Pennsylvania Next Generation 9-1-1 Issues Today and Tomorrow Governance, Regulation and Funding

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Pennsylvania Next Generation 9-1-1Issues Today
and TomorrowGovernance, Regulation and Funding

• David Holl
• Deputy Director for Operations
• Pennsylvania Emergency Management Agency
• dholl_at_pa.gov
• 717-651-2231

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• Commonwealth of PA Overview

Population 12,895,393 Land Area 46,055
square miles Counties 67 Miles 170 north to
south 283 east to west
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• Regulation PA Act 78

• PENNSYLVANIA CONSOLIDATED STATUTES
• TITLE 35. HEALTH AND SAFETY
• PART III. PUBLIC SAFETY
• CHAPTER 53. EMERGENCY TELEPHONE SERVICE
• 5303. Telecommunications management.
• (a) Powers and duties of agency. --The agency
  shall have the following powers and duties
• (1) To adopt rules and regulations pursuant to
  this chapter and promulgate, adopt, publish and
  use guidelines for the implementation of this
  chapter. Rules, regulations and guidelines
  proposed under the authority of this section
  shall be subject to review by the General Counsel
  and the Attorney General in the manner provided
  for the review of proposed rules and regulations
  pursuant to the act of October 15, 1980 (P.L.
  950, No.164), known as the Commonwealth Attorneys
  Act, and the act of June 25, 1982 (P.L.633,
  No.181), known as the Regulatory Review Act.

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9-1-1 Program Summary

• Over 80 million 9-1-1 calls made in
• the commonwealth in the past 10 years
• 8,850,159 total calls to PSAPs in 2013
• Wireless calls since 2007 have increased
• from 45 to almost 70 in 2013
• Wireline calls, conversely, have
• decreased from around 55
• to around 30 during that
• same period

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• 2011 PSAP Environment

• Stove-piped, proprietary, independent 9-1-1
  systems operating in silos
• 69 Public Safety Answering Points (PSAPs), (67
  counties and 2 cities) with limited/no ability to
  share public safety data, radio, and call
  processing information, or ability to transfer
  callers. Multiple platforms with legacy
  architecture limiting access and situational
  awareness for first responders
• Rising Costs of Infrastructure and Operations
  with Simultaneous Reductions in Funding,
  particularly impacted by a steady annual decline
  in wireline funds
• A path forward to NG9-1-1 was needed

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Pennsylvania NG9-1-1 Roadmap
NG 9-1-1
Vision Statewide Development of Regional
Interconnected Systems
ESInet Deployment
GIS / Data ECRF
Security
Applications
Telephony

• Deployed locally and operated regionally,
  according to statewide enterprisestandards
• Integrated technology supporting multiple PSAPs
• Based upon NENA i3 standards

• Statewide GIS repository created to serve as the
  Emergency Call Routing Function (ECRF)
• ECRF data function created
• Based upon NENA i3 standards

• Security plan implemented and deployed at
  enterprise and regional levels
• CSRIC best practices and NGSEC standard
  integrated into state plan
• Based upon NENA i3 standards

• Enterprise telephony systems created within
  regions
• Shared telephony systems between regions
• Based upon VoIP standards

• Common Interoperable NG9-1-1 applications
• Integrated within the Core of the NG9-1-1
  solution
• Based upon NENA i3 standards

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• Emergency Services IP Network (ESInet)

• Needed to design and develop an Internet Protocol
  (IP) Network (ESInet) at the regional and state
  (enterprise) levels dedicated to support public
  safety service applications and NG9-1-1
  interconnectivity based upon the roadmap a
  System of Systems ESInet for the Commonwealth
• Needed to leverage existing as well as planned
  systems currently operating as patchwork stove-
  pipes and independent silos mentioned earlier
• Needed to start with a pilot and then incentivize
  early adopters

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• ENHANCED 9-1-1 Federal Grant Pilot

• ENHANCED 9-1-1 Grant Project administered by the
  National Highway Traffic Safety Administration
  (NHTSA) scope
• 2.475 million in grant funds with a 50 match
  from multiple county wireless and wireline funds
• Commitment to complete by grant expiration
  September 2012
• GOAL Deploy an interoperable, multi-county/region
  al network in an operational environment as an
  ESInet in order to
• Fully comply with the ENHANCED 9-1-1 grant
  application
• Implement a Public Safety-Grade ESInet supporting
  multiple applications and agencies enabling cost
  efficiencies, network sharing, and data
  interoperability
• Develop a sustainable funding model beyond the
  grant period

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• Region 13 ESInet Broadband System

• Originally 8 PSAPs developed into 14 PSAPs
  currently participating in the project
• Tie into contiguous regional and state system
  of systems enterprise networks at strategic
  points
• Regional fiber/microwave ESInet supports multiple
  NG9-1-1 applications - including the WestCORE
  telephony and CPE applications

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• Created WestCORE CPE Application

WestCORE CPE Project 12 PSAPs
originally participating now 13

• Benefits / Opportunities
• Replace end-of-life CPE with an IP-enabled,
  NG9-1-1 capable CPE
• Reduced number of CPE switches from 13 to 3
• Enable disaster recovery and continuity of
  operations
• Share recurring costs across multiple funding
  sources
• 9-1-1 Surcharges
• DHS Grants
• County Funds

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• WestCORE Regional Approach

• Use the ESInet to create a Host / Remote CPE
  solution regionally and/or statewide
• Cost of CPE replacement / upgrade (169 positions)
• 9.4M Capital Investment
• 564K Annual Operating Expense
• Versus Investment into Regional NG9-1-1 capable
  CPE
• 5.1M Capital Investment
• 392K Annual Operating Expense
• Reduction of over 4.3M in capital costs and
  173K annual operating expenses

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• Provided Baseline for a Statewide Approach

• Cost of CPE replacement / upgrade (legacy)
• gt 30.6M Capital Investment
• gt 5.5M Annual Operating Expense
• Versus Invest into statewide NG9-1-1 capable CPE
  with shared network
• 16.8M Capital Investment
• 3.03M Annual Operating Expense
• Reduction of over 13.7M in capital costs and
  2.48M annual operating expenses

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• Northern Tier Region

• Originally 8 county PSAPs needed to replace 9-1-1
  systems due to end of life notifications 1
  county needed to refresh 9-1-1 system hardware
• Existing systems and network were not NG9-1-1
  capable
• Not redundant
• Not interconnected
• Could not transfer ANI/ALI between PSAPs
• Could not automatically route to other PSAPs in
  the event of call overflow or system failure
• Average cost for replacement of a single county
  9-1-1 telephony system was 395K (3.16M total
  regional cost)
• The average county yearly maintenance cost would
  have been 45K for a new system

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• Northern Tier Regional NG9-1-1 Project

• Now 10 Counties in North-West Pennsylvania
• Over 7,700 Square Miles
• Over 660,000 Residents
• Over 3.4 Million Calls in 2012

• SOLUTION
• A 39-Position Regional, NG9-1-1 capable
  telephony system and network
• One system (geo-diverse) shared between all 10
  counties
• Average county yearly maintenance is less than
  22K (savings of 24K/year)

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• Ongoing Regionalization Strategy

• Reduce costs by reducing excess capacity
• ESInet promotes systems sharing and creates
  redundancy and resiliency
• Roughly 850 positions in PA PSAPs with CPEs
  capable of handling 10,500 positions each PSAP
  had independent CPE
• WestCore and Northern Tier regional projects
  reducing CPE to shared capacity with significant
  cost savings
• Develop shared systems
• Deployment of common communications platforms to
  strengthen interconnectivity and
  interoperability among regional partners
• CAD, Telephony, Logging Recorder, GIS, LMR, etc.

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• Regional Governance

• PA Intergovernmental Cooperation Law
• Title 53 Pa. C.S., Chapter 23
• Authorizes two or more local governments to
  jointly cooperate in the exercise or in the
  performance of their respective governmental
  functions, powers or responsibilities.
• Can be used as a vehicle to develop regional
  cooperative governance structures for both
  finance and operational policy/procedure

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Regional Assessment Collaborations

• PEMA has been working with PSAPs to fund and
  promote the Regional Shared Services Assessment
  program
• To date, over 1,800,000 has been designated for
  the assessments
• 50 of eligible funding paid upon agreement to
  participate with regional partners 50 paid upon
  completion and assessment approval

Currently 8 regions have developed from PSAP
collaborations continues to change with ongoing
discussions.
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• NG9-1-1 Continued Path Forward

• Incentivize Regional Initiatives To
• Build out ESInet platform system by system,
  i.e., network by network two networks
  currently in place (NW and SW 24 counties -
  1/3 of Commonwealth others being designed)
• Converge networks and systems interconnecting
  NW and SW ESInets to be completed early 2015
• Implement NG9-1-1 capable PSAPs post
  assessments
• Implement statewide NG9-1-1 geographic based
  routing and database integration discussions in
  progress not in place
• Implement NG9-1-1 capable interoperable
  applications
• Core NG9-1-1 functions being planned but not in
  place

• Develop sustainable funding model

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• PA 9-1-1 Statute - Act 78

• Act 78 was set to sunset June 30, 2014
• Legislature extended sunset to June 30, 2015
• Various proposals currently on the table and in
  discussion among stakeholders
• Funding model is a primary point of ongoing
  discussion
• BIG QUESTION - Whether to continue solely with
  chase the device surcharge strategy or expand
  to future NG9-1-1 funding options based on IP
  technology evolution?

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Funding Challenges

• Technology is advancing.
• Consumer habits / expectations
• Next Generation 9-1-1
• Costs seem to be outpacing revenues.
• Need to create a holistic approach to 9-1-1 in
  the commonwealth.
• Long term fix that does not require legislative
  changes in the near future.

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• Fee Options

• Percentage on Base Rate
• Inherent inflation escalator
• Adaptable to consumer habits
• Likely to reduce undercollections
• Flat dollar amount
• Static
• Not adaptable
• Maintains current assessment method

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• Definitions

• Communication service. Any service that
  provides a capability to the consumer to
  initiate, route, transmit, or complete a 911
  communication from or through any device using
  telephone numbers, Internet Protocol addresses,
  or their functional equivalents or technological
  successors.

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• Definitions (continued)

• Telecommunication device. Any equipment or item
  made or adapted, for use by a consumer to
  initiate, route, or transmit telecommunications.
  
• Base rate. The amount, excluding all taxes and
  fees, that is charged by a communication service
  provider or retail seller to a consumer for its
  goods or services.

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• Questions

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• Pennsylvania NG9-1-1
• Supporting Emergency Services Statewide