 MAYFIELD HEIGHTS POLICE

27 555 MAYFIELD VILLAGE POLICE

28 561 MIDDLEBURG HEIGHTS POLICE

29 567 NORTH OLMSTED POLICE

1,2 Information taken from previous interview and study. Minimal interviews are expected.


# PSAP Number Name of Community 30 568 NORTH ROYALTON POLICE

31 571 NEWBURGH HEIGHTS POLICE

32 573 NORTH RANDALL POLICE

33 575 OAKWOOD POLICE

34 577 OLMSTED FALLS POLICE

35 578 OLMSTED TOWNSHIP POLICE

36 582 PARMA HEIGHTS POLICE

37 583 PARMA POLICE

38 584 PEPPER PIKE POLICE

39 594 RICHMOND HEIGHTS POLICE

40 595 ROCKY RIVER POLICE

41 596 SOUTH EUCLID POLICE

42 601 SHAKER HEIGHTS POLICE

43 602 SOLON POLICE

44 609 STRONGSVILLE POLICE

45 619 UNIVERSITY HEIGHTS POLICE

46 WALTON HILLS POLICE

47 625 WARRENSVILLE HEIGHTS POLICE

48 629 WESTLAKE POLICE

EASTCOM (Secondary PSAP) Fire and EMS

WESTCOM (Secondary PSAP) Fire and EMS

2.3 Project Tasks & Deliverables The following list illustrates the project tasks and deliverables to be provided throughout this engagement.

Task/Deliverable Status

Kick-off meeting

Survey preparation

Survey distribution & answer questions for 47 PSAPs

Survey review of 47 PSAPs

Conduct 12 group agency interviews

Consolidate interview documentation for 12 Sessions

Research data gathering

Research review & analysis

Research documenting

Organization reviews & documenting


Statistics review & documenting

Budget reviews & documenting

Two individual meetings with Westcom One individual meeting with Eastcom Three individual meetings with SouthWest Regional Dispatch Group

Three individual meetings with SouthEast Regional Dispatch Group

Three individual meetings with Chagrin Valley/Solon Regional Dispatch Group

One individual meeting regarding Regional Firing Range

Two individual meetings with Strongsville around Dispatcher Certification Program and Standard Operating Guidelines

Recommendations Report preparation and review

Preliminary ‘Recommendations Report’ review with Cuyahoga County

Report follow-up edits or redirects

Conduct time motion studies for select PSAPs

Report Presentation & Delivery

AT&T Meeting

Public PSAP Review Meeting Jan. 20, 2012

2.4 Project Assumptions The following assumptions were made in developing this proposal:

• Attevo’s interpretation of the requirements as communicated by Cuyahoga County is accurate.

• Attevo and Cuyahoga County mutually agree that not all 47 PSAPs may choose to participate in the assessment interviews, surveys, requests for information, etc.

• Participating PSAP’s may not share all organizational or budget information.

• Timing of the engagement is dependent upon PSAP personnel availability for meetings and answering questions including the initial survey.

• The project team will attempt to accommodate the schedule of the PSAP personnel for an interview and/or request for information, up to three (3) times.

• Physical and electronic access to appropriate data, networks and applications will be provided with minimal delay.


• Attevo personnel will have access to project work space and equipment as necessary and are not restricted to weekday, 8 hour per day work times.

• Should new effort be determined necessary or tasks be reassigned to Attevo personnel, the Change in Scope will be documented in a new Addendum to the Services Agreement, including associated fees, for timely approval as described in this Statement of Work.

• Senior Attevo Project Management personnel will have direct access to project sponsors through Executive meetings for reporting project progress, issue resolution, scope change approval, and other communications. In the event of critical issues, the County will be notified on a timely basis for resolution.

• Additional resources can be added or extended as required with the agreement of the County and Attevo.

2.5 Assessment Results Summary This PSAP Consolidation Feasibility Assessment is a culmination of six months of consulting work throughout the second half of 2011. The Recommendations section in this document gives detail about PSAP consolidation and efforts towards regionalism in Cuyahoga County as it relates to Public Safety. Listed below are the most salient points of the study.

• The drive to consolidate is strong with many PSAPs throughout the County; in order to fully leverage all of the County’s resources, additional City Mayoral and County Executive support is required.

• The telephony equipment used specifically for the PSAPs is at end-of-life which results in a high risk scenario should the equipment need to be repaired or replaced.

• The PSAP systems (CAD, radio, CPE, etc.) are of varying ages and levels of functionality; the data needed to analyze workloads and call volume evaluation is often not available.

• The duplication of PSAP systems and equipment (CAD, radios, etc.) is widespread throughout the County. This means that the collective costs for procuring, implementing, and maintaining these systems is needlessly high.

• There are varying degrees of disaster recovery plans for each PSAP; in a large scale incident or natural disaster the same equipment will not be available to all agencies to use it to continue to provide emergency communications.


3. Data Collection In an effort to obtain accurate information as well as encourage participation, multiple communications were sent to the various Police Chiefs, PSAP Managers, and Mayors of the 47 communities that house the PSAPs. Each entity received a minimum of three pieces of correspondence in the form of hard-copy letters in addition to two mass mailed emails. Samples of the correspondence sent to PSAPs can be found in the appendices of this document. In addition, round-table sessions were held with over 73 percent of PSAPs throughout the County. Twelve individual round-table discussions were held on convenient days of the week and times of the day at multiple Cuyahoga County Library branches. Time Motion studies were performed with a representative sample of PSAPs in the County. The Time Motion studies consisted of six separate sessions for a total of at least 18 hours of observation in three separate PSAPs across the region. Additionally, separate meetings, data collection, and discussions were held with several technology vendors supporting Cuyahoga County’s current 9-1-1 infrastructure. Throughout the project an additional 40 hours worth of discussion and analysis was conducted with the various groups who have shown sincere interest in Regional PSAP Consolidation. These discussions occurred in the form of site visits, tours of Public Safety Central, Stark County Dispatch Operations, and Lake County Dispatch Operations.

3.1 Data Limitations As with any study, the results are only as robust as the participation and feedback received. The very nature of requesting information from 47 different PSAPs has an inherent issue of responsiveness, and there are data limitations to this study. Fortunately, PSAP consolidation is a popular trend throughout the country therefore, there are many proven results and measurable statistics that are well documented. In this study, the following data limitations were identified:

• The majority of PSAPs returned some information and many went above and beyond however, it was clear early in the study that some PSAPs would offer little to no feedback. Numerous attempts were made to gather the data from the necessary PSAPs, and for those that offered little to no data, estimates were calculated based on similar PSAPs in the region.

• The scope of this assessment was limited to a current state analysis of


PSAP size, CAD technology, operating budget, dispatch personnel and call volumes. The study was not all encompassing in terms of technology (infrastructure, network assessment, etc.). In addition, assessing and documenting specific tasks and quantifying each PSAP (Police, Fire, EMS, and Administrative) was not included in this study, although a representative sample was used for the Time Motion portion of this assessment.

• Costs used for this report were self-reported by each PSAP and were not validated by a third party.

• Call volume information was for emergency calls only and did not account for Administrative calls received at each PSAP which, in many cases, exceeded the emergency call volume. This data limitation was verified with AT&T in that inbound calls on 10-digit Administrative lines are currently not counted due to technology limitations.


4. PSAP Survey & Results 4.1 PSAP Survey Illustrated below is a sample of the four page questionnaire that was emailed to all 47 PSAPs across Cuyahoga County. The questions were developed in conjunction with several 9-1-1 technology and telephony experts, from various departments at AT&T.


4.2 Annual Dispatch Budget & Call Volume Results Illustrated below are the annual operating budgets, number of dispatchers, call takers, workstations, and Computer Aided Dispatch (CAD) vendors by PSAP. The following communities chose not to respond to any of the survey questions: Beachwood, Broadview Heights, Cuyahoga Heights, East Cleveland, Highland Heights, Newburgh Heights, Oakwood and Warrensville Heights. Those cities are listed in red in the table below. A “BLANK” represents a topic or survey question where no response was provided. City

Annual Dispatch Budget

Total Dispatchers Full Time

and Part Time

Call Takers

Work-stations

CAD Vendor

BAY VILLAGE BLANK BLANK 1 2 TAC BEACHWOOD BLANK BLANK BLANK BLANK BLANK BEDFORD $ 318,750 11 2 TAC BEDFORD HTS $ 500,000 12 3 TAC BEREA $ 350,000 9 2 BRATENAHL $ 187,000 10 4 BRECKSVILLE $ 320,000 7 2 Sundance BROADVIEW HTS BLANK BLANK BLANK BLANK BLANK BROOKLYN $ 367,400 5 2 Sundance

BROOK PARK $ 547,880 9 3 Visionair CHAGRIN FLS $ 679,800 11 2 TAC CLEVE HTS/SHAKER/UNIVERSITY HTS FIRE

$ 659,245 8 3 New World

CLEVELAND $ 4,438,593 116 8 40 Intergraph CUYAHOGA HTS BLANK BLANK BLANK BLANK BLANK E. CLEVELAND BLANK BLANK BLANK BLANK BLANK EUCLID BLANK 16 1 3 TAC FAIRVIEW PK BLANK 1 1 TAC GARFIELD HTS $ 723,292 10 2 TAC GATES MILLS $ 269,050 7 2 TAC HIGHLAND HTS BLANK BLANK BLANK BLANK BLANK INDEPENDENCE $ 750,000 9 3 Sundance LAKEWOOD $ 799,597 10 3 H.T.E LYNDHURST $ 525,746 1 2 Sundance MAPLE HTS $ 790,000 13 3 TAC MAYFIELD HTS $ 180,983 15 2 2 TAC MAYFIELD VILLAGE BLANK 5 2 TAC MIDDLEBURG HTS $ 387,004 6 2 TAC N OLMSTED BLANK 11 2 TAC N ROYALTON $ 757,450 11 2 TAC NEWBURGH HTS BLANK BLANK BLANK BLANK BLANK NORTH RANDALL $ 59,000 19 OAKWOOD BLANK BLANK BLANK BLANK BLANK OLMSTED FLS $ 389,827 6 2 TAC OLMSTED TWNSHP $ 231,000 6 1 TAC PARMA $ 1,158,820 16 5 Intergraph PARMA HTS BLANK 8 2 TAC


City

Annual Dispatch Budget


and Part Time

Call Takers

Work-stations

CAD Vendor

PEPPER PIKE $ 389,000 10 2 TAC RICHMOND HTS $ 375,000 6 2 TAC ROCKY RIVER BLANK 0 2 Sundance S EUCLID $ 483,146 7 2 Sundance SHAKER HTS $ 403,503 8 3 New World SOLON $ 1,007,525 10 4 3 Emergitech STRONGSVILLE $ 800,000 12 4 TAC UNIVERSITY HTS $ 219,912 3 2 TAC WALTON HILLS $ 319,000 11 2 TAC WARRENSVILLE HTS

BLANK BLANK BLANK BLANK BLANK

WESTCOM $ 995,000 13 5 Positron WESTLAKE $ 360,000 10 3 3 TAC TOTAL $ 20,742,523 439 19 134

Note: In Section 12.2 of this document there is information about National Emergency Number Association (NENA) Standards for PSAP size Small, Medium, and Large that document staffing guidelines and annual operating costs.

4.3 Computer Aided Dispatch (CAD) Vendors The following table documents the various CAD systems that are used across Cuyahoga County. The graph below illustrates the total number of dispatchers (full and part-time) who are using each type of CAD system.


City CAD Vendor BAY VILLAGE TAC BEDFORD TAC BEDFORD HTS TAC BEREA BRATENAHL BRECKSVILLE Sundance BROOKLYN Sundance BROOK PARK Visionair CHAGRIN FLS TAC CLE HTS, SHAKER, UNIVERSITY HTS New World CLEVELAND Intergraph EUCLID TAC FAIRVIEW PK TAC GARFIELD HTS TAC GATES MILLS TAC HIGHLAND HTS INDEPENDENCE Sundance LAKEWOOD H.T.E. LYNDHURST Sundance MAPLE HTS TAC MAYFIELD HTS TAC MAYFIELD VILLAGE TAC MIDDLEBURG HTS TAC N OLMSTED TAC N ROYALTON TAC OLMSTED FLS TAC OLMSTED TWNSHP TAC PARMA Intergraph PARMA HTS TAC PEPPER PIKE TAC ROCKY RIVER Sundance S EUCLID Sundance SHAKER HTS New World SOLON Emergitech STRONGSVILLE TAC UNIVERSITY HTS TAC WALTON HILLS TAC WARRENSVILLE HTS WESTCOM Positron Frontline WESTLAKE TAC

4.4 9-1-1 Technology Deployed and Age of Equipment The following table documents the various types of 9-1-1 technology that is currently deployed across Cuyahoga County. The average age of the equipment is 9.8 years old and many PSAPs have equipment that is no longer manufactured.


City Age of Equipment

Years

Make and Model BAY VILLAGE 5 BEDFORD 9 Positron BEDFORD HTS BEREA 10 BRATENAHL 10 Positron BRECKSVILLE 1 Positron Life Line 100 BROOKLYN 7 Zetron integrator BROOK PARK 20 Positron CHAGRIN FLS 15 Positron CLEVE HTS + SHAKER & UNIVERSITY HTS

5 Zetron PSAP 3200

CLEVELAND 11 Nortel EUCLID 15 FAIRVIEW PK 2 Positron Viper GARFIELD HTS 20 GATES MILLS 14 Positron HIGHLAND HTS INDEPENDENCE 10 LAKEWOOD 15 LYNDHURST Positron IDM MAPLE HTS 15 Positron Life Line 100 MAYFIELD HTS 12 Life Line 100 MAYFIELD VILLAGE MIDDLEBURG HTS 8 N OLMSTED 6 Positron Life Line 100 N RANDALL 12 Zetron N ROYALTON 3 Positron Proline 100 OLMSTED FLS 22 Positron OLMSTED TWNSHP 10 Positron PARMA 4 Power 9-1-1 PARMA HTS 8 Plant PEPPER PIKE 6 Positron RICHMOND HTS 10 Positron ROCKY RIVER 11 Positron S EUCLID 11 Positron SHAKER HTS 11 Positron Life Line 100 SOLON 2 to 14 Proctor ANI Controller

System STRONGSVILLE 8 Positron Power 9-1-1 UNIVERSITY HTS 17 Proctor ANI/ALI Alpha Micro

Server WALTON HILLS 3 Power 9-1-1 WARRENSVILLE HTS Positron WESTCOM 5 Life Line WESTLAKE 7 Life Line 100


4.5 Number of Call Dispatchers, Takers and Workstations The following table documents the number of Dispatchers and Call Takers by city within the County; the table denotes the number of workstations by location.

Note: The data presented in the table below was provided directly by each PSAP. The total number of dispatchers includes both full-time and part-time employees.

City


and Part Time

Call Takers

Number of Workstations

BAY VILLAGE 1 2

BEDFORD 11 2

BEDFORD HTS 12 3

BEREA 9 2

BRATENAHL 10 4

BRECKSVILLE 7 2

BROOKLYN 5 2

BROOK PARK 9 3

CHAGRIN FLS 11 2

CLEVE HTS + SHAKER & UNIVERSITY HTS

8 3

CLEVELAND 116 8 40

EUCLID 16 1 3

FAIRVIEW PK 1 1

GARFIELD HTS 10 2

GATES MILLS 7 2

HIGHLAND HTS

INDEPENDENCE 9 3

LAKEWOOD 10 3

LYNDHURST 1 2

MAPLE HTS 13 3

MAYFIELD HTS 15 2 2

MAYFIELD VILLAGE 5 2

MIDDLEBURG HTS 6 1 2

N OLMSTED 11 2

N RANDALL 19

N ROYALTON 11 2

OLMSTED FLS 6 2

OLMSTED TWNSHP 6 1 1

PARMA 16 5


City


and Part Time

Call Takers

Number of Workstations

PARMA HTS 8 2

RICHMOND HTS 6 2

PEPPER PIKE 10 2

ROCKY RIVER 0 2

S EUCLID 7 2

SHAKER HTS 8 3

SOLON 10 3

STRONGSVILLE 12 4

UNIVERSITY HTS 3 2

WALTON HILLS 11 2

WESTCOM 13 5

WESTLAKE 10 3 3

TOTAL 458 17 134

4.6 Telephony Types The following table documents the various types of telephony that is currently deployed across the County. The majority of PSAPs are currently using AT&T supported equipment. City Telephone System

BAY VILLAGE BEDFORD Nortel BEDFORD HTS Positron BEREA Nortel BRATENAHL AT&T BRECKSVILLE Analog BROOKLYN AT&T BROOK PARK CHAGRIN FLS CLEVE HTS + SHAKER & UNIVERSITY HTS

Zetron

CLEVELAND Northern Telecomm Meridian SL1 EUCLID Positron FAIRVIEW PK GARFIELD HTS Teletronics GATES MILLS 2 dedicated lines, other lines are Centrex HIGHLAND HTS INDEPENDENCE Toshiba LAKEWOOD AT&T LYNDHURST


City Telephone System

MAPLE HTS Nortel Norstar MAYFIELD HTS Avaya MAYFIELD VILLAGE Cisco IP MIDDLEBURG HTS Cisco IP N OLMSTED 9-1-1 is separate from Toshiba Phone

System N ROYALTON Nortel – Centrex OLMSTED FLS Nortel OLMSTED TWNSHP Ameritech PARMA AT&T PARMA HTS Plant Equipment PEPPER PIKE Cisco IP RICHMOND HTS AT&T ROCKY RIVER S EUCLID SHAKER HTS Positron Lifeline 100 SOLON NEC STRONGSVILLE AT&T UNIVERSITY HTS 9-1-1 IS SEPARATE FROM ADMIN

PHONES WALTON HILLS Power 9-1-1 WESTCOM AT&T WESTLAKE AT&T

4.7 Volume of Incoming Calls and Dispatched Calls by PSAP The following table documents the individually reported number of incoming calls and dispatched calls for Police, Fire, and EMS for three years -- 2008, 2009 and 2010. It is important to note that most likely the total number of incoming calls per PSAP is much higher than actual dispatch calls. Note: Many communities reported that call volumes were not easy to document, because their current CAD system did not report the data. In an effort to analyze the accuracy of Call Count Volumes, data was gathered from AT&T and is included in the Appendix of this document.

Incoming Calls Dispatched Calls City Year Police Fire EMS Police Fire EMS

BAY VILLAGE 2008

2009

2010

BEDFORD 2008

24,772

2,456

18,065

502

1,954

2009

23,371

2,256

16,580

583

1,673

2010

22,261

2,683

14,128

917

1,766



BEDFORD HTS 2008

16,223

16,223 410 1345

2009

15,161

15,161 352 1344

2010

14,061

14,061 314 1498

BEREA 2008

262

1,550

262

1,500

2009

28,663

227

1,555

227

1,555

2010

24,723

219

1,622

219

1,622

BRATENAHL 2008

10,000

8,000

2009

12,000

10,000

2010

15,000

13,000

BRECKSVILLE 2008

16,603

1,399

2009

14,302

1,346

2010

14,891

1,351

BROOKLYN 2008

11,568

604

1,554

11,568

604

1,554

2009

13,001

601

1,594

13,001

601

1,594

2010

18,935

606

1,474

18,935

606

1,474

BROOK PARK 2008 25,295 2,340

2009 21,940 2,524

2010 21,149 2,608

CHAGRIN FLS 2008

2009

74,000

32,142

2,222

2010

74,496

29,802

2,283 CLEVE HTS + SHAKER & UNIVERSITY HTS FIRE 2008

2009

2010 2,844

7,836

CLEVELAND 2008

723,463

88,770

256,963

62,811

84,272

2009

688,368

89,632

238,539

60,337

82,643

2010

675,485

92,230

237,467

64,143

81,515

EUCLID 2008

61,000

2009

57,500

2010

59,000



FAIRVIEW PK 2008

8,000

2009

8,000

2010

8,300

GARFIELD HTS 2008

65,000

7,300

21,715

3,693

2009

65,000

8,000

21,128

4,030

2010

65,000

8,200

21,810

4,137

GATES MILLS 2008

9,121

172

176

9,121

172

176

2009

7,809

124

143

7,809

124

143

2010

7,884

127

142

7,884

127

142

HIGHLAND HTS 2008

2009

2010

INDEPENDENCE 2008

35,640

2,116

2009

31,428

2,091

2010

28,258

1,997

LAKEWOOD 2008

57,431

1,564

4,926

2009

55,802

1,477

5,107

2010

46,508

3,182

5,155

LYNDHURST 2008

9,428

448

1,452

2009

9,312

527

1,537

2010

9,036

524

1,541

MAPLE HTS 2008

21,877

4,201

21,877

4,201

2009

21,885

4,055

21,885

4,055

2010

22,599

4,310

22,599

4,310

MAYFIELD HTS 2008

2009

9,464

235

2010

10,000

2,150

9,638

207 MAYFIELD VILLAGE 2008

14,380

10,076

2009

14,038

9,581

2010

12,852



MIDDLEBURG HTS 2008

2009

2010

N OLMSTED 2008

20,768

810

2,833

2009

19,247

700

2,871

2010

20,972

703

2,971

N RANDALL

318

1,350

1,154

N ROYALTON 2008

50,127

829

2,580

41,100

829

2,580

2009

45,250

731

2,437

36,132

731

2,437

2010

43,928

758

2,659

33,725

758

2,659

OLMSTED FLS 2008

6,378

218

691

2009

6,248

181

619

2010

6,472

198

629 OLMSTED TWNSHP 2008

1,900

1,785

1,520

1,600

2009

1,950

1,732

1,560

1,299

2010

2,000

1,879

1,600

1,500

PARMA 2008

60,074

9,205

60,074

9,205

2009

59,070

9,785

59,070

9,785

2010

58,496

9,564

58,496

9,564

PARMA HTS 2008

15,139

2,782

2009

13,826

2,963

2010

13,798

2,962

PEPPER PIKE 2008

11,000

385

479

2009

11,000

447

457

2010

8,500

356

483

ROCKY RIVER 2008

12,723

12,723

2009 11,878

11,578

2010

11,209

11,209



S EUCLID 2008

16,389

3,169

2009

14,171

3,209

2010

14,691

3,063

SHAKER HTS 2008

31,380

2009

32,255

2010

31,099

SOLON 2008

66,940

2,820

2009

62,350

53,212

2,696

2010

57,704

50,937

2,719

STRONGSVILLE 2008

17,585

4,142

2009

4,922

2010

22,825

4,397

UNIVERSITY HTS 2008

6,720

5,280

6,960

2009

7,250

5,250

7,062

2010

7,800

5,200

7,150

WALTON HILLS 2008

2009

2010

WESTCOM 2008

2009

2010

30,000

13,022

WESTLAKE 2008

73,616

33,040

2009

67,624

34,626

2010

69,376

33,914


4.8 Annual Cost of Individual PSAPs The table below illustrates the total operating costs reported annually by the 47 PSAPS within the County. The average annual cost to operate a PSAP for 32 cities who reported data or provided data on public websites is $509,498. Note: This amount does not include the annual cost of the Cleveland Dispatch Center.

City

Yearly Dispatch

Budget BAY VILLAGE BEACHWOOD BEDFORD $ 318,750 BEDFORD HTS $ 500,000 BEREA $ 350,000 BRATENAHL $ 187,000 BRECKSVILLE $ 320,000 BROADVIEW HTS BROOKLYN $ 367,400 BROOK PARK $ 547,880 CHAGRIN FLS $ 679,800 CLEVE HTS + SHAKER & UNIVERSITY HTS FIRE $ 659,245


City

Yearly Dispatch

Budget CLEVELAND $ 4,438,593 CUYAHOGA HTS E. CLEVELAND EUCLID FAIRVIEW PK GARFIELD HTS $ 723,292 GATES MILLS $ 269,050 HIGHLAND HTS INDEPENDENCE $ 750,000 LAKEWOOD $ 799,597 LYNDHURST $ 525,746 MAPLE HTS $ 790,000 MAYFIELD HTS $ 180,983 MAYFIELD VILLAGE MIDDLEBURG HTS $ 387,004 N OLMSTED N ROYALTON $ 757,450 NEWBURGH HTS NORTH RANDALL $ 59,000 OAKWOOD OLMSTED FLS $ 389,827 OLMSTED TWNSHP $ 231,000 PARMA $ 1,158,820 PARMA HTS PEPPER PIKE $ 389,000 RICHMOND HTS $ 375,000 ROCKY RIVER S EUCLID $ 483,146 SHAKER HTS $ 403,503 SOLON $ 1,007,525 STRONGSVILLE $ 800,000 UNIVERSITY HTS $ 219,912 WALTON HILLS $ 319,000 WARRENSVILLE HTS WESTCOM $ 995,000 WESTLAKE $ 360,000 Total Cost $ 20,742,523 Total Cost without Cleveland $ 16,303,930 Average Annual Cost of PSAP without Cleveland $ 509,498


5. Roundtable Discussions Twelve separate roundtable discussions were held across the County during the course of this study, and most discussions took place at meeting rooms within the Cuyahoga County Library System. Listed in the table below are the participants of the roundtable discussions.

5.1 Participants City Name Contact Name Title

BEDFORD Greg Duber Police Chief

BEDFORD HTS Kenneth Ledford Fire Chief

BEDFORD HTS Mike Marotta Police Chief

BEREA Mark Schultz Police Chief

BRECKSVILLE Peggy Kral Dispatcher

BRECKSVILLE Kathy Haystack Network Admin

BROADVIEW HTS Tim Scarbrough Police Lieutenant

BROOK PARK James Foster Police Chief

CHAGRIN FLS James Brosius Police Chief

CHAGRIN FLS Lisa Mariola Admin Assistant

CLEVELAND Thomas Stacho Police Commander

CLEVELAND Mark Cebron Communications Manager

CLEVELAND James Willson EMS Commander

CLEVELAND Jack McCarthy Fire Captain

CLEVE HTS Lisa Raffurty Communications Manager

EUCLID Kelly A. Parton Supervisor

EUCLID Jim Ripicky Police Chief

FAIRVIEW PK Pat Nealon Police Chief

GARFIELD HTS Bob Sackett Police Chief

GATES MILLS Ronald Whitmer Police Executive Lieutenant

INDEPENDENCE John Nicastro Police Chief

INDEPENDENCE Joyce Contofalss Dispatcher

LAKEWOOD Gary Stone Police Captain

LAKEWOOD Jaime Kappa Police Dispatcher

LYNDHURST Angela Ricci Dispatcher

LYNDHURST Rick Porrello Police Chief

MAPLE HTS John Drset Fire Chief

MAPLE HTS Gene Kulp Police Captain

MAYFIELD VILLAGE Kim Reilly Communications Supervisor

N OLMSTED Mike Kilbare Police Captain

N ROYALTON John Elek Police Lt.

N ROYALTON Bruce Campbell Safety Director

OLMSTED FLS Faye Tyler Dispatcher


City Name Contact Name Title

OLMSTED FLS Daniel Gilles Police Chief

ORANGE Bruce White Fire Chief

PARMA Linda Wyman Communications Manager

PARMA HTS Steven Greene Police Sergeant

ROCKY RIVER Kelly Stillman Police Chief

SHAKER HTS D. Scott Lee Police Chief

SHAKER HTS Steve Hammett Police Deputy Chief

SHAKER HTS William McConnell Information Technology

SOLON Rick Tonelli Police Lieutenant

SOLON Carol Haddon Records System Manager

SOLON Chris Viland Police Chief

SOLON William Shaw Fire Chief

SOUTH EUCLID Laura Zehner Police Dispatcher

STRONGSVILLE Laura Hays Communications Supervisor

STRONGSVILLE Charles Goss Police Chief

STRONGSVILLE Jim Kobak Police Deputy Chief

WALTON HILLS Sharon Szczepanski Chief Dispatcher

WALTON HILLS Kenn Thellmann Police Chief

WESTCOM Nick Pishnery Communications Supervisor

WESTLAKE Eric Schanz Police Captain

5.2 Roundtable Discussion Points Feedback from each of the roundtables was informative and spirited. In spite of the diverse group of participants, there were common themes and ideas that crossed most of the sessions. Note: The comments identified below are not listed in any particular order. Discussion Point Comments

State of 9-1-1 Funds • Requested audit • Requested more transparency

Regional Jail System • Overwhelming majority of Police Chiefs support a Regional Jail System and identified it as a priority

County Map • Major Concerns with County Map Updates

Level of Service to Public

• Maintaining Current Level of Service to Public Checking on elderly within community, checking on Properties when residents are on vacation, etc.

Union Involvement • Major Issues with Regional Consolidation and Unions

Consolidation of Public Safety Services

• Public Perception of Consolidation is possibly viewed as negative with a perceived lack of service

• Risk of Multiple Duties Performed by Dispatchers i.e. Jailers, Records Clerks as well as Dispatchers

• New Informational Number implemented for County such


Discussion Point Comments

as 611 or 411 to answer many non-emergency calls that are made to PSAPs…such as “What time are the fireworks starting?”

• Definition/Function of Call Dispatcher versus Call Taker

• Issues with Part-Time versus Full-Time Personnel

Dispatcher Certification

• Dispatcher Certification Program should be developed

General Comments • Overall process and procedures among PSAPs should be documented following common themes, continuity, etc.

• The “Prom Queen” analogy…what is in it for me if I help out a poorer community

• What will the County provide for assistance?

• Establishing the initial COG. Collaboration with Mayors, Council etc.

• CAD Coordinator position? Level of support received Increased level of support for enterprise CAD

• New Phone System Needed at Cleveland Dispatch

• Better support for the Intergraph CAD system

• County lacks training and certification for Emergency Medical Dispatchers. Dispatcher training often emphasizes police procedures with little focus on fire/EMS dispatch skills. There are certification programs for Emergency Medical Dispatch (EMD) offered by many companies and based on NHTSA National Standard Curriculum for EMD. NHTSA = National Highway Transportation Safety Administration (Federal agency).


6. Time Motion Studies Six Time Motion sessions were held throughout October and November to complete a simplified study. The first goal of the study was to establish a baseline for employee productivity within the three dispatch centers chosen. A second goal of the study was to observe/detect what redundant or inefficient tasks might be happening within the Dispatch Center. Three communities agreed to the Time Motion Study. The population of the three cities ranged from 13,000 to 19,000. The geographical area of each of the three cities ranged from 4 to 10 square miles. The number of officers in each of the three cities ranged from 16 to 43 on each police force. Each PSAP was visited twice for a minimum of two hours per session. The evaluator attempted to get a modified random sampling of the calls within the PSAP by observing the centers during an early morning (rush-hour) period and a late afternoon, early evening session. Representative Cities City PSAP Statistics City A *Population: 19,212

*Geographical area: 7.5 sq. mi *Number of Officers: 43

City B *Population: 14,001 *Geographical area: 4.4 sq. mi *Number of Officers: 27

City C *Population: 13,513 *Geographical area: 10 sq. mi *Number of Officers: 16

Time Motion Studies General Observations • Jail Duties can/do take up time for the Dispatcher when the Jailer is not

present • Public of Cuyahoga County needs continued education about when to call

actual 9-1-1 phone line versus non-emergency phone line into the PSAP • Technology in PSAPS is very outdated and not friendly in reducing amount of

paper used within a Dispatch Center • Actual 9-1-1 Emergency Calls were very low/limited during observation • PSAPs received a lot of administrative phone calls from officers • Dispatchers greet “walk-in” traffic to Police Department 24X7. Many

residents that were considered “walk-in” traffic were filing a paper report that was not/did not need to be acted upon until Monday morning

• Dispatchers were managing/scheduling various City resources. For example, the “calling off” of School Crossing Guards

• Dispatchers that had a great deal of downtime could have been filing administrative reports for the Police Department


7. Failover Site for Cleveland Throughout the course of this study, five cities and/or groups emerged as logical options as a Disaster Recovery (DR) failover site for the City of Cleveland Department of Public Safety. The pros and cons of each group (Parma, SouthEast, SouthWest, Solon/Chagrin Valley and Westcom) is illustrated below.

Entity Name Pros Cons

Parma • Technology - Same Intergraph CAD as City of Cleveland, and Intergraph RMS interface is in place

• Capacity – Currently have the staff (5 positions) to possibly absorb 25 % of disaster recovery calls from Cleveland.

• New Administration beginning January 1, 2012 has communicated the need for regionalism.

• Facility space is limited • New Administration

beginning January 1, 2012 may decide to proceed with regionalism in areas other than PSAP consolidation.

• City released RFP for new CAD system in December 2011. If implemented this would negate the ‘Pro’ of the same Intergraph CAD technology as the City of Cleveland.

SouthEast • Space for additional workstations and dispatchers

• Executive-level support. Council of Governments (COG) is in place and has the support of participating mayors.

• Current CAD vendor (TAC) is not an enterprise-class system (I.e., limited application support, one point of failure for support, and unknown ability to support large call/incident volume)

SouthWest • Space for additional workstations and dispatchers

• No formal Council of Governments (COG) agreement is in place.

• Executive-level (Mayoral) support is not in place at facility location (Middleburg Heights)

Solon/Chagrin Valley

• Space for additional workstations and dispatchers


• Entity is open to working with County to build and facilitate a regional dispatch center.

• Current CAD vendor (TAC) is not an enterprise-class system (I.e., limited application support, one point of failure for support, and unknown ability to support large call/incident volume)

• Funding for proposed regional dispatch center referenced in ‘Pros’ remains undefined.


Entity Name Pros Cons

Westcom • Space for two (2) additional workstations and dispatchers


• Current CAD vendor (Positron) is not an enterprise-class system.

• As of December 2011, entity is not able to absorb significant additional volume for a disaster recovery site.

Currently, no one entity can absorb all of the disaster recovery (DR) requirements of the City of Cleveland. Several options do exist for planned PSAP consolidations.

1. Consolidated PSAPs (SouthEast, SouthWest, Solon/Chagrin Valley, Westcom) could invest in building several additional workstations into their facilities, dispersing the calls in a failover plan across several new regional PSAPs. For example, Regional PSAP X could take Cleveland Police District One’s calls in an emergency situation, while PSAP Y would take Cleveland Police District Two’s calls and so on. Load balancing is a viable solution to properly route calls and balance call volume.

2. Solon/Chagrin Valley has discussed the possibility of building a new stand-alone PSAP facility. The site could provide DR capabilities for the City of Cleveland. The standalone facility would require support and funding from the County.

Note: These would both require additional funding from either the City of Cleveland or County.


8. CECOMS Call Counts The Cuyahoga Emergency Communications System (CECOMS) is a 24-hour, 7 day a week, emergency communications system for Cuyahoga County. CECOMS currently transfers all cellular 9-1-1 calls to the various PSAPs across Cuyahoga County. The City of Cleveland’s PSAP currently represents approximately 60 percent of all cellular call volume across the County. Listed below is a table of call counts from CECOMs transferred to the various PSAPs.

PSAP 2009 2010 2011 Estimated (3) BAY VILLAGE 593 634 602

BEACHWOOD 2,659 2,849 2,885

BEDFORD HTS 2,071 2,380 2,545

BEDFORD 1,987 2,108 2,293

BEREA 1,308 1,321 1,508

BRATENAHL 456 424 392

BRECKSVILLE 708 839 921 BROADVIEW HTS 1,946 2,081 1,923

BROOKLYN 1,886 1,868 2,142

3 At the time this study was published validation on the accuracy of 2011 CECOMS data could not be obtained. The annual

number of transfers from CECOMS could involve calls transferred to an incorrect city, I.e., a call is transferred to Brook Park when it should be a Cleveland call.


BROOK PARK 2,304 2,373 2,410 CHAGRIN FLS 1,154 1,246 1,217

CLEVELAND 176,571 181,817 190,530

CUYAHOGA HTS 1,044 1,091 1,109

E. CLEVELAND F&P 7,368 8,390 8,315

EUCLID 6,823 7,556 9,207

FAIRVIEW PK 989 1,064 1,202

GARFIELD HTS 4,829 5,142 5,396

OH GATES MILLS 195 230 255

HIGHLAND HTS 525 604 645

INDEPENDENCE 1,968 1,831 2,003

LAKEWOOD 6,425 6,666 6,964

LYNDHURST 1,323 1,529 1,546

MAPLE HTS 3,612 3,974 4,321

MAYFIELD HTS 2,395 2,666 2,863

MIDDLEBURG HTS 2,037 2,147 2,135

N OLMSTED 3,070 3,355 3,416

N ROYALTON 1,551 1,658 1,725

NEWBURGH HTS 446 510 454

NORTH RANDALL 530 682 635

OAKWOOD POL 777 924 879

OLMSTED FLS 504 518 572

OLMSTED TWNSHP 259 284 382

PARMA HTS 1,632 1,867 1,928

PARMA 7,522 7,732 8,075

PEPPER PIKE 595 566 783

RICHMOND HTS 1,042 1,085 1,315

ROCKY RIVER 1,654 1,508 1,681

S EUCLID 2,383 2,582 2,809

SHAKER HTS 2,741 2,775 2,750

SOLON 1,833 2,008 1,925

STRONGSVILLE 3,742 3,881 4,117

UNIVERSITY HTS 970 1,046 1,111

WALTON HILLS 134 140 192

WARRENSVILLE HTS 3,634 4,150 4,211

WESTLAKE 3,120 3,042 3,128

TOTALS 279,422 292,313 297,417


9. Recommendations Several of the 47 Public Safety Answer Points in Cuyahoga County are well underway in their efforts to collaborate and promote regionalism. Those PSAPs who are currently exploring or already collaborating are collectively leveraging some combination of the components discussed previously to operate more efficiently. The increasing annual costs of individual PSAPs, along with the increasing political support for collaboration, highlight several areas of “low hanging fruit” for consolidation and regionalism. It is important to note, that all consolidation efforts will require both City Mayoral and County Executive support, the trend is encouraging. Continued consolidation and the promotion of regionalism is the ultimate goal in Cuyahoga County, however, it is not without some drawbacks. Therefore, listed below is a summary of the Pros and Cons of consolidation. Pros Cons Standardized dispatching protocols and training decreases the chance for error, thereby increasing the safety of responders and improving public service.

Concern for loss of the personal touch and knowledge of local city currently provided by local PSAPs.

Increased interoperability between PSAPS.

Concern for loss of control of PSAP staff by the current PSAP executives.

Increased opportunities for disaster recovery and failover in the event of a natural disaster or event.

Loss of administrative (24/7) staff currently tasked with non-emergency tasks such as scheduling, walk-in reports and/or complaints, and public requests for information.

Cost savings in the procurement, maintenance, installation and support of PSAP systems and equipment.

Initial costs (facilities, systems, training, etc.) can delay the realization of cost savings.

Increased operational and service efficiencies.

Increased opportunities for grants and state funding to support public safety operations and interoperability within the County.


9.1 PSAP Consolidation There are several recommendations from a County perspective that have come out of the initial phase of this study. The primary recommendation is that Cuyahoga County can and should reduce the number of PSAPs that currently exist. Further research is being conducted from other whitepapers/studies that have been completed about population size and the corresponding number of PSAPs that should exist. One of the most encouraging trends identified in this study was the fact that regionalism and consolidation is already underway amongst several PSAPs in Cuyahoga County. Those PSAPs and PSAP collaboration entities are as follows:

• Solon/Chagrin Valley • SouthEast • SouthWest • Shaker Heights/Euclid/Beachwood/South Euclid

Cleveland, Westcom, Eastcom, and CECOMS are entities worth noting due to their current collaborative approach and experience with emergency dispatch. Based on the results of this assessment they are not included in the list of short-term candidates for PSAP consolidation, their experience with regionalism cannot be discounted for future collaboration efforts.

9.1.1 Solon/Chagrin Valley The Solon/Chagrin Valley Area Regional Dispatch Center for Police, Fire, and EMS would be a new entity physically located within the Solon Police Department. They have space to remodel the basement and could maintain six workstations with some minor remodeling. A second option, and perhaps a partial failover site to Cleveland, would be a new dispatch center on four acres of land that sits behind Solon Police Department (PD) today.

Facility: Combined entity has several options for a Regional Dispatch facility:

1. Expand and remodel current Solon PSAP 2. Build new Regional Dispatch Center on currently

vacant Solon PD Property

Resources: Both entities currently have very experienced and qualified Dispatchers. Many are current role models for Dispatch processes and procedures across the County.

Technology: Combined entity currently has TAC and Emergitech CAD systems independently. Neither is an enterprise-class CAD application and has limitations surrounding scalability,


functionality and support.

Executive Level Support:

Combined entity has well-establish support for continued PSAP consolidation. Both the Mayors and Public Safety officials are in support of regionalism.

9.1.2 SouthEast The SouthEast Regional Dispatch for Police, Fire, and EMS would be physically located in a University Hospital facility in Bedford. Discussions are underway and a formal Council of Government (COG) has been established with the following communities: Bedford, Bedford Heights, Garfield Heights, Glen Willow, Maple Heights, Oakwood Village, and Walton Hills.

Facility: Combined entity has adequate space to build a new PSAP Center in University Hospital in Bedford.

Resources: Combined entity currently has varying levels of skill sets within the various PSAPs. COG is open to working through all staffing requirements needed to optimize the PSAP.

Technology: Combined entity currently has TAC CAD systems. It is not an enterprise-class CAD application and has limitations surround scalability, functionality and support.


Combined entity has well-establish support for continued PSAP consolidation. Both Mayors and Public Safety officials are in support of regionalism.

9.1.3 SouthWest The SouthWest Regional Fire/EMS Dispatch Center would be physically located at Southwest Hospital on Bagley Road in Middleburg Heights. Discussions are underway to possibly include 8 communities in this initiative. The following communities have been approached: Berea, Brook Park, Middleburg Heights, Olmsted Falls, Olmsted Township, North Royalton, and Parma Heights.

Facility: Combined entity has adequate space to build a new PSAP Center in SouthWest Hospital in Middleburg Heights.

Resources: Combined entity currently has varying levels of skill sets within the various PSAPs. COG is open to working through all staffing requirements needed to optimize the PSAP.

Technology: Combined entity currently has TAC CAD systems. It is not an enterprise-class CAD application and has limitations surround scalability, functionality and support.


Combined entity would have strong support from Fire Chiefs, Hospital Administration officials and hopefully Police Chiefs;


however, Mayoral support has not been confirmed.

9.1.4 Shaker Heights/Euclid/Beachwood/South Euclid The Shaker Heights/Euclid/Beachwood/South Euclid entity has taken a unique approach to consolidation. They are in discussion to share a domain controller and hardware to support their collective PSAPs. The vision is to consolidate facilities and staff.

Facility: Not relevant at this point, as combined group would not be working together in one physical PSAP.

Resources: Not relevant at this point, as combined group would not be combining staff or PSAP personnel for Phase One of this collaborative effort.

Technology: Combined entity currently has TAC CAD systems. It is not an enterprise-class CAD application and has limitations surround scalability, functionality and support. The benefit of using back-office infrastructure and a shared domain controller is the true benefit to this recommendation.


Combined entity has well-establish support for continued PSAP consolidation. Both Mayors and Public Safety officials are in support of regionalism.

9.1.5 Cleveland Beginning in 2009 the City of Cleveland developed a Shared Services strategy with pilot agencies in the region designed to share the City’s Intergraph Computer Aided Dispatch (CAD) system with surrounding suburbs. The strategy included the technical architecture, organizational assessment, software and resource assessment, and support model. In 2010, Parma was the first participating city to join this initiative with the City Cleveland. As such, Parma was able to implement an otherwise too costly enterprise CAD system, as well as recognize the significant cost savings with the implementation, licensing, and support costs. While Cleveland and Parma continue to work through some support and performance issues, this is a significant push toward regionalism and collaboration.

9.1.6 Eastcom and Westcom Eastcom and Westcom are currently dispatching Fire and EMS calls for multiple communities. Westcom, currently dispatches for a community in Lorain County. At the time of publication (mid-December 2011) no plans could be verified for


physical infrastructure expansion of Eastcom or Westcom. More research is needed around the expansion of Westcom and Eastcom to include additional communities for dispatching.

9.2 CECOMS 9-1-1 Wireless Calls It is recommended that further analysis of CECOMS occur on an annual basis. While some communities have expressed interest in taking their own 9-1-1 Cellular Calls, it is not recommended that any city, other than the City of Cleveland begin to take their own cellular calls. The current wireless infrastructure within Cuyahoga County makes it difficult for cities to answer their own 9-1-1 calls. All wireless towers have three faces, and each tower face is assigned a pANI (pseudo-ANI) which is a generic term used to identify the phone number of the tower used to link the caller, the cell tower information, and the ALI (Location Information) records. Each tower face is assigned an ESN (Electronic Service Number) by AT&T which routes the call to its assigned PSAP (Public Safety Answering Point). In densely populated areas that have multiple PSAPs (such as Cuyahoga County), the general practice has been for a Central PSAP (e.g., CECOMS) to take all the wireless calls and transfer them to the appropriate PSAP. This practice reduces the potential of misrouted calls.

Important Note: The risks associated with smaller cities receiving “bounced calls” that truly belong to a neighboring PSAP would greatly increase the chance of a 9-1-1 call being routed improperly.

The conditions for a misrouted wireless call may include:

• One tower or face can be within the jurisdictional bounties of multiple PSAP’s.

• The wireless call may be routed to another tower assigned to another PSAP due to heavy traffic on the wireless tower.

• Wireless calls may skip to another tower due to weather.

Note: Newer technology may lessen these risks.


4 The diagram above represents a typical Phase II Wireless 911 call process flow. Listed below are the six key steps. 1. A 9-1-1 cell phone call is transmitted to the closest cellular tower.

2. The Tower equipment identifies this as an emergency call and transmits

the voice signal, wireless phone’s callback number, and tower’s ID code to the Mobile Switching Center (MSC).

3. The MSC assigns a unique 10-digit routing number called an Emergency Services Routing Digit (ESRD) to the call. The ESRD is a 10-digit routable number that is used for routing on a per origination cell sector basis. Cellular services use three antennas on each tower, and each antenna face is assigned a unique ESRD. Also assigned is an Emergency Services Routing Key (ESRK). The ESRK is also 10-digit routable number that is used for routing.

4. The cellular carrier’s position-determining system uses GPS satellites to find the caller’s location.

4 http://fletch911.wordpress.com/article/cellular-e911-location-discovery-1558rwj796sda-10/


5. The MSC sends the call to the Local Exchange carrier who receives both the voice signal and the 10-digit ESRD and ESRK routing numbers. The call is now in the traditional E911 Tandem system used for wired calls, and the call is processed by a Selective router or 911 Tandem. The routing number is used to decide automatically which emergency call center is appropriate and passes the call on specialized E911 trunks, where the PSAP receives a 20-digit Automatic Number Identification (ANI) consisting of the ESRD and the ESRK.

6. The emergency call center operator receives the 9-1-1 voice call and a computer receives the unique 10-digit ESRK routing number. Using the ESRK routing number, the computer then connects to the location information database and retrieves the data that has been populated including the caller’s wireless number, the tower’s address, and the caller’s exact latitude/longitude coordinate location. At the same time, a computer mapping application (if available) can then use the latitude/longitude data and display this information on a map on the call taker’s PC.

9.3 Infrastructure Cuyahoga County can and should update its aged 9-1-1 infrastructure to include a distributed network with SONET ring technology. This new architecture and investment would assume four to five host sites for Regional Dispatching. There are huge benefits to investing in such a platform, including the importance of load-balancing of the calls and the ability to failover call dispatching in the event of a disaster. The new 9-1-1 technology supports many groups sharing a single controller. On Windows Server Systems, a 9-1-1 controller is a server that responds to security authentication requests (logging in, checking permissions, etc.) within the Windows Server domain. A domain is where a user may be granted access to a number of computer resources with the use of a single username and password combination.

9.4 Technology Roadmap Cuyahoga County should create a prioritization plan to upgrade/update those PSAPs that will not be consolidating quickly (e.g., within the next two years to be 9-1-1 Phase Two Technological compliant). All 9-1-1 Controllers with the exception of Fairview Park are considered “end of life” and should be replaced to avoid any immediate issues in delayed response time related to dispatching.


9.5 Governance Model Our research concluded that every PSAP consolidation also included an advisory board. There are many different governance models, and selecting a governance structure that suits the geographical and political area is a critical component to a successful consolidation. Several Governance Model examples are listed below.

1. Separate Department within an existing department’s governmental structure. This model has a civilian director that reports within the department’s organizational structure with other department heads.

2. A Department that is part of a participating/existing agency. Sworn

personnel manage the PSAP and fall under the management of that department.

3. Independent Authority. A civilian director typically manages these

agencies and reports to a board of representatives from participating members.

4. Contractual. Governmental units can enter into contractual agreements

with one another in order to provide PSAP and/or dispatch service.

9.5.1 Advisory Committee It is also recommended that an Advisory Committee be created before, during, and after any consolidation with a representative from each participating PSAP. The Advisory Committee’s primary purpose is to review and approve the structure for the following key PSAP components:

• PSAP personnel • Training for PSAP personnel • PSAP infrastructure • PSAP administration • PSAP governance

Additionally, it is recommended that Cuyahoga County hold bi-annual meetings of all PSAPs that exist within the County. These meetings would foster trust, enhance communication and provide a forum for training and education.


10. Risks Several important risks to the Public Safety Sector of Cuyahoga County are noted below. An additional recommendation of the study would be to develop a risk mitigation plan for the documented concerns.

• There is an inherent risk of individual PSAPs taking their own 9-1-1

cellular calls. • There is an inherent risk of TAC as a current CAD Vendor for so many

PSAPs. TAC is not an enterprise class CAD application and is currently not maintaining a robust patching and configuration management program for all CAD clients.

• There would be an impact of FTE reductions with Police if Dispatch positions are taken away.

• City of Cleveland currently has no back-up site for their Dispatch Operations.

• A significant risk is the inability to provide Emergency Medical Dispatch (EMD) in Cuyahoga County. Although some dispatchers are EMD trained, most cannot utilize those skills since they work alone and must simultaneously communicate with EMS, fire, police and the caller.

• There is a lack of political and organizational leadership to support the consolidation projects in many cities.

• There is a lack of consistency with project management and project support while implementing, building new regional PSAPs. For example, vision for technologies, standard operating procedures, infrastructure, training for dispatchers, etc. should be similar for all Regional/Consolidated Dispatch Centers.


11. Appendix 11.1 PSAP Definition & Overview A PSAP is defined as a Public Safety Answering Point. A PSAP is a call center responsible for answering calls to an emergency telephone number for police, firefighting and ambulance services. By law only one PSAP may exist per municipality. Additionally, each 10-digit phone number may only be linked to one PSAP. A PSAP is also a facility operated on a 24-hour basis assigned the responsibility of receiving 9-1-1 calls. It directly dispatches emergency services or passes 9-1-1 calls on to public or private safety agencies. Trained operators are responsible for dispatching the emergency services. Most PSAPs are now capable of caller location for landline calls, and many can handle mobile phone locations as well (sometimes referred to as phase II location), where the mobile phone company has a handset location system. Some can also use voice broadcasting, where outgoing voice mail can be sent to many phone numbers at once, in order to alert people to a local emergency such as a chemical spill, also known as reverse 9-1-1 technology. In the United States, the county or a large city usually handles this responsibility. As a division of a U.S. state, counties are generally bound to provide this and other emergency services even within the municipalities, unless the municipality chooses to opt out and have its own system, sometimes along with a neighboring jurisdiction. If a city operates its own PSAP but not its own particular emergency service (for example, City Police but County Fire), it may be necessary to relay the call to the PSAP that does handle that type of call. The U.S. requires caller location capability on the part of all phone companies, including mobile ones, but there is no federal law requiring PSAPs to be able to receive such information.

11.1.1 Cuyahoga County PSAP Overview Today, there are 47 PSAPs that exist across Cuyahoga County. Typical counties in the U.S. have less than five total PSAPs.

11.2 9-1-1 Overview Within the United States and Canada, dialing "9-1-1" from any telephone will link the caller to an emergency dispatch center—called a PSAP, or Public Safety Answering Point, by the telecom industry—which can send emergency


responders to the caller's location in an emergency. In most areas, enhanced 9-1-1 is available, which automatically gives dispatch the caller's location, if available. Enhanced 9-1-1 or E9-1-1 service is a North American telecommunications-based system that automatically associates a physical address with the calling party's telephone number, and routes the call to the most appropriate Public Safety Answering Point (PSAP) for that address.

5 The final destination of an E9-1-1 call—the location where the 9-1-1 operator is working—is called a Public Safety Answering Point (PSAP). There may be multiple PSAPs within the same exchange, or one PSAP may cover multiple exchanges. The territories covered by a single PSAP are based more on historical and legal police considerations than on telecommunications issues. Most PSAPs have a regional Emergency Service Number, a number identifying the PSAP. The Caller Location Information (CLI) provided is normally integrated into an emergency dispatch center's computer-assisted dispatch (CAD) system, to provide the dispatcher with an onscreen street map that highlights the caller's position and the nearest available emergency responders. For Wireline (land line) E9-1-1, the location is an address. For Wireless E9-1-1, the location may be a set of coordinates or the physical address of the cellular tower from which the wireless call originated. Not all PSAPs have the Wireless and Wireline systems integrated. As other aspects of the technology of managing emergency response evolve, the PSAPs will need to evolve with them.

5 http://www.911.lubbock.tx.us/images/callflow.gif


Wireline enhanced 9-1-1 In all North American jurisdictions, special privacy legislation permits emergency operators to obtain a 9-1-1 caller's telephone number and location information. This information is gathered by mapping the calling phone number to an address in a database. This database function is known as Automatic Location Identification (ALI). The database is generally maintained by the local telephone company, under a contract with the PSAP. Each telephone company has its own standards for the formatting of the database. Most ALI databases have a companion database known as the MSAG, Master Street Address Guide. The MSAG describes address elements including the exact spellings of street names, and street number ranges. Each telephone company has at least two redundant telephone trunk lines connecting each host office telephone switch to each PSAP. These trunks are either directly connected to the PSAPs, or are connected to a telephone company central switch that intelligently distributes calls to the PSAPs. These special switches are often known as 9-1-1 Selective Routers. The use of 9-1-1 Selective Routers is becoming increasingly more common, as it simplifies the interconnection between newer office switches and the many older PSAP systems. The effectiveness of this technology may sometimes be affected by the type of telephone infrastructure that the call is routed through. The PSAP may receive calls from the telephone company on older analog trunks, which are similar to regular telephone lines but are formatted to pass the calling party number. The PSAP may also receive calls on older-style digital trunks, which must be specially formatted to pass Automatic Number Identification (ANI) information only. Some upgraded PSAPs can receive calls in which the calling party number is already present. The location of the call is drawn from a computer routine which supports telephone company service billing, called the Charge Number Parameter. With some technologies, the PSAP trunking does not pass address information along with the call. Instead, only the calling party number is passed, and the PSAP must use the calling party number to look up the address in the ALI database. The ALI database is secured and separate from the public phone network, by design. Sometimes, on calls using land lines, the originating telephone number may not be passed to the PSAP at all, generally because the number is not in the ALI database. When this happens, the call receiver must confirm the location of the incoming call, and may have to redirect the call to another, more appropriate PSAP. ALI Failure occurs when the phone number is not passed or the phone number passed is not in the ALI database. In most jurisdictions, when ALI database lookup failure occurs, the telephone company


has a legal mandate to fix the database entry.


11.3 Cost per Call Analysis by Individual PSAP This table represents data supplied by AT&T from monthly switch technology that counts call volumes. The data within the spreadsheet is intended to be a best possible scenario for using technology to calculate a cost per 9-1-1 call within each PSAP. Please note that data is not included for Cleveland Heights or Mayfield Village, as the data was not reliable form AT&T. The total call volumes do not represent calls incoming on the 10 digit non-emergency phone lines. Those calls are not able to be counted by AT&T. Cleveland is the only City that can capture 1-2-3-4 administrative calls; therefore, the results are skewed. Cleveland has technology available within their telephony to count those administrative calls.

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12. Appendix 12.1 Correspondence to PSAPs

Initial Letter to Cuyahoga County Mayors


Letter Requesting Survey Participation


Letters to Mayors Regarding Participation


Presentation Sent to Mayors Confirming Final Content


12.2 Operational Budget Guidelines Listed below are staffing guidelines provided in a report by 9-1-1 SME Consulting6 commissioned by the NENA SWAT Operations Team. It is important to note that the guidelines are estimates calculated in 2003 and were not calculated specifically for Cuyahoga County. Additionally, the SWAT Team sizes presented in this study do not include larger PSAPs such as those the size of the City of Cleveland. The PSAP sizes are categorized as Small, Medium and Large and are defined as follows:

• Small PSAP: The PSAP manager is often working as a telecommunicator, and there is typically only one call taker/dispatcher on duty most of the time. Population: 0 to 19,000

• Medium PSAP: The PSAP manager is dedicated and also completes most

of the support work. PSAP typically only has one call taker/dispatcher on duty during slow call volume times; however, a second call taker/dispatcher is added during busy periods. Population: 19,001 to 100,000

• Large PSAP: The PSAP manager is dedicated and the PSAP has one or two full-time support personnel such as an administrative assistant/assistant manager, database manager and/or training supervisor. PSAP normally has two to three call-takers/dispatchers on duty. May have one call taker and two dedicated dispatchers (one for Police; the other for Fire/EMS). Population: 100,001 to 140,000

Many factors can influence the Operational budgets of a PSAP including, but not limited to, the following: wage rates in the local area, paid time off, full-time or part-time employees, benefits packages, and support contracts. As such, the Operational Budget guidelines below can only show the statistics of PSAPs similar to the PSAP being designed. Estimated Costs PSAP Size Lowest Average Highest Small $ 143,370 $ 251,500 $ 415,966 Medium $ 49,050 $ 562,302 $ 2,300,646 Large $ 625,293 $ 1,395,988 $ 2,687,900

6 PSAP STAFFING GUIDELINES REPORT AS COMMISSIONED BY NENA SWAT OPERATIONS TEAM - August, 2003 © L. Robert Kimball & Associates, Inc. or 9-1-1 SME Consulting


13. Glossary of Terms Term Definition 9-1-1 A three digit telephone number to facilitate the reporting of an

emergency requiring response by a public safety agency. 9-1-1 Service Area The geographic area that has been granted authority by a

state or local governmental body to provide 9-1-1 service. 9-1-1 Service Provider An entity providing one or more of the following 9-1-1

elements: network, CPE, or database service. 9-1-1 Tandem (See E9-1-1 Control Office)

Access Line The connection between a customer premises network interface and the Local Exchange Carrier that provides access to the Public Switched Telephone Network (PSTN).

ACD Automated Call Distribution

ANI/ALI Automatic Number Identification/Automatic Location Identification

APCO Association of Public-Safety Communications Officials

Automatic Location Identification (ALI)

The automatic display at the PSAP of the caller’s telephone number, the address/location of the telephone and supplementary emergency services information.

Automatic Location Identification (ALI) Database

The set of ALI records residing on a computer system.

Automatic Number Identification (ANI)

Telephone number associated with the access line from which a call originates.

AVL Automatic Vehicle Location

BOC Bureau of Communications

C2C CAD-to-CAD

CAD Computer Aided Dispatch

CCC Cleveland Communications Center

CECOMS Cuyahoga Emergency Communications System

Central Office (CO) The Local Exchange Carrier facility where access lines are connected to switching equipment for connection to the Public Switched Telephone Network.

Centralized Automated Message Accounting (CAMA)

A multi-functional signaling protocol originally designed for billing purposes, capable of transmitting a single telephone number.

CPD Cleveland Police Department

CPE Customer Premises Equipment device, is any component a consumer attaches at the receiving end of a telephone network to route, terminate or originate communication that is not supplied by the carrier. Examples include telephones, modems and other networking devices.

CRM Customer Relationship Management

CS1 Responsible for call taking and are not trained to dispatch

CS2 Cross trained to dispatch for EMS, Fire, and Police – can also fill the role of a call taker

Data Base Management System Provider

Entity providing Selective Routing (SR) and/or Automatic Location Identification (ALI) data services.


Default Routing The capability to route a 9-1-1 call to a designated (default) PSAP when the incoming 9-1-1 call cannot be selectively routed due to an ANI failure or other cause.

DLS Dispatch Life Support

ELIN Emergency Location Identification Number

EMD Emergency Medical Dispatcher

EMDQ Emergency Medical Quality Assurance

Emergency Response Location (ERL)

A location to which a 9-1-1 emergency response team may be dispatched. The location should be, specific enough to provide a reasonable opportunity for the emergency response team to quickly locate a caller anywhere within it.

Emergency Service Number (ESN)

A number assigned to specific geographic area within which all E9-1-1 calls are routed to one specific PSAP and the residents of the area are served be the same Police, Fire and EMS agencies.

EMS Emergency Medical Services

Enhanced 9-1-1 (E9-1-1) Control Office

The Central Office that provides the tandem switching of 9-1-1calls. It controls delivery of the voice call with ANI to the PSAP and provides Selective Routing, Speed Calling, Selective

EOL End-of Life

Enterprise Class Application

Software applications capable of sustaining a large number of end users, 24 X 7 customer support, formalized patching and maintenance plan, etc.

FDC Fire Dispatch Center

FEMS Fire and Emergency Medical Services

FireHouse Records management software

FLSA Fair Labor Standards Act

GIS Geographical Information System

INMS Integrated Network Monitoring System

IRR Internal Recall Recorder

IVR Integrated Voice Response

LEADS State of Ohio database that holds information regarding past crimes, traffic violations – RMS system data goes into LEADS

LOGIC Louisville/Jefferson County Information Consortium

MDCs Mobile Data Computers

MDT Mobile Data Terminal

MPDS Medical Priority Dispatch System

NCIC National Crime Information Center. Computerized index of criminal justice information

NENA National Emergency Number Association

NFPA National Fire Protection Agency

OUC Office of Unified Communications

PBX Private Branch Exchange

Phase I Provides a PSAP with both the telephone number of the person calling and the address of the receiving antenna tower.

Phase II Provides a PSAP with a more precise location than Phase I. The information received includes not only the phone number but the latitude and longitude of the caller. The information provided must be accurate within 50-300 meters.

PI Process Improvement


Positron Solution used for end-to-end call handling and dispatching

PRI Primary Rate Interface

ProQA A software tool used in dispatch centers to help Dispatchers move smoothly through entering a case by collecting vital information from the caller, asking the appropriate questions, and providing the appropriate responses and dispatch levels.

PSAP Public-Safety Answering Point - call center responsible for answering calls to an emergency telephone number for Police, Fire and EMS

QA Quality Assurance

RMS Records Management System

TDD Telecommunications Device for the Deaf

Trunk A concept by which a communications system can provide network access to many clients by sharing a set of lines or frequencies instead of providing them individually

TTY/TTD Telephone Typewriter/ Telecommunications Device for the Deaf

UCC Unified Communications Center

UCT Universal Call Taker

USCP United States Capitol Police

VCO Voice Carry Over

WDA Workforce Development Agency

ZOLL RescueNet Software solution to help optimize business process, identify inefficiencies and the resources to help reduce them.

cuyahoga county: psap assessmentja.cuyahogacounty.us/.../2012-psapassessment.pdf · cuyahoga...

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