Mutual Public Safety Dispatching

Transcription

Report for
Mutual Public
Safety Dispatching
Prepared for
Ashtabula County, Ohio
June 2014 ©
ARCHITECTURE • ENGINEERING • COMMUNICATIONS TECHNOLOGY
AVIATION | CIVIL | CONSTRUCTION SERVICES | DATA SYSTEMS | ENVIRONMENTAL
FACILITIES ENGINEERING | GEOSPATIAL | NETWORKS | PUBLIC SAFETY | TRANSPORTATION
REPORT FOR
MUTUAL PUBLIC SAFETY DISPATCHING
PREPARED FOR
ASHTABULA COUNTY, OHIO
TABLE OF CONTENTS
1.
Project Overview ................................................................................................................................................... 3
1.1
Key Definitions.............................................................................................................................................. 3
1.2
Scope of Work Summary.............................................................................................................................. 3
1.3
Methodology ................................................................................................................................................. 3
2. PSAP Consolidation Overview .............................................................................................................................. 4
2.1
Historical Background................................................................................................................................... 4
2.2
Reasons to Consider Consolidation ............................................................................................................. 5
2.3
Roadblocks to Consolidation ........................................................................................................................ 6
3. Current Environment ............................................................................................................................................. 7
3.1
Existing State of Ohio Legislation ................................................................................................................. 7
3.2
Ashtabula County Sheriff’s Office ................................................................................................................. 8
3.2.1 Demographics .......................................................................................................................................... 8
3.2.2 Organizational Structure........................................................................................................................... 8
3.2.3 Call Volume and Processing .................................................................................................................... 8
3.2.4 Training and Quality Assurance ............................................................................................................... 9
3.2.5 Technology............................................................................................................................................... 9
3.2.6 Ancillary Duties ...................................................................................................................................... 11
3.2.7 Budget Summary ................................................................................................................................... 12
3.2.8 Interest in Consolidation ......................................................................................................................... 12
3.3
Ashtabula Police Department ..................................................................................................................... 12
3.3.1 Demographics ........................................................................................................................................ 12
3.3.2 Organizational Structure......................................................................................................................... 13
3.3.3 Call Volume and Processing .................................................................................................................. 13
3.3.4 Training and Quality Assurance ............................................................................................................. 13
3.3.5 Technology............................................................................................................................................. 14
3.3.7 Budget Summary ................................................................................................................................... 15
3.4
Ashtabula Township Fire Department ........................................................................................................ 16
3.4.1 Demographics ........................................................................................................................................ 16
3.4.3 Call Volume and Call Processing ........................................................................................................... 16
3.4.5 Technology............................................................................................................................................. 17
3.4.7 Budget Summary ................................................................................................................................... 18
3.5
Conneaut Police Department...................................................................................................................... 18
3.5.1 Demographics ........................................................................................................................................ 18
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3.5.5 Technology............................................................................................................................................. 19
3.5.7 Budget Summary ................................................................................................................................... 21
3.6
Geneva Police Department ........................................................................................................................ 22
3.6.1 Demographics ........................................................................................................................................ 22
3.6.5 Technology............................................................................................................................................. 23
3.6.7 Budget Summary ................................................................................................................................... 24
3.7
Saybrook Fire Department ......................................................................................................................... 25
3.7.1 Demographics ........................................................................................................................................ 25
3.7.5 Technology............................................................................................................................................. 26
3.7.5 Ancillary Duties....................................................................................................................................... 28
3.7.6 Budget Summary ................................................................................................................................... 28
3.8
Non Public Safety Agencies ....................................................................................................................... 28
3.8.1 Perry Nuclear Power Plant ..................................................................................................................... 28
3.8.2 School Districts ...................................................................................................................................... 29
3.8.3 Ashtabula County Engineer.................................................................................................................... 29
3.9
Stakeholder Input ....................................................................................................................................... 29
3.9.1 Stakeholder Concerns ............................................................................................................................ 30
3.9.2 Stakeholder Comments and Suggestions .............................................................................................. 31
3.9.3 Stakeholder Summary ............................................................................................................................ 31
3.10 Current Environment Summary .................................................................................................................. 31
3.10.1
Total Call Volume............................................................................................................................... 31
3.10.2
Technology Summary ........................................................................................................................ 33
3.10.3
Ancillary Duties .................................................................................................................................. 35
3.10.4
Budget Summary ............................................................................................................................... 37
3.10.5
Emergency Medical Dispatch ............................................................................................................ 37
3.10.6
Operational Summary ........................................................................................................................ 38
4. Consolidated PSAP Models ................................................................................................................................ 40
4.1
Governance ................................................................................................................................................ 40
4.1.1 Mandatory Law Enforcement Control ..................................................................................................... 40
4.1.2 Governance Models ............................................................................................................................... 41
4.1.3 Governance Recommendations ............................................................................................................. 43
4.2
Cost Distribution ......................................................................................................................................... 44
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4.3
Single Countywide PSAP Model................................................................................................................. 44
4.3.2 Call Taking and Dispatch Methodology .................................................................................................. 46
4.3.3 Staffing ................................................................................................................................................... 47
4.3.4 Technology............................................................................................................................................. 50
4.3.5 Cost Estimates ....................................................................................................................................... 52
4.3.6 Summary ................................................................................................................................................ 54
4.4
Phased Consolidation Option ..................................................................................................................... 54
4.4.1 Organizational Structure and Staffing Levels ......................................................................................... 55
4.4.2 Technology............................................................................................................................................. 55
4.4.3 Summary ................................................................................................................................................ 55
4.5
Shared Technology Option ......................................................................................................................... 56
4.5.1 Summary ................................................................................................................................................ 56
4.6
Regionalized Hybrid ................................................................................................................................... 56
4.7
Call Center Options .................................................................................................................................... 58
4.7.1 Call Center with 9-1-1 Call Transfers ..................................................................................................... 58
4.7.2 Call Center with Shared Technology ...................................................................................................... 58
4.7.3 Call Center Models and Next Generation 9-1-1 Concerns ..................................................................... 60
5. Grant and Funding Opportunities ........................................................................................................................ 61
5.1
Federal Grants............................................................................................................................................ 61
5.1.1 Federal Emergency Management Agency Preparedness Grants .......................................................... 61
5.1.2 Proposed Consolidation of National Preparedness Grants .................................................................... 62
5.1.3 9-1-1 Implementation Grants.................................................................................................................. 63
5.1.4 Byrne Justice Assistance Grant Programs ............................................................................................. 64
5.1.5 Bonds ..................................................................................................................................................... 64
5.1.6 Earmarks ................................................................................................................................................ 64
6. Summary and Recommendations ....................................................................................................................... 65
6.1
Next Steps .................................................................................................................................................. 66
Appendix A—Participation in LEADS ........................................................................................................................... 67
Appendix B—Ohio Code 128.03 .................................................................................................................................. 70
Appendix C—Ohio Code 307.63 .................................................................................................................................. 72
Appendix D—HB 360 Analysis..................................................................................................................................... 73
Appendix E—Acronyms ............................................................................................................................................... 97
Table of Tables
Table 1— ACSO PSAP Budget Summary ................................................................................................................... 12
Table 2—Ashtabula PD PSAP Budget Summary ........................................................................................................ 15
Table 3—County VHF Channel Summary ................................................................................................................... 17
Table 4—Ashtabula Township Fire Department Budget Summary.............................................................................. 18
Table 5— Conneaut Police Department PSAP Budget Summary ............................................................................... 21
Table 6—Geneva Police Department PSAP Budget Summary ................................................................................... 24
Table 7—2013 Estimated Call Volume Summary ........................................................................................................ 32
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Table 8—Current PSAP Technology Summary ........................................................................................................... 33
Table 9—Current CAD and Interface Summary ........................................................................................................... 34
Table 10—Radio Platform Summary ........................................................................................................................... 35
Table 11—Ancillary Job Responsibilities Performed by PSAP Staff ............................................................................ 36
Table 12—Current Staffing, Workload and Budget Summary...................................................................................... 37
Table 13—PSAP Workstations .................................................................................................................................... 49
Table 14—Consolidated PSAP Estimated Operating Budget ...................................................................................... 53
Table 15— Single Consolidated PSAP Technology Cost Estimates ........................................................................... 53
Table 16—Existing and Consolidated PSAP Comparison ........................................................................................... 54
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EXECUTIVE SUMMARY
In an effort to provide the community with the highest level of 9-1-1 services possible while utilizing a cost efficient funding
structure, the County of Ashtabula (County) contracted L.R. Kimball (Kimball) to develop a comprehensive business plan for
the consolidation of area primary and secondary public safety answering points (PSAPs). The PSAPs include:
 Ashtabula County Sheriff’s Department
 City of Ashtabula Police Department
 Ashtabula Township Fire Department
 Conneaut Police Department
 Geneva Police Department
 Saybrook Fire Department
Based on the data collected during this study, Kimball recommends pursuing some form of PSAP consolidation. Key findings
include:
 The State of Ohio has legislation on the books that mandates a reduction in the number of PSAPs within a county
if those PSAPs wish to receive funding from the state.
 The County has a need to relocate its PSAP and emergency management agency (EMA) due to space limitations;
therefore, this may be an opportune time for a consolidation effort.
 In general, many of the key PSAP systems are outdated and need to be replaced.
 The County needs to start planning for next generation 9-1-1 (NG9-1-1), which will require an emergency services
Internet protocol network (ESInet) and 9-1-1 answering equipment that is i3 capable. The existing equipment was
installed 15 years ago and last updated in 2007. The usual life expectancy of customer premise equipment (CPE)
is about seven years so the equipment is in serious need of replacement.
 The majority of the PSAPs have a single person on duty. A single person can quickly become overwhelmed by
incoming calls and dispatch traffic. This type of environment can lead to errors and inefficient handling of calls and
radio traffic.
 A large number of 9-1-1 calls must be transferred between PSAPs before all required services are dispatched.
Every time a call is transferred a delay in completing the call taking process and the dispatch of field personnel
occurs.
Consolidation benefits include:
 More on-duty staff during peak periods which prevents a single on-duty telecommunicator from being overwhelmed
during busy periods. This will lessen the potential for errors and improve call handling and dispatch times.
 Access to technology that may be cost prohibitive on an individual PSAP basis.
 All disciplines (police, fire and emergency medical services [EMS]) receive the same high level of service when
provided by the same organization.
 Standardized training.
 Career ladder for employees which increases employee retention and lowers training costs.
 A more regional approach to emergency communications allows for maximum efficiency in use of field personnel
and resources.
 Consolidation within Ashtabula County will allow the county PSAPs to meet the consolidation mandates in the
state legislation and continue to receive wireless funding.
 Consolidation will position the county PSAPs to transition to an NG9-1-1 capable environment.
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Of the consolidation models discussed in this report, Kimball believes a full countywide consolidation, if deemed financially
and politically possible, will provide the most advantages to the community and the public safety agencies. However,
governance and cost distribution models must be discussed and agreed upon first by all of the participating municipalities to
achieve this model.
Of the other models, Kimball recommends a phased consolidation as discussed in Section 4.4 and then shared technology, as
discussed in Section 4.5, if no other type of consolidation can be achieved. Each of these models offers some of the benefits
achieved in a full countywide consolidation, but not all.
Kimball recommends that the participants in this study commit to the next phase of the consolidation process as discussed in
Section 6.1. This next step does not require participants to commit to consolidation. The commitment is to determine if each
potential “show stopper” can be resolved. These show stoppers include cost distribution and governance as the two most
contentious topics. This process will result in identification of those participants who are willing to commit to consolidation.
Once the actual participants are identified, costs associated with staffing, facility and technology can be more accurately
estimated and each participant can determine their own costs.
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1.
PROJECT OVERVIEW
1.1
Key Definitions
Public Safety Answering Point (PSAP) – Also called a 9-1-1 center or dispatch center and is an emergency communications
facility that receives 9-1-1 calls. Dispatching of police, fire and EMS field personnel each may or may not be part of this
facility. The County has two types of PSAPs. The first type is a primary PSAP which receives 9-1-1 calls directly from
citizens. The second type is a secondary PSAP which does not receive 9-1-1 calls from citizens directly, but through transfers
from other PSAPs.
Full PSAP Consolidation – Full consolidation is defined as the consolidation of police, fire and EMS call handling and police
and fire dispatch functions for a defined region into a single facility. This model may exclude private agencies such as
commercial or non-profit EMS.
Shared Technology – May also be called virtual consolidation. Two or more PSAPs share key PSAP systems such as
computer-aided dispatch (CAD), radio, 9-1-1 call answering equipment or logging recorders. Although technology is shared,
each PSAP retains its existing organizational structure and remains in its own facility.
Call Taker – Refers to a PSAP job function which includes the processing of incoming 9-1-1 and administrative calls. Call
taker may also be a job title in PSAPs where an employee performs only call taking functions.
Dispatcher – Refers to a PSAP job function which includes the dispatching of field personnel via radio to calls for service.
Dispatcher may also be a job title in PSAPs where an employee performs only dispatch functions.
1.2
Scope of Work Summary
The scope of work for this study includes the following:
 Provide a recommended optimal design for overall enhanced 9-1-1 (E9-1-1) effectiveness including
recommendations for the existing configurations.
 Review the existing emergency communications environment in the County, including strengths and weaknesses.
 Identify strategic areas that the County should focus on to achieve a future optimal design.
 Identify grant funding that may be available to achieve the optimal design.
 Identify obvious areas for expansion outside the existing public safety dispatch structure. Include such agencies
as public schools, County Transportation System, Health District and the County Engineer’s Office.
 Outline the most cost effective means to provide NG9-1-1 to all political subdivisions within the County
 Provide an overview of the radio system
 Utilize the National Emergency Number Association (NENA) standards where applicable.
1.3
Methodology
The methodology used for this study included:
1. Distribution of an extensive data collection survey which gathered baseline information on a variety of topics.
Topics included technology currently in use, organizational structure, 9-1-1 call processing, staffing, ancillary duties
performed by the PSAP staff, pay ranges and budget information for each primary and secondary PSAP within the
County.
2. PSAP site visits. Each PSAP was visited by the Kimball project team. On-duty staff, including supervision and/or
management and dispatchers, was interviewed and operations observed.
3. Stakeholder meetings were conducted. Kimball met with a variety of other stakeholders to discuss their views on a
potential consolidation of PSAPs in the County.
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2.
PSAP CONSOLIDATION OVERVIEW
The intent of this section is to provide a generic overview of what PSAP consolidation is; what drives it, what are the benefits
as well as the roadblocks associated with it.
2.1
Historical Background
Historically, 9-1-1 call answering and dispatch services have been provided by small PSAPs except in larger urban areas.
The PSAPs were commonly part of a larger law enforcement, fire or EMS agency. These PSAPs typically had a small staff
that answered 9-1-1 calls and dispatched field units for a single primary agency in addition to a host of other non-9-1-1 or
dispatch related job tasks. Little specialized training was necessary for the staff to perform these functions and advanced
technology was not yet present. In fact, sworn personnel with no 9-1-1 training routinely filled temporary vacancies in the
PSAP. However, over the last 25 years several key factors have caused public safety communications to evolve into a
profession that requires highly skilled people with extensive on-going training and advanced technology. The key factors are:
The explosion of cellular phone usage which created significant issues including:
 A dramatic increase in 9-1-1 call volume.
 The need for Wireless 9-1-1 Phase I and II technology to locate cell phone callers and improved mapping abilities.
 Increased public awareness about available 9-1-1 technology and services such as the ability to locate 9-1-1
callers through technology and emergency medical dispatch (EMD) raised public expectations and drove the need
for higher service levels.
 The terrorist attacks of September 11, 2001 raised awareness for the need for interoperability among responder
agencies and the PSAPs that serve them.
 New technology such as wireless devices with video, photos and text capabilities, as well as automatic crash
notification (ACN) through such companies as OnStar.
As this evolution progressed, those agencies managing PSAPs found that as training and technology needs increased so did
the costs associated with operating a PSAP. In fact, the evolution is continuing as 9-1-1 service levels in the near future will
include the ability to handle text messages, video and photos over Internet protocol (IP) based networks also known as
NG9-1-1. As time progresses those agencies that maintain individual PSAPs will be faced with supplying even higher levels
of training and procuring expensive new technology without which they will no longer be able to meet the 9-1-1 service level
expectations of the community.
Key public safety industry organizations recognize that the on-going evolution of 9-1-1 requires establishing minimum
standards for PSAP employee training, operations, technology and facilities. These organizations include:
 International City/County Management Association (ICMA)
 NENA
 Association of Public-Safety Communications Officials – International (APCO)
 International Association of Fire Chiefs (IAFC)
 Commission on Accreditation for Law Enforcement Agencies (CALEA)
 National Fire Protection Association (NFPA)
The evolution of 9-1-1 and the associated technology coupled with difficult economic times have encouraged state and local
governments and public safety agencies to investigate the concept of shared services or consolidation. The simplest
definition of consolidation is the combining of two or more PSAPs into a single facility and/or organization with a single set of
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critical PSAP technology and protocols. Different consolidation models exist and are customized to meet unique regional and
stakeholder needs. The consolidation process is a complex and difficult process that can yield substantial improvements in
service levels, responder safety, employee retention and potential cost savings if implemented correctly.
2.2
Reasons to Consider Consolidation
Municipalities and agencies consider consolidation for a number of reasons. Commonly cited reasons are:
 Service level improvements – An important benefit of consolidation is service level improvements. The degree and
nature of the improvements will vary depending on the efficiency of each individual PSAP considering
consolidation.
 9-1-1 call-takers and dispatchers are truly the “first responder on the scene” and can substantially affect the
outcome of an incident. The types of service improvements typically achieved include:
• An improvement that will be realized for even the most efficient existing PSAP is regional awareness of workload
and the deployment of field personnel. This awareness leads to improved usage of resources regionally and
better management of large scale or multi-jurisdictional events from a single point of control.
• Reduction or elimination of the transfer of 9-1-1 calls between PSAPs improves response times and lowers the
potential for human or technology errors.
• Quicker call processing and dispatch times, resulting in potentially faster on-scene times for field personnel. To
Kimball’s knowledge, case studies demonstrating this point are not available. However, an examination of the
typical call process where one dispatcher performs both call taking and dispatch functions does support it.
Typically, when one person (the telecommunicator) is performing both functions, he or she answers the 9-1-1
call, interviews the caller long enough to confirm basic information and identify the call has a high priority. The
telecommunicator then turns to the radio and dispatches field personnel and handles the initial brief flurry of
radio traffic. During this time, however short it may be, the caller is essentially on-hold, perhaps not
mechanically, but certainly has been asked to hold on while units are dispatched. During this time, no further
information is being obtained by the telecommunicator. Once the field units are en route and the initial radio
traffic is handled, then the telecommunicator can turn his or her full attention back to the caller and obtain
additional information. However, from this point forward the telecommunicator must split his or her attention
between the caller and the radio.
 When call taking and dispatch functions are split, the call-taker answers the 9-1-1 call and does the same basic
interview in the first example. When a call is identified as a high priority, the call is entered into CAD while the
call-taker continues to gather information. The CAD incident is instantaneously received by the dispatcher(s) and
field personnel is sent. There is no lag in gathering information, potentially critical information, from the caller while
the telecommunicator balances two tasks. As the call-taker gathers new information, it is added to the CAD
incident and sent to the dispatcher(s) to be communicated to the responding units. In Kimball’s experience, this
call processing methodology is highly efficient and more accurate. In reality, a telecommunicator, no matter how
talented, is still limited in the number of tasks he or she can do efficiently by virtue of being human.
In further support of this model, the 2013 version of NFPA 1221 Standard for Installation, Maintenance and Use of
Emergency Communications Systems Section A.7.3.1 (Annex to Chapter 7 Staffing) states “…Consider the following
two concepts of communications center operations:
1.
Vertical Center. A telecommunicator performs both the call taking and dispatching functions
2.
Horizontal Center. Different telecommunicators perform the call taking and dispatch functions.
Telecommunicators working in a vertical center are known to engage in multitasking that can inhibit their ability to
perform assigned job functions. Routine evaluation of telecommunicator staffing….”
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2.3
Roadblocks to Consolidation
Public safety answering point consolidation is a complex process and one has potentially negative, as well as positive
aspects. The negative aspects most commonly raised are:
 Loss of control. Depending on the consolidation model and organizational structure chosen, law enforcement and
fire agencies that have had 9-1-1 call taking and dispatch staff as part of their organizations must often relinquish
control of the PSAP employees as they become part of the new organization. Complaint and other personnel
investigations and any resulting training or disciplinary actions become the responsibility of the new PSAP
management which can be seen as a negative by participating agencies.
 Often, the level of control the new PSAP would have over the responses of the participating agencies is
misunderstood as well. The role of any PSAP is to implement dispatch plans developed by each individual agency
not to dictate response levels to each agency. For example, a law enforcement agency will still have complete
control over the type or nature of the incidents they respond to and the level of that response. While
standardization among participating agencies is recommended to the degree possible, each agency is still able to
customize its responses to the unique needs of the community it serves. Finally, the PSAP dispatches calls for
service according to each agency’s dispatch plan, but any dispatch can be overridden by an agency command
officer if he or she feels it necessary.
 Start-up costs or increased operational costs. It is important to understand that comparing the cost of current,
non-consolidated PSAP operations with that of a consolidated environment is not an apples-to-apples comparison.
The typical emergency communications system that has been in place for the last 25 years cannot provide the
level of service expected by today’s technologically savvy citizens.
 Ancillary or non PSAP related duties. In many small PSAPs where the call volume is low, staff members are often
responsible for a host of other non-9-1-1 or dispatch related responsibilities. These include tasks such as handling
walk-in complaints, holding cell monitoring, dispatchers performing jail duties, releasing impounded animals and
vehicles, management of business key holder/contact files, entering records, tickets and permits, tracking
municipal fees such as dog licenses and functioning as a receptionist and switchboard for the parent agency
and/or the entire municipality.
 Not only do PSAP staff perform necessary functions outside what would be considered 9-1-1 and dispatch duties,
but also often provide a 24/7 presence within the public safety agency. Many agencies consider this 24/7
presence to be a vital part of the service level provided to the community and do not wish to lose it. Not having a
24/7 presence can be managed in a number of ways such as a direct phone in the lobby of the agency that dials
the consolidated PSAP or installing “safe room” capabilities in the facility entrance. However, each community will
need to assess if compromises such as these are acceptable when considering consolidation.
 Each entity considering consolidation must determine how these types of tasks will be managed if consolidation
becomes a reality. This may mean adding tasks to current non-PSAP employees within the entity, hiring new
employees or altering the service levels provided. The hiring of new staff will affect the potential cost savings for
the municipality and should be considered when assessing whether to consolidate.
 Loss of geographical knowledge of the community and/or personal knowledge of callers. There is no question that
PSAP staff in small communities often knows the local citizens and geography well. When moving to a larger,
consolidated environment, it is also true that some of this knowledge will be lost. However, it is important to
recognize that the employees from the small PSAP will likely move over to the consolidated center, taking their
knowledge with them to share with other employees. In addition, mapping software is commonly available which
reduces the need for a high level of local geographical knowledge.
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3.
CURRENT ENVIRONMENT
Ashtabula County is the largest geographical county in the State of Ohio and has a combined population an estimated
100,389 1 residents. Ashtabula County consists of twenty-seven townships, three cities and seven villages. The three largest
cities in Ashtabula County service area (Ashtabula, Conneaut and Geneva) include the Interstate 90 (I-90) corridor, a major
transportation corridor between eastern and western Ohio borders, as well as across the United States. Route 11 traverses
Ohio from the southern border with West Virginia north to the City of Ashtabula where it intersects with I-90.
Emergency communications services to the County’s police, fire and EMS agencies are provided by four primary and two
secondary PSAPs. Each of these PSAPs is organized as an independent operating unit.
This section provides an overview of the current emergency communications environment, existing state legislation and an
over of each of the primary and secondary PSAPs within the county.
3.1
Existing State of Ohio Legislation
The 129th General Assembly put forth Sub. HB360. This legislation, which was passed, addresses a variety of topics related
to wireless surcharges. This document contains several points relevant to a discussion on consolidation. The Ohio
Legislative Service Commission published a final analysis of HB360 2 as passed by the General Assembly. The Legislative
Final Analysis states that HB360:
 “Progressively limits the number of PSAPs in each county for which disbursements from the 9-1-1 charges may be
used, ultimately limiting the number to three PSAPs in 2018 (or four PSAPs if the county includes a municipal
corporation with a population of more than 175,000).”
 “Requires, not later than January 1, 2014, that the Steering Committee adopt rules under the Administrative
Procedure Act that establish technical and operations standards for PSAPs eligible to receive disbursements from
the Wireless 9-1-1 Government Assistance Fund. “
 “Requires PSAPs to comply with the new Steering Committee standards not later than two years after the effective
date of the rules.”
Although HB360 progressively reduces the number of PSAPs within a county that can receive funding to a maximum of three,
for a county of Ashtabula’s size, it does not actually limit the number of PSAPs that can exist within a county. It only limits the
number that can receive funding. Therefore, consolidation is being strongly encouraged, but not mandated at the state level.
The remaining two bullets above indicate that the State will be developing technical and operational standards for PSAPs.
Once established, meeting these standards will be an easier task in a consolidated PSAP environment.
1
2
http://quickfacts.census.gov/qfd/states/39/39007.html U.S. Census Bureau estimated 2012 Census
http://www.lsc.state.oh.us/analyses129/12-hb360-129.pdf
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3.2
Ashtabula County Sheriff’s Office
3.2.1 Demographics
Managed by the Ashtabula County Sheriff’s Office (ACSO), the County PSAP provides the 9-1-1 call processing hardware and
software which is used by the other PSAPs. In each case of the PSAPs, a non-sworn employee manages the daily operations
of the PSAP. This civilian employee reports to a sworn command level officer of that respective PSAP management
organization. The PSAPs are managed by fire departments with the Chief of each department responsible for their respective
PSAP operations.
Ashtabula 9-1-1 user group provides input on services to the Sheriff’s Office command staff but has no governance authority.
As would be expected, a perception among users that the operation of all three PSAPs is oriented to serve the needs of the
host agency (Sheriff’s Office), with less accommodation of the needs of other agencies was noted. This perception is
particularly strong amongst the fire service leadership, who believe the PSAPs are law enforcement oriented, with less
awareness and attention to fire/EMS service needs.
3.2.2 Organizational Structure
Each of the six PSAPs is organized as an independent operating unit. The Sheriff’s Office, which manages the County PSAP,
provides the 9-1-1 call processing hardware and software which is used by the other PSAPs. In each case, a non-sworn
employee manages the daily operations of the PSAP, reporting to a sworn, command level officer of that respective police or
fire organization.
The PSAP employs nine civilian telecommunicators and schedules a minimum of two on duty. However, should one of the
on-duty telecommunicators need to leave the room for meetings, meal breaks or other tasks a single telecommunicator must
manage incoming calls and radio traffic. A third position is available if workload dictates the need for additional staff.
3.2.3 Call Volume and Processing
The ACSO PSAP handled approximately 25,324 9-1-1 calls in 2013. In addition to 9-1-1 calls the PSAP handled an estimated
101,296 administrative calls. The number of administrative calls is estimated based on a general rule-of-thumb that says the
ratio of administrative calls to 9-1-1 calls is usually between 3 and 5:1. Kimball used 4:1 for this estimate. The PSAP’s total
estimated 9-1-1 and administrative call volume is 126,620 annually.
The common processing model currently used in the Ashtabula County primary and secondary PSAPs is often referred to as
“single stage” dispatching. In this model, the same person who answers the telephone call for service enters the call into the
CAD system, dispatches the appropriate response units, updates responder status in CAD and closes out the event with
disposition information at the conclusion of the call. This model is commonly found in smaller PSAPs.
The PSAP provides primary dispatch support for the following agencies:
 Ashtabula County Sheriff’s Office
 Geneva-on-the-Lake Police Department (PD)
 Ohio State Highway Patrol
 Dorset Township Fire Department (FD)/EMS
 Hartsgrove Township FD/EMS
 Jefferson EMS Rescue District
 Jefferson FD, Morgan FD
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







Orwell FD/EMS
Rome FD/EMS
Trumbull Township FD/EMS
Wayne Township FD/EMS
Windsor FD/EMS
Andover FD
Monroe FD
South Central Ambulance District
For EMS calls for Andover FD the caller is voice transferred to the Community Care EMS agency dispatch operations for EMS
dispatch. The PSAP area which accommodates dispatch operations has no room for expansion and currently inadequately
accommodates the three operator positions located in this area.
Ashtabula County PSAP selectively routes the 9-1-1 calls from within the city limits of the city of Ashtabula, Conneaut and
Geneva PSAPs which are operated by the police departments. These PSAPs along with the county PSAP transfer callers to
the two secondary PSAPs and also to Community Care Ambulance and Northwest Area District EMS which operates a
dispatch center for its ambulance operations.
Due to contracts which have been established by the primary and secondary PSAPs, it is common for a primary PSAP to have
to transfer a caller to a secondary PSAP or EMS dispatch facility for dispatch.
The Ashtabula County PSAP does not provide emergency medical dispatch (EMD) or pre-arrival instructions as part of its call
processing methodology. However, Community Care does provide when it receives transferred calls.
3.2.4 Training and Quality Assurance
Ashtabula County PSAP provides the 40-hour APCO Basic Telecommunicator Course and in house training on operational
policies and procedures. There is no formal quality assurance program currently in place.
Citizen or user agency complaints are brought to the attention of the 9-1-1 user group for review and resolution.
3.2.5 Technology
This section provides an overview of the key PSAP technology currently in use in each PSAP.
3.2.5.1 Computer Aided Dispatch
Computer aided dispatch is a critical system that assists call-takers and dispatch personnel in processing, prioritizing,
dispatching and controlling calls for service for the respective agencies. Computer aided dispatch systems typically consist of
several modules that provide call input, call dispatch, call status maintenance, event notes/narrative, field unit status and
tracking and call resolution and disposition. Computer aided dispatch systems also include interfaces that permit software to
provide other features and functionality. For the consolidated communications center, the selected CAD system must be
capable of accommodating multiple disciplines, agencies, types of service, and provide interfaces to other jurisdictions, local
sub-systems (e.g., mapping, mobile data, E9-1-1, fire station alerting, paging,) and state and federal databases including the
Law Enforcement Automated Data System (LEADS) and the National Crime Information Center (NCIC).
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Ashtabula County completed an upgrade in October 2013 of its CAD system, IDNetworks Inc. The current version of software
installed is version 3.0.618.0 and was originally installed in Aug. 2011. Currently this PSAP is the only one operating this CAD
system.
The recent CAD upgrade also included CAD modules record management system (RMS) used by Ashtabula County.
3.2.5.2 Mapping and Geographic Information System
The Ashtabula County dispatch centers have Digital Data Technologies, Inc. (DDTI) mapping integrated with their 9-1-1
answering positions.
Geographic information system data for the 9-1-1 answering positions is provided by the County through coordination with the
9-1-1 Coordinator.
3.2.5.3 Radio
Consolidation of a public safety radio dispatch operation is driven by several elements: existing radio systems currently in
use, connectivity from an existing dispatch facility to the radio system/transmitter site and existing dispatch console systems,
for example.
An optimal scenario is when the agencies affected by consolidation use the same type of radio technology and share a
common platform, providing seamless operational coverage. This is not totally the case for primary and secondary PSAPs
within Ashtabula County. Currently the majority of the agencies are dispatched on very high frequency (VHF) radio channels,
with the exception of the Sheriff’s office which is using the Ohio Multi Agency Radio Communication System (MARCS),
Geneva which is using 800MHz and APD which is using 700MHz. Most law enforcement agencies do their best to promote
interoperability by maintaining multiple radio heads in their vehicles.
The ACSO PSAP uses Zetron Model 4118/4115 radio consoles which are part of the original installation in the 1990s.
Console connectivity is achieved by cabling to the various on-site radio base stations.
All of the various law enforcement, fire and EMS agencies have a number of operational channels available for use.
3.2.5.4 Telephony
The local area exchange carrier is CenturyLink ®. Ashtabula County 9-1-1 calls are selectively routed through CenturyLink’s
facilities in Mansfield, Ohio. The County PSAP uses KML 9-1-1 answering positions, a KML Technology, Inc. product, at each
of its three answering positions. The answering positions are approximately fifteen years old and last updated in 2007.
3.2.5.5 Logging Recorder
The County PSAP has a Cybertech MYRACLE 21 channel logging recorder which is used to record both telephone and radio
system conversations.
3.2.5.6 Master Clock
The County PSAP has a Zetron master clock solution integrated with each and every critical system that is used.
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3.2.6 Ancillary Duties
For the purposes of this report, ancillary duties are defined as those that are outside the core 9-1-1 call taking and dispatching
duties typically performed in PSAPs. In many smaller PSAPs, assignment of ancillary duties is logical from productivity and
financial perspectives. In addition, often the PSAP is the only 24/7 office a municipality may have so managing after hours call
outs for various agencies is often assigned to them by default.
The identification of these duties is relevant to any consolidation effort because each agency or municipality will need to
consider how these tasks will be covered should the PSAP staff move to consolidated facility. Decisions will need to be made
regarding each task including whether the service will still be provided, whether it can be assigned to another employee or if
new staff must be hired to perform the tasks. The costs associated with new hires will impact the amount of any potential
savings resulting from a consolidation effort.
The ACSO PSAP staff reported the following tasks as part of their workload:
 Maintains records for vehicle seizures, plates, parking scofflaws (LEADS/NCIC)
 Monitors alarms for various municipal offices and/or facilities
 Answers incoming administrative calls for ACSO
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3.2.7 Budget Summary
The following table summarizes current PSAP costs as reported to Kimball during the data collection phase of the study.
ACSO PSAP Budget Summary
Category
Cost
Total Costs
Personnel
Base Salary
$395,924
Benefits
$152,963
Overtime
$14,000
Total Personnel Costs
$562,887
Recurring Costs
Network
$33,584
Equipment
$36,998
CAD
$14,000
Radio
$16,800
Total Recurring Costs
$101,382
Total PSAP Budget
$664,269
Table 1— ACSO PSAP Budget Summary
The costs associated with support and management provided by sworn personnel are not included.
3.2.8 Interest in Consolidation
The County Commissioners have expressed their need to relocate their 9-1-1 Communications Center and Emergency
Operations Center (EOC). Initial plans are to build a new facility to accommodate these operations. The Commissioners have
initiated this study to seek specific detail, analysis and options for consideration of all or some of the primary and secondary
PSAPs working with the County in a consolidated effort.
3.3
Ashtabula Police Department
3.3.1 Demographics
The City of Ashtabula is located on the southern shore of Lake Erie and in the northern part of Ashtabula County. The
population is approximately 20,000 residents. This city provides an active port and harbor on Lake Erie for shipping traffic and
maintenance as well as recreation.
The major transportation corridors present in this area include I- 90 and Rt. 11 which provides for an interchange with I-90 and
continues into the City of Ashtabula.
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The City of Ashtabula PSAP although an independent communication center is part of the Ashtabula County 9-1-1 call taking
system and is provided call-taking equipment from the County with all equipment costs associated with 9-1-1 call taking being
paid for by the County. The PSAP has all 9-1-1 wireline phone calls from within the city limits selectively routed to their calltaker position(s).
There are two full time and nine part time civilian telecommunicators.
The PSAP provides primary dispatch support for Ashtabula PD, Jefferson PD, Andover PD, Roaming Shores PD, Rock Creek
PD and animal control and public works for the City of Ashtabula. Calls for Ashtabula FD are transferred to the Saybrook FD
PSAP for dispatch. The space which accommodates dispatch operations has two positions and is already tight. Expansion
room is not available.
This PSAP operates 24/7 with one telecommunicator on duty per shift except from 11:00 a.m. to 3:00 a.m., unless situations
or events dictate two telecommunicator positions are needed.
Like the Ashtabula County Sheriff PSAP, the Ashtabula PD PSAP is operating using the “single stage” dispatching model.
The same person who answers the telephone call for service enters the call into the CAD system, dispatches the appropriate
response units, updates responder status in CAD, and closes out the event with disposition information at the conclusion of
the call.
Since this PSAP dispatches law enforcement agencies only, calls that require a fire response are transferred over a dedicated
line, with automatic number identification/automatic location identification (ANI/ALI), to the Saybrook FD PSAP. Calls that
require an EMS response are transferred, voice only, to the Community Care EMS Agency over an undedicated phone circuit.
Wireless 9-1-1 calls are routed to the PSAPs based on best wireless provider tower sector coverage of PSAP districts. There
is significant transfer of wireless calls between PSAPs in the northern part as the City PD PSAPs encompass small
geographic areas with respect to the county as a whole. This PSAP reported that it is Phase I compliant and, in most cases,
can receive Phase II information by performing a rebid on the telephony equipment.
The PSAP received 12, 817 9-1-1 calls in 2013. Using the same 4:1 ratio of administrative or 7/10 digit calls to 9-1-1 calls, the
PSAP handled an additional 51,268 calls on 7/10 digit lines. The PSAP’s total combined call volume is estimated at 64,085
calls annually.
This PSAP does not provide EMD. However, Community Care EMS does provide EMD services.
The County PSAP provides the Ashtabula PD PSAP telecommunicators with the 40-hour APCO Basic Telecommunicator
Course and in house training on operational policies and procedures.
There is no formal quality assurance program currently in place.
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3.3.5 Technology
This section provides an overview of technology currently in use in the PSAP.
Ashtabula PD installed TAC Comp. Inc. CAD in 2006. The current version of software installed is version V8.56 and was last
updated in May 2013.
The recent CAD upgrade also included an RMS in April 2013 and mobile data in July 2013.
3.3.5.2 Radio
The Ashtabula PD PSAP uses Motorola radio consoles which were installed in July 2013. Console connectivity to the various
radio base stations is achieved through cabling at the PSAP site and by a radio frequency (RF) wireless link to remote sites.
The Ashtabula PD PSAP communicates with the Ashtabula PD on a 700MHz radio system which includes two sites, 155MHz
for interoperability with other local law enforcement agencies and an 800MHz MARCS for the other local law enforcement
agencies for whom they dispatch.
3.3.5.3 Telephony
Ashtabula County PSAP provides two KML 9-1-1 answering positions and DTTI mapping which supports the call-taker
software. These positions are integrated by dedicated phone circuits with the 9-1-1 CPE equipment located in Mansfield,
Ohio. All costs for this equipment are absorbed by the County.
The Ashtabula PD PSAP has a Racal MIRRA 16 channel logging recorder in place. The logging recorder is used to record
both telephone and radio system conversations. The system was installed in 2010.
No master clock is present in this PSAP.
Ashtabula PD PSAP staff reported the following ancillary duties:
 Receives bonds for prisoner releases
 Assists Clerk of Courts
 Take waivers for traffic violations
 Perform Jail Matron duties
 Perform clerical duties
 Monitor alarms for various municipal offices/facilities
 Monitor facility generator panel
 Notify railroads of problems
 Monitor jail inmates and/or intoxication holding
 Monitor inmates on 10-minute checks or suicide watch
 Maintain records for vehicle seizures, plates, parking scofflaws (LEADS/NCIC)
 Staff walk-in complaint window
 Handle Ashtabula PD departmental administrative calls when necessary
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 Notify Victims’ Assistance as needed
The following table summarizes the Ashtabula PD PSAP budget as reported to Kimball.
Ashtabula PD PSAP Budget Summary
Category
Cost
Total Costs
Personnel
$199,000
Recurring Costs
Network
N/R
Equipment
N/R
CAD
$19,600
Radio
N/R
$19,600
$19,600
Total PSAP Budget
$218,600
Table 2—Ashtabula PD PSAP Budget Summary
Our discussion with the Chief of Police on consolidation identified several concerns and considerations. Foremost the Chief
expressed his concern that the personnel he requires now to do the ancillary duties in support of the police department and
jail also provide the call-taker/dispatcher services. Personnel would need to be retained whether there was a PSAP or not.
His payroll for personnel would need to be retained, as well as anticipated contributions for personnel support in a
consolidated communication center which would put significant financial burden on the City of Ashtabula’s municipal budget
which is already strained.
The Chief indicated that he would most favorably consider a county wide call-taking center with the remote PSAPs retained for
continued dispatch services for which they are providing. The only way he would support a county wide consolidated 9-1-1
communication center would be if a governing board would be appointed which consisted of representatives agreed upon and
were given the authority to provide direction and decisions in the management and operation of the Center.
The Chief also indicated that if the County Jail would provide services and support which would enable his police department
to eliminate the use of holding cells, this would provide consideration of the City to support a consolidated center. This
support would be considered if a governing board as described in previous paragraph was appointed.
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3.4
Ashtabula Township Fire Department
3.4.1 Demographics
The Township of Ashtabula is located in the northern part of Ashtabula County and surrounds the City of Ashtabula. The
population is approximately 20,941 residents in the Township. The major transportation corridor present in this area includes
Interstate 90 and Route 11.
As part of the Fire Department, this secondary PSAP is managed and ultimately overseen by the Fire Chief. The PSAP was
staffed by three full time and one and a third (1.33) part time telecommunicators until January 1, 2014.
The PSAP provides primary dispatch support for the Ashtabula Township FD/EMS. Until January 1, 2014 they provided
primary dispatch services for Kingsville FD/EMS, North Kingsville FD/EMS, Monroe FD/EMS, Andover FD and Sheffield
FD/EMS. These departments have made arrangements to obtain dispatch services from one of the five other existing primary
or secondary PSAPs. Andover EMS has obtained dispatch services from Community Care EMS.
3.4.3 Call Volume and Call Processing
This PSAP operates 24/7 with one telecommunicator on duty per shift. If situations or events dictate, additional
telecommunicators can assist; however, there is only one answering position.
Like the Ashtabula County Sheriff PSAP, the Ashtabula Township FD PSAP is operating using the “single stage” dispatching
model. The same person who answers the telephone call for service enters the call into the CAD system, dispatches the
appropriate response units, updates responder status in CAD, and closes out the event with disposition information at the
conclusion of the call.
County call statistics indicate that this PSAP received 1,450 transferred 9-1-1 calls in 2013. Using the same 4:1 ratio of
administrative or 7/10 digit calls to 9-1-1 calls, the PSAP handles an additional 5,800 administrative and 7/10 digit calls. The
PSAP’s total combined call volume is estimated at 7,250 calls annually.
The PSAP does not provide EMD.
geographic areas with respect to the county as a whole. This PSAP reports that it is Phase I compliant and, in most cases,
can receive Phase II information by performing a rebid on the phone system information.
The County PSAP provides the Township PSAP telecommunicators with the 40-hour APCO Basic Telecommunicator Course
and in house on operational policies and procedures. There is no formal quality assurance program currently in place.
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3.4.5 Technology
The Township PSAP does not use a CAD system; however they are using FIREHOUSE software 3 for records management.
3.4.5.2 Radio
The Township PSAP uses a Zetron radio console and paging alerting system which was installed in 2008.
The PSAP communicates with the fire and EMS departments for whom they dispatch on Ashtabula County VHF frequencies.
The following table summarizes the County VHF frequencies.
County VHF Channel Summary
Channel
Frequency
Channel 1
154.13
Channel 2
154.205
Channel 3
154.28
Channel 4
154.37
Channel 5
154.295
Channel 6
154.415
Table 3—County VHF Channel Summary
3.4.5.3 Telephony
Ashtabula County provides one 9-1-1 call-taker position and mapping which supports the call-taker software. These positions
are integrated by dedicated phone circuits with the 9-1-1 CPE equipment located in Mansfield, Ohio. All costs for this
equipment are absorbed by the County.
The Ashtabula Township FD PSAP although an independent communication center is part of the Ashtabula County 9-1-1 call
taking system and is provided call-taking equipment from the County with all costs associated with 9-1-1 call taking being paid
for by the County. The secondary PSAP has all 9-1-1 phone calls from the Ashtabula PD PSAP, Ashtabula County PSAP,
Conneaut PD PSAP and Geneva PD PSAP transfer 9-1-1 calls (with ANI/ALI) to the call-taker position.
The Township PSAP uses a Digital Dynamic logging recorder which records both telephone and radio system conversations.
The Ashtabula Township Fire Department PSAP does not use a master clock.
3
A Xerox Government Services, LLC product.
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Ashtabula Township Fire Department PSAP staff reported that they contact department personnel as needed for incidents or
to fill shifts.
The following table summarizes the budget for the Township budget:
Ashtabula Township Fire Department PSAP Budget Summary
Category
Cost
Total Costs
Personnel
$225,000
Recurring Costs
Network
$1,000
Office Expenses
$3,500
Radio
$500
Total PSAP Budget
$5,000
$230,000
Table 4—Ashtabula Township Fire Department Budget Summary
Assistant Chief Steele discussed contracting costs for the departments for which they dispatch. The municipalities for whom
they dispatch for cannot afford to pay increased cost and the Township Fire Department is unable to continue to provide
dispatch personnel and services at a financial loss. Currently all personnel are contracted as part-time employees including
those that dispatch. Turnover is high thus creating a constant investment of time in training and scheduling of qualified
personnel.
Assistant Chief Steele indicated that departments dispatched by Ashtabula Township, at the time of this interview, had been
advised that the Township FD does not intend to continue these services after January 1, 2014. Therefore, each will need to
locate a new service provided.
3.5
Conneaut Police Department
3.5.1 Demographics
The City of Conneaut is located on the southern shore of Lake Erie and in the northern part of Ashtabula County. The
population is approximately 12,500 residents. This city provides an active port and harbor on Lake Erie for shipping traffic and
maintenance, as well as recreational use.
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Conneaut is located in the northeast part of the County bordering Pennsylvania. The major transportation corridor present in
this area includes Interstate 90.
The PSAP is organizationally part of the Police Department which provides overall management. The PSAP is staffed by four
full time and two part time civilian telecommunicators. The PSAP provides primary dispatch support for Conneaut PD,
Conneaut FD/EMS, North Kingsville FD/EMS and North Kingsville PD.
This PSAP operates 24/7 with one telecommunicator on duty per shift. If situations or events dictate, a second
telecommunicator position is staffed.
Like the ACSO PSAP, the Conneaut PD PSAP is operating using the “single stage” dispatching model. The same person who
answers the telephone call for service enters the call into the CAD system, dispatches the appropriate response units, updates
responder status in CAD, and closes out the event with disposition information at the conclusion of the call.
geographic areas with respect to the county as a whole. This PSAP reported that it is Phase I compliant and, in most cases,
is able to receive Phase II information by performing a rebid on the 9-1-1 phone answering positions.
The County’s statistics indicate that the Conneaut PSAP received 5,478 9-1-1 calls in 2013. Kimball used the same ratio, 4:1,
of administrative calls to 9-1-1 calls to estimate the PSAP handles approximately an additional 21,912 administrative and 7/10
digit calls annually. The PSAP’s total combined call volume is estimated at 27,390 calls.
The PSAP does not provide EMD.
The County PSAP provides the Conneaut PD PSAP telecommunicators with the 40-hour APCO Basic Telecommunicator
Course and in house training which on operational policies and procedures.
There is no formal quality assurance program currently in place.
3.5.5 Technology
This section provides an overview of technology currently in use.
Conneaut PD installed TAC Comp. Inc CAD in 1998. The current version of software installed is version V8.55 and was last
updated in September 2013. Computer aided dispatch is supported by the County 9-1-1 mapping (DTTI) and supports mobile
data and RMS to the Conneaut PD.
3.5.5.2 Radio
The Conneaut PD PSAP uses a Zetron model 4010R radio consoles which was installed in 2001. Conneaut PSAP is
currently looking at GAI-Technologies for new radio consoles to replace the current failing system. They also reported that
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their paging system no longer works. The public safety radios that are used are located at the PSAP with the antennas
located on a tower outside of the PSAPs. There is an RF link from this tower to the city water tower located at the Ohio
Department of Transportation garage south of the city on Rt. 7 to access and communicate with a newly installed repeater for
PD use. Console connectivity to the various radio base stations is completed with cabling within the PSAP facility.
Conneaut PD PSAP communicates with the agencies for which they dispatch on the VHF frequency range. Conneaut does
not have interoperability with any other agencies other than these agencies. Ashtabula PD changes to Conneaut PD
frequency when interoperability is needed between departments.
3.5.5.3 Telephony
Ashtabula County PSAP provides two 9-1-1 call-taker positions and mapping which support’s the call-taker software. These
positions are integrated by dedicated phone circuits with the 9-1-1 CPE equipment located in Mansfield, Ohio. All costs for
this equipment are absorbed by the County.
Although a part of the Conneaut Police Department, the PSAP is part of the Ashtabula County 9-1-1 call taking system and
uses two County-provided and paid for call-taking positions. The PSAP has all 9-1-1 wireline phone calls from within the city
limits selectively routed to their call-taker position(s).
The Conneaut PD PSAP has a Dynamic Instruments, model type, DI Voice Vault II channel logging recorder in place. The
logging recorder is used to record both telephone and radio system conversations. The system was installed in 2009.
Conneaut PD PSAP does not use a master clock.
Conneaut Police Department PSAP staff reported the following ancillary duties:
 Receive bonds for prisoner releases
 Monitor jail inmates and/or intoxication holding cells
 Complete female prisoner searches
 Monitor inmates on 10-minute checks or suicide watch
 Maintain records for vehicle seizures, plates, parking scofflaws (LEADS/NCIC)
 Staff Walk-in complaint window
 Handle departmental administrative calls when necessary
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The following table summarizes the PSAP budget as reported to Kimball.
Conneaut Police Department PSAP Budget Summary
Category
Cost
Total Costs
Personnel
Recurring Costs
Network
$8,400
CAD
$10,000
$260,000
$18,400
Total PSAP Budget
$278,400
Table 5— Conneaut Police Department PSAP Budget Summary
Much like the Ashtabula PD PSAP, the Chief expressed his concern regarding how holding cell monitoring and other ancillary
duties would be performed should a county-wide consolidation take place. Currently, the PSAP staff is responsible for these
duties, as well as the personnel he requires now to monitor the holding cells, do the ancillary duties in support of the police
department and jail and provide the call-taker/dispatcher services. These personnel would need to be retained whether there
was a PSAP or not. Even if a consolidated communication center was implemented he would need to retain his payroll for
personnel who would be required to do the holding cell monitoring and ancillary duties. Contributions for dispatch personnel
support in a consolidated communication center most likely could not be considered by the city officials as department
budgets for personnel and services has continued to decline each year.
The Chief indicated that in his opinion a county wide call-taking center with the remote PSAPs retained for continued dispatch
services for which they are providing would be the most practical and acceptable solution.
A county wide consolidated 9-1-1 communication center would need to be managed by an independent board consisting of
representatives from the public safety agencies, PSAPs and municipal officials as an example. This board should have the
authority to provide management and operation of the Center.
The Chief also indicated that if the County Jail would provide services and support which would enable his police department
to eliminate the use of holding cells, this would provide consideration of the City to support a consolidated center. However,
without that happening he would want to retain dispatch operations as those personnel would need to be retained for
monitoring the holding cells and doing the ancillary duties.
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3.6
Geneva Police Department
3.6.1 Demographics
The City of Geneva is located in the northern part of Ashtabula County. The population is approximately 6,000 residents in
the City of Geneva and 3,500 residents in Geneva Township. Geneva is located in the northwest part of the County. The
major transportation corridor present in this area includes Interstate 90.
As part of the Police Department, this PSAP is ultimately overseen by the Police Chief. The PSAP is staffed by civilians
including one part time and four full time telecommunicators.
The City of Geneva PSAP, although an independent communication center, is part of the Ashtabula Co. 9-1-1 call taking
system and is provided call-taking equipment from the County with costs associated with 9-1-1 call taking equipment being
paid for by the County. The PSAP has all 9-1-1 wireline phone calls from within the city limits and Geneva Township
selectively routed to their call-taker position(s).
The PSAP provides primary dispatch support for Geneva PD, Geneva FD, Harpersfield FD, Northwest Ambulance District
EMS, County Dog Warden, City of Geneva and Harpersfield Township road departments, City Water Department and utility
companies. They also transfer many calls to the Saybrook FD PSAP.
This PSAP operates 24/7 with one telecommunicator on duty per shift. If events or situations dictate, a second
telecommunicator position will be added. The Chief indicated that there is room to expand the communications area within
their current facility. The configuration of the current communication area provided for balance between positions and duties
within the work area.
Like the Ashtabula County Sheriff PSAP, the Geneva PD PSAP is operating using the “single stage” dispatching model. The
same person who answers the telephone call for service enters the call into the CAD system, dispatches the appropriate
response units, updates responder status in CAD, and closes out the event with disposition information at the conclusion of
the call.
This PSAP is answering selective routed calls from the City of Geneva and Geneva Township. The 9-1-1 calls outside of
these municipalities are answered by the Ashtabula County PSAP. If the call requires dispatch of Geneva or Harpersfield FD,
the County PSAP transfers the caller (with ANI/ALI) to the Geneva PSAP. Requests for EMS that may be received by the
Geneva PSAP are transferred (voice only) to the Northwest Ambulance District.
The Geneva PSAP handled 3,963 9-1-1 calls in 2013. Kimball used the same 4:1 ratio of administrative to 9-1-1 calls to
estimate the number of administrative and 7/10 digit calls also handled by the PSAP staff. The number of additional calls is
estimated at 15,852 calls. The estimated total combined call volume 19,815 calls.
The PSAP does not provide EMD directly.
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geographic areas with respect to the county as a whole. This PSAP reported that it is Phase I compliant and in most cases by
doing a rebid through the telephone system will provide Phase II caller information.
The County PSAP provides the Geneva PD PSAP telecommunicators with the 40-hour APCO Basic Telecommunicator
Course and in house training on operational policy and procedures.
There is no formal quality assurance program in place at this time.
3.6.5 Technology
This section will provide an overview of PSAP technology currently in use.
Geneva PD installed Data Force 4 CAD in the 1990s. This CAD program was developed by Chief Dudik and has been
supported and maintained since implementation. This CAD application has reached end of life. The Chief indicated that in
conjunction with this report they will be considering replacing the Data Force CAD/RMS application with a new commercial
application. Currently this is the only PSAP in this assessment operating this CAD system.
3.6.5.2 Radio
The Geneva PD PSAP uses a Motorola/Moducom radio console and paging/alerting system. This was acquired in 2003 and
was last updated in 2012. Console connectivity to the various radio base stations is a combination of cabling to the radios at
the PSAP or by RF wireless link to the remote site.
Geneva PD PSAP communicates with the Geneva PD on 155.625MHz. The PSAP has access to the Ashtabula County FD
radio frequencies 155.130, 155.205, 155.250, 154.295MHz and uses these frequencies for dispatch of the Geneva and
Harpersfield Fire Departments. Emergency medical service is communicated with on 155.175MHz. The Geneva PD PSAP
also has radio system access to other channels in the 150MHz range for interoperability with other local law enforcement
agencies and an 800MHz MARC radio system for coordination with the Ashtabula Co. Sheriff’s department.
3.6.5.3 Telephony
Ashtabula County PSAP provides two 9-1-1 call-taker positions and mapping which supports the call-taker software. These
The Geneva PD PSAP has just purchased and installed a NICE Recording eXpress logging recorder that is capable of
recording up to 25 channels. This recorder was placed into service at the end of Oct. 2013. The logging recorder is used to
record both telephone and radio system conversations.
The Geneva PD PSAP does not use a master clock.
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The telecommunicators for this PSAP are also responsible for:
 Handle clerical/secretary duties for Police Chief and Captain and the City Solicitor
 Set up equipment for video arraignment
 Maintain records for seizure of vehicles, plates, booting of vehicles for the Western County Court (WCC)
 Staff Clerk of Courts for WCC
 Take waivers for traffic violations for WCC jurisdiction
 Take bonds for release of prisoners for WCC jurisdiction
 Monitor inmates in jail/holding cells including intoxicated inmates, 10 minute checks and suicide watch
 Assist Jail Matron, change out, pat down female inmates/arrestees
 Assist officers with female victim(s), taking pictures of bruises, etc.
 Take after hour calls for other city departments
 Liaise with CSX and Norfolk Southern Railroads for crossing gate problems or rail problems
 Handle walk in complaints
 Monitor alarms for city offices and facilities
 Monitor the automatic external defibrillator (AED) alarm in Recreation Center
 Handle commissary money for inmates
 Screen visitors for inmates
 Assist area church council with food/gas cards
 Handle all Fire Department administrative calls when fire department is out on calls, training or inspections
 Maintain files for all court journal entries
 Maintain files for all other court jurisdictions temporary protection orders if parties work or go to school in our
jurisdiction
 Handle payment of city parking tickets and fingerprinting services
The following table summarizes the PSAP budget as reported to Kimball.
Geneva Police Department PSAP Budget Summary
Category
Cost
Total Costs
Personnel
$197,140
Recurring Costs
Network
N/R
CAD
N/R
Total PSAP Budget
$0
$197,140
Table 6—Geneva Police Department PSAP Budget Summary
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Much like the Ashtabula and Conneaut PD Chiefs, the Chief expressed his concern regarding how holding cell monitoring and
other ancillary duties would be performed should a county-wide consolidation take place. Currently, the PSAP staff is
responsible for these duties, as well as the personnel he requires now to monitor the holding cells, do the ancillary duties in
support of the police department and jail and provide the call-taker/dispatcher services. These personnel would need to be
retained whether there was a PSAP or not. Even if a consolidated communication center was implemented he would need to
retain his payroll for personnel who would be required to do the holding cell monitoring and ancillary duties. Contributions for
dispatch personnel support in a consolidated communication center most likely could not be considered by the city officials as
department budgets for personnel and services has continued to decline each year.
The Chief did indicate that if the county would establish new policies which provided for the PD to discontinue use of their
holding cells there would be consideration for discussion on a consolidated center but would have to have an independent
board providing direction and control.
The Chief indicated that in his opinion a county wide call-taking center with the remote PSAPs retained for continued dispatch
services for which they are providing would be the most practical and acceptable solution under current conditions.
The Chief favored the implementation of a county wide CAD, RMS and mobile data terminal (MDT) system in either scenario
he described. A county wide radio network ensuring interoperability for all local public safety agencies, as well as state and
federal would also be supported.
3.7
Saybrook Fire Department
3.7.1 Demographics
The Township of Saybrook is located in the northern part of Ashtabula County. The population is approximately 6,700
residents in the Township. The major transportation corridor present in this area includes Interstate 90.
As part of the Fire Department, this secondary PSAP is managed and ultimately overseen by the Fire Chief. The PSAP is
staffed by fourteen part time telecommunicators.
There are fourteen part time telecommunicators who also take care of pedestrian traffic at the walk up window and schedule
fill-in firefighters for open shifts for the Saybrook FD.
The PSAP provides primary dispatch support for Saybrook FD, Ashtabula City FD, Austinburg FD, Geneva-on-the-Lake FD,
Sheffield FD and Plymouth FD.
This PSAP operates 24/7 with one telecommunicator on duty per shift. If situations or events dictate, additional
telecommunicators can assist; however, there is only one answering position.
Like the Ashtabula County Sheriff PSAP, the Saybrook FD PSAP is operating using the “single stage” dispatching model. The
same person who answers the telephone call for service enters the call into the CAD system, dispatches the appropriate
response units, updates responder status in CAD and closes out the event with disposition information at the conclusion of the
call.
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This PSAP has the primary responsibility for dispatching public safety agencies which include Saybrook FD, Ashtabula City
FD, Austinburg FD, Geneva-on- the-Lake FD, Plymouth FD and Sheffield FD.
Saybrook Fire estimates approximately 4,800 transferred 9-1-1 calls a year are handled by their PSAP. In addition, Kimball
estimated the number of administrative calls handled, at a 4:1 ratio, to be 19,200. The combined call volume is estimated to
be approximately 24,000.
The Saybrook FD PSAP does not provide EMD.
geographic areas with respect to the county as a whole. This PSAP reported that it is Phase I compliant and in most cases by
doing a rebid on a wireless call will provide Phase II caller information.
The County PSAP provides the Saybrook FD secondary PSAP telecommunicators with the 40-hour APCO Basic
Telecommunicator Course and in house on operational policies and procedures. There is no formal quality assurance
program in place at this time.
3.7.5 Technology
This section summarizes the technology currently in use at the PSAP.
The Saybrook Fire PSAP does not utilize a CAD system.
3.7.5.2 Radio
The Saybrook FD PSAP does not use a radio console; however, they are currently looking at Zetron radio console equipment.
They use IamResponding for their paging/alerting system. This is a commercial website based application which was
contracted by Saybrook FD PSAP in 2012.
Saybrook FD PSAP communicates with the fire departments they dispatch on Ashtabula Co. Fire Frequency 1. They also
have the capability to communicate with EMS and EMA on the VHF spectrum.
3.7.5.3 Telephony
Ashtabula County PSAP provides two 9-1-1 call-taker positions and mapping which supports the call-taker software. These
The Saybrook FD PSAP has a Dynamic Instruments, logging recorder in place, however they are in the process of replacing
that logger with a new Dynamic Instruments DI 2, 16 channel logging recorder. They are currently planning to record both
telephone and radio system conversations.
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The Saybrook Fire PSAP does not use a master clock.
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Saybrook Fire Department PSAP staff reported the following ancillary duties:
 Staff walk-up window
 Call in or notify departmental personnel as needed
 Notify Victims’ Assistance staff
Saybrook Fire Department was not able to provide a breakdown of the PSAP’s costs. However, they did report that the total
annual cost was estimated to be $125,000.
The Chief indicated that in his opinion a county wide call-taking center with the remote PSAPs be retained for continued
dispatch services for which they are providing would be the most practical and acceptable solution under current conditions.
The Chief favored the implementation of a county wide CAD, RMS and MDT system, as well as a county wide radio network.
As with the other concerns expressed by the PSAPs, the Chief indicated his support for an independent board which would
have the responsibility of control and management for the county system.
3.8
Non Public Safety Agencies
3.8.1 Perry Nuclear Power Plant
Perry Nuclear Power Plant 4 is located in Lake County within the town of Perry. Lake County is located contiguous to
Ashtabula County to the west. Part of Ashtabula County is identified as part of the emergency planning radius for the power
plant. The planning radius dictates emergency actions that need to be taken, including evacuation, should a site emergency
be declared at the power plant. In addition, Ashtabula County provides significant support to Lake County should a site
emergency occur at the power plant. Ashtabula County EMA has a direct voice line telephone to communicate with Lake
County and the Perry Power Plant for the purpose of facilitating emergency communications during an event at the power
plant or an emergency which would require activation of emergency operations plan functions as outlined in the Ashtabula
County Emergency Operations Plan. Due to the significant impact a site emergency may have directly or indirectly on
Ashtabula County, it is imperative that the county emergency operations center be co-located with the county’s communication
center regardless of other PSAPs which may be identified as part of the
9-1-1/dispatch network for the county.
Ashtabula EMA uses a commercial application called CodeRED®, an Emergency Communications Network® (ECN) product,
which is an emergency notification system that functions in what is referred to as a “reverse 9-1-1 system”. This application is
able to identify contacts in a geographical area, list of special populations or groups and provide automated notification of
emergency information. Ashtabula County EMA also is in the process of implementing a commercial incident management
4
Owned by First Energy Nuclear Operating Corporation
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solution which provides incident tracking, action event log and resource management as well as other support functions in
support of total incident management.
3.8.2 School Districts
Kimball contacted the Superintendent of Superintendents of School Districts for input in regards to a consolidated
communication center. Although a meeting was initially setup to meet with the Director, as well as School District
Superintendents, weather cancelled that meeting. A follow up phone conversation with the Superintendent of
Superintendents was recognized as an effective way to obtain this information without the need of a meeting.
Currently all of the school districts in the County use buses that are equipped with two-way radios which they use to
communicate with their transportation dispatchers. The communication frequencies should be integrated into the Ashtabula
County EOC as this transportation system is used for not only transportation of students to and from school, but also for
transportation needs as identified in the County emergency operations plan (EOP). Kimball believes that integration of the
school bus transportations frequencies into a consolidated communication center should be considered as plans are further
developed.
State of Ohio House Bill 59 authorized the Ohio School Facilities Commission to administer the School Security Grant
Program 5. This program is designed to facilitate communications with first responders in emergencies and provides the
opportunity for eligible schools to apply for funding which would pay for one MARCS radio per eligible school building. In lieu
of using the funding for a MARCS radio, schools can use funding for radio systems which are compatible with the local law
enforcement agencies.
3.8.3 Ashtabula County Engineer
Kimball met with the County Engineer to obtain his input into a consolidated emergency communications concept. The
Engineer indicated that the county vehicles have two-way radio communication in their vehicles. The County Engineer’s
Department is identified in the EMA EOP as a resource for response and recovery in the event of an emergency or disaster in
Ashtabula County. While the Engineer believed that access to the EMA EOC is important during times of emergency
situations, he thought that cell phone access to 9-1-1 was sufficient for everyday activity. Kimball recommends that the
emergency needs of the County Engineer’s staff be incorporated into further plans for a consolidated communications center.
3.9
Stakeholder Input
An important component of any study of this kind is gathering input from key stakeholders; those that will be impacted by any
change in the existing emergency communication system. This input identifies stakeholder concerns, issues and suggestions
related to a potential consolidation of services. The information gathered is used to paint a clear political picture, identify
roadblocks and assist in determining the best consolidation model for the county as a whole.
Kimball conducted six focus group meetings with municipal and public safety officials from Ashtabula County. Attendance at
the various group meetings varied, but was generally good. Participation was high among the attendees which allowed
Kimball to collect good information. The groups Kimball met with included:
1. Fire Chiefs’ Association
2. Crime Clinic
5
http://das.ohio.gov/Divisions/InformationTechnology/MARCSServices.aspx and http://www.osfc.ohio.gov/
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3.
4.
5.
6.
Association of Town Trustees
Village Representatives
City Managers
Private EMS Agencies
This section provides an overview of the input collected. Part of the process during the meetings was to ensure participants
that their contributions would not be attributed to them in this report, but rather presented in an anonymous manner. Kimball
makes this promise to facilitate open and honest communications during the meetings. While most of the participants were
most forthcoming in their input, with or without anonymity, this section does not attribute any input to a specific individual.
This section contains stakeholder feedback that represents the opinions of the stakeholders. This information has not been
factually verified by Kimball. The opinions and perceptions of stakeholders, whether 100 percent factually accurate or not,
must be considered in the consolidation process.
3.9.1 Stakeholder Concerns
 Funding. How a consolidated PSAP would be funded was a recurrent theme during the meetings. Some
departments do not currently pay for dispatch services and could not afford to pay in the future. An equitable cost
distribution model would need to be established. Criticism was leveled at the County for changing the terms of
financial agreements in the past when it suited the County to do so.
 Governance. Another recurring theme during the meetings was a strong desire for a countywide PSAP to be
governed by an independent board rather than an advisory board. Specifically, stakeholders cited the existing
9-1-1 Advisory Board as an example to support this desire. A number of stakeholders expressed frustration over a
lack of true input currently and stated that the Sheriff and County Commissioner make all of the decisions.
 A group of law enforcement decision makers expressed the belief that the State of Ohio codes require the Sheriff
of each county to be in charge of a PSAP. The reason stated for this is the access to and use of law enforcement
crimes computer databases such as LEADS and NCIC. Based on this understanding, members of this group felt
the County Sheriff would be required to control a consolidated PSAP. See Section 4.1.1 for further discussion on
this point.
 Quality of Service. Concerns were expressed regarding the quality of service currently provided. Stakeholders
expressed that the quality of service would need to improve for consolidation to be successful. The majority of
these comments were directed to the County PSAP, but not all. Specific concerns included:
• Dispatchers basing the level of response on their own interpretation of the seriousness of call or the veracity of
the caller. In essence, dispatchers are reportedly upgrading or downgrading calls for service based on their
subjective impression of the situation and the honesty of the caller rather than policy and procedure. In this type
of study, Kimball does not typically comment on service level complaints unless specifically requested to do so,
however, this concern is important enough that each PSAP manager needs to ensure this behavior is not
occurring in his or her PSAP. Not only does this type of behavior endangers citizens and responders, but leaves
the municipality open to substantial liability should an error be made. Response to calls for service must be
consistent and based on set policy and procedure. Again, Kimball did not investigate the accuracy of this
concern.
• Inconsistency in dispatchers’ knowledge of police, fire and EMS communications needs.
• Police field personnel are a higher priority than fire or EMS.
• Disrespect displayed towards field personnel by PSAP personnel
• Lack of accountability for PSAP staff when errors are made
 Staffing Levels. Staffing levels within the ACSO PSAP are insufficient.
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 Lack of consistency in the quality of service provided by different dispatchers.
 Consolidation cannot take place until issues with available bed space at the County Jail is resolved. A lack of bed
space at the jail means the local police departments must continue to house prisoners. Since the cells are
monitored by the on-duty PSAP staff, consolidation cannot occur while 24/7 staff is still needed to perform this
task.
 High turnover rate among PSAP employees impacts the level of service provided.
 Concern that funds in the 9-1-1 account are being used for other than the intended purpose.
3.9.2 Stakeholder Comments and Suggestions
The following comments or suggestions were received during the stakeholder meetings:
 Establishing a countywide call center and leaving dispatch as-is would be more acceptable to many stakeholders
 Stakeholders, particularly law enforcement, support moving to common technology such as CAD, mobile data and
RMS to allow for data sharing and monitoring of activities countywide in real time.
 Elected officials should be educated in how the 9-1-1 system functions to facilitate decision making in regards to
consolidation.
3.9.3 Stakeholder Summary
While all stakeholder input is important, two key issues need to be recognized and addressed in some manner before
countywide consolidation is likely to be achieved.
First, stakeholders made it very clear to the Kimball representatives that governance must be in the form of an independent
board form before they could support consolidation. In the stakeholders’ opinions, concerns and issues that are brought to the
attention of the existing 9-1-1 Advisory Board for action and resolution are mostly met with resistance or disregard by the
current management of the county PSAP and ultimately the County Commissioners. Typically, this concern is debated and,
hopefully, resolved after the feasibility study phase.
Second, the three city PD PSAPs require a resolution to the PSAP responsibility of monitoring holding cells that they currently
have in their police departments. The responsibility to monitor and address the needs of those incarcerated in the holding
cells requires staff 24/7. Currently the 9-1-1 telecommunicators provide not only duties in the communication center, but also
provide the duties required for the holding cells, as well as other administrative duties. Staff will still be required in the police
departments to monitor the cells should dispatch be consolidated. Any cost saving would either be reduced or eliminated by
having to keep staff in place to monitor cells and contribute to the operation of a countywide PSAP that includes dispatch.
A number of the stakeholders stated that until the shortage of beds at the county jail is resolved they could not fully support a
full consolidation of 9-1-1 and dispatch functions into a single facility.
3.10 Current Environment Summary
This section summarizes the current emergency communications environment within the four primary and two secondary
PSAPs within Ashtabula County.
3.10.1 Total Call Volume
The incoming call volume for any PSAP, particularly those small in size, is a combination of 9-1-1 calls, 7/10 digit calls that
may require a field response and administrative calls. Administrative calls are those that are received by the PSAP but are
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typically outside the realm of emergency communications such as calls for administrative police or fire staff and calls for other
municipal departments.
Although the County was able to provide statistics regarding the number of 9-1-1 calls received by each PSAP, the number of
administrative calls had to be estimated. Using a standard rule-of-thumb for estimating these types of calls, the number of
9-1-1 calls represents only approximately 18 percent of the total combined call volume. The following table provides a
summary of the combined call volume currently being handled by each PSAP.
2013 Estimated Call Volume Summary
PSAPS
9-1-1
Administrative*
Total Call Volume
Ashtabula County Sheriff’s Office
25,324
101,296
126,620
Ashtabula Police Department
12,817
51,268
64,085
Secondary
5,800
5,800
Conneaut Police Department
5,478
21,912
27,390
Geneva Police Department
3,963
15,852
19,815
Saybrook Fire Department**
Secondary
19,200
19,200
47,582
215,328
262,910
Ashtabula Twp Fire Department
Total
* Administrative calls are defined as all 7/10 digit calls (alarms) as well as calls not related to emergency communications.
** Call volume is expected to increase since taking on Sheffield FD.
Table 7—2013 Estimated Call Volume Summary
The breakdown of the phone calls handled by each PSAP is of particular importance as it has a substantial impact on the
staffing level estimates for a consolidated PSAP. Typically, prior to a consolidation effort, the participating agencies will
determine which administrative calls will continue to be routed by a new PSAP and which will continue to be answered from
within the municipality. The more calls routed to a consolidated PSAP, the more staff that will be needed to staff the PSAP
and the higher the budget.
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3.10.2 Technology Summary
The following table summarizes the technology currently in place in each of the PSAPs.
Current PSAP Technology Summary
PSAP
CPE
Radio Consoles
Logging
Recorder
Master
Clock
Notes
IDNetwor
Zetron 4118/4115
ks
Cybertech
Zetron
Radio consoles installed in 1990s KML
is ~15 years old. Last updated in
2007.
CAD
ACSO
KML
APD
KML
Motorola
Racal Mirra
None
Radio consoles installed in 2013
Ashtabula
TWP FD
TAC
Comp.
KML
None
Zetron
Digital Dynamic
None
Radio consoles installed in 2008
Conneaut
PD
KML
TAC
Comp.
Zetron 4010R
Dynamic
Instruments
None
Geneva
PD
KML
Data
Force
Motorola
NICE eXpress
None
Saybrook
FD
KML
None
None
Dynamic
Instruments
None
CAD installed in 1998,
Radio consoles need replacing
CAD has reached end-of-life, Radio
consoles installed in 2003
Table 8—Current PSAP Technology Summary
As is typical in many communities with multiple PSAPs, the equipment used varies in age, vendor and functional abilities. The
ability to re-use this equipment will depend on the specific goals each agency has in mind. For example, when multiple
PSAPs consolidate, a single CAD system is chosen. The participants will need to determine if any of the CAD systems
currently in use has the required functionality, interface capabilities and expandability to be used in a consolidated PSAP. If
not, then procurement of an appropriate CAD may be necessary. This is true of all of the key PSAP systems.
3.10.2.1
Customer Premise Equipment/Next Generation 9-1-1 Readiness
The County currently provides 9-1-1 call answering equipment (KML) to all of the PSAPs in the County. The equipment was
installed approximately 15 years ago and last updated in 2007. While this equipment seems sufficient for the PSAPs
currently, NG9-1-1 is rapidly becoming a reality. This coming technology will enable 9-1-1 callers to communicate using
different forms of data such as texting, photos and video. These new data types will not only be able to be received by the
PSAP, but potentially forwarded to field personnel as well. In addition, the ability to text will allow the hearing and voice
impaired community to communication directly with 9-1-1 without the use of a Telecommunication Device for the Deaf/
Teletype (TDD/TTY) or relay service. To accomplish this, equipment must now be IP-based and, to NENA standards, be i3
capable. Given that the existing CPE is well past its life expectancy, it is unlikely that the equipment can be updated to be
NG9-1-1 capable. The specifications of the existing KML system will need to be reviewed to confirm this.
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In addition to i3 capable CPE, the county PSAPs will need to be able to connect to an emergency services Internet protocol
network (network-of-networks) called an ESInet. Although an ESInet can be established at the county level, it is not
recommended. The State of Ohio is currently looking at the possibility of implementing a statewide ESInet. However, whether
that will happen and under what timeline is still unknown. Further, the State is also considering establishing standards that
PSAPs must meet before they would be allowed to connect to the ESInet. While the State determines what direction it will
take, the County should use this time to plan for upgrades that will be necessary to provide NG9-1-1 services.
3.10.2.2
Computer Aided Dispatch
Computer aided dispatch is a critical system that assists call-takers and dispatch personnel in processing, prioritizing,
dispatching and controlling calls for service for the respective agencies. Computer aided dispatch systems typically consist of
several modules that provide call input, call dispatch, call status maintenance, event notes/narrative, field unit status and
tracking and call resolution and disposition. Computer aided dispatch systems also include interfaces that permit software to
provide other features and functionality. For the consolidated communications center, the selected CAD system must be
capable of accommodating multiple disciplines, agencies, types of service, and provide interfaces to other jurisdictions, local
sub-systems (mapping, mobile data, E9-1-1, fire station alerting, paging, etc.) and state and federal databases (LEADS and
NCIC). The selected system must be sized appropriately to meet performance criteria, accommodate future workload
increases and store sufficient event/unit history.
Out of the six dispatch centers, two are using a CAD system that is anticipated to no longer be supported, two are not using
any CAD, one is using an in-house CAD system that has is looking to be replaced and one is using a CAD system that is
current and versatile in the functions it provides. The following table summarizes the existing CAD systems and interfaces
used in each PSAP.
Current CAD and Interface Summary
PSAP
CAD Vendor
Mapping
Mobile
E9-1-1
AVL
ID Networks
Yes
Yes
Yes
Yes
APD
TAC Comp Inc.
Yes
Yes
Yes
No
Conneaut PD
TAC Comp Inc.
Yes
Yes
Yes
No
Data Force 4
No
No
No
No
Ashtabula Township FD
No CAD
NA
NA
NA
NA
Saybrook FD
No CAD
NA
NA
NA
NA
ACSO
Geneva PD
Table 9—Current CAD and Interface Summary
3.10.2.3
Radio Systems and Consoles
As the following table indicates, multiple radio platforms are used across the county. While use of different platforms is not a
roadblock to a consolidation effort, assuming coverage is not a problem, it does hamper interoperability among agencies and
may force field personnel to carry more than one radio. Clearly coordination and communications during significant events is
much less effective.
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Radio Platform Summary
Agency
Primary Platform
ACSO
MARCS
APD
700 MHz
Ashtabula TWP FD
VHF
Conneaut PD
VHF
Geneva PD
VHF
Saybrook FD
VHF
Table 10—Radio Platform Summary
As indicated in the summary table in Section 3.10.2, there is little similarity of dispatch console solutions in the county. All
systems reported are stand-alone units with respective backroom electronics. These system are a button and light emitting
diode (LED) in which the dispatcher pushes a physical button to transmit and select other dispatch functions.
As demonstrated by the following table, the staff in each of the PSAPs performs tasks outside of 9-1-1 call taking and dispatch
functions. The performance of these tasks makes sense in small communities from a number of perspectives, but can
become a substantial roadblock when considering consolidation. Each municipality that is considering consolidation will need
to evaluate each ancillary task and determine how, and even if, that task will be performed post-consolidation. For example,
many PSAPs handle walk-in traffic. Does that service need to be provided or can the same end-result be achieved through a
lobby phone with a direct connection to the consolidated PSAP? There is no correct answer to this question as each
municipality must decide how to provide their services.
The task that presents the most substantial roadblock, based on our stakeholder interviews, is the monitoring of holding cells
and other jail related duties. Several of the law enforcement decision makers stated that consolidation would be difficult for
them until jail space becomes more available at the County jail.
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Job Responsibility
Video Arraignment Set Up
Ancillary Job Responsibilities Performed by PSAP Staff
Geneva
ACSO Ashtabula Conneaut
PD
PSAP
PD PSAP
PD PSAP
PSAP
X
Clerk of Court
X
X
Handle Commissary Money
X
Take Waivers for Traffic Violations
X
Take Bonds for Release of Prisoners
Monitor Inmates in Jail and/or
Intoxication Holding Cells
Monitor Inmates
X
X
X
X
X
X
X
X
X
X
Screen Visitors for Inmates
Clerical Duties
Maintain Records for Seizure of Vehicles,
Plates, Clubbing of Vehicles (LEADSNCIC)
After Hrs. for Waste Water, Street, TWP
Road Departmental Call Outs
Handle Walk in Window/ Complaints
Monitor Alarms for Various Municipal
Offices and/or Facilities
Monitor Facility Generator Panel
Notify railroads of problems
Monitor AED Alarm
Handle Departmental Administrative
Calls When Necessary
Handle Parking Ticket or Fingerprint
Payments
Contact Personnel for Dept.
Functions/Shifts
Notify Victim Assistance Staff
Saybrook
FD PSAP
X
Maintain Court Journal Entries
Jail Matron Duties
Assist Offices with Photos of Female
Victims, bruises, etc.
Department Administrative Phones
Ashtabula
Twp FD
PSAP
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
Table 11—Ancillary Job Responsibilities Performed by PSAP Staff
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The following table provides an overview of the total combined PSAP costs. In addition the staffing levels and call volumes
are included for reference.
PSAP
ACSO
Current Staffing, Workload and Budget Summary
Minimum On
Staffing
Call Volume**
Duty
9 Full Time
2*
126,620
Budget
$664,269
APD
2 Full Time/9 Part
Time
1
64,085
$218,600
Ashtabula TWP FD
3 Full Time/1 Part
Time
1
5,800
$230,000
Conneaut PD
4 Full Time/2 Part
Time
1
27,390
$278,400
Geneva PD
4 Full Time/1 Part
Time
1
19,815
$197,140
Saybrook FD
14 Part Time
1
19,200
$125,000
262,910
$1,713,409
Totals
22 Full Time/27
Part Time
* ACSO staffing may drop to 1 if on-duty telecommunicators need to attend meetings, etc.
** Includes 9-1-1 calls and administrative calls estimated at a 4:1 ratio to 9-1-1 calls
Table 12—Current Staffing, Workload and Budget Summary
As indicated in the table, the total combined costs for all primary and secondary PSAPs within the county is estimated to be
approximately $1,713,409. This number will be used for comparison purposes in this document, but it is important to note
that, in Kimball’s opinion, this number is probably low. When examining the budgetary numbers collected for this study, costs
that would typically be seen in most PSAPs were not included. The cost estimates provided to Kimball represent the best data
that could be provided. However, when a PSAP is part of a larger organization such as a police or fire department the costs
attributable only to the PSAP can be difficult or impossible to extract from the larger agency budget.
3.10.5 Emergency Medical Dispatch
Emergency medical dispatch is a call processing protocol which relies upon medically-approved and standardized telephone
protocols which allow 9-1-1 call-takers to classify emergency medical situations and dispatch them in accordance with the
resulting priority level. Local response agencies are dispatched in accordance with the response rules developed.
In addition to supporting incident classification and resource assignment, EMD allows for the provision of pre-arrival medical
instructions provided by the call-taker to the caller while responders are en route to the call. Pre-arrival instructions provided
by call-takers/telecommunicators can result in greatly improved outcomes for seriously injured or ill victims, creating a “zero
response time” for help to reach the person in need.
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All six primary and two secondary PSAPs report that they currently do not provide EMD services. However, Community Care
Ambulance does provide pre-arrival instructions to callers transferred to them from the PSAPs. No legal requirements could
be found that identifies the State of Ohio dictating the provision of EMD service or the manner in which it is provided.
Emergency medical dispatch system vendors and the National Academy of Emergency Dispatch (NAED) provide guidance to
PSAPs on certification, on-going training and quality assurance standards for the provision of EMD services.
A PSAP’s capacity to provide full EMD service is often impacted by the number of on-duty staff and the work-flow design of
the PSAP. Since the protocol requires the telecommunicator to remain on the phone to continue the question and answer
process with the caller, the process is inherently more challenging in situations where the same call-taker is also expected to
provide radio dispatch duties and answer additional 9-1-1 calls while the medical situation is still being processed. When the
telecommunicator is working alone or with just one other telecommunicator, competing activity can quickly overwhelm the
telecommunicator’s ability to fully carry out the EMD protocol. Kimball identified that, with the exception of the ACSO PSAP, a
single telecommunicator is on-duty the majority of the time.
The National Academy of Emergency Dispatch recommends that PSAPs using EMD systems conduct monthly quality
assurance (QA) to assure that telecommunicators are performing the protocols in accordance with established standards.
Larger centers often have a quality assurance manager on staff that is responsible for selecting cases for review, conducting
the review and providing feedback or correction to dispatch staff. In smaller centers, the QA process is often conducted by a
dispatch floor supervisor or the PSAP director.
3.10.6 Operational Summary
When looking at the existing emergency communications from a high-level operational overview, Kimball noted the issues that
follow in the next sections.
3.10.6.1
Single Person Staffing
Almost all of the PSAPs staff a single person at times. Anytime only one telecommunicator is on-duty the potential for that
person to become overwhelmed is significant. A single motor vehicle accident can flood a PSAP with incoming calls. In
addition to the incoming calls, the telecommunicator must handle radio traffic and other duties such as monitoring cells and
handling walk-in complaints. Certainly, the 9-1-1 calls and radio traffic would typically take precedence over any other tasks,
but those other tasks do not go away. The reality is that even the best telecommunicator is limited to how much he or she can
handle effectively and efficiently by virtue of being human.
When looking at PSAP staffing from emergency communications workload and financial perspectives, staffing a single
telecommunicator most likely makes sense. However, it is during major incidents that telecommunicator needs to perform at
his or her best and it is this time when he or she is most likely overwhelmed.
3.10.6.2
Transfer of 9-1-1 Calls
One of the primary issues with the current operational environment is that 9-1-1 callers often must be transferred from PSAP
to PSAP since police, fire and EMS may be dispatched from different places. When 9-1-1 call-takers receive a 9-1-1 call a
preliminary interview to determine the nature and location of the emergency must be conducted. The call must then be
transferred to the appropriate agency for dispatch. The dispatcher receiving the transferred call then must re-interview the
caller and dispatch EMS field personnel. The average length of time added to a call for the second interview process is
approximately 30 seconds. Best practices for 9-1-1 states that every effort should be made to reduce or eliminate the transfer
of 9-1-1 callers for the following reasons:
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 In emergencies, seconds count. This means that information critical to responding agencies’ safety and ability to
effectively manage the emergency is delayed, as the call must be processed by the receiving PSAP first. These
lost seconds can literally mean the difference between survival or not and/or impact the patient’s quality of life. For
example, 30 seconds to a minute of lost time can mean the difference between not surviving and being able to
resuscitate a heart attack or drowning victim and whether that person will have a meaningful quality of life. In
another example, a delay in receiving information regarding suspects with weapons or the presence of hazardous
materials on-scene can have potentially fatal consequences for responders. While these examples are dramatic,
they accurately illustrate the types of emergencies handled every day in PSAPs across the state.
 Transfers increase the likelihood that human and/or technological errors will occur. High levels of training can
minimize the amount of human errors, but even the best trained employees will still make errors from time to time.
When a caller must speak with multiple two call-takers, the potential for human error rises.
 The quality of technology available today has reduced issues such as calls lost during the transfer process, but the
possibility still exists and increases with each transfer.
3.10.6.3
Major Incident Coordination/Interoperability
When a system of multiple small primary and secondary PSAPs is in place in a county, the coordination of major incidents,
weather events or other multi-jurisdictional and discipline (police, fire and EMS) becomes problematic and inefficient. With
multiple points of control and command management of field personnel and other resources becomes difficult and keeping
field personnel consistently updated across jurisdictions and disciplines becomes an impossible challenge.
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4.
CONSOLIDATED PSAP MODELS
This section provides an overview of several consolidation models that may be a good fit for Ashtabula County. Each model
has positives and negatives.
Each model will have some form of governance and cost distribution formula associated with it. Since both of these are
decided regionally and Kimball’s recommendations are essentially the same from model to model, these two topics will be
discussed in the following two sections rather than in each model to avoid repetition.
4.1
Governance
Any PSAP consolidation will require the establishment of a form of governance for the new PSAP. A governance structure
that works well in one scenario may not in another. A well-crafted governance agreement is critical to the success of any
consolidation. The agreement also allows a director to manage operations effectively. Regardless of the governance model
chosen, incorporating the following key points into the agreement are essential
 Reporting structure for director and composition of the any oversight board
 Span of authority and control for any oversight board
 Capital and operating budget development process as well as establishment of a reserve account to pay for critical
systems replacements.
 Budget approval process
 Funding mechanism, board authority and a method for updating it or changing it as needed
 Length of the agreement
 De-consolidation process - What happens if a participating agency leaves before the end of the agreement? For
example, does the departing agency lose any capital contribution?
 Ownership of technology purchased jointly
 Process for participating agency complaint resolution and input
 Span of authority for the director
 Standard operating procedures approval process
 Agreed upon service levels to be provided
The importance of a well-crafted agreement cannot be overstated. A consolidated PSAP’s role is to provide equitable and
high level service to all police, fire and EMS user agencies based on the dispatch plans for each participating agency. To do
this, the PSAP must be insulated from the impact of political changes to the highest degree possible. Further, funding for the
PSAP should be designed to provide a known and reliable budget from year to year. A well-crafted governance agreement
will ensure that these goals are realized.
4.1.1 Mandatory Law Enforcement Control
During the stakeholder meetings attended by Kimball the understanding that a PSAP in the State of Ohio must be under the
control of the County Sheriff or other law enforcement agency was expressed. Typically, state codes of this sort relate to two
different areas; restrictions regarding access to databases such as LEADS and NCIC and general overall control and
operation of a countywide PSAP. Kimball conducted high level research on both of these areas.
The first area, restrictions on access to law enforcement databases, is the easiest to resolve. Any consolidated PSAP,
assuming it provides dispatch functions, must have access to these databases in order to provide necessary information to the
law enforcement agencies it serves. Several examples of the types of information contained in these databases includes:
 Motor vehicle registration and drivers’ license information
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 Stolen vehicle information
 Wants and warrants
 Missing persons
This list is far from complete, but does illustrate the importance of access to these databases. Without access, a dispatcher
would not be able to provide acceptable service levels to law enforcement agencies. A check of the State of Ohio
Administrative Code revealed that Section 4501:2 State Highway Patrol addresses this issue in Section 4501:2-10-03
Participation in LEADS 6. This section states that access requires application and documentation from a number of potential
user types. Included in this list is a governmental or non-governmental regional dispatch center as follows:
“(5) A governmental or nongovernmental regional dispatch center, which provides communication services to criminal justice
agencies may be authorized access to files. Such centers shall be required to execute an agreement with each criminal
justice agency it serves and with LEADS assuring compliance with all duly promulgated LEADS rules.”
The full text of Section 4501:2-10-03 is located in Appendix A.
The second area, whether the County Sheriff must operate the PSAP, is less clear cut. The State of Ohio Revised Code Title
[1] State Government Chapter 128 Emergency Number Telephone System 7 states, in subsection 128.03 Countywide 9-1-1
System the following:
“(1) Each public safety answering point shall be operated by a subdivision or a regional council of governments and shall be
operated constantly.”
This text clearly allows for governance other than the county sheriff, but refers only to the telephony or 9-1-1 portion of
emergency communications.
The full text of this section is located in Appendix B.
State of Ohio Revised Code Title [3] III Counties Chapter 307 Board of County Commissioners – Powers states, in subsection
307.63 Establishing a countywide public safety communications system 8, that the sheriff shall operate the system unless
he/she chooses to do otherwise. When the sheriff relinquishes control, the county commissioners then shall operate the
system. The subsection also seems to open the door for a board of county commissioners to make agreements in relation to
the public safety communications system. However, consolidation participants should seek a more definitive legal opinion
before making a final decision regarding the governance of a consolidated PSAP.
4.1.2 Governance Models
The following models illustrate commonly used governance models:
6
7
8
Source: http://codes.ohio.gov/oac/4501:2-10-03
Source: http://codes.ohio.gov/orc/128.03
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4.1.2.1 Separate Department within a Participating Government Structure
In this governance model, the consolidated PSAP is part of the organizational structure of one of the participating
municipalities. The PSAP is its own independent department or part of an existing department, such as Emergency
Management. Completely independent from any law enforcement, fire, or EMS agency it serves, a civilian director manages
the PSAP. The director is a department head reporting to the same position within the organizational structure as other
department heads.
Primary positive attributes of this structure include the following:
 There is a clean reporting structure for not only the PSAP director, but for the participating agencies as well. Since
the director reports to a senior management position within the parent organizational structure, there is a single
point of contact for disputes that cannot be resolved otherwise. This model provides protection for the PSAP from
politics that can affect the PSAP under other governance structures. This model also provides the PSAP
protection from changes in direction that result from personnel changes in decision-making positions, thus creating
a more stable environment for the PSAP long-term.
 Independent leadership allows the director to effectively manage PSAP resources and provide equitable service to
all participating law enforcement, fire, and EMS agencies.
 An advisory board comprised of participating agency and/or municipal representatives, and, if desired, community
leaders act in an advisory capacity to the PSAP manager. It is important that this board have advisory input only.
 Utilizing civilian staff rather than sworn personnel creates a more developed career path for PSAP staff.
 As part of a municipal structure, the PSAP has access to administrative support such as human resources,
building facilities, and computer and network support.
 The department director will need specific technical and operational skills related to 9-1-1. Ideally, the director
should be a 9-1-1 professional.
Primary negative attributes of this structure include the following:
 There will be adjustment to the loss of direct control of PSAP staff by participating agency personnel.
 The cost of a civilian director as opposed to managing the PSAP with lower level sworn command personnel can
be more expensive.
4.1.2.2 Part of a Participating County/Municipality/Agency
In this governance model, the consolidated PSAP is part of one of the existing law enforcement, fire, or EMS agencies. Under
this type of structure, sworn personnel often manage the PSAP and fall under the authority of the hosting agency head such
as the sheriff, police or fire chief.
 Avoiding the costs of hiring a civilian director is possible and the parent agency’s budget can absorb management
costs.
 As part of an existing county or municipal structure, the PSAP has access to administrative support such as human
resources, building facilities and computer and network support.
 Buy-in for consolidation is sometimes more palatable if the managing agency is the same type of agency as those
considering consolidation. For example, some law enforcement agencies find it more palatable to consolidate with
a law enforcement PSAP than a fire or independently operated PSAP.
 There will be adjustment to the loss of direct control of PSAP staff by participating agency personnel.
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 Participating agencies perceive that distribution of PSAP resources is not equitable. Generally, the perception is
that the host agency receives a higher level of service.
 Political infighting among the participating agencies can impact the PSAP and/or entities represented on the
oversight board. Although initially all agencies and entities may agree on the direction for the PSAP, over time, as
people and political agendas change, the PSAP can become the focus of political disputes. This structure requires
a carefully crafted governance agreement to protect the PSAP from the impact of political disputes. Such an
agreement will ensure that the PSAP can focus on its primary mission.
 The career path for operational staff is more limited as sworn personnel commonly hold PSAP management
positions.
4.1.2.3 Joint Powers Authority, Council of Governments or Intergovernmental
Agreement
In this governance model, the consolidated PSAP is an independent agency headed by a civilian director. Under this type of
structure, the PSAP is not part of any larger government structure, but is in fact an independent entity. The director
traditionally reports to a board comprised of representatives of the participating members.
 Independent leadership allows the director to best manage PSAP resources and provide equitable service to all
participating agencies.
 A developed career path for PSAP staff is offered as civilian personnel generally fill supervisory and management
positions.
 There is a degree of neutrality as the center is independent of law enforcement, fire or EMS. This neutrality allows
the PSAP to provide equal service to all participating agencies and avoid the perception of bias or favoritism.
 Total organizational and single mission focus on PSAP services without resource competition.
 Since the PSAP is not part of a larger municipal entity, real and intangible costs for support services such as
computer/network services, human resources, and facilities are perceived to be higher and, in fact, may be more
transparent. A poorly crafted governance structure can result in a director that has to answer to multiple bosses.
This situation can be difficult for the director and can prevent the director from effectively managing the PSAP.
 Political infighting among the participating agencies can impact the PSAP and/or entities represented on the
oversight board. Although, initially all agencies and entities may agree on the direction for the PSAP, over time, as
people and political agendas change, the PSAP can become entrenched in the fallout from political disputes. This
structure requires a carefully crafted governance agreement to protect the PSAP from the impact of political
disputes. Such an agreement will ensure that the PSAP can focus on its primary mission.
4.1.3 Governance Recommendations
Kimball recommends that a consolidated PSAP be established as a separate entity such as a COG (Option 3) or as a
separate department within the County government structure, if allowed by State of Ohio codes. If established under the
County, it should be part of the County for administrative purposes and support, but controlled by a board comprised of
representatives from the user municipalities. Heads of public safety agencies, such as police and fire chiefs, should not be
members of this controlling board to avoid placing the PSAP director in the position of reporting to “many masters” and to
insulate the PSAP from political changes. The controlling board is typically comprised of decision makers from each
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municipality, such as city managers, but outside of public safety. An additional advisory board can be created for
representatives of the public safety agencies served by the PSAP.
4.2
Cost Distribution
The distribution of costs associated with a newly consolidated PSAP requires that all participants agree on the distribution
formula. Achieving consensus is often a difficult task. The criteria used to determine the distribution of costs frequently yield
different results for participants so agreeing on what is fair and equitable can be difficult, and largely a matter of perspective.
For example, using strictly population as the basis for cost distribution may provide Agency A significant cost savings while
Agency B’s costs increase. Using 9-1-1 call volume only may well reverse those results with Agency A incurring cost
increases while Agency B saves. Commonly, more than one criterion is used to reach a formula that is considered fair and
equitable by all participants.
Clearly, establishing an acceptable formula can be a “show stopper” in the consolidation process. Most often, this issue is
addressed early in the pre-implementation process, along with governance, to determine if the consolidation will be able to
move forward. If agencies are unable to agree on a distribution formula, then the rest of the implementation process cannot
take place.
When first consolidating, Kimball recommends that the cost distribution model be based on data that is measurable and
consistent across all participants. Once the consolidation has taken place and other measurable data is developed, the cost
formula should be re-visited and modified, if necessary.
4.3
Single Countywide PSAP Model
In a county the size of Ashtabula, both geographically and population density, the model that will provide the most efficient
and effective service levels is a full consolidation of all of the PSAPs within the county. This emergency communications
center would receive all 9-1-1 traffic within the county, as well as any 7/10 digit calls for emergency services. Citizens or
visitors to Ashtabula County would be ensured of a consistent level of service and state-of-the-art 9-1-1 telephony capabilities,
assuming that new equipment is procured. One CAD would be used to record all events within the county. This has multiple
benefits for the emergency responders, as well as providing better situational awareness and command and control within the
center.
Consolidating emergency communications into one center would require an assessment of existing radio systems to
determine the feasibility of enabling one center to dispatch all emergency services in the county. Potentially, this can be
achieved by using the legacy radio systems and tying them in to an upgraded radio console that can dispatch on multiple
frequencies. Another means of establishing dispatch capabilities at a single center is to move emergency responders to a
common radio platform, such as MARCS.
The operational advantages and long-term cost saving of a complete consolidation make it the ideal model and one that
Kimball would typically recommend for a county like Ashtabula. This full or complete consolidation would include the PSAPs
currently serving ACSO, Ashtabula PD, Conneaut and Geneva PDs and Saybrook and Ashtabula Township FDs. However,
Kimball understands that the dynamics of politics, defining management and control, and financial hurdles to implement this
model are very challenging at this time. Kimball provides this model as an industry “best practices” long-term goal for
Ashtabula County that should be considered and pursued. This model would allow the county to provide the highest level of
service in the most cost efficient manner possible to both citizens in the respective communities and emergency responders
alike.
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The operational structure that follows in this section represents as close to a “perfect world” organizational structure and
staffing projections as can be developed at this early juncture in the consolidation process. While the estimated
telecommunicator staffing numbers are close to what will be needed, support and management staff numbers will be difficult
to accurately estimate until actual planning takes place and key decisions are made.
Based on the size of the consolidated PSAP in this alternative, Kimball recommends the following as an initial organizational
structure. Key changes in this structure are:
 A civilian director or manager
 The inclusion of 24/7 shift supervision that are not assigned to work a call taking or dispatch position
 Assignment of quality assurance/training to a shift supervisor(s).
This recommended structure should be viewed as a starting point that will be altered as necessary to fit the needs of the new
PSAP as decisions regarding how IT and technology needs will be supported and the actual workload better defined.
4.3.1.1 Position Definitions
The structure is based on the following position definitions:
1. Director or Manager
This position has overall responsibility for providing leadership and has ultimate responsibility for all PSAP operational,
technology, budget and administrative tasks. The director is charged with setting the direction for the PSAP, planning for
future operational and technological changes, and ensuring that the PSAP is meeting mission set by the PSAP’s
oversight body. The reporting relationship for this position is determined by the type of governance chosen.
2. IT Support
This position reports to the IT manager and is responsible for providing geographic information system (GIS) and/or
Information Technology (IT) support for the PSAP.
3. Telecommunicators
This position reports to the shift supervisors and is responsible for call taking and dispatch functions.
4. Shift Supervision
To properly manage a consolidated PSAP, a strong supervisory structure is recommended for two primary reasons;
public safety best practices and operational efficiency. Although in smaller PSAPs, shift supervisors are not always
present for financial reasons or because sworn personnel function in this role, the PSAP in this alternative will be too
large to operate efficiently without the presence of 24/7 supervision. In Kimball’s view, it is essential that shift supervision
not be assigned to a call-taker or dispatch position and are present on a 24/7/365 basis.
5. Administrative Support
This position reports to the director or manager and is responsible for providing administrative support and managing
office responsibilities.
Such functions as human resources, payroll and facility maintenance are not covered within this structure. These
functions can be provided in several different ways such as adding in-house staff or contracting with one of the
participating municipalities to provide support. Therefore, the final organizational structure may change during the
implementation planning process.
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4.3.2 Call Taking and Dispatch Methodology
Traditionally, telecommunicators in smaller PSAPs often function as a combined call-taker and dispatcher simultaneously. In
other words, the incoming call is received and processed and field units sent by the same telecommunicator. Most often, this
methodology works well in this environment. However, if all primary and secondary PSAPs combined, the size would be large
enough to benefit from the separation of the functions, but not large enough to completely split the functions. This splitting of
functions represents significant changes from the traditional one-person-does-it-all approach, but does provide benefits that
cannot be achieved when a single telecommunicator performs both functions.
A true call-taker and dispatcher system allows call-takers to be on line with the caller, obtaining vital information for
responders, while the dispatcher sends units simultaneously. All 9-1-1 callers are queried to determine the incident type
(nature), the incident location, vital information and the calling party name and call back phone number. The call information is
then sent via CAD to the appropriate dispatcher(s) for radio dispatch of field units. For example, CAD will generate two
incidents, one police and one fire for a call that requires both police and fire response ensuring that both response agencies
are notified at the same time. When the call-taker remains on line with the caller (when necessary), further information
important to response and mitigation of the incident can be gathered, entered into CAD, viewed by the dispatcher(s) and
relayed to the field units. This model will provide the best possible service to callers by potentially reducing the overall
response time through a faster dispatch time. This methodology also allows the call-taker and dispatcher to both focus on
obtaining necessary information and dispatching units without having to manage an upset caller, field personnel and
potentially additional incoming calls. The key to achieving maximum efficiency in call taking and dispatch is standardized call
taking protocols and effective use of the CAD system so that communications between call-taker and dispatcher are
seamless.
In scenarios where a caller is in danger, best practices dictate that the call-taker stay on the line with the caller until help
arrives. The call-taker provides updates for the dispatcher(s) and responders throughout the call via the CAD system.
Situations where a caller may remain on the line may include in-progress/just occurred events and suicidal or homicidal
persons. In these instances, the responders are already dispatched and are kept apprised of the updated information by the
dispatcher(s). The unit’s/apparatus’ initial dispatch response, overall, will be potentially reduced by having the call available
for dispatch simultaneously for all appropriate responders.
Taking this concept one step further, the dispatcher role is generally split between fire, EMS, if appropriate, and law
enforcement. This structure ensures that police, fire and 9-1-1 callers all receive the same high quality service from the
PSAP.
In addition to allowing telecommunicators to better focus on only call taking or dispatching, splitting the functions helps the
PSAP achieve the following industry standards for call taking:
 NENA 56-005, 9-1-1 Call Answering Standard, states, “Ninety percent (90%) of all 9-1-1 calls arriving at the Public
Safety Answering Point (PSAP) shall be answered within ten seconds during the busy hour (the hour each day
with the greatest call volume, as defined in the NENA Master Glossary 00-001). Ninety-five (95) percent of all
9-1-1 calls should be answered within twenty (20) seconds.”
 The 2013 version of NFPA 1221, Section 7 states, “Ninety-five percent of alarms 9 received on emergency lines
shall be answered within 15 seconds, and 99 percent of alarms shall be answered within 40 seconds” and, “Ninety
9
NFPA 1221 defines an alarm as “a signal or message from a person or device indicating the existence of an emergency or other
situation that requires action by an emergency response agency.”
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percent of emergency alarm processing shall be completed within 60 seconds, and 99 percent of alarm processing
shall be completed within 90 seconds.”
 The 2013 version of NFPA 1221, Chapter 7 Annex A.7.3.1 states “…Consider the following two concepts of
communications center operations:
1. Vertical Center. A telecommunicator performs both the call taking and dispatching functions
2. Horizontal Center. Different telecommunicators perform the call taking and dispatch functions.
Telecommunicators working in a vertical center are known to engage in multitasking that can inhibit their ability to
perform assigned job functions. Routine evaluation of telecommunicator staffing….”
These standards can be difficult to meet when a single employee must juggle multiple job functions simultaneously.
4.3.3 Staffing
When estimating PSAP staffing three components must be evaluated; call taking, dispatching and administrative support.
Administrative support includes supervision, management and technical support needed by the PSAP. This section discusses
the number of telecommunicators that will be needed. Although staffing levels for different functions, call taking and
dispatching, are provided, Kimball assumed that telecommunicators will be cross trained to perform both functions and would
do so based on operational needs on any given day.
4.3.3.1 Call Taking Staffing
When call taking and dispatch functions are completely separate calculating the number of call-takers is fairly simple and
based on busy-hour call volume and NENA standards for answering 9-1-1 calls. Estimating call-taker staffing levels are a bit
more complex when the PSAP is not large enough to completely separate the call-taker and dispatch functions as would
probably be the case in this consolidation model. Often staffing levels are based on a combination of mathematical
calculations and the experience of the PSAP manager. In other words, staffing estimates can require both art and science
when call taking and dispatch duties are mixed.
The combined 9-1-1 call volume for all agencies is 47,582. Using the 4:1 ratio discussed in Section 3.2.3 to estimate
administrative and 7/10 digit calls the total call volume for the consolidated PSAP is 215,328. The sum of the 9-1-1, 7/10 digit
and administrative call volumes is estimated to be 262,910.
The next step is to calculate the number of call-taker positions needed to manage the estimated call volume. Using an Erlang
C calculator and the call performance standards listed in Section 4.3.2 Kimball determined that an average of three call-takers
would be needed to handle the estimated call volume. In actual application, the consolidation PSAP would have more than
three during peak call volume times and less than three during slow times. The following should be noted:
 When applying performance standards, the entire combined call volume of 262,910 was used. In other words, the
NENA standard for processing 9-1-1 calls, which is a higher standard, was applied to all calls even though
administrative calls do not need to be handled as quickly. This methodology provides a cushion of sorts or upper
end number from which to plan.
 Typically, it is not financially feasible for a small PSAP to establish completely separate call-taker and dispatcher
positions as it would require additional staff that would likely not be utilized to an acceptable level. Some of the onduty dispatch staff would function in an as-needed basis for answering incoming calls.
Once the number of call-taker positions that need to be filled is determined, this data is set aside until the same is done for
dispatch functions.
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4.3.3.2 Dispatch Staffing
The next step in estimating staffing is based on the number of dispatch workstations that will be needed. To maximize the
efficiencies gained by consolidating each existing dispatch position should be reviewed to see if combining agencies on to the
same talk group makes sense by taking into consideration the following:
 Radio platforms currently in use by each agency. Clearly, agencies that use different radio platforms cannot share
talkgroups or channels without one agency moving to a new platform and incurring the cost of doing so.
 Geography. When considering combining agencies thought must be given to whether the combination makes
sense from a geographical perspective. Agencies that share geographical borders often already assist each other
on a routine basis. Therefore, combining talkgroups would be beneficial and potentially more efficient.
 Number of field personnel tracked by each dispatcher. If a law enforcement dispatcher is responsible for only a
small number of field units, then combining talkgroups may offer the opportunity to reduce the number of
personnel, create a more efficient call flow process in the PSAP and improve field communications by having those
agencies that commonly work together on the same talkgroup. A general rule of thumb for the ideal number of
units a dispatcher can manage is 20 – 25 active police units at a time. However, if the talkgroup is used only for
primary communications and administrative functions are moved to another talkgroup, then the number of
manageable units can be much higher. Given the very different nature of fire emergency communications, the rule
of thumb cited for the number of active units does not apply. The configuration of fire communications is discussed
in the next bullet.
 Number and type of dispatch positions. Participants must evaluate whether existing positions provide the same
level of service for all agencies served. For example, law enforcement and fire should receive the same level of
service from the PSAP. During data collection Kimball learned that some of the fire agencies do not receive the
same level of service from the PSAP. In fact, one department reported that a firefighter would report to the
firehouse to handle radio traffic during calls rather than respond to the scene. To ensure fire and/or EMS agencies
receive the same level of incident tracking and support an additional dispatch workstation that is dedicated to fire
and EMS will be needed. If call volume is low, this position can serve as an overflow call taking position as well.
Kimball considers the establishment of this dedicated fire positions to be essential for increasing the level of
service currently provided to the county fire agencies to an acceptable level. The 2013 version of NFPA 1221
Chapter 7 Staffing Annex A.7.3.3 states:
“The issues of communications capabilities and/or failures is cited by the National Institute of Occupational Safety
and Health (NIOSH) as one of the top five reasons for fire fighter fatalities. The importance of an assigned
telecommunicator for specific incidents is a critical factor in incident scene safety. The assignment process should
be outlined in specific SOPs within each agency represented in the communications center...”
The following table illustrates the number and type of physical workstations and operational model needed for this model.
Based on call volume and number of units that would be handled, Kimball assumes that four primary police talkgroups or
channels would be reduced to two by combining two agencies on each of the two primary dispatch positions.
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PSAP Workstations
Workstations
# Needed
Police Agencies 1 and 2
1
Police Agencies 3 and 4
1
Fire/EMS
1
Call Taker
2
Shift Supervisor
1
Overflow/PowerShift
2
Total Workstations
8
Table 13—PSAP Workstations
It is important to understand that the above workstation distribution table is conceptual. Multiple options exist for the actual
configuration or operational and work distribution for the PSAP. Those options are examined during the implementation
planning process and a final workflow and operational model are put in place. However, in order to estimate staffing needs
and personnel costs, the Kimball team developed the above model based on our knowledge and experience with PSAP
operations.
For purposes of estimating staffing levels, Kimball believes the PSAP would need three dispatch workstations staffed 24/7.
4.3.3.3 Supervision
Kimball recommends establishing civilian supervisors within the PSAP. The supervisors would not be assigned to work a
console position, but would be able to properly manage the operations, conduct employee training, QA and other tasks. As a
cost saving mechanism, supervision is often assigned to work either a dispatch or call-taker position. However, in order to
properly supervise the operations and manage a major incident the supervisor cannot also be responsible for an active
dispatch position or answering incoming calls.
In addition to the call-taker and dispatch positions, Kimball recommends a supervisor be on duty on a 24/7 basis.
4.3.3.4 Total Operational Staffing Estimates
Once all of number of workstations that need to be staffed on a 24/7 basis are determined, the number of employees needed
can be determined. Factoring in an average amount of vacation, training and sick time, Kimball determined that 27 employees
would be needed to staff the call-taker, dispatch and supervisor positions on a 24/7 basis. In addition to these staff members,
Kimball recommends planning for a civilian manager and administrative assistant. A mechanism must also be in place to
provide IT support for the PSAP technology. This support can be in the form of IT staff assigned directly to the PSAP as
employees or through another department.
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4.3.4 Technology
A CAD system would be needed for the consolidated communications center. A consolidated PSAP often has new CAD
functionality needs that didn’t exist prior to the consolidation. For example, a CAD in a consolidated PSAP needs the ability to
handle multiple jurisdictions and disciplines (police, fire and EMS) whereas a PSAP that handles only a single department
does not need this type of functionality. When determining whether to use a CAD system currently in place in one of the
PSAPs or procure a new system, the functionality of the existing CAD must be assessed to be sure it can function as needed
in a consolidated environment. Assuming that IDNetworks meets the functional requirements, the most reasonable option is
to use the County’s current contract to expand the existing system as there would be financial benefits. If decision-makers
choose to follow this path, negotiations with IDNetworks should ensure that, at a minimum, the following occurs:
 IDNetworks designs and prices a hardware solution that provides either fault-tolerant or high availability backroom
equipment for the consolidated center.
 IDNetworks provides the most recent software version.
 The consolidated communications center identifies any specialized customization or unique requirements that may
have been provided in the existing contract and/or needs to be provided in the new or updated contract.
 The consolidated communications center identifies and develops functional specifications and has IDNetworks
address each feature as to whether their system is compliant on non-compliant. This is the only means to ensure
that the software will provide the functionality that the consolidated center and user agencies require.
 The consolidated communications center identifies new interfaces that will be needed.
 The consolidated communications center and IDNetworks ensure capacity exists or is added to ensure that all
systems run reliability.
 The consolidated center re-negotiates the County’s maintenance contract to include all components of the new
system.
If the existing IDNetworks contract cannot be used or does not provide any significant cost benefit, Kimball recommends that
the consolidated center procure a new CAD system using a full competitive request for proposals (RFP) selection and
procurement process:
 Develop a thorough needs assessment document and solicit input from the dispatch centers, all users and end
users.
 Develop a full competitive RFP document.
 Develop functional specifications to which vendors must respond
 Develop evaluation and recommendation criteria
The new system should provide fault-tolerant or high level of availability, security and reliability. The system should be
designed to take advantage of current fail-over and other backup technologies that enable continued operation,
notwithstanding single or multiple component failure.
4.3.4.2 Mapping and Geographic Information System
All the positions at the consolidated center will need access to a mapping solution. Currently the County is using DDTI for its
9-1-1 mapping solution. The CAD solution used in the new communications center should be considered for its mapping
solution to be used. An E9-1-1 interface should be included that would allow the ALI data to be passed from answering
equipment to the CAD Mapping. This will allow wireless Phase II data to be displayed on the map as it is today with the
Centurylink, KML 9-1-1 network.
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Kimball’s recommendation would be for a single GIS mapping solution with all technology integrated to one software system.
This would alleviate the need to administer and maintain two or more separate GIS mapping databases. There will also be
fiscal benefits to this option as mapping will not have to be procured with more than one system. The goal should be a single
integrated mapping solution for all critical systems that includes 9-1-1 answering equipment, CAD, mobile and automatic
vehicle location (AVL).
4.3.4.3 Customer Premise Equipment (9-1-1 Answering Equipment)
A 9-1-1 call processing solution is needed for the consolidated communications center. As with the CAD system, the most
financially advantageous option would likely be to review the existing vendor contracts and systems and use the current
contracts to procure a new system. However, given the age of the existing system and the need to have a system that is
NG9-1-1 capable, Kimball believes the County should consider going through the procurement process for a new CPE. At
minimum, the following would be needed:
 Development of a thorough needs assessment document and solicit input from the dispatch centers, all users and
end users.
 Development of a full competitive RFP document.
 Development of functional specifications to which vendors must respond
 Development of evaluation and recommendation criteria
Management information software (MIS) should be procured with the new 9-1-1 answering equipment. The new system
should be capable of installing ten-digit administrative phone lines and interfacing with the County’s (phone system). If
ten-digit administrative phone lines are installed on the 9-1-1 answering equipment some plain old telephone service (POTS)
lines should be installed in the consolidated dispatch center for redundancy and back-up purposes.
4.3.4.4 Radio Systems and Consoles
To maximize the long-term operational and financial benefits of consolidation, ideally, all agencies should be on the same
radio platform. The migration of all agencies to a single platform has financial and political components that are well outside
the scope of this project. However, Kimball recommends that all agencies meet periodically to reach a common technology
plan that includes a long-term goal of a single radio platform.
A new logging recorder solution is recommended for the consolidated center. The new recorder will need capacity to record
all of the consolidated center’s telephone and radio traffic and have sufficient on-line storage to retrieve historical data. The
recorders at the existing dispatch centers can remain with those respective agencies and continue to record their incoming
ten-digit phone lines and extensions. A fully redundant back room hardware solution should be considered for the
consolidated center.
The recorder solution will need to provide client access for administrative and management staff. The equipment should be
capable of providing instant recall recording for both telephone and radio. The new logging recorder solution should be
capable of recording all incoming 9-1-1 trunks, ten-digit administrative phone lines, console positions and all radio channels.
In the consolidated center a fully redundant master clock should be installed and integrated with each and every critical
system that will be used. This includes CAD, 9-1-1 answering positions and administrative phone system, logging recorder,
radio consoles, administrative computers and display clocks.
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The purpose of a master clock is to ensure that time stamps for all systems record the same time. Often emergency
communications records, CAD printouts and phone and radio recordings, are used for internal investigations and, more
importantly, in legal proceedings. A master clock ensures incident timelines can be accurately reconstructed and used
successfully in court cases. Synchronized times can also help the County defend against complaints of delayed service.
4.3.4.7 Ergonomic Furniture
With current and future workstations requiring several computers, keyboards and flat panel displays, a modern type of
technical dispatch systems furniture is required to best support daily operations. Kimball recommends the acquisition of new
technical dispatch systems furniture that is more capable of supporting current and future technology requirements for multiple
computers in cabinets along with an array of flat panel screens on a display surface or monitor arms with a separate work
surface which supports keyboards and mice. When used in conjunction with a structural cable system, outlets can be
mounted in or near the furniture where built-in cable pathways would provide a means of access for installation and
maintenance.
New furniture would also have various levels of adjustability to accommodate ergonomic requirements for staff. Most
manufactures provide for the ability to raise and lower the display and work surfaces to allow the user to sit or stand while
working. Additional optional features may include local task lighting, mechanical work surfaces, radiant heat panels, foot
rests, fans and noise masking.
Chairs designed for intensive 24/7 usage are also recommended. Although expensive on the surface, these chairs have
multiple ergonomic settings and hold up to the rigors of 24/7 use. In Kimball’s experience, the high initial cost is justified by a
reduction in repetitive motion injuries and the average product longevity. Cost estimates include twelve chairs to account for
trainees and chairs that may be sent out for repair.
4.3.5 Cost Estimates
4.3.5.1 Personnel Costs and Annual Operating Budget
The following table provides personnel cost estimates for this model, as well as a total PSAP operating budget estimate. The
pay scale for the telecommunicators is based on the high end of the pay range for ACSO telecommunicators. The rate used
to calculate benefits is also based on existing rates provided to Kimball from the County.
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Consolidated PSAP Estimated Operating Budget
Base
Pay
Benefits
Rate
Benefit Cost
Per Employee
# of
Employees
Total
Director
$60,000
38%
$22,800
1
$82,800
Shift Supervisor
$50,000
38%
$19,000
5
$345,000
Telecommunicators
$40,000
38%
$15,200
22
$1,214,400
Administrative Support
$30,000
38%
$11,400
1
$41,400
29
$1,683,600
Position
Sub-total
Recurring Expenses *
Total Estimated Operating
Budget
* Estimated at 20% of wages and benefits
$336,720
$2,020,320
Table 14—Consolidated PSAP Estimated Operating Budget
4.3.5.2 Technology Costs
The following table summarizes, at a high level, the technology cost estimates the County would likely incur should each of the
key systems need to be replaced, as well as typical dispatch furniture and intensive use chairs. The estimates are based on
equipping a total of eight workstations with the identical equipment to maximize operational flexibility. A total of eight
workstations takes into account the six that would typically be needed daily, plus another two for higher call volume periods,
major incidents and spares.
A variety of variables will influence the final costs for each of these systems. Therefore, these estimates should be used for
high-level budgetary planning purposes only.
CAD
Single Consolidated PSAP Technology Cost Estimates
Number
Low End
System/Equipment
Cost per Unit
Needed
Estimate
8
$35,000 - $40,000
$280,000
High End
Estimate
$320,000
CPE/9-1-1 Answering Positions
8
$45, 000 - $60,000
$360,000
$480,000
Radio Consoles
8
$40,000 - $60,000
$320,000
$480,000
N/A
N/A
$48,000
$60,000
Master Clock Solution
1
$17000 - $20,000
$17,000
$20,000
Ergonomic Dispatch Furniture
8
$14,000 - $18,000
$112,000
$144,000
Intensive Use Chairs
12
$1,200
$14,400
$14,400
$1,151,400
$1,518,400
Redundant Digital Logging Recorders
Total Cost Estimates
Table 15— Single Consolidated PSAP Technology Cost Estimates
These costs do not occur on an annual basis, but only when new systems are procured.
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4.3.6 Summary
Under this model the County would have a single consolidated PSAP. The following table compares the existing staffing
levels and PSAP costs with the estimated staffing and operating budget for a single consolidated center.
Existing Combined PSAP
Staffing
22 Full Time/27 Part Time
Existing and Consolidated PSAP Comparison
Estimated
Existing Combined
Consolidated Staffing
PSAP Budget
29
$1,713,409
Difference
Estimated
Consolidated Budget
$2,020,320
$306,911
Table 16—Existing and Consolidated PSAP Comparison
Although high level cost estimates indicate that a single consolidated PSAP would cost approximately $307,000 more
annually, the following must be taken into consideration:
 In Kimball’s opinion, the costs for the existing configuration are likely to be artificially low since a number of
expenses typically seen in PSAPs were not present in the data provided. However, when a PSAP is part of a
larger organization it is sometimes difficult, if not impossible, to accurately extract the costs associated with
operating a PSAP as the costs are included through the budget of the parent organization. Another cost that is
typically underestimated is the cost of the support or management provided by sworn personnel. The time sworn
personnel spend on PSAP issues would be redirected toward productivity within each department.
 Interoperability is maximized under this model which translates to improved service to the community and a safer
environment for public safety personnel.
 Supervision that is devoted to supervising, training and quality assurance is provided under the consolidated
model.
 This model provides consistent training for employees so all citizens within Ashtabula County receive the same
high standard of service.
The technology costs associated with the procurement of new critical systems may well be more economical in the long-term
than each PSAP buying its own systems. In addition, this consolidation model would provide technology to some PSAPs that
they currently do not have. In short, comparing the existing configuration of PSAPs with a single consolidated PSAP is not an
apples-to-apples comparison and not one that can be made on the basis of costs alone.
The cost estimates provided in this report do not include any facility related costs. If existing space is not sufficient, and
Kimball believes this to be the case, then either a new facility must be constructed or an existing facility must be renovated. In
either case, the costs can be substantial and will need to be taken into account.
Kimball recommends that the County adopt this model if possible. If consolidation is not possible for political and/or financial
reasons, this model should be considered as a goal to be worked toward over time.
4.4
Phased Consolidation Option
Kimball conducted a thorough assessment of the multiple dispatch operations within Ashtabula County and carefully
considered stakeholder comments and feedback. Although a single consolidated PSAP would serve the community best, it is
a difficult goal to accomplish politically and financially. If a single consolidated PSAP model is not achievable, Kimball
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recommends a partial or phased consolidation model with the following facts presented for consideration and support of this
recommendation.
The Ashtabula County Commissioners have indicated that they need to identify new physical space to accommodate their
9-1-1 call taking and dispatching operations, as well as the county emergency management, emergency operations center.
Reasonable expectations would suggest that whether constructing a new facility or renovating an existing facility it would be at
minimum, eighteen months before such a facility would become operational.
Using this “construction” time frame, the PSAPs that wish to consolidate would need to begin working toward a transition to
the consolidated PSAP. Of the primary PSAPs that wish to consolidate, planning would take place that transitions agencies
over one at a time to be as least disruptive as possible to the operations. Those PSAPs that do not wish to consolidate would
continue to operate as they do today.
Kimball believes this option would allow for a controlled transition, would increase efficiency in operations, as well as
recognizing some cost effective reductions. When this option is accomplished the long term goal of full consolidation could
still remain a consideration of a goal in the long term planning of 9-1-1 call taking and emergency dispatch operations in
Ashtabula County.
In Kimball’s opinion the two secondary PSAPs, Ashtabula Township and Saybrook Fire Departments, could transition over to
the County PSAP at any point in time as long as the following has been done:
 Service level expectations are agreed upon.
 ACSO training program needs to be assessed to determine if it provides telecommunicators with a solid knowledge
base from which to take incoming fire calls, dispatch the appropriate fire apparatus and provide incident
commanders with the support needed.
 A review of ACSO staffing should be completed to ensure that two telecommunicators are actually present in the
PSAP at all times.
4.4.1 Organizational Structure and Staffing Levels
The organizational structure for this model option would be a modified version of the single PSAP option. The number of
PSAPs joining the consolidated PSAP and the transition timeline would drive how the organizational structure would develop
over time.
Similarly, the overall staffing plan would be modified to meet the needs of the transition at any single point in time. Again, the
number of PSAPs transitioning, as well as the time line for each transition will drive the staffing levels.
4.4.2 Technology
The technology per unit cost estimates for each critical system would remain the same, but would be scaled back to match the
number of agencies participating. Kimball assumes that each PSAP would continue to use its existing equipment until their
planned transition to the consolidated PSAP.
4.4.3 Summary
A consolidation of all or some of the PSAPs in a phased manner does provide a more controlled environment and may be
more palatable for some agencies.
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It is virtually impossible to provide cost estimates for this option in advance of the in-depth planning that would need to be
accomplished. However, the costs provided in the single PSAP model can provide an upper limit for costs. Until the final
participants are identified, staffing levels, technology costs and the ultimate cost to each participating agency or municipality
cannot be determined.
4.5
Shared Technology Option
Should consolidation, either partial or full, prove not to be possible at this point in time, Kimball recommends that the PSAPs
explore a shared technology option. Under this option, each of the existing PSAPs or a partially consolidated center and
those PSAPs that wish to remain part of their current parent organization partner in procuring new technology over time. For
example, perhaps a new CAD is determined to be the highest priority amongst the partnering PSAPs. A single CAD system
would be procured and installed in each separate PSAP. Each PSAP would be connected to each other through the shared
CAD which would allow for easier communications between PSAPs and their respective field personnel. The improved
interoperability that results from shared technology would also allow each PSAP to know about other public safety activity in
the county.
A significant amount of work in regards to governance, identifying common standards for training, policy and procedures, cost
distribution and the implementation of technology for the facilities in this option, Kimball believes this option should be
considered the first phase in the long-term goal of consolidation.
4.5.1 Summary
The shared technology option provides some of the benefits typically gained through consolidation. However, this option
requires cooperation amongst agencies and requires a comprehensive governance agreement. If no other consolidation
models can be implemented, then this option does provide some forward movement in terms of interoperability.
All aspects of each PSAP would remain as it currently exists. The only change would be the shared technology implemented.
4.6
Regionalized Hybrid
This model, suggested by stakeholders within the County, is based on a combination of shared technology and the absorption
of ACSO PSAP staff into the three remaining primary PSAPs. This model is based on the following assumptions:
 The ACSO PSAP would be eliminated.
 ACSO PSAP staff would be distributed among the three remaining primary PSAPs. The staff would work in one of
these PSAPs but would remain ACSO employees.
 Shared technology, such as CAD, would be utilized by all PSAPs.
 Each PSAP would be equipped operationally and technologically to received 9-1-1 calls for anywhere in the county
and also dispatch for any agency.
 A common training plan would be developed for all PSAP staff to ensure consistency in call taking and dispatching
field personnel.
From a conceptual perspective, benefits of this model include:
 No additional facilities would need to be built, thus potentially saving the cost of new construction or renovations.
 Some of the advantages of shared technology would be realized.
 Multiple avenues of redundancy would be in place for each primary PSAP.
 At least two PSAP employees would be on duty at any given time, which would allow the PSAPs to meet any
future requirements at the state level to meet national recommendations of two on duty at all times.
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Negative aspects of this model include:
 Different pay scales for staff members performing the same work in the same facility
 Separate chains of command for staff working side-by-side.
 Different work rules for staff working side-by-side
 Different discipline policies for staff working side-by-side
 Multiple union contracts overseeing staff working side-by-side in the same facility
 PSAP staff would be placed in a potentially untenable position by working with/for one agency while employed by
another and would be susceptible to in-fighting between agencies and local politics.
 Each PSAP would require the physical space to add phone positions and/or consoles to serve the needs of ASCO
as well as to serve as a backup for the other two PSAPs. If this space is not available, renovations would be
needed.
 Assignment of staff and granting of leave requests becomes complex if based on seniority when staff are
employees of different municipalities and members of different unions.
A full examination of model positives and negatives cannot be done until a number of variables are resolved including:
 How would the workload currently managed by the ACSO PSAP staff be distributed among the remaining three
primary PSAPs?
 Agencies currently served by the ACSO PSAP would have to agree to contract service from one of the three
PSAPs
 How would complaint resolution be done when employees from multiple agencies are involved?
 How are employees scheduled and how will shift assignments be determined given multiple union contracts and
separate work rules for each municipality?
 What agency has the final say in personnel matters, call processing and dispatch methodologies? Although one of
the underlying assumptions here is that a common training plan would be in place, response decisions in-themoment often are made by field command personnel. These decisions may or may not be in keeping with work
rules of PSAP staff from different agencies. The PSAP staff is placed in a no win situation by having to choose to
either following the command officer from another agency or following the work rules set in place by their own
employers.
 What sort of inter-governmental agreement will be established to address issues such as the following:
• On-going staffing needs and identification of correct staffing numbers. How would the “correct numbers” be
determined? Would the numbers take into account duties such as cell monitoring? If so is this cost passed on
to the municipalities/county in a cost distribution formula?
• On-going and future technology needs. Does each municipality have the final decision regarding the technology
that is to be used within the PSAP? Does ACSO have input into technology choices? How does the answers to
this question impact cost distribution?
• Roles and responsibilities of each municipality/county.
• Chain of command within the PSAP during each shift.
• Review of call taking and dispatch methodologies and change process. Which agency has final decision making
authority on this subject?
• Cost distribution model that takes into account the relevant variables.
While conceptually viable, in actual practice this model would be fraught with a variety of issues that would prevent this model
from being successful. The logistics alone of managing PSAP staff employed by different entities, members of different
unions and subject to different work rules would, in Kimball’s opinion, eliminate this model option from consideration.
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4.7
Call Center Options
A consolidation model that was repeatedly mentioned by stakeholders as a potential fit for Ashtabula County agencies was
that of a consolidated call center. Two call center alternatives are possible; calls are received at a separate call center and
transferred to each dispatch center and a separate call center that does not transfer calls to dispatch centers, but instead
sends the calls for service via shared technology such as CAD. Each alternative is summarized in the following sections.
4.7.1 Call Center with 9-1-1 Call Transfers
Under this model, all 9-1-1 calls are routed to a single call answering point while dispatch functions remain in place in each
individual agency. Under this call center model, the first call-taker must conduct a preliminary interview to determine the
nature and location of the emergency. The call must then be transferred to the appropriate agency for dispatch. The
dispatcher then must re-interview the caller and dispatch field personnel. The average length of time added to a call for the
second interview process is approximately 30 seconds.
Although this solution seems to be a fit politically, it is a model that is contrary to industry best practices and one that Kimball
is not able to recommend. Industry best practices indicate that the transfer of 9-1-1 callers should be kept to an absolute
minimum due to the inherent delay that results when more than one telecommunicator handles a call.
In emergencies, seconds count. This means that information critical to responding agencies’ safety and ability to effectively
manage the emergency is delayed, as the call must be processed by the receiving PSAP first. These lost seconds can
literally mean the difference between survival or not and/or impact the patient’s quality of life. For example, 30 seconds to a
minute of lost time can mean the difference between not surviving and being able to resuscitate a heart attack or drowning
victim and whether that person will have a meaningful quality of life. In another example, a delay in receiving information
regarding suspects with weapons or the presence of hazardous materials on-scene can have potentially fatal consequences
for responders. While these examples are dramatic, they accurately illustrate the types of emergencies handled every day in
PSAPs across the country.
Transfers increase the likelihood that human and/or technological errors will occur. High levels of training can minimize the
amount of human errors, but even the best trained employees will still make errors from time to time. When a caller must
speak with multiple call-takers, the potential for human error rises.
In Kimball’s opinion, adopting this model would not result in a more effective and efficient emergency communications system
for the county public safety agencies.
4.7.2 Call Center with Shared Technology
Under this call center model, a separate call center is established to receive all incoming 9-1-1 calls countywide. The call
center and separate dispatch centers are equipped with the same PSAP technology. At minimum, a common CAD system
would need to be shared among the call center and dispatch centers. When a 9-1-1 call is received by the call center, the
call-taker would enter the information into CAD which would send the call for service to the appropriate dispatch center(s) for
dispatch of field personnel.
Of the call center models, this model is the better choice since it eliminates the majority of 9-1-1 call transfers. There are also
some benefits to technology sharing, if no other form of consolidation can be achieved, as discussed in Section 4.5. However,
the following should be fully assessed before choosing to implement this model:
1. Typically, separate call and dispatch centers are more costly to operate. Although the costs may be incurred by
separate agencies, when combined, this model is typically more expensive to operate due to duplication in personnel
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and equipment. In short, the cost efficiencies associated with a single PSAP are lost. For example, today a small
PSAP has one or two people on duty at a time. If a call center model was implemented then the same one or two
people would be on-duty to cover dispatch functions while additional call center personnel must now be added to
receive incoming 9-1-1 calls. Depending on the governance and cost distribution models implemented, the costs of
the additional personnel needed to staff the call center may be distributed among the municipalities which results in
increased costs.
Cost efficiencies are also lost when implementing a call center/dispatch model. Each facility, whether it is a call
center or dispatch center, will need extra positions to handle major incidents. When looked at collectively, the
number of total call-taker and dispatch positions needed for each technology will be higher than would be needed in
a single PSAP because of this redundancy.
2.
3.
4.
5.
6.
Whether this option would be more expensive for Ashtabula County and participating municipalities would have to be
assessed in the planning process prior to any long-term commitment to this model.
A call center under the control of one agency and dispatch centers under the control of multiple other agencies will
require extensive collaboration to be successful. Each agency must agree upon the shared technology, how it will be
paid for and utilized.
While shared technology does help increase interoperability, separating call taking and dispatch functions into
multiple facilities results in the loss of one of the least tangible, but most important aspects of consolidation. When
call-takers and dispatchers are in the same room communications between them is instantaneous. This level of
communications results in higher quality information being communicated to field personnel more quickly.
Technology such as CAD is an effective tool in communicating not only internally in a PSAP, but also between
PSAPs located in different places. However, technology cannot replace the type of communications found in a single
PSAP, with staff in the same room, in terms of immediate dissemination of critical updates to all agencies and field
personnel that require it.
Differences in training methodology for call-takers will need to be standardized. Typically, opinions on what
information should be gathered during a 9-1-1 call differ from PSAP to PSAP and from police to fire to EMS.
Interview protocols that meet nationally recognized standards will need to be agreed upon and incorporated into the
call center training program.
Incident types used to enter calls for service into a CAD system must be standardized and agree upon across all
dispatch agencies and the call center. For example, the incident code for a motor vehicle accident may be CRASH
for one agency while another uses MVAA. This code tells the dispatcher at a glance the types of incidents waiting to
be dispatched and it determines the type of response to be dispatched. It is not a realistic expectation that call-takers
use different incident codes for different agencies. Therefore, some compromise and training would be needed on
the part of the dispatch centers.
A complaint resolution process would need to be established to address service issues between the call center and
dispatch centers. A process would also need to be in place to address citizen complaint investigations that involve
both the call center and dispatch center(s).
Although a shared technology based call center model does offer some advantages over a call center model that transfers all
9-1-1 calls, the potential collective cost increases, degree of collaboration required and potential Next Generation 9-1-1
concerns Kimball does not recommend this model.
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4.7.3 Call Center Models and Next Generation 9-1-1 Concerns
In both call center models, concerns regarding the implementation of 9-1-1 exist. One of the key goals of NG is to eventually
be able to distribute photos and video received from 9-1-1 callers to field personnel. In a call center model an additional step
and equipment must be added to the process, as technology works today. In a shared technology call center model, there is
no need for the dispatch centers to be equipped with expensive 9-1-1 call answering equipment if 9-1-1 calls are not being
transferred. However, in an NG9-1-1 environment, the photos and/or video received from a caller would be transferred via this
answering equipment through a connection to an ESInet. Therefore, all dispatch centers would require this technology which
would be an added cost. If the photos or video could be incorporated into a CAD incident this issue would not exist. However,
as of today, there is not a CAD system on the market that has this capability nor does current industry trends indicate this will
change in the near future.
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5.
GRANT AND FUNDING OPPORTUNITIES
Funding is a critical part of any consolidation project. Being able to identify the right sources of funding is essential. The
following section provides potential funding options for Ashtabula County.
5.1
Federal Grants
Grant opportunities are scarce in the current economic environment, but Congress and Federal Programs are planning for
emergency communications and preparedness grants. Whether those grants will be funded remains to be seen.
5.1.1 Federal Emergency Management Agency Preparedness Grants
Fiscal Year 2013 Grant Allocations were announced for seven Department of Homeland Security (DHS) preparedness grant
programs in August 2013. These programs were subject to mandatory sequestration reductions, totaling $74 million. These
allocations total more than $1.5 billion to assist states, urban areas, tribal and territorial governments, non-profit agencies and
the private sector.
The fiscal year (FY) 2013 grants focus on the nation’s highest risk areas, including urban areas that continue to face the most
significant threats. Consistent with previous grant guidance, dedicated funding is provided for law enforcement and terrorism
prevention activities throughout the country to prepare for, prevent and respond to pre-operational activity and other crimes
that are precursors or indicators of terrorist activity.
Of the seven grants that were allocated, the two below could be applicable for consolidation and/or EOC funding.
5.1.1.1 State Homeland Security Program
The State Homeland Security Program (SHSP) provided more than $354 million in 2013 to support the implementation of
state homeland security strategies to build and strengthen preparedness capabilities at all levels and to address the identified
planning, organization, equipment, training and exercise needs to prevent, protect against, mitigate, respond to and recover
from acts of terrorism and other catastrophic events. State Homeland Security Program also provides funding to implement
initiatives that address shortfalls and deficiencies identified in the State Preparedness Report (SPR). The 9/11 Act requires
states to dedicate 25 percent of SHSP funds to law enforcement terrorism prevention activities.
The State Administrative Agency (SAA), which in Ohio is the Ohio Emergency Management Agency, was the only entity
eligible to apply to the Federal Emergency Management Agency (FEMA) for SHSP funds. The application period opened on
May 21, 2013 and closed on June 24, 2013. Recipients included all 50 states, the District of Columbia, Puerto Rico, American
Samoa, Guam, the Northern Mariana Islands and the US Virgin Islands.
As part of the FY 2013 Homeland Security Grant Program (HSGP) application process for SHSP, applicants were required to
submit an Investment Justification (IJ) addressing each Investment being proposed for funding. Applicants were required to
demonstrate how each IJ supports the building, sustainment and delivery of existing core capabilities or addresses shortfalls
and deficiencies in one or more core capabilities outlined in the National Preparedness Goal (NPG) and identified in their most
recent State Preparedness Report (SPR). Applicants were required to describe engagement with and/or impacts on the
general and vulnerable populations, to include children, the elderly, pregnant women, and individuals with disabilities, such as
those with access and functional needs. Consistent with the purpose of the program, applicants were required to demonstrate
how their IJs aligned to Urban Area, state, and regional Threat and Hazard Identification and Risk Assessments (THIRAs),
SPRs, national priorities, and applicable guidance provided by FEMA.
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The following process was used to evaluate the anticipated effectiveness of the proposed Investments and to make awards
under the SHSP and Urban Area Security Initiative (UASI):
 FEMA verified compliance with all administrative and eligibility criteria identified in the Funding Opportunity
Announcement (FOA), to include the required submission of the IJ by the established due dates.
 IJs were evaluated for completeness, adherence to programmatic guidelines, and anticipated effectiveness of the
proposed Investments. Only the information included in the IJ was assessed in the review process. State
strategies were reviewed to ensure overall strategic alignment of the Investments, but were not scored.
Ohio was allocated $6,693,676 in SHSP funds for FY 2013. The allocation methodology for FY 2013 SHSP was based on
three factors: minimum amounts as legislatively mandated, DHS’ risk methodology, and anticipated effectiveness. The
anticipated effectiveness was assessed based on the applicant’s description of how the proposed projects, as outlined in the
IJ, aligned with the State THIRA and follow-on capability estimation. Each State and territory received a minimum allocation
under SHSP using the thresholds established in the 9/11 Act and codified at 6 U.S.C. § 605.
Kimball recommends that Ashtabula County work with the Ohio Emergency Management Agencies’ Preparedness Grants
Branch to identify SHSP funding opportunities for this project as soon as possible. Funding announcements are typically
made in the spring of each year and application periods are typically short.
5.1.2 Proposed Consolidation of National Preparedness Grants
The Federal Emergency Management Agency has been preparing to consolidate its 16 separate Preparedness grants into
one National Preparedness Grant Program (NPGP) to help create a robust national preparedness capacity that focuses on
cross-jurisdictional and readily deployable State and local assets. However, for the past two fiscal years FEMA has included
the proposal in its budget request but Congress appropriators have not approved the proposal. It was determined that the
proposed consolidation will require new legislation. The FEMA deputy administrator for protection and national preparedness
reported in June 2013 that FEMA anticipates delivering to Congress a proposal for a consolidated NPGP "soon."
While the consolidation proposal has not been approved, an analysis of FEMA’s NPGP Vision (Vision) can give clues to the
priorities and direction of the Program. The Vision planned for each State and territory to receive a base level of funding
allocated in accordance with a population driven formula. The remainder of the grant allocation was to be determined
competitively, based on the criticality of the specific capability and the applicant’s ability to complete the project within a two
year period of performance. The funding would support deployable assets that could be utilized anywhere in the country via
Emergency Management Assistance Compacts or other mutual aid/assistance agreements. In addition, funding could be
used by the states for the sustainment of core capabilities that may or may not be deployable, such as interoperable
communications systems, mitigation-related capabilities, and fusion centers.
The Vision for the program indicates that the Ashtabula Consolidation would likely be an eligible project under this
consolidated grant program. The NPGP Vision focuses on cross-jurisdictional projects and mentions interoperable
communications systems as a priority for the program. The Vision planned for all grant funding to be funneled through States
so that States are aware of the Grant projects within their borders and can leverage opportunities to consolidate and share
grant project initiatives. It will be important for the County communicate with the State to identify and apply for Federal Grant
Funding in case States are the only eligible applicants. The key objectives of the program include:
 Focus on the development and sustainment of core capabilities identified in the NPG.
 Utilize gap analyses to determine asset and resource deficiencies and inform the development of new capabilities
through a competitive process.
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 Build a robust national response capacity based on cross-jurisdictional and readily deployable State and local
assets.
The Vision for NPGP differs from previous preparedness grant programs in the following ways:
 Consolidation: Consolidates current grant programs into one overarching program (excluding EMPG and fire
grants). This will enable grantees to build and sustain core capabilities outlined in the NPG instead of requiring
grantees to meet the mandates from multiple individual, often disconnected, grant programs.
 Core Capabilities: Focuses on building and sustaining the core capabilities outlined in the NPG that can be utilized
across mission areas – Prevention, Protection, Mitigation, Response and Recovery – and can be utilized nationally
and regionally.
 Addressing Gaps: Utilizes analysis to determine desired level of capability versus current level of capability to
inform the competitive process.
 Accountability: Requires grantees to match their proposed investments to one or more specific core capabilities
and incorporates effectiveness measures that facilitate accountability. This clear linkage will enable all levels of
government to collectively demonstrate how the proposed investment will build and sustain core capabilities
necessary to strengthen the Nation’s preparedness.
 Mutual Aid: Requires grant funded resources to be complementary and requires grantees to maintain membership
in the Emergency Management Assistance Compact (EMAC) to facilitate the mutual aid of capabilities in order to
be eligible for funding.
 Competition: Establishes a competitive funding pool to build new assets and capabilities for which a need is
identified in THIRA.
 Multiyear Guidelines: Includes multiyear guidelines to support efforts to measure progress towards building and
sustaining the core capabilities identified in the NPG.
 Project-Based Development and Monitoring: Grant awards will be based on validated assessments of the needs
and gaps for the jurisdiction and region where the project will be implemented. The Federal Emergency
Management Agency will use project-based monitoring as the principal means of measuring project progress,
following projects from creation to completion. This will provide basic data to measure impact over time, improve
accountability, and enable FEMA to identify progress made in preparedness and determine current and future
gaps.
 Peer Review: Validates grant proposals via peer review to ensure that projects support the building and
sustainment of regional and national core capabilities.
5.1.3 9-1-1 Implementation Grants
The 9-1-1 Implementation Grants could be a potential funding source for the Ashtabula County Consolidation or EOC if the
Program is fully funded by a Federal Communications Commission (FCC) TV spectrum auction. The passage of the Next
Generation 9-1-1 Advancement Act of 2012 provided a onetime appropriation of $115 million for 9-1-1 implementation grants,
but the funds will come from a TV spectrum auction that could take a few years to complete and several other initiatives must
be fully funded before the 9-1-1 Implementation Grants are funded.
The 9-1-1 implementation coordination grants will fund training, IP networks and NG9-1-1 services and will continue to fund
basic and enhanced 9-1-1 implementation. Both state and local entities are eligible grant recipients under the Act and grants
will require a 40 percent local match. Any entity that diverted 9-1-1 funds for other purposes will be ineligible for 9-1-1
Implementation Grant funding. Details on eligible costs and the grant application process will come from the National Highway
Traffic Safety Administration and the National Telecommunications and Information Administration once the Grant has been
funded and established. Eligible costs will include:
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 The implementation and operation of 9-1-1 services, E9-1-1 services, the migration to the IP-enabled emergency
network, and the adoption of NG9-1-1 services and applications;
 The implementation of IP-enabled emergency services and applications, enabled by NG9-1-1 services, including
IP backbone networks and the application layer software infrastructure needed to interconnect emergency
response organizations; and
 Training public safety personnel, other individuals and organizations who are part of the emergency response
chain in 9-1-1 service.
The Federal Communications Commission has to design and implement that auction before any proceeds will become
available. Once auction proceeds start to flow, a waterfall funding model will be used to distribute the auction funds to six
different funding initiatives in addition to the 9-1-1 implementation grants. The waterfall model distributes money to initiatives
in order of priority, funneling money to the first initiative until it is satisfied, and then funding the second initiative, and so on.
The 9-1-1 implementation grants are ranked sixth on that list. This means five other initiatives totaling over $29 billion need to
be satisfied before the 9-1-1 implementation grants are funded and assumes that the auction will generate more than $29
billion.
5.1.4 Byrne Justice Assistance Grant Programs
The County should coordinate with the Ohio Office of Criminal Justice Services to explore whether parts of the consolidation
project would be eligible under the Byrne Justice Assistance Grant Program. The intent of this Program is to assist local
communities to improve or maintain local criminal justice efforts to effectively address crime. Projects must demonstrate
increased efficiency, safety and cost effectiveness. The Application period typically begins in the fall.
5.1.5 Bonds
Issuing bond measures is another source of funding that could potentially assist local municipalities in consolidating
emergency dispatch centers. A bond measure is an initiative to sell bonds for the purpose of acquiring funds for various public
works projects. These measures are put up for a vote in general elections. Such measures are used when other revenue
sources are limited or non-existent.
5.1.6 Earmarks
Earmarks are another funding option. They are provisions in legislation that allocate an amount of money to a specific project.
Earmarks are difficult to come by and require legislative action, so they are not considered a primary revenue source but could
be an option if funding is scarce.
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6.
SUMMARY AND RECOMMENDATIONS
Based on the data collected during this study, Kimball recommends pursuing some form of PSAP consolidation. Key findings
include:
 The State of Ohio has legislation on the books that mandates a reduction in the number of PSAPs within a county
if those PSAPs wish to receive funding from the state.
 The County has a need to relocate its PSAP and EMA due to space limitations therefore this may be an opportune
time for a consolidation effort.
 In general, many of the key PSAP systems are outdated and need to be replaced.
 The County needs to start planning for NG9-1-1, which will require an ESInet and CPE that is i3 capable. The
existing CPE was installed 15 years ago and last updated in 2007. The usual life expectancy of CPE is
approximately seven years so the equipment is in serious need of replacement.
 The majority of the PSAPs have a single person on duty. A single person can quickly become overwhelmed by
incoming calls and dispatch traffic. This type of environment can lead to errors and inefficient handling of calls and
radio traffic.
 A large number of 9-1-1 calls must be transferred between PSAPs before all required services are dispatched.
Kimball recommends that the participants in this study commit to the next phase of the consolidation process as discussed in
Section 6.1. This next step does not require participants to commit to consolidation. The commitment is to determine if each
potential “show stopper” can be resolved. These show stoppers include cost distribution and governance as the two most
contentious topics. This process will result in identification of those participants who are willing to commit to consolidation.
Once the actual participants are identified, costs associated with staffing, facility and technology can be more accurately
estimated and each participant can determine their own costs.
Of the consolidation models discussed in this report, Kimball believes a full countywide consolidation, if deemed financially
and politically possible, will provide the most advantages to the community and the public safety agencies.
Consolidation benefits include:
 More on-duty staff during peak periods which prevents a single on-duty telecommunicator from being overwhelmed
during busy periods. This will lessen the potential for errors and improve call handling and dispatch times.
 Access to technology that may have been cost prohibitive on an individual PSAP basis
 All disciplines (police, fire and EMS) receive the same high level of service when provided by the same
organization.
 Standardized training.
 Career ladder for employees which increase employee retention and lowers training costs.
 A more regional approach to emergency communications allows for maximum efficiency in use of field personnel
and resources.
Of the other models, Kimball recommends a partial consolidation and then shared technology if no other type of consolidation
can be achieved. Kimball does not recommend a call center model that has all 9-1-1 calls coming into a single facility and
then every call is then transferred out to a dispatch center.
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6.1
Next Steps
Completion of the feasibility study is only the first real step in the consolidation. Once the study is complete, moving forward
to the planning phase requires making key decisions first. These decisions form the basis for further planning and determine
how the PSAP will be structured, governed, and funded, as well as how it operates.
Decisions include:
 If consolidating makes sense
 Governance
 Organizational Structure
 Funding Mechanisms
 Identifying facilities for evaluation or preparing for new construction
A common roadblock to each county, municipality or user agency deciding whether to participate occurs at this point in the
process. Each entity understandably needs to know how much the initial capital and recurring costs will be for participating
and how much, if any, cost savings is achievable. However, identifying these costs requires that the number of actual
participants be determined in order to calculate workload, staffing and required physical space needs. In addition, key and
often contentious decisions must be made. Governance and funding models must be agreed upon by all potential participants
before per-entity costs can be determined with any reliability. One method to resolve this Catch-22 is to have all potential
participants agree to continue in the process until governance and funding models and entity-specific financials are
determined. In other words, once consolidation is determined to be feasible, all potential partners agree to come to the table
and work out governance, funding, and facility decisions so that per-entity costs can be established. No county, user agency,
or municipality is committed to consolidating at this point in time.
Once these key decisions are made and costs can be determined, those that wish to commit to being part of the new PSAP
can sign an intergovernmental agreement and the “real” planning begins.
Initial planning includes:
 Begin construction or renovation process for the chosen facility.
 Begin procurement of any needed technology.
 Begin recruitment of a director.
 Identify professional services support needed and begin process to procure them.
 Begin resolving human resource issues such as labor agreements, pay, seniority, vacation, job titles, and deciding
whether existing PSAP staff will be automatically grandfathered in or if an interview and hiring process will take
place.
 Begin development of standard operating procedures or guidelines for the new PSAP.
 Establish work groups to focus on facility, human resources, policy, and technology components of the project.
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Appendix A—Participation in LEADS
4501:2-10-03 Participation in LEADS.
(A) Participation in LEADS and the assignment of an originating agency identifier requires application and documentation the
requester is:
(1) A criminal justice agency.
(2) An agency under the management control of a criminal justice agency. A criminal justice agency must have a written
agreement with a governmental division which operates the data equipment used by agencies to access LEADS/NCIC to
assure the criminal justice agency has management control. This includes regional dispatch centers as a cooperative effort
entered into by political subdivisions in a particular area for the purpose of providing consolidated and computer-assisted
dispatch for public safety purposes; that is, police, fire, and rescue services.
(3) A nongovernmental railroad or private campus police department which performs the administration of criminal justice and
has arrest powers pursuant to state statute, which allocates a substantial part (more than fifty per cent) of its annual budget to
the administration of criminal justice and which meets training requirements established by law or ordinance for such officers.
(4) A nongovernmental agency or subunit thereof which allocates a substantial part of its annual budget (more than fifty per
cent) to the administration of criminal justice. The agency may have access to files, except criminal history record information,
provided such access is approved by LEADS.
(5) A governmental or nongovernmental regional dispatch center, which provides communication services to criminal justice
agencies may be authorized access to files. Such centers shall be required to execute an agreement with each criminal justice
agency it serves and with LEADS assuring compliance with all duly promulgated LEADS rules.
(6) The national insurance crime bureau (NICB), a nongovernmental, nonprofit agency, which acts as a national clearinghouse
for information on stolen vehicles and offers free assistance to law enforcement agencies concerning automobile thefts,
identification and recovery of stolen vehicles may be provided limited access to the LEADS and NCIC vehicle and license
plate files and to the NCIC boat files.
(7) A noncriminal justice governmental bureau of motor vehicles (BMV) or division of motor vehicles (DMV), established by a
state statute, which provides vehicle registration and driver record information to criminal justice agencies and has an
essential need to access the license plate and vehicle files may be authorized to participate in LEADS, excepting criminal
history record information. Such registry shall be required to execute an agreement with LEADS assuring compliance with all
established rules.
(8) Intrastate regional systems.
(9) A governmental, noncriminal justice agency created by federal, state or local code, whose mission is to enforce or assist in
enforcing federal, state or local laws or ordinances may access Ohio and other state bureau of motor vehicle data as
available.
(B) Agencies approved to participate in LEADS shall be granted access subject to the following restrictions:
(1) Full access (entry, retrieval, and message switching capabilities):
(a) The terminal must be staffed twenty-four hours a day, seven days a week, every day of the year.
(b) The agency must have the authority to act and to pursue persons entered as wanted when apprehended by another
agency per the pick-up radius/extradition limitation contained within the record.
(c) Intrastate regional systems under criminal justice management control whose central computer system is staffed twentyfour hours a day, seven days a week, every day of the year.
(d) The primary purpose of LEADS is the protection of the officer on the street; therefore, terminal operators shall maximize
entry capabilities to serve this purpose, i.e. packing the record.
(2) Inquiry only (retrieval and message switching capabilities):
(a) Terminals which are not staffed twenty-four hours per day, seven days per week, each day of the year.
(b) Noncriminal justice agencies permitted access to LEADS.
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(3) Mobile access:
(a) Agencies utilizing mobile access devices may have full retrieval and message switching capabilities, including CCH data
and hard copy printouts of all LEADS output.
(b) CCH information and/or hard copy printouts in the mobile access device environment are governed by the same rule/policy
as hard wired devices. Any agency wishing to provide mobile access device service must have written approval of the CSO.
(c) A mobile access device shall not be utilized in lieu of a traditional workstation in an office environment without expressed
written consent of the CSO or his/her designated authorized agent.
(4) Non-terminal agency:
(a) An agency which qualifies for an ORI may enter into an agreement with the CSA/LEADS for LEADS service. LEADS will
provide the non-terminal agency with a copy of the participation agreement and with copies of the administrative rules,
operating manual and training materials applicable to LEADS practitioners (road officers, secretaries, clerks, etc.).
(b) Non-terminal agencies authorized to receive LEADS data are certified as such in a database prepared/maintained by
LEADS which is accessible to all terminal agencies.
(c) Unauthorized non-terminal agency ORI's will be denied inquiry capabilities. Terminal agencies must use the non-terminal
ORI for inquiry functions when the request is initiated by the non-terminal agency.
(C) Agencies participating in LEADS shall meet the following requirements:
(1) Remit payment of all monetary obligations as invoiced by the Ohio state highway patrol, administrators of LEADS.
(2) Assume responsibility for, and enforce, system security and integrity.
(3) Adhere to policies and guidelines published in the NCIC operating manual, CJIS security policy, LEADS operating manual,
LEADS security policy, newsletters, and administrative messages from LEADS, all of which are either available on the
ODPS/LEADS intranet or disseminated to LEADS agencies.
(4) Ensure all terminal operators become LEADS certified by completing the appropriate LEADS certification test within the
first six months of employment and recertify every two years thereafter. New employees are permitted to use the LEADS
terminal under the supervision of a certified operator during the new employee training period.
(5) Limit LEADS access to certified operators employed by the agency assigned the originating agency identifier (ORI).
Nonemployees cannot be used as LEADS terminal operators with the exception of task force, special, reserve, or auxiliary
officers commissioned by the agency, or personnel under the management control of the assigned agency.
(6) Execute appropriate application, participation agreement, and holder of the record forms. These forms must be kept
current and will be reviewed and updated triennially as part of the agency audit. The completed forms will be filed with LEADS
and the user agency.
(7) Appoint a LEADS terminal agency coordinator (TAC) and local agency security officer (LASO). Each participating nonterminal agency must have a non-terminal agency coordinator (NTAC).
(8) Conduct a complete background investigation of all terminal operators including, but not limited to:
(a) An applicant national web-check ten-print electronic submission to BCI&I and FBI (within the policies governing their
systems.
(b) The agency is required to notify the CSO of any applicant's criminal record. Existence of a criminal record may result in the
denial of access.
(9) Train all personnel of the agency having access to LEADS data with the capabilities, services offered and rules of LEADS.
Compliance with this rule shall include, but is not limited to, completion of the LEADS provided practitioner lesson plan and
biennial security awareness training.
(10) Restrict entries in the LEADS trap file to law enforcement officers involved in high-risk investigations, threatened with
physical harm, or have reason to believe physical harm could occur as a result of performing their duties.
(a) Trap requests shall include a contact number for twenty-four hour notification. Failure to include a valid twenty-four hour
contact can result in the trap being deleted from the system.
(b) Trap entries shall be audited every twelve months. Failure to validate entries will result in the trap being deleted from the
system.
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Replaces: 4501:2-10-03
Effective: 04/05/2013
R.C. 119.032 review dates: 12/26/2017
Promulgated Under: 119.03
Statutory Authority: R.C. 5503.10
Rule Amplifies: R.C. 5503.10
Prior Effective Dates: 10/10/91, 3/28/92, 4/11/94, 9/29/94, 10/10/95, 5/27/96, 7/31/98, 7/1/01, 11/1/03, 12/23/04, 02/15/08
Source: http://codes.ohio.gov/oac/4501:2-10-03
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Appendix B—Ohio Code 128.03
128.03 Countywide 9-1-1 system.
(A)
(1) A countywide 9-1-1 system shall include all of the territory of the townships and municipal corporations in the county and
any portion of such a municipal corporation that extends into an adjacent county.
(2) The system shall exclude any territory served by a wireline service provider that is not capable of reasonably meeting the
technical and economic requirements of providing the wireline telephone network portion of the countywide system for that
territory. The system shall exclude from enhanced 9-1-1 any territory served by a wireline service provider that is not capable
of reasonably meeting the technical and economic requirements of providing the wireline telephone network portion of
enhanced 9-1-1 for that territory. If a 9-1-1 planning committee and a wireline service provider do not agree on whether the
provider is so capable, the planning committee shall notify the steering committee, and the steering committee shall determine
whether the wireline service provider is so capable. The planning committee shall ascertain whether such disagreement exists
before making its implementation proposal under division (A) of section 128.07 of the Revised Code. The steering committee's
determination shall be in the form of an order. No final plan shall require a wireline service provider to provide the wireline
telephone network portion of a 9-1-1 system that the steering committee has determined the provider is not reasonably
capable of providing.
(B) A countywide 9-1-1 system may be a basic or enhanced 9-1-1 system, or a combination of the two, and shall be for the
purpose of providing both wireline 9-1-1 and wireless 9-1-1.
(C) Every emergency service provider that provides emergency service within the territory of a countywide 9-1-1 system shall
participate in the countywide system.
(D)
(1) Each public safety answering point shall be operated by a subdivision or a regional council of governments and shall be
operated constantly.
(2) A subdivision or a regional council of governments that operates a public safety answering point shall pay all of the costs
associated with establishing, equipping, furnishing, operating, and maintaining that facility and shall allocate those costs
among itself and the subdivisions served by the answering point based on the allocation formula in a final plan. The wireline
service provider or other entity that provides or maintains the customer premises equipment shall bill the operating subdivision
or the operating regional council of governments for the cost of providing such equipment, or its maintenance. A wireless
service provider and a subdivision or regional council of governments operating a public safety answering point may enter into
a service agreement for providing wireless enhanced 9-1-1 pursuant to a final plan adopted under this chapter.
(E) Except to the extent provided in a final plan that provides for funding of a 9-1-1 system in part through charges imposed
under section 128.22 of the Revised Code, each subdivision served by a public safety answering point shall pay the
subdivision or regional council of governments that operates the answering point the amount computed in accordance with the
allocation formula set forth in the final plan.
(F) Notwithstanding any other provision of law, the purchase or other acquisition, installation, and maintenance of the
telephone network for a 9-1-1 system and the purchase or other acquisition, installation, and maintenance of customer
premises equipment at a public safety answering point made in compliance with a final plan or an agreement under section
128.09 of the Revised Code, including customer premises equipment used to provide wireless enhanced 9-1-1, are not
subject to any requirement of competitive bidding.
(G) Each emergency service provider participating in a countywide 9-1-1 system shall maintain a telephone number in addition
to 9-1-1.
(H) Whenever a final plan provides for the implementation of basic 9-1-1, the planning committee shall so notify the steering
committee, which shall determine whether the wireline service providers serving the territory covered by the plan are capable
of reasonably meeting the technical and economic requirements of providing the wireline telephone network portion of an
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enhanced 9-1-1 system. The determination shall be made solely for purposes of division (C)(2) of section 128.18 of the
Revised Code.
(I) If the public safety answering point personnel reasonably determine that a 9-1-1 call is not an emergency, the personnel
shall provide the caller with the telephone number of an appropriate subdivision agency as applicable.
(J) A final plan adopted under this chapter, or an agreement under section 128.09 of the Revised Code, may provide that, by
further agreement included in the plan or agreement, the state highway patrol or one or more public safety answering points of
another 9-1-1 system is the public safety answering point or points for the provision of wireline or wireless 9-1-1 for all or part
of the territory of the 9-1-1 system established under the plan or agreement. In that event, the subdivision for which the
wireline or wireless 9-1-1 is provided as named in the agreement shall be deemed the subdivision operating the public safety
answering point or points for purposes of this chapter, except that, for the purpose of division (D)(2) of this section, that
subdivision shall pay only so much of the costs of establishing, equipping, furnishing, operating, or maintaining any such
public safety answering point as are specified in the agreement with the patrol or other system.
(K) A final plan for the provision of wireless enhanced 9-1-1 shall provide that any wireless 9-1-1 calls routed to a state
highway patrol-operated public safety answering point by default, due to a wireless service provider so routing all such calls of
its subscribers without prior permission, are instead to be routed as provided under the plan. Upon the implementation of
countywide wireless enhanced 9-1-1 pursuant to a final plan, the state highway patrol shall cease any functioning as a public
safety answering point providing wireless 9-1-1 within the territory covered by the countywide 9-1-1 system so established,
unless the patrol functions as a public safety answering point providing wireless enhanced 9-1-1 pursuant to an agreement
included in the plan as authorized under division (J) of this section.
Renumbered and amended from § 5507.03 by 130th General Assembly File No. 25, HB 59, §101.01, eff. 9/29/2013.
Renumbered from § 4931.41 and amended by 129th General AssemblyFile No.166,HB 360, §1, eff. 12/20/2012.
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Appendix C—Ohio Code 307.63
307.63 Establishing countywide public safety communications system.
(A) As used in this section, "countywide public safety communications system" means a system of communications facilities,
equipment, and services that helps to provide immediate field exchange of police, fire, and emergency medical services
information between the county and participating states, political subdivisions, and other public entities, without regard to
which jurisdiction holds title to real or personal property used in the system or employs the persons responsible to dispatch
emergency personnel using the system.
(B) A board of county commissioners may establish a countywide public safety communications system. The system shall be
operated in accordance with division (B)(1), (2), or (3) of this section.
(1) In any county with a population of less than seven hundred fifty thousand, the county sheriff shall operate the countywide
public safety communications system unless, before commencing operation of the system, the sheriff gives written notice to
the board of county commissioners that he chooses not to do so. After the board of county commissioners receives such
written notice from the sheriff, the board shall operate the system. Once the sheriff gives notice that he chooses not to operate
the system, neither he nor any person occupying the office of county sheriff in the future may choose to operate the system at
a later date, except as provided in division (B)(3) of this section.
(2) In any county with a population of seven hundred fifty thousand or more, the board of county commissioners shall operate
the system, unless the board and the county sheriff mutually agree that the sheriff will operate the system.
(3) In any county, after the board of county commissioners commences operation of a public safety communications system, if
the board chooses to stop operating the system, the county sheriff may operate the system.
(C) The board of county commissioners may construct, acquire, or contract for communications facilities for the public safety
communications system. In addition, the board may acquire or contract for computers and other equipment in connection with
the system, provide equipment to the users of the system, maintain the facilities and equipment, employ personnel or contract
for personal services, and exercise other powers as necessary to operate the system. The board may adopt policies or rules
for the administration, operation, and maintenance of the system. If the county sheriff is the operator of the system, he may
employ personnel in connection with the operation of the system.
(D) The board of county commissioners may enter into agreements with this state, political subdivisions of this state, an
adjoining state or any of its political subdivisions, or any other public entity concerning the use of the countywide public safety
communications system.
(E) A board of township trustees may enter into an agreement with the board of county commissioners pursuant to division (D)
of this section.
(F) The authority granted to a county sheriff under division (B) of this section to operate a countywide public safety
communications system does not apply in any county where, on and before the effective date of this section, the board of
county commissioners is providing public safety communications facilities to, or coordinating the public safety communications
needs of, municipal corporations, townships, or other entities or officials by means of officials or with employees not under the
direct supervision of the county sheriff. However, if such a board of county commissioners and the county sheriff mutually
agree that the sheriff will operate a countywide public safety communications system, he may operate it.
(G) Nothing in this section requires a county sheriff in a county with a population of less than seven hundred fifty thousand to
use the public safety communications system to dispatch his employees.
Effective Date: 03-15-1993
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Appendix D—HB 360 Analysis
June 2014 | P a g e 73
CORRECTED VERSION*
Ohio Legislative Service Commission
Final Analysis
Maura McClelland
Sub. H.B. 360
129th General Assembly
(As Passed by the General Assembly)
Reps.
Rosenberger, Butler, Murray, Grossman, J. Adams, Ruhl, Gonzales, Combs,
Stautberg, Batchelder
Sens.
Hite, LaRose, Eklund, Gentile, Niehaus, Seitz, Wagoner
Effective date:
Emergency, December 20, 2012
ACT SUMMARY
Transfer of 9-1-1 duties
Transfers, effective December 20, 2012, authority over the 9-1-1 service law to the
Department of Public Safety and the Department of Taxation, with Taxation
responsible for administering the collection of the charges and disbursement of the
funds.
Wireless 9-1-1 charges
Reduces the monthly wireless 9-1-1 charge on wireless service subscribers in Ohio
from 28¢ to 25¢, applies the charge only to nonprepaid wireless service subscribers
in Ohio, and makes the charge permanent.
Eliminates the wireless 9-1-1 charge imposed on prepaid wireless service subscribers
from December 20, 2012, until July 1, 2013.
Prohibits imposing the wireless 9-1-1 charge on a wireless lifeline service provider.
Imposes, effective July 1, 2013, a new wireless 9-1-1 charge on prepaid wireless
service subscribers of 0.5% of the sales price for the service.
Imposes the prepaid wireless 9-1-1 charge at the point of sale, requiring the sellers of
prepaid wireless services to collect the charge.
*
This version corrects typographical errors.
Collection and remittance of wireless 9-1-1 charges
Requires sellers of prepaid wireless services, wireless service providers, and
resellers to remit the prepaid and nonprepaid wireless 9-1-1 charges to the Tax
Commissioner.
Specifies that sellers of prepaid services are subject to sales-tax requirements
regarding audits, assessments, appeals, enforcement, liability, and penalties, and
transfers duties related to audits of providers and resellers of nonprepaid services
from the Public Utilities Commission to the Tax Commissioner.
Requires a seller of prepaid services to file returns for remittances electronically
using the Ohio Business Gateway, the Ohio Telefile System, or any other electronic
means required by the Tax Commissioner, unless excused for good cause shown.
Permits sellers of prepaid services to retain a 3% collection fee before remitting the
prepaid charges.
Requires the Tax Commissioner to provide all known sellers of prepaid services,
wireless service providers, and resellers with notice of any increase or decrease in
the amount of the prepaid or nonprepaid charge.
Disbursements
Limits, on and after July 1, 2013, disbursements to counties from the Wireless 9-1-1
Government Assistance Fund to the level disbursed in 2012.
Requires that the balance of the remittances in the Wireless 9-1-1 Government
Assistance Fund be deposited into the Next Generation 9-1-1 Fund, which is a
custodial fund in the state treasury established by the act.
Requires the Treasurer of State to disburse money to counties from the Next
Generation 9-1-1 Fund only on order of the Tax Commissioner according to policies
established by the Statewide Emergency Services Internet Protocol Network Steering
Committee.
Liability
Excludes providers and sellers of prepaid wireless calling services from civil liability
for activities or omissions with regard to a 9-1-1 system or for providing related
assistance.
Relieves providers of prepaid wireless service from liability to the state for any
prepaid wireless 9-1-1 charge that was not collected or remitted.
Legislative Service Commission
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Sub. H.B. 360
Administration
Modifies the Wireless 9-1-1 Administrative Fund to permit, effective December 20,
2012, the Department of Public Safety and the Department of Taxation to each
receive 1% of the wireless 9-1-1 charges placed in the Fund to cover their costs in
carrying out their duties regarding 9-1-1 service.
Requires the Tax Commissioner and the Director of Public Safety annually to
transfer any excess amounts from the Wireless 9-1-1 Administrative Fund to the
Wireless 9-1-1 Government Assistance Fund, which is the main fund for the deposit
of the wireless 9-1-1 charges.
Replaces the Ohio 9-1-1 Coordinator with a representative of public safety
communications officials, as a member of the Ohio 9-1-1 Council, effective December
20, 2012.
Makes the Director of Public Safety responsible for appointing the Ohio 9-1-1
Coordinator and modifies the powers and duties of the Coordinator.
Grants rule-making authority under the Administrative Procedure Act to the Tax
Commissioner and the Director of Public Safety, to be exercised in consultation with
each other, to carry out Ohio's 9-1-1 service law.
Steering Committee and public safety answering points
Changes the due date of the Steering Committee's initial report to the Speaker of the
House, the President of the Senate, and the Governor, providing recommendations
regarding development of a statewide emergency services network, from
November 15, 2012, to May 15, 2013.
Requires the report recommendations to include a review of the current funding
model for Ohio's 9-1-1 systems and permits the report to include a recommendation
for a reduction in the wireless 9-1-1 charges modified and established by the act.
Requires the report recommendation regarding consolidation of operations of public
safety answering points (PSAPs) in Ohio to also include recommendations for
accelerating the consolidation of PSAP fund usage that the act requires.
Progressively limits the number of PSAPs in each county for which disbursements
from the 9-1-1 charges may be used, ultimately limiting the number to three PSAPs
in 2018 (or four PSAPs if the county includes a municipal corporation with a
population of more than 175,000).
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Sub. H.B. 360
Requires, not later than February 15, 2013, each countywide 9-1-1 planning
committee chair, or designee, to report to the Steering Committee, certain
geographic, demographic, statistical, expenditure, network, and other information,
as required by the Steering Committee.
Provides for the Steering Committee to penalize any county that does not make a
timely report as described above by causing the suspension of disbursements from
the Wireless 9-1-1 Government Assistance Fund.
Requires, not later than January 1, 2014, that the Steering Committee adopt rules
under the Administrative Procedure Act that establish technical and operations
standards for PSAPs eligible to receive disbursements from the Wireless 9-1-1
Government Assistance Fund.
Requires PSAPs to comply with the new Steering Committee standards not later
than two years after the effective date of the rules.
Prohibits disbursements to a countywide 9-1-1 system for PSAP costs from the
Wireless 9-1-1 Government Assistance Fund or the Next Generation 9-1-1 Fund
unless the PSAP complies with the rules establishing the technical and operations
standards.
Requires the Steering Committee to establish guidelines for the Tax Commissioner
to use when disbursing money to counties from the Next Generation 9-1-1 Fund,
which guidelines must be consistent with the PSAP technical and operations
standards and specify for what the funds may be used.
Permits the Auditor of State to audit and review county expenditures of disbursed
funds from the Wireless 9-1-1 Government Assistance Fund to verify the money was
used in accordance with the law.
Wireline 9-1-1 provisions
Requires the Tax Commissioner to determine the just, reasonable, and compensatory
rates that telephone companies may charge for the telephone network portion of a
basic or enhanced 9-1-1 system.
Requires the Department of Public Safety to determine whether a telephone
company is capable of reasonably meeting the technical and economic requirements
of providing the wireline telephone network portion of a countywide 9-1-1 system.
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Sub. H.B. 360
Recodification
Recodifies all Revised Code sections addressing wireline and wireless 9-1-1 to
Chapter 5507. of the Revised Code.
Emergency
Declares an emergency.
Provisions altered by Am. Sub. H.B. 472
Contains numerous provisions that were immediately altered by Am. Sub. H.B. 472
of the 129th General Assembly.
TABLE OF CONTENTS
Note: certain provisions immediately altered by Am. Sub. H.B. 472 .......................................... 6
Transfer of 9-1-1 duties .............................................................................................................. 7
Changes to the 9-1-1 wireless charge ........................................................................................ 7
Requirement imposed on sellers of prepaid services ................................................................. 8
Wireless lifeline service providers .............................................................................................. 9
Remittance of charges ............................................................................................................... 9
Remittance by prepaid sellers ................................................................................................ 9
Remittance by providers and resellers of nonprepaid wireless services ................................10
Transfers to funds by the Department of Taxation .................................................................11
Notice requirement for change in the wireless – charge amount ...............................................11
Funding for administrative costs ................................................................................................12
Funding for the Departments of Taxation and Public Safety ..................................................12
Transfer of excess administrative funds ................................................................................12
Disbursement of charges ..........................................................................................................12
Disbursements from the Wireless 9-1-1 Government Assistance Fund .................................12
Administration ...................................................................................................................12
Level of disbursements .....................................................................................................13
Disbursements conditional on meeting committee standards ............................................13
Limitations on how many answering points may use disbursements .................................13
Audit and review of county expenditures ...........................................................................14
Removal of limitation for costs incurred before March 2, 2009 ..........................................14
Certification of amount in fund ...........................................................................................14
Disbursements from the Next Generation 9-1-1 Fund ...........................................................14
Creation of the fund ...........................................................................................................14
Funding source .................................................................................................................15
Administration ...................................................................................................................15
Disbursements conditional on meeting committee standards ............................................15
9-1-1 Service Program and Ohio 9-1-1 Coordinator ..................................................................15
Statewide Emergency Services Internet Protocol Network Steering Committee ........................16
Report to General Assembly leadership and the Governor ....................................................16
Recommendations for accelerating the consolidation schedule.............................................16
County report requirement ........................................................................................................16
General wireless 9-1-1 reporting requirement ...........................................................................17
Liability limitations .....................................................................................................................17
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Sub. H.B. 360
Rule-making authority ...............................................................................................................18
Wireless 9-1-1 Advisory Board ..................................................................................................18
Ohio 9-1-1 Council ....................................................................................................................18
Rates for the wireline 9-1-1 network ..........................................................................................19
Additional duties given to the Department of Public Safety .......................................................19
Determinations regarding wireline 9-1-1 service ....................................................................19
Assistance regarding monthly charges on telephone access lines ........................................19
Jurisdiction regarding disclosure of certain information .........................................................20
Attorney General proceedings...................................................................................................20
Emergency clause ....................................................................................................................20
Repeal of report requirement ....................................................................................................21
Recodification and related changes ..........................................................................................21
Corrective change .....................................................................................................................21
CONTENT AND OPERATION
Note: certain provisions immediately altered by Am. Sub. H.B. 472
Numerous provisions of this act were immediately altered by Am. Sub. H.B. 472,
which was an emergency measure that took effect on the same day as this act
(December 20, 2012). Still, this analysis examines only the changes made by this act.
Alterations made by Am. Sub. H.B. 472 include the following:
Requires continuous imposition of the monthly wireless 9-1-1 charge on prepaid
subscribers.
Delays some administrative duties of the Tax Commissioner until 2014, and requires
that certain duties remain with the Public Utilities Commission (PUCO) until then.
Maintains the requirement that the PUCO determine the rates for the wireline
telephone network portion of a 9-1-1 system.
Terminates the 9-1-1 Service Program and the position of the Ohio 9-1-1
Coordinator, effective January 1, 2014.
Modifies the membership of the Ohio 9-1-1 Council.
Alters provisions governing remittance of the wireless 9-1-1 charges to the Tax
Commissioner, as well as the related audit and assessment provisions.
Alters liability provisions.
Changes requirements for how disbursements must be made.
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Sub. H.B. 360
Changes requirements for how disbursements from the Next Generation 9-1-1 Fund
may be used.
Limits the number of public safety answering points that may use disbursements
from the Next Generation 9-1-1 Fund.
Requires the Department of Public Safety to monitor compliance with technical and
operation standards for public safety answering points set by rule of the Statewide
Emergency Services Internet Protocol Network Steering Committee.
Changes the administrative-funding provisions for the Departments of Taxation and
Public Safety.
Appropriates $1,174,000 from the General Revenue Fund to the Department of
Taxation for operating expenses, effective December 20, 2012.
Changes the rule-making provisions.
Corrects certain errors in Sub. H.B. 360.
The final analysis for Am. Sub. H.B. 472 provides a full explanation of those
alterations.
Transfer of 9-1-1 duties
The act transfers administrative duties regarding the 9-1-1 service law from the
PUCO to the Department of Public Safety and the Department of Taxation. Under the
act, this transfer generally takes effect on December 20, 2012. The act gives the
Department of Taxation most of the authority with regard to collection and
disbursement of the wireless 9-1-1 charges.1
Changes to the 9-1-1 wireless charge
This act changes the method of collection of the wireless 9-1-1 charge on prepaid
wireless subscribers by requiring sellers of prepaid wireless services to collect the
charge at the point of sale, rather than requiring collection by prepaid providers or
resellers. Under prior law, there was one wireless 9-1-1 charge, imposed on all wireless
subscribers (including prepaid) with Ohio billing addresses, at 28¢ per month, and
collected by wireless service providers or resellers. The act creates a distinction
between the prepaid charge and the nonprepaid charge. The act also changes the
amounts of the charges, making the prepaid charge 0.5% of the sale price of the prepaid
services, and decreasing the nonprepaid charge to 25¢ per month.
1
R.C. Chapter 5507., R.C. 5733.55, and Section 3 of the act.
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Sub. H.B. 360
The act's prepaid charge does not take effect until July 1, 2013. The act
terminates the prior-law charge as to prepaid subscribers effective December 20, 2012,
so that no wireless 9-1-1 charge is to be imposed on prepaid subscribers during the
interim period. The act also makes both charges — the prepaid charge and the
nonprepaid charge — permanent. Under prior law, the wireless 9-1-1 charge was
required to expire at the end of 2012.2
Requirement imposed on sellers of prepaid services
The act requires the seller of a "prepaid wireless calling service" to collect the
prepaid wireless 9-1-1 charge (which takes effect July 1, 2013) from the consumer at the
time of each retail sale.3 A "prepaid wireless calling service" is defined as a
telecommunications service that provides the right to utilize mobile
telecommunications service as well as other non-telecommunications services,
including the download of digital products delivered electronically, and content and
ancillary services, that must be paid for in advance and that is sold in predetermined
units of dollars of which the number declines with use in a known amount. 4 The seller
must collect the charge at the time of the retail sale and itemize the charge on the
receipt, invoice, or similar form of written documentation. 5 The act gives "retail sale"
the same meaning as in the sales-tax law, which includes all sales, except those in which
the purpose of the consumer is to resell the thing transferred or benefit of the service
provided, by a person engaging in business, in the form in which the same is, or is to be,
received by the person.6
The act contains specific provisions for when a prepaid wireless calling service is
sold with one or more other products or services for a single, nonitemized price, such as
when a prepaid mobile phone is sold with free minutes upon activation. In this case,
the act requires the prepaid charge to be imposed on the entire sale price, with the
following exceptions:
The seller may impose the charge on only the dollar amount of the
prepaid wireless calling service if that amount is disclosed to the
consumer.
2
R.C. 5507.42 and Section 3 of the act; R.C. 4931.61 under prior law.
3
R.C. 5507.42.
4
R.C. 5507.01(X); R.C. 5739.01(AA)(5) (not in the act).
5
R.C. 5507.42(B)(3).
6
R.C. 5507.01(Z); R.C. 5739.01(E) (not in the act).
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Sub. H.B. 360
The seller may impose the charge only on the portion of the price
attributed to the prepaid wireless calling service if the seller can identify
that portion by reasonable and verifiable standards.
The seller is permitted not to collect the charge at all if the amount of the
prepaid wireless calling service is ten minutes or less or $5 or less.7
The act specifies that a retail sale occurs in Ohio if it is effected by the consumer
appearing at a seller's business location in Ohio. The act also permits sales to be
sourced in the same manner as for sales tax purposes, except that the seller may elect to
source the sale to the location associated with the mobile phone number.8
Prior law required wireless service providers or resellers to collect the wireless
9-1-1 charge from prepaid subscribers in one of the following manners:
at the point of sale, such as when a subscriber purchases additional
minutes;
by reducing a subscriber's positive account balance at the beginning of a
month; or
by taking the amount due out of the provider's or reseller's earned
prepaid revenue.9
Wireless lifeline service providers
The act prohibits "the wireless 9-1-1 charge" from being imposed on a wireless
lifeline service provider. But, continuing law describes the nonprepaid charge as being
imposed on the wireless subscribers, and not the providers. The prepaid charge is
described as being imposed on each retail sale of a prepaid wireless calling service. 10
Remittance of charges
Remittance by prepaid sellers
The act requires sellers of prepaid services to, by the 23rd of each month, make
and file a return showing the amount of prepaid charges collected in the previous
month, and remit the full amount due to the Department of Taxation. Sellers may
7
R.C. 5507.42(B)(4).
8
R.C. 5507.42(B)(2).
9
R.C. 4931.61(A) under prior law.
10
R.C. 5507.42.
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Sub. H.B. 360
retain a collection fee of 3% of the total charges collected and must account for the
retained amount to the Tax Commissioner. The Tax Commissioner may authorize a
seller to make and file returns less frequently if collected charges do not merit monthly
returns, based on administrative costs to the state.
The return must be filed electronically using the Ohio Business Gateway, the
Ohio Telefile System, or any other electronic means prescribed by the Tax
Commissioner, unless the Commissioner excuses a seller, for good cause shown, from
the electronic-filing requirement. Payment must be made electronically (unless the
seller is excused for good cause shown) in a manner approved by the Tax
Commissioner. The Tax Commissioner may extend the time for making and filing
returns and paying amounts due. The act also permits the Tax Commissioner to require
that the return for the last month of any annual or semiannual period be a reconciliation
return detailing the prepaid charges collected during the preceding annual or
semiannual period. The act would require the reconciliation return to be filed by the
last day of the month following the last month of the annual or semiannual period.11
Under prior law, the wireless 9-1-1 charges were required to be remitted directly
to the Ohio 9-1-1 Coordinator, within the PUCO, on a monthly basis.12
The act specifies that sellers (beginning July 1, 2013) are subject to the sales-tax
requirements, as those requirements apply to audits, assessments, appeals,
enforcement, liability, and penalties. The act requires the Tax Commissioner to
establish procedures by which a person may document that a sale is not a retail sale
subject to the act's requirements. These procedures must substantially coincide with
similar sales-tax procedures.13
Remittance by providers and resellers of nonprepaid wireless services
The act requires that providers and resellers of nonprepaid wireless services
remit collected nonprepaid wireless charges to the Tax Commissioner, beginning
December 20, 2012.14 Under prior law, providers and resellers were required to remit
collected wireless charges to the Ohio 9-1-1 Coordinator.15 Similarly, the act permits the
Tax Commissioner, rather than the PUCO, to audit providers and resellers for failure to
bill, collect, or remit charges. The act also permits the Tax Commissioner to assess
11
R.C. 5507.46(B) and (C).
12
R.C. 4931.62(A) under prior law.
13
R.C. 5507.52.
14
R.C. 5507.46(A) and Section 3 of the act.
15
R.C. 4931.62 under prior law.
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Sub. H.B. 360
providers or resellers for determined failures to bill, collect, or remit charges. The
assessment provisions remain the same as under prior law, which had placed the
assessment authority with the PUCO.16
Transfers to funds by the Department of Taxation
Beginning July 1, 2013, the Department of Taxation is required to transfer the
remitted wireless 9-1-1 charges directly to the appropriate funds. Specifically, the
Department must, within 45 days after the end of each month, transfer 1% of the
remitted charges to the Wireless 9-1-1 Administrative Fund in the state treasury, which
funds state-government costs of administering the 9-1-1 service law (see "Funding for
administrative costs," below). Within the same 45-day time period, the Department
must transfer the remaining amount to the Wireless 9-1-1 Government Assistance Fund
(a custodial fund of the State Treasurer), which funds local costs of providing wireless
9-1-1 service.17 Monthly disbursements are made from this fund to counties that have
adopted final plans for wireless enhanced 9-1-1 systems. The act requires the
Department, immediately upon completion of the transfer, to certify to the Director of
Public Safety the amounts transferred to the Wireless 9-1-1 Government Assistance
Fund.18
Under prior law, up to 2% of the remitted wireless 9-1-1 charges were required to
go to the Wireless 9-1-1 Administrative Fund, which funded the PUCO's administrative
costs, and the remainder was required to be deposited into the Wireless 9-1-1
Government Assistance Fund.19
Notice requirement for change in the wireless – charge amount
The act requires the Tax Commissioner, beginning July 1, 2013, to give all known
sellers of prepaid wireless calling services, wireless service providers, and wireless
service resellers notice of any increase or decrease in either of the wireless 9-1-1 charges,
at least 30 days before the increase or decrease would take effect.20
16
R.C. 5507.46(E).
17
R.C. 5507.51.
18
R.C. 5507.51(B) and 5507.55.
19
R.C. 4931.63 under prior law.
20
R.C. 5507.44.
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Sub. H.B. 360
Funding for administrative costs
Funding for the Departments of Taxation and Public Safety
As stated above, the act requires the Department of Taxation to transfer 1% of the
remitted wireless 9-1-1 charges to the Wireless 9-1-1 Administrative Fund. It also states
that the fund is to be used for defraying the Department's administrative costs.21 In
another provision, the act requires that periodic remittances of the charges be deposited
to the credit of the fund and used as follows: 1% by the Department of Taxation for its
administrative costs and another 1% by the Department of Public Safety for its
administrative costs.22
Transfer of excess administrative funds
The act requires the Tax Commissioner and the Director of Public Safety to
annually transfer any excess remaining in the Wireless 9-1-1 Administrative Fund to the
Wireless 9-1-1 Government Assistance Fund.23
Disbursement of charges
Disbursements from the Wireless 9-1-1 Government Assistance Fund
Administration
The act requires the Tax Commissioner, rather than the Ohio 9-1-1 Coordinator,
to make the disbursements to counties from the Wireless 9-1-1 Government Assistance
Fund and to administer the fund. Similarly, the act requires the Tax Commissioner,
rather than the Ohio 9-1-1 Coordinator, to receive certifications that a subdivision or
regional council of governments has paid the basic costs for which disbursements from
the fund may be used for. After this certification is made, the subdivision or council
may use disbursements from the fund to pay personnel costs of public safety answering
points providing countywide wireless enhanced 9-1-1 service. Under the act, these
changes are effective December 20, 2012.24
21
R.C. 5507.51(A).
22
R.C. 5507.53(A).
23
R.C. 5507.53(A)(3).
24
R.C. 5507.40, 5507.53(B), 5507.55, and 5507.57(B) and (C) and Section 3 of the act; R.C. 4931.60,
4931.63(B), 4931.64 and 4931.65(B) and (C) under prior law.
-12-
Sub. H.B. 360
Level of disbursements
The act requires, beginning July 1, 2013, that disbursements from the Wireless
9-1-1 Government Assistance Fund remain at the level disbursed in 2012.25
Disbursements conditional on meeting committee standards
The act prohibits disbursements from the Wireless 9-1-1 Government Assistance
Fund unless "the public safety answering point" meets the standards set by rule of the
Statewide Emergency Services Internet Protocol Network Steering Committee. This
provision of the act refers to the creation statute of the Committee, which does not
expressly provide for the adoption of any standards. 26 However, another statute
requires the Committee to adopt rules by 2014, in accordance with the Administrative
Procedure Act, that establish technical and operational standards for public safety
answering points eligible to receive disbursements from the Wireless 9-1-1 Government
Assistance Fund. The rules must incorporate industry standards and best practices for
wireless 9-1-1 services. The act requires that public safety answering points comply
with the standards not later than two years after the effective date of the rules.27
Limitations on how many answering points may use disbursements
The act progressively limits the number of public safety answering points within
a 9-1-1 system that may use disbursements from the Wireless 9-1-1 Government
Assistance Fund to pay allowable costs, as follows:
Years
Maximum number of answering points that
may use disbursements per calendar year
Before 2016
Five
2016 and 2017
Four*
2018 and subsequent years
Three*
* If there is a municipal corporation with a population over 175,000, that county
may use disbursements for one public safety answering point in addition to the
maximum permitted for that period.
If a county exceeds the maximum number, disbursements to the county from the
Wireless 9-1-1 Government Assistance Fund and the Next Generation 9-1-1 Fund (see
25
R.C. 5507.55(F).
26
R.C. 5507.02 and 5507.57(E).
27
R.C. 5507.021.
-13-
Sub. H.B. 360
"Disbursements from the Next Generation 9-1-1 Fund," below) are required to be
reduced by 50% until the county complies with the limitations.
Prior law stated that payment of allowable costs (payable from a disbursement
from the Wireless 9-1-1 Government Assistance Fund) was limited to those costs for not
more than five public safety answering points.28
Audit and review of county expenditures
The act permits the Auditor of State to audit and review each county's
expenditures of funds received from the Wireless 9-1-1 Government Assistance Fund to
verify that the funds were used in accordance with the requirements of the 9-1-1 service
law.29
Removal of limitation for costs incurred before March 2, 2009
The act removes a provision that appears to have prohibited counties from using
disbursements from the Wireless 9-1-1 Government Assistance Fund to pay costs
incurred before March 2, 2009.30
Certification of amount in fund
The act requires that the Treasurer of State annually certify to the Department of
Public Safety and the Tax Commissioner, rather than the Ohio 9-1-1 Coordinator, the
amount of money in the Wireless 9-1-1 Government Assistance Fund, until the fund is
depleted.31
Disbursements from the Next Generation 9-1-1 Fund
Creation of the fund
The act creates the Next Generation 9-1-1 Fund as a custodial fund of the State
Treasurer. It retains the interest earned.32
28
R.C. 5507.571; R.C. 4931.651 under prior law.
29
R.C. 5507.57(F).
30
R.C. 5507.571(A).
31
R.C. 5507.53(B).
32
R.C. 5507.53(C).
-14-
Sub. H.B. 360
Funding source
The act requires that after the disbursements are made from the Wireless 9-1-1
Government Assistance Fund, any funds remaining in that fund must be deposited to
the credit of the Next Generation 9-1-1 Fund.33
Administration
The act requires the Treasurer of State to disburse money from the Next
Generation 9-1-1 Fund solely upon order of the Tax Commissioner according to
"policies" established by the Statewide Emergency Services Internet Protocol Network
Steering Committee.34 In a separate provision, the act requires the Committee to
establish guidelines for the Tax Commissioner to use when disbursing money from the
fund to countywide 9-1-1 systems. The guidelines must be consistent with the technical
and operational standards adopted by the Committee for public safety answering
points (see "Disbursements conditional on meeting committee standards," above).
The guidelines must also specify that disbursements may be used for costs associated
with the operation of and equipment for phase II wireless systems and for costs
associated with a county's migration to next generation 9-1-1 systems and technology.35
Annually, until the fund is depleted, the Treasurer of State is required to certify
to the Tax Commissioner the amount of moneys in the fund.36
Disbursements conditional on meeting committee standards
The act prohibits disbursements from the Next Generation 9-1-1 Fund (in
addition to disbursements from the Wireless 9-1-1 Government Assistance Fund) unless
"the public safety answering point" meets the standards set by rule of the Statewide
Emergency Services Internet Protocol Network Steering Committee.37 (See
"Disbursements conditional on meeting committee standards," above under
"Disbursements from the Wireless 9-1-1 Government Assistance Fund.")
9-1-1 Service Program and Ohio 9-1-1 Coordinator
The act places the 9-1-1 Service Program (which does not have any express
statutory functions or purposes) in the Department of Public Safety, rather than in the
33
R.C. 5507.53(C) and 5507.55(F).
34
R.C. 5507.53(C).
35
R.C. 5507.022.
36
R.C. 5507.53(C).
37
R.C. 5507.57(E).
-15-
Sub. H.B. 360
PUCO. The act also makes the Director of Public Safety head of the Program, in
consultation with the Ohio 9-1-1 Coordinator. Under prior law, the Ohio 9-1-1
Coordinator was head of the program. The act requires the Director to appoint the
Coordinator, and likewise requires the Director to fix the Coordinator's salary, evaluate
the Coordinator's performance, establish additional duties of the Coordinator, and
assign Department employees to assist the Coordinator. Under prior law, the
appointment and these other functions were duties of the Chairperson of the PUCO.
The act requires the Director of Public Safety to appoint an interim Coordinator
on December 20, 2012.38
Statewide Emergency
Committee
Services
Internet
Protocol
Network
Steering
Report to General Assembly leadership and the Governor
The act clarifies that the report of the Statewide Emergency Services Internet
Protocol Network Steering Committee, which was required under prior law, must
provide recommendations that include a review of the current funding model for
Ohio's 9-1-1 systems. The act also specifies that the Committee may recommend in the
report a reduction in wireless 9-1-1 charges. The report is to be delivered to the Speaker
of the House of Representatives, the President of the Senate, and the Governor. The act
also delays the report deadline from November 15, 2012, to May 15, 2013.39
Recommendations for accelerating the consolidation schedule
The act requires the Committee to make recommendations for accelerating the
consolidation schedule for the number of public safety answering points that may use
disbursements from the Wireless 9-1-1 Government Assistance Fund.40 (See
"Limitations on how many answering points may use disbursements," above.)
County report requirement
The act requires each chairperson of a countywide 9-1-1 planning committee (or
the chairperson's designee) to report information to the Statewide Emergency Services
Internet Protocol Network Steering Committee. The report is due February 15, 2013. It
must include:
38
R.C. 5507.40 and Section 3 of the act; R.C. 4931.60 under prior law.
39
R.C. 5507.02(C)(1).
40
R.C. 5507.02(C)(4).
-16-
Sub. H.B. 360
the geographic location and population of the area for which the planning
committee is responsible;
statistics detailing the number of 9-1-1 calls received;
a report of expenditures made from disbursements from the Wireless
9-1-1 Government Assistance Fund;
an inventory of and the technical specifications for the current 9-1-1
network and equipment;
any other information requested by the Steering Committee.
For the second and third items, the act does not specify for what time period (if any) the
information is required.
If a planning committee fails to provide the report by the due date, the Steering
Committee must notify the Tax Commissioner. The Tax Commissioner must then
suspend disbursements from the Wireless 9-1-1 Government Assistance Fund to that
county. Disbursements are to resume after the required information is received and the
Tax Commissioner is notified.41
General wireless 9-1-1 reporting requirement
The act requires that the Director of Public Safety and the Tax Commissioner,
rather than the Ohio 9-1-1 Coordinator, be provided information that they may request
for the purposes of carrying out their duties under the 9-1-1 service law. The entities
subject to this requirement are telephone companies, the State Highway Patrol, and
each subdivision or regional council of governments operating one or more public
safety answering points for a countywide system providing wireless 9-1-1.
Consequently, the act prohibits the Director and the Tax Commissioner (rather
than the PUCO and the Coordinator), and any official, employee, agent, or
representative, from disclosing information regarding a telephone company's
customers, revenues, expenses, or network information.42
Liability limitations
The act specifies that except for willful or wanton misconduct, a provider of and
a seller of a prepaid wireless calling service and their respective officers, directors,
41
R.C. 5507.02(D).
42
R.C. 5507.60(A)(1) and (B)(2); R.C. 4931.66(A)(1) and (B)(2) under prior law.
-17-
Sub. H.B. 360
employees, agents, and suppliers are not liable in civil damages resulting from
participation in or acts or omissions in connection with participating in or developing,
maintaining, or operating a 9-1-1 system, or from the provision of assistance to a public
utility, municipal utility, or state or local government during a public emergency or
service outage.43
The act specifies that no provider of a prepaid wireless calling service is liable to
the state for any prepaid charges not collected or remitted.44 It defines a provider of a
prepaid wireless calling service as a wireless service provider that provides a prepaid
wireless calling service.45
Rule-making authority
The act requires the Tax Commissioner and the Director of Public Safety, after
consulting each other, to adopt rules under the Administrative Procedure Act to carry
out the act's provisions regarding wireless 9-1-1 charge collection, remittance, and
disbursements, and the 9-1-1 Service Program.46
Wireless 9-1-1 Advisory Board
The act requires the Director of Public Safety, rather than the Ohio 9-1-1
Coordinator, to appoint the chairperson of the Wireless 9-1-1 Advisory Board. The
Board is required to consult with and make recommendations to the Director (rather
than the PUCO and the 9-1-1 Coordinator as required under prior law) regarding rules
to be adopted.47
Ohio 9-1-1 Council
The act replaces the Ohio 9-1-1 Coordinator, as a member of the Ohio 9-1-1
Council, with a representative of public safety communications officials in Ohio,
appointed by the Governor. The act also permits the Director of Public Safety to serve
as a Council member. Prior law required only a designee of the Director to serve; the
act changes this provision to require, as a member, the Director or the Director's
designee.
43
R.C. 5507.32.
44
R.C. 5507.46(D).
45
R.C. 5507.01(Y).
46
R.C. 5507.63.
47
-18-
Sub. H.B. 360
Under continuing law, duties of the Council include arbitrating or establishing
technical and operational standards for Ohio's 9-1-1 systems, doing research and
making recommendations, and nominating candidates for the position of the Ohio 9-1-1
Coordinator. The act changes a reference to the Council's duties from "all of the
following" to "both of the following." But the number of duties remains unchanged.48
Rates for the wireline 9-1-1 network
The act requires the Tax Commissioner, rather than the PUCO, to determine the
rates, tolls, classifications, charges, or rentals to be observed and charged for the
wireline telephone network portion of a 9-1-1 system. Relatedly, the act removes
provisions requiring that those rates be determined in accordance with law governing
the PUCO and public utilities. The act also removes a provision specifying that wireline
telephone companies are subject to that law, to the extent that it applies, as to the
service provided by the 9-1-1 wireline network and as to the rates, tolls, classifications,
charges, or rentals.49 The act also removes a requirement that telephone companies
must file schedules of their wireline 9-1-1 rates with the PUCO.50 But continuing law
refers to those schedules.51
Additional duties given to the Department of Public Safety
Determinations regarding wireline 9-1-1 service
The act requires the Department of Public Safety, rather than the PUCO, to make
determinations as to whether wireline telephone companies are capable of providing a
county's wireline telephone network portion of a 9-1-1 system, and to make related
determinations.52
Assistance regarding monthly charges on telephone access lines
The act permits counties to seek the assistance of the Department of Public
Safety, rather than the PUCO, in complying with requirements for the use of money
raised from monthly charges on telephone access lines. These charges are permitted
48
49
R.C. 5507.18(A); conforming change in 5733.55(A)(2); R.C. 4931.47 under prior law.
50
R.C. 4905.30; conforming change in R.C. 5507.32(C)(1).
51
R.C. 5507.18(B).
52
R.C. 5507.03(A)(2) and (H), 5507.07(C), and 5507.09(C); conforming change in R.C. 5507.18(C)(2)(b); R.C.
4931.42(A)(2) and (H), 4931.43(C), and R.C. 4931.48(C) under prior law.
-19-
Sub. H.B. 360
under continuing law in certain circumstances to establish and maintain a limited
number of public safety answering points.53
Jurisdiction regarding disclosure of certain information
The act replaces the PUCO with the Department of Public Safety as the agency
having jurisdiction over the charge, terms, and conditions for the disclosure or use of
certain confidential data in two exceptional situations. Continuing law prohibits, with
certain exceptions, the disclosure or use of any information concerning telephone
numbers, addresses, or names obtained from the database that serves the public safety
answering point of a 9-1-1 system. The two exceptions modified by the act are:
in times of public emergency or service outage when a wireline telephone
company gives access to a database to a public utility or municipal utility
handling customer calls; and
in warning of a public emergency when a wireline telephone company
gives access to a database to a state and local government.
The act also replaces the PUCO with the Department of Public Safety as the
agency that makes the determination of "in warning of a public emergency."54
Attorney General proceedings
The act permits the Department of Public Safety or the Tax Commissioner, rather
than the PUCO, to request that the Attorney General begin proceedings against a
wireline telephone company to enforce compliance with the wireless 9-1-1 service law
or with a county's plan for its 9-1-1 system or of an agreement between the company
and a municipal corporation or township as to wireline or wireless 9-1-1.55
Emergency clause
The act declares an emergency and therefore became effective immediately
(December 20, 2012) and is exempt from the referendum.56
53
R.C. 5507.25 and R.C. 5507.26; R.C. 4931.52 and 4931.53 under prior law.
54
R.C. 5507.32(G); R.C. 4931.49(G) under prior law.
55
R.C. 5507.34(A); R.C. 4931.50(A) under prior law.
56
Section 3 of the act.
-20-
Sub. H.B. 360
Repeal of report requirement
The act repeals an expired requirement that the Ohio 9-1-1 Coordinator submit a
report to the General Assembly regarding wireless 9-1-1 in Ohio.57
Recodification and related changes
Due to the transfer of administrative duties regarding the 9-1-1 service law from
the PUCO to the Department of Public Safety, the act recodifies the 9-1-1 service law in
Chapter 5507. of the Revised Code.58 It also makes a related recodification of a statute
within the chapter that formerly contained the 9-1-1 service law. That recodified statute
addresses unsolicited facsimile transmissions.59 Finally, the act removes references to
the 9-1-1 service law in statutes addressing the PUCO's authority.60
Corrective change
The act corrects a reference to a statute establishing regional authority for
emergency management.61
HISTORY
ACTION
DATE
Introduced
Reported, H. Public Utilities
Passed House (96-0)
Reported, S. Energy & Public Utilities
Passed Senate (28-5)
House concurred in Senate amendments (88-4)
11-01-11
03-28-12
05-15-12
12-05-12
12-05-12
12-11-12
12-HB360-corrected-129.docx/emr
57
R.C. 4931.70 (repealed); conforming changes in R.C. 167.03, 4927.03, 4927.15, 5507.01, 5507.03, 5507.08.
5507.32, 5507.34, 5507.40, 5507.53, 5507.55, 5507.57, 5507.60, 5507.63, and 5507.66.
58
R.C. Chapter 5507.; conforming changes in R.C. 167.03, 2913.01, 4742.01, 4931.99(A), 5705.19, and
5733.55.
59
R.C. 4931.10 (formerly R.C. 4931.75); conforming changes in R.C. 2307.64(A)(1), 4931.99(B), and
5507.99(D).
60
R.C. 4927.03(B)(1)(a) and 4927.15(A).
61
R.C. 3745.13(A).
-21-
Sub. H.B. 360
REPORT FOR
PREPARED FOR
Appendix E—Acronyms
Acronym
Definition
ACN
ALI
Automatic Crash Notification
Automatic Location Identification
ANI
ANSI
Automatic Number Identification
American National Standards Institute
APCO
AVL
Association of Public-Safety Communications Officials
CAD
CALEA
CEMP
CPE
CPR
DHS
E9-1-1
EMD
EMS
EMAC
EMPG
FCC
FEMA
IAFC
ICMA
ICS
MIS
MPSCS
NCIC
NENA
NFPA
NG9-1-1
NIMS
NIOSH
NPGP
QA/QC
RMS
UHF
Automatic Vehicle Location
Computer Aided Dispatch
Commission on Accreditation for Law Enforcement Agencies
Comprehensive Emergency Management Plan
Customer Premise Equipment
Cardiopulmonary Resuscitation
Department of Homeland Security
Enhanced 9-1-1
Emergency Medical Dispatch
Emergency Medical Services
Emergency Management Assistance Compact
Emergency Management Performance Grants
Federal Communications Commission
Federal Emergency Management Agency
International Association of Fire Chiefs
International City/County Management Association
Incident Command System
Management Information System
Michigan Public Safety Communication System (State Police Radio System)
National Crime Information Center
National Emergency Number Association
National Fire Protection Association
Next Generation 9-1-1
National Incident Management System
National Institute for Occupational Safety and Health
National Preparedness Grant Program
Quality Assurance and Quality Control
Records Management System
Ultra-high Frequency
June 2014 | P a g e 97
REPORT FOR
PREPARED FOR
UPS
VHF
Universal Power Supply
Very-high Frequency
June 2014 | P a g e 98

Mutual Public Safety Dispatching

Transcription

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