9-1-1 acog gis maps assessment final report · 3.2 industry standards and best practices ... of the...

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9-1-1 ACOG GIS MAPS Assessment

Final Report

PREPARED OCTOBER 2019 FOR ASSOCIATION OF CENTRAL OKLAHOMA GOVERNMENTS

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Table of Contents

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

1 Introduction ............................................................................................................................. 5

2 Background ............................................................................................................................. 5

3 Methodology............................................................................................................................ 6 3.1 Project Kickoff/Stakeholder Discussion .................................................................................. 7 3.2 Industry Standards and Best Practices .................................................................................. 7 3.3 Question Set Development .................................................................................................... 8 3.4 Data-Collection Method ......................................................................................................... 8 3.5 Data Analysis ......................................................................................................................... 9

4 Findings .................................................................................................................................. 9 4.1 Summary of Holistic Findings and Analysis ............................................................................ 9 4.2 GIS Data Readiness Findings and Analysis ......................................................................... 10 4.3 Production Environment Findings and Analysis ................................................................... 13 4.4 Regional Coordination Findings and Analysis ...................................................................... 15 4.5 Training Findings and Analysis ............................................................................................ 17 4.6 Computer-Aided Dispatch (CAD) Findings and Analysis ...................................................... 19 4.7 General Information Technology (IT) Findings and Analysis ................................................ 21 4.8 Addressing Findings and Analysis ....................................................................................... 22 4.9 Documentation Findings and Analysis ................................................................................. 24

5 Recommendations ................................................................................................................ 27

6 Conclusion ............................................................................................................................ 27

Appendix A – Next Generation 9-1-1 (NG9-1-1) and Address Standard ...................................... 28

Appendix B – Consolidated Recommendations from this Report ................................................. 29

Appendix C – Data Quality Summary .......................................................................................... 33 `

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Executive Summary

The Association of Central Oklahoma Governments (ACOG) operates as a regional problem-solving and planning organization to support coordination and collaboration regarding local government activities. The four separate divisions within ACOG are Administrative Services, Transportation Planning Services, Water Resources, and 9-1-1 & Public Safety.

ACOG formed the 9-1-1 Association of Central Oklahoma Governments (9-1-1 ACOG) in 1988 to implement and oversee Enhanced 9-1-1 (E9-1-1) service across the region. The 9-1-1 & Public Safety Division provides staffing and program resources to support 9-1-1 ACOG. There are currently nine ACOG employees working in the four functional areas of 9-1-1 ACOG. The division is managed by the 9-1-1 Public Safety division director, who reports to ACOG’s executive director and 9-1-1 ACOG’s board of directors. The 9-1-1 & Public Safety Division of ACOG is organized according to the following functional areas: Administration and Planning, 9-1-1 Technology and Systems Support, 9-1-1 Training Institute, and 9-1-1 Geographic Information System (GIS) and Data Integrity Services. 1

9-1-1 ACOG is embarking on the transition to Next Generation 9-1-1 (NG9-1-1) and enlisted the assistance of Mission Critical Partners (MCP) to evaluate the readiness of its GIS staff and data to support NG9-1-1. To analyze 9-1-1 ACOG’s GIS readiness, MCP used a proprietary methodology called the Model for Advancing Public SafetySM (MAPS).

MAPS combines the collective body of knowledge gained from MCP’s 100-plus specialized public safety subject-matter experts with a variety of mature, broadly accepted public safety and information technology (IT) standards, formalized accreditation programs and industry best practices. The MAPS assessment enables 9-1-1 ACOG to easily discern and understand where the organization stands in relationship to several critical factors.

NG9-1-1 redefines the fundamental processes used to connect a 9-1-1 caller with public safety answering points (PSAPs). At the foundation of NG9-1-1 is GIS data and analytics. Harnessing the location and advanced querying capabilities of GIS enables more accurate emergency call-routing by leveraging geospatial data generated by a variety of devices—from cell phones to automatic crash-detection systems in cars—now capable of dialing 9-1-1. This migration to geospatial call-routing necessitates the creation of highly accurate and fully attributed GIS data.

The thorough analysis of 9-1-1 ACOG’s GIS data and operations has provided a detailed gap analysis of the agency’s NG9-1-1 GIS readiness. The following factors were examined:

GIS Data Readiness—The National Emergency Number Association (NENA) has determined that NG9-1-1 requires the improvement and maintenance of GIS road centerlines and address points—as well as the PSAP’s emergency service zone (ESZ) and provisioning boundaries—plus validation and correction of the tabular master street address guide (MSAG) and automatic location identification (ALI) databases.2

1 NG9-1-1 Readiness Assessment Executive Summary – September 2019 2 NENA Standard for NG9-1-1 GIS Data Model https://cdn.ymaws.com/www.nena.org/resource/resmgr/standards/nena-sta-006_ng9-1-1_gis_dat.pdf

https://cdn.ymaws.com/www.nena.org/resource/resmgr/standards/nena-sta-006_ng9-1-1_gis_dat.pdf

https://cdn.ymaws.com/www.nena.org/resource/resmgr/standards/nena-sta-006_ng9-1-1_gis_dat.pdf

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The location, address point, and road centerline datasets must be validated against the legacy E9-1-1 tabular data. 9-1-1 ACOG has made great strides in compiling these datasets, but validation efforts fall short of industry best practices.

Production Environment—The consistent operation of NG9-1-1 requires GIS service well beyond the capabilities of most government-led GIS groups. Standards for GIS data currency dictate that data errors be corrected and provisioned into the emergency services Internet Protocol network (ESInet)—which transports emergency calls to the appropriate PSAP in an NG9-1-1 environment—within 72 hours. 9-1-1 ACOG has implemented processes for supporting E9-1-1 requirements but does not have the capacity to achieve the requisite performance necessary for NG9-1-1.

Regional Coordination—The GIS data supporting NG9-1-1 operations must be validated across 9-1-1 ACOG’s jurisdictional footprint and with neighboring external jurisdictions. For example, road centerlines must connect seamlessly between every jurisdiction and polygons must be drawn without coverage gaps or overlaps. Although 9-1-1 ACOG does not provide 9-1-1 services to neighboring jurisdictions, the reconciliation of core GIS datasets between 9-1-1 ACOG and neighboring jurisdictions is critical to preventing 9-1-1 call-routing issues in Oklahoma. 9-1-1 ACOG excels at internal data coordination but does not coordinate with external jurisdictions.

Training—Staff members who are well-trained on GIS applications, as well as tools for non-geospatial data maintenance and general 9-1-1 operations, ensures successful support of the NG9-1-1 migration and ongoing operations. The GIS staff members within the 9-1-1 & Public Safety Division are well-trained on legacy 9-1-1 data maintenance—i.e., ALI and MSAG – and GIS software and analytics. This training also is offered to the jurisdictions, but is not required and may not reach the intended audience. Lacking in the training program is outreach to, and education of, internal and jurisdictional leadership on the importance of GIS data to NG9-1-1. This training is vital to continued funding of the GIS staff and operations, as well as future growth of GIS programs at ACOG and within the member jurisdictions.

Computer-Aided Dispatch—The same GIS data that supports NG9-1-1 operations also should, as a best practice, be provisioned into the computer-aided dispatch (CAD) systems at 9-1-1 ACOG-member jurisdictions. The alternate-call-routing capabilities of NG9-1-1 rely upon the availability of accurate, actionable GIS data to 9-1-1 telecommunicators for all areas covered by their PSAP. The lack of such data greatly reduces the likelihood that 9-1-1 calls will be routed to the appropriate PSAP in a failover situation, i.e., when a PSAP has become overwhelmed or has been rendered inoperable, inaccessible or uninhabitable. Similarly, the lack of such data also reduces the ability of the telecommunicator to determine the appropriate PSAP to receive a transferred misrouted call, a common need in 9-1-1 service provisioning. 9-1-1 ACOG does make GIS data available to CAD administrators but only communicates with jurisdictions that reach out to 9-1-1 ACOG.

General Information Technology—The hardware, software and systems necessary to maintain the GIS data must be maintained. Desktop computers and data and application servers must be refreshed regularly. Networks internal to ACOG and providing connectivity to 9-1-1 ACOG-member jurisdictions must provide near-constant connectivity. The only risk affecting 9-1-1 ACOG’s score for IT is the third-party hosting of GIS data and application servers. While a minimal risk, the availability of these servers relies on the internal network, the internet and purchasing to maintain the contract.

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Addressing—The location-based services in both the spatial interface (SI)—ECRF3 and LVF4—and the call processing and call dispatching require constant updating as new addresses are created or existing addresses are changed. Addressing is a local function and should be standardized across the region. 9-1-1 ACOG does have addressing authority for some of the jurisdictions within its area of operation. However, while 9-1-1 ACOG does utilize a standard workflow for incorporating new data into the GIS, and updates the data when notified of new development, this information is not required to be submitted to the GIS team prior to commencing construction. Each individual jurisdiction that manages its own GIS data has its own workflows for addressing. Developing a standardized workflow across the region should be considered to ensure that all new road centerlines and address points are added to the datasets in a timely manner. This workflow also should include a requirement for providing data to the GIS team as part of the permitting process, which will guarantee that the team has the opportunity to update the call-routing and call-processing datasets prior to construction.

Documentation—Processes, workflows, standard operating procedures, strategic plan and performance documentation supporting continuity of operations must be created and maintained to ensure data quality and availability. Arrangements between jurisdictions and 9-1-1 ACOG must be memorialized in service level agreements. Documentation is lacking at 9-1-1 ACOG. For the safety of continuity, MCP strongly recommends the creation and maintenance of the documentation identified in Section 4.9.

A key element of MAPS is a color-coded, visual “blueprint” that depicts the status of each factor that was assessed. Green indicates factors that are NG9-1-1 ready and thus not in need of immediate attention; yellow indicates those that are at risk but are transitioning to NG9-1-1; red indicates factors that are at high risk. The figure below shows 9-1-1 ACOG’s scores related to GIS readiness in all eight factors.

3 Emergency call-routing function. 4 Location-validation function.

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Figure 1: MAPS Scores

Details on the ranking factors and key initiatives 9-1-1 ACOG should be undertaking to progress toward NG9-1-1 readiness in each factor are contained in the sections below. Some of the results may seem surprising and raise concern, but it is important to note that: • 9-1-1 ACOG is just beginning the transition to NG9-1-1. None of the scores are unexpected for a GIS

program supporting E9-1-1 services • CAD support is not a requirement of NG9-1-1 and 9-1-1 ACOG already does make the GIS data

available to CAD administrators • More than half of the ranking factors require only minor improvements to fully support NG9-1-1 By following the recommendations in this report, 9-1-1 ACOG will achieve and maintain NG9-1-1 readiness in its GIS program.

NG9-1-1 Ready At Risk High risk

ACOG GIS Readiness MAPS℠ Blueprint

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1 Introduction

Technological advancements over the last 50 years necessitate a long-overdue fundamental change in the technology used to connect a 9-1-1 caller to public safety answering points (PSAPs). Next Generation 9-1-1 (NG9-1-1) is meant to bridge the gap between the communications technology used today and the antiquated systems implemented to support 9-1-1 operations dating back to the 1960s. At the core of NG9-1-1 is geographic information system (GIS) data. The spatially enabled GIS datasets drive the analytics that find the 9-1-1 caller—e.g., the location-validation function (LVF)—and determine the appropriate PSAP to which the 9-1-1 call should be routed—e.g., the emergency call-routing function (ECRF). The GIS data employed to fulfill these functions must be refined to public-safety-grade with exact geospatial accuracy and complete attribution of all the information necessary for completing the complex queries. The 9-1-1 & Public Safety Division of the Association of Central Oklahoma Governments (9-1-1 ACOG) enlisted the assistance of Mission Critical Partners (MCP) to evaluate the readiness of GIS staff and data to support the transition to NG9-1-1. MCP utilizes a proprietary methodology called the Model for Advancing Public Safety℠ (MAPS) to assess NG9-1-1 readiness. MAPS combines the collective body of knowledge gained from MCP’s 100-plus specialized public safety subject-matter experts (SMEs) with a variety of mature, broadly accepted public safety and information technology (IT) standards, formalized accreditation programs and industry best practices. The MAPS assessment enables 9-1-1 ACOG to easily discern and understand where the organization stands in relationship to several critical factors. A customized set of rating factors was developed for 9-1-1 ACOG and assessed through conversations with 9-1-1 & Public Safety staff members and a thorough evaluation of GIS data provided by the agency. This report details the gaps identified through the MAPS assessment and provides recommendations for bridging these gaps to achieve NG9-1-1 readiness. It is important to note that this assessment is meant to identify gaps in capabilities that place at risk the migration to and ongoing operation of a NG9-1-1 system. MCP SMEs unanimously agree that ACOG’s 9-1-1 GIS team performs in a professional manner, has extensive knowledge of the work environment and does a fine job executing its responsibilities. The SMEs also agree that the path toward NG9-1-1 readiness can be perplexing and hope that this document provides helpful guidance regarding the organization’s transition. The MCP team collectively believes that the GIS team possesses the capabilities and desire to be successful in implementing the GIS data and services necessary to migrate 9-1-1 ACOG to NG9-1-1.

2 Background

ACOG’s GIS team has been supporting legacy 9-1-1 services for the region since 2006. GIS services to the 9-1-1 community within 9-1-1 ACOG’s area of responsibility (AoR) are performed by a team of three GIS professionals. The 9-1-1 GIS team provides some level of support to nearly 50 communities in Central

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Oklahoma. These communities are broken into three tiers of support, categorized as A, B, and C jurisdictions. 9-1-1 ACOG maintains the MSAG tables for all jurisdictions. “A” jurisdictions maintain their respective GIS datasets completely in-house with full-time GIS staff and directly provide updates to the regional GIS data contractor. “B” jurisdictions’ GIS data is maintained by 9-1-1 ACOG and submitted to the agency for review. A “B-” in the table below identifies a jurisdiction that also has relinquished addressing responsibilities to 9-1-1 ACOG. Finally, 9-1-1 ACOG GIS provides all editing and data maintenance services, as well as addressing for the “C” jurisdictions’ GIS data. Del City, categorized by ACOG as a “B” tier entity, cannot maintain its road centerlines and has asked 9-1-1 ACOG to manage that data, which would relegate the jurisdiction to C+ status. A breakdown of jurisdictions by classification is provided in the table below.

Table 1: GIS Data Jurisdictional Rankings

JURISDICTION TIER JURISDICTION TIER JURISDICTION TIER CANADIAN A GUTHRIE B PIEDMONT B EDMOND A HARRAH B SLAUGHTERVILLE B

MIDWEST CITY A JONES B SMITH VILLAGE B MOORE A LAKE ALUMA B SPENCER B

NORMAN A LEXINGTON B THE VILLAGE B OKLAHOMA CITY A LUTHER B TUTTLE B

TINKER AFB A MARSHALL B UNION CITY B ARCADIA B MERIDIAN B VALLEY BROOK B BETHANY B MULHALL B WARR ACRES B CALUMET B MUSTANG B WOODLAWN PARK B

CEDAR VALLEY B NEWCASTLE B YUKON B CHOCTAW B NICHOLS HILLS B CRESCENT B-

CIMARRON CITY B NICOMA PARK B FOREST PARK B- COYLE B NOBLE B LANGSTON B-

EL RENO B OKLAHOMA COUNTY B DEL CITY (post road centerline maintenance shift to 9-1-1 ACOG) C+

ETOWAH B ORLANDO B CLEVELAND COUNTY C LOGAN COUNTY C

3 Methodology

The 9-1-1 ACOG MAPS assessment is customized based on the agency’s specific needs and circumstances. MCP collaborated with ACOG’s 9-1-1 GIS team to refine the key factors for implementing NG9-1-1 into the agency’s operations.

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3.1 Project Kickoff/Stakeholder Discussion MCP SMEs and 9-1-1 ACOG stakeholders worked collaboratively to identify key factors that are most relevant to the NG9-1-1 transition. 3.2 Industry Standards and Best Practices Once the factors were identified, the project team also relied on industry standards and best practices to identify those that align with the factors being assessed. MCP recognizes the significant contributions that the National Emergency Number Association (NENA) has made to advancing NG9-1-1 standards and builds its recommendations on those that NENA has established. NENA has developed numerous documents during the past 20 years to provide PSAP and GIS professionals with guidelines and requirements for building and maintaining GIS data layers for use in public safety operations. The following NENA documents are recommended for review and reference: • Oklahoma Geographic Information Council / Office of Geographic Information / Oklahoma 9-1-1

Authority – The State of Oklahoma Geographic Information NG911 and Addressing Standard5 • NENA-STA-012.2-2017 – NG9-1-1 Additional Data • NENA-STA-004.1-2014 – NENA Next Generation United States Civic Location Data Exchange Format

(CLDXF) • NENA 02-014 – GIS and Data Collection Standard • NENA 71-501 – Standard for Synchronizing GIS with MSAG & ALI • NENA-INF-014.1-2015 – Development of Site/Structure Address Point GIS Data for 9-1-1 • NENA-STA-015.10-2018 (originally NENA 02-010) – NENA Standard Data Formats for E9-1-1 Data

Exchange & GIS Mapping • NENA-STA-006.1-2018 – NENA Standard for NG9-1-1 GIS Data Model All of these documents are available for download at www.nena.org.

5 http://okmaps.onenet.net/documents/OK_ADDRESS_STANDARDS_21_ADOPTED_02-07-2019.pdf

http://www.nena.org/

http://okmaps.onenet.net/documents/OK_ADDRESS_STANDARDS_21_ADOPTED_02-07-2019.pdf

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3.3 Question Set Development A comprehensive question set was developed based on these standards and industry best practices. Key GIS capabilities related to NG9-1-1 and industry best practices for GIS administration were considered in selecting the final question set. These questions focus around eight factors, depicted in the figure below. To achieve GIS data readiness (Factor 1), the 9-1-1 GIS team must receive training (Factor 4) and be

supported by current and robust technology (Factor 6) in a well-performing production environment (Factor 2). Beyond the GIS team, a high level of regional coordination (Factor 3) is necessary to ensure that GIS data and addressing (Factor 7) not only are accurate within each jurisdiction, but across all 9-1-1 ACOG jurisdictions, as well as with neighboring jurisdictions outside of 9-1-1 ACOG’s AoR. The same GIS data that drives the NG9-1-1 call-routing and

location-validation functions also is necessary for alternative-routing scenarios, i.e., failover routing to another PSAP when a PSAP has been rendered inoperable, uninhabitable or inaccessible. To support this advanced capability of NG9-1-1, this data must be aggregated and provisioned into the computer-aided dispatch (CAD) systems within all 9-1-1 ACOG member PSAPs (Factor 5). It is important to note that CAD system provisioning is not a NENA requirement, but is an industry best practice necessary to support alternate-routing scenarios. Finally, all the processes and workflows used to maintain the NG9-1-1 GIS data must have proper documentation (Factor 8). 3.4 Data-Collection Method ACOG’s 9-1-1 GIS team and MCP SMEs participated in several informal calls to discuss the agency’s GIS-related operations and processes. These sessions were used to set a baseline understanding of the GIS program at 9-1-1 ACOG and to facilitate the development of the question set. During these calls, MCP also requested GIS data from 9-1-1 ACOG for review. These calls were followed by a two-hour formal interview of 9-1-1 GIS team members. MCP reviewed each factor and associated questions with the team and recorded responses. MCP SMEs also reviewed the provided GIS data for compliance with NG9-1-1 standards and GIS best practices.

GIS Data Readiness - 1

Production Environment - 2

Regional Coordination - 3

Training - 4

Computer Aided Dispatch - 5

General IT - 6

Addressing - 7

Documentation - 8

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3.5 Data Analysis The MCP SMEs interpreted the standards and then determined how they should be applied resulting in a quantifiable assessment that manifests in the MAPS scores and diagram. Although a sufficient score may be achieved through the averaging of all responses in a factor, it is important to note that a “high risk” score to a single question in a factor may preclude 9-1-1 ACOG from moving forward with the NG9-1-1 migration until the issue has been mitigated appropriately.

4 Findings

4.1 Summary of Holistic Findings and Analysis 9-1-1 ACOG’s GIS program achieved respectable scores for internal operations. An overall score of 6.47 (out of 10 possible points) places 9-1-1 ACOG in a transitional state between legacy 9-1-1 and NG9-1-1. To fully implement next generation core services (NGCS)—such as the ECRF and LVF—9-1-1 ACOG must improve upon all functions not already solidly within the NG9-1-1-ready range. Scores within individual topics are depicted in the figure below and detailed in this section.

Figure 2: Overall MAPS Score

NG9-1-1 Ready At Risk High Risk

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4.2 GIS Data Readiness Findings and Analysis Score: 6.67 GIS data readiness spans both legacy and NG9-1-1 datasets. This requires the GIS team to not only improve and maintain the GIS road centerlines and address points—as well as the PSAP’s emergency service zone (ESZ) and provisioning boundaries—but also to validate and correct the tabular MSAG and automatic location identification (ALI) databases. ACOG’s 9-1-1 GIS team members have some knowledge of all components necessary for the NG9-1-1 migration and are stronger in some areas than in others. However, the volume of work necessary to support the needs of 49 disparate jurisdictions within 9-1-1 ACOG’s footprint is beyond reasonable expectations for a team of three professionals. This imbalance between available staff hours and workload heavily influenced the less-than-optimal score for this assessment factor. A cursory review of the provided GIS site/structure address point and road centerline data indicates that 9-1-1 ACOG includes the fields required by NENA in NENA-STA-006.1-2018 for these data layers. Legacy data must be validated against the GIS data prior to the start of the NG9-1-1 migration. GIS must have access to traditional wireline telephone, voice over internet protocol (VoIP), multiline telephone system (MLTS) and private branch exchange (PBX) data. Each type of service provides unique location challenges the GIS team must consider while developing data that can be used in an NG9-1-1 environment. Traditional wireline telephone service utilizes the MSAG and ALI data for location validation. As the GIS team corrects the errors discovered in this data, these edits must be communicated to the ALI provider. This is most efficient through a web portal. West/Intrado provides ALI and MSAG maintenance for the 9-1-1 ACOG region. ACOG’s 9-1-1 GIS staff members all have access to the West/Intrado unified portal to submit changes to these databases and to download fresh copies of each for validation against the GIS data. This is the best scenario for maintaining the ALI and MSAG data. VoIP telephone service has the same look and feel to the subscriber as traditional telephone service but uses the internet rather than dedicated copper cable to deliver calls to homes and businesses. The subscriber may not even know that they are on a VoIP system. Bundled service from an internet provider or cable company uses fixed or static VoIP telephone service. There also are several third-party nomadic and i2 VoIP providers—such as Magic Jack and Ooma—that offer appliances that plug into any internet modem or can operate via a Wi-Fi connection. The subscriber does not change his/her actual telephone number when switching from traditional to VoIP service. Nearly all static VoIP providers maintain their own ALI database and nomadic VoIP providers also maintain a separate database of user location information, which usually is updated by the subscriber. This poses two problems for the GIS team. First, many new communities being built today do not offer traditional telephone service. The utilities installed in these subdivisions forego copper-cable telephone service for faster coaxial or fiber-optic cabling, or internet-based television and telephone services. These entire neighborhoods most likely will not be found in West/Intrado’s ALI database.

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More critical is that, because a VoIP telephone needs only an internet connection, the service can be relocated without updating the 9-1-1 address associated with the telephone number. Regardless of the ALI provider, if a subscriber moves and takes along his/her service equipment, the phone will work at the new location without updating the location information used to route the 9-1-1 call to the appropriate PSAP. This inaccurate location information also is sent with the call to the telecommunicator. ACOG’s 9-1-1 staff members indicated that the only ALI records being maintained by the GIS team are in the West/Intrado ALI database. There is an increased risk to location services in 9-1-1 and NG9-1-1 without inclusion of VoIP ALI records in the data maintenance plan. The MLTS and PBX phone systems used in commercial and campus settings are preprogrammed with their location information before being installed. Most MLTS/PBX systems enable the digits 9-1-1 to be dialed and routed to a PSAP. However, the vast majority of these systems do not provide granular location information with the 9-1-1 call to enable emergency responders to know the actual location of the emergency. In many instances a call from the 12th floor of a large office building may provide only the building’s street address.6 Further, these telephones must be reprogrammed with new location information each time they are moved. Failure to do so when an employee changes offices, or a business relocates to another building or state, creates a situation where 9-1-1 receives the incorrect location information. Oklahoma does not have any legislation governing MLTS/PBX systems’ location services. ACOG’s 9-1-1 staff members indicated that they have knowledge of only one MLTS in the 9-1-1 ACOG AoR—the University of Oklahoma—and they do not have access to the location records for that phone system. 9-1-1 ACOG received the lowest score for this question. The first step for the GIS team in transitioning to NG9-1-1 is to establish a schema for the data necessary for NG9-1-1. The State of Oklahoma (hereafter, the State), through the Oklahoma Geographic Information Council and in collaboration with the Oklahoma 9-1-1 Management Authority (OK9-1-1MA), published The State of Oklahoma Geographic Information NG9-1-1 and Addressing Standard in February 2019.7 Included with this standard is the statewide schema for NG9-1-1 GIS data. Oklahoma’s NG9-1-1 and Address Standard Schema is based on the draft NENA NG9-1-1 schema and can be found in Appendix A. 9-1-1 ACOG has fully adopted this standard. The GIS data from jurisdictions within 9-1-1 ACOG’s AoR is in various stages of compliance. GeoComm, the GIS contractor maintaining the GIS database for 9-1-1 ACOG, provides services to transform GIS data from the jurisdictions’ schemas into the statewide NG9-1-1 schema. 9-1-1 ACOG received nearly all possible points for this question, with the only risk factor being the transformation necessary to migrate local GIS data into the regional dataset. Although this process is fairly standard within the GIS community, this service is being provided by a third-party contractor subject to funding and contract delays, which could result in a lapse of support. Once the GIS data has been developed and tested for compliance with the State’s NG9-1-1 standard, the GIS team will begin the validation testing of the GIS, MSAG and ALI data. ACOG’s 9-1-1 GIS staff

6 National Emergency Number Association - https://www.nena.org/page/MLTS_PBX 7 http://okmaps.onenet.net/documents/OK_ADDRESS_STANDARDS_21_ADOPTED_02-07-2019.pdf

https://www.nena.org/page/MLTS_PBX


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members have unfettered access to the ALI and MSAG data for both correction submission and downloading current datasets. Working with GeoComm, 9-1-1 ACOG achieved the requisite 98 percent match rate between the ALI and MSAG databases and the GIS road centerlines, for all 9-1-1 ACOG-member jurisdictions. This validation must be repeated regularly as development changes existing, and creates new, roadways and addresses. GeoComm performs a partial validation for each jurisdiction annually. 9-1-1 ACOG received a marginal score for this question because not all GIS data for every jurisdiction is validated and the validations only occur annually rather than quarterly —and preferably monthly in high-growth areas. GeoComm has made available to 9-1-1 ACOG the necessary GIS-based tools to perform validation testing more frequently. ACOG’s 9-1-1 GIS team reports that the current staffing level cannot support this time-consuming effort. Staffing recommendations can be found in Section 4.3 – Production Environment. The current process that ACOG’s 9-1-1 GIS team has in place is sufficient to meet the needs of a legacy 9-1-1 environment but will not support the migration to, or sustain, NG9-1-1. The following improvements are recommended or required for 9-1-1 ACOG to proceed with the implementation of NGCS:

Table 2: GIS Data Improvements

Improvement Criticality

Acquire and validate VoIP ALI records Strongly recommended

Inventory MLTS/PBX phone systems and assess risk level Recommended

Educate jurisdictions regarding the importance of adopting the State’s NG9-1-1 schema. Move the ETL8 process internal to 9-1-1 ACOG until all jurisdictions are on the State’s NG9-1-1 schema or can provide ETL data to 9-1-1 ACOG

Recommended

Increase GIS staffing by at least one analyst position to support additional data development, maintenance and validation-testing efforts

Strongly recommended

Perform validation testing on the complete dataset for every 9-1-1 ACOG-member jurisdiction at least quarterly. Test monthly in high-growth areas


Update the State’s NG9-1-1 and addressing standard as revisions are made to the NENA GIS data model and related standards Required

8 Extract, transform, load.

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To achieve GIS data readiness, 9-1-1 ACOG should focus on remedying the deficiencies outlined in the table above and illustrated in the figure below.

Figure 3: GIS Data Readiness

4.3 Production Environment Findings and Analysis Score: 7.33 A robust GIS program is necessary to support the substantial demands of the NG9-1-1 environment. Industry best practices dictate that every PSAP has dedicated GIS services. In the case of a quasi-consolidated environment, such as the one that exists at 9-1-1 ACOG, a single GIS resource can support the needs of multiple PSAPs—if there exists a full-time staff resource or contracted services at the PSAP to complement 9-1-1 ACOG’s work. While the score for this assessment factor is within the requirements for an NG9-1-1 migration, increasing the 9-1-1 GIS staff at ACOG and increasing collaboration with supported jurisdictions’ staff will improve this score. It is imperative that the 9-1-1 staff maintains a rolling three-year plan that estimates future effort levels and staffing needs. This document should be supported by an accounting of hours worked providing support to each jurisdiction and supporting internal 9-1-1 ACOG projects. Additional staffing recommendations can be found in the ACOG Workforce Optimization report. For the migration to, and continuous operation of, an NG9-1-1 system, GIS staff must support the needs of the ESInet and those of the PSAPs regarding legacy and NG9-1-1 operations. ACOG’s 9-1-1 GIS team

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has plans in place to provide for the needs of the ESInet but is struggling to meet the 72-hour turnaround time for data maintenance required in an NG9-1-1 environment. Supporting CAD applications at all 25 PSAPs with regional mapping data also is necessary in the NG9-1-1 environment. 9-1-1 ACOG does not coordinate with any of the CAD administrators at the PSAPs, although the agency does make available a copy of the regional data for download. Of particular interest to the MCP team is the flat organizational structure of ACOG’s 9-1-1 GIS team. All three staff members are cross-trained on all tasks performed by 9-1-1 ACOG and regularly perform them. While this is beneficial in ensuring coverage during absences of any staff member, it also makes it more difficult to become an expert at any one task. MCP recommends that staff members have job duties that reflect their individual strengths and interests. It has been our experience that focused job descriptions yield a more efficient organization. It is important to maintain thorough documentation of all tasks to ensure task coverage during vacations and vacancies caused by staff turnover. The current backlog of work, coupled with the forthcoming addition of GIS responsibilities of two additional jurisdictions, will necessitate the addition of at least one GIS resource. Documenting goals and special projects for ACOG’s 9-1-1 GIS team in the three-year plan will assist in justifying the need for additional personnel. ACOG does employ other GIS professionals outside of the 9-1-1 function. The 9-1-1 GIS team has borrowed staff from other divisions in the past, but no formal agreement exists to guarantee additional staff to complete special projects or meet unusually high demands for short periods. 9-1-1 ACOG maintains a replica of the GeoComm central GIS database. The contract with GeoComm does contain service level agreement (SLA) performance metrics. Contracting and funding delays do cause a slight risk by allowing the contractor to maintain the primary database while working from a replica at 9-1-1 ACOG. However, this risk was not sufficient enough to lower the score for this question. The production environment at 9-1-1 ACOG can support the migration to NG9-1-1 but is insufficient to maintain operations after full implementation. The following improvements are recommended or required for 9-1-1 ACOG to proceed with the implementation of NG9-1-1 NGCS:

Table 3: Production Environment Improvements


Develop a staffing plan utilizing external 9-1-1 ACOG full-time equivalent (FTE) GIS resources to mitigate occurrences of unusually high data maintenance needs. Formalize the plan with memorandums of understanding (MOU)


Track and document staff hours spent supporting each jurisdiction and internal 9-1-1 ACOG GIS data development and maintenance Strongly recommended

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Add additional staff to meet demands for CAD coordination, 72-hour turnaround times, and to perform special projects Recommended

Migrate the parent database into 9-1-1 ACOG and replicate it out to contractor(s) Recommended

To provide a fully NG9-1-1-capable production environment, 9-1-1 ACOG should focus on remedying the deficiencies outlined in the table above and illustrated in the figure below.

Figure 4: Production Environment Readiness

4.4 Regional Coordination Findings and Analysis Score: 7.33 The implementation of NG9-1-1 is meant to expand the operations of a PSAP beyond that of a singular entity to incorporate failover functionality—i.e., alternate routing—to strengthen the ability of the 9-1-1 community to respond to any and all citizens’ needs. In the NG9-1-1 environment, GIS data does not end at the PSAP boundary. Rather, the GIS data must be coordinated across PSAP boundaries, not only within 9-1-1 ACOG’s AoR, but also with neighboring jurisdictions. 9-1-1 ACOG has fostered a collaborative environment between its member jurisdictions but has not reached out beyond the 9-1-1 ACOG border. ACOG’s 9-1-1 GIS team is willing to work with other jurisdictions but is looking to the State for leadership and guidance on this undertaking. The lack of external collaboration did lower the score for this factor.

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Established NENA standards9 govern the development of road centerlines and address points, as well as PSAP, ESZ, and provisioning polygons. The standards dictate that all road centerlines should be broken at intersections with other roads and boundary lines. 9-1-1 ACOG has developed and maintains snap-to points at all of these intersections to ensure that edits to the linework do not break the connection of one centerline to the adjoining centerline on the other side of the break point. This continuity of geometry is referred to as topological integrity in the GIS community. Topology is one of the primary tests on GIS data when assessing it for NG9-1-1 readiness, and is tested on individual jurisdictions’ data as well as on an aggregated regional dataset. 9-1-1 ACOG’s snap-to points aid in ensuring the preservation of topological integrity. Unfortunately, the State has not created a set of statewide snap-to points. Meanwhile, 9-1-1 ACOG has not coordinated the continuity of road centerlines beyond its AoR. Even though statewide snap-to points are beyond 9-1-1 ACOG’s control, this resulted in a slight reduction in the score for this question. PSAP polygons, which primarily will be responsible for 9-1-1 call routing in the NG9-1-1 environment, also must be coordinated between PSAPs within and beyond 9-1-1 ACOG’s AoR. The placement of PSAP boundary lines is at the discretion of the PSAP director and should be drawn to reduce call transfers between PSAPs. Each time a PSAP boundary is modified, coordination between the neighboring PSAP(s) and 9-1-1 ACOG is necessary to ensure synchronization with all parties. The current process that ACOG’s 9-1-1 GIS team has in place for regional coordination is sufficient to meet the needs of both legacy 9-1-1 and NG9-1-1 operations within the agency’s AoR. However, the following improvements are recommended or required for 9-1-1 ACOG to bring regional coordination to the next level:

Table 4: Regional Coordination Improvements


Coordinate PSAP polygon creation and maintenance with neighboring jurisdictions external to 9-1-1 ACOG Strongly recommended

Coordinate road centerline creation, maintenance and address range validation with neighboring jurisdictions external to 9-1-1 ACOG Strongly recommended

Incorporate snap-to points in boundary resolution workflows Recommended

Validate all address points for every jurisdiction at least monthly for full attribution and against overlap Strongly recommended

9 NENA GIS Data Collection and Maintenance Standards, NENA 02-014 NENA Standard for NG9-1-1 GIS Data Model, NENA-STA-006.1-2018 NENA Standard Data Formats for E9-1-1 Data Exchange & GIS Mapping, NENA-STA-015.10-2018

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To achieve complete regional coordination, 9-1-1 ACOG should focus on remedying the deficiencies outlined in the table above and illustrated in the figure below.

Figure 5: Regional Coordination Readiness

4.5 Training Findings and Analysis Score: 7.00 The GIS community, like most technology sectors, is rapidly advancing and ever changing. It is imperative that GIS professionals receive regular training on the advancements within the software and relational database management systems (RDBMS) used to create, maintain, store, and distribute GIS data. The migration to NG9-1-1 presents new requirements, standards, software, and training opportunities for GIS personnel. 9-1-1 ACOG has a robust training budget and promotes training opportunities for the 9-1-1 GIS staff. A large part of implementing new GIS programs, such as NGCS support, requires educating leadership on the effort and reasons for reallocating resources or requesting additional staff. Unfortunately, training is limited to ACOG’s 9-1-1 GIS team and does not extend to other GIS staff, or take the form of outreach efforts to internal leadership and member jurisdictions. ACOG’s 9-1-1 GIS staff members have been trained on the use of the GeoComm data maintenance toolset. GeoComm does not offer a user group or community to provide additional guidance on the use of the toolset, or best practices for resolving issues discovered with the same.

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Training for ACOG’s 9-1-1 GIS team is sufficient to meet the needs of both legacy 9-1-1 and NG9-1-1 operations. However, the following improvements are recommended or required for 9-1-1 ACOG to enhance training for its GIS team:

Table 5: Training Improvements


Increase internal awareness for NG9-1-1 GIS needs through outreach, education and planning sessions. Recommended

Increase regional awareness of NG9-1-1 efforts and GIS data requirements through outreach and education sessions with regional GIS and CAD staff at member jurisdictions

Strongly Recommended

Participate in the GeoComm data maintenance toolset user community to remain aware of software improvements and issues Recommended

Expand NG9-1-1 GIS awareness though quarterly informational sessions and a newsletter targeted at non-technical leadership in ACOG and at member jurisdictions


To ensure that all GIS staff are trained to fully support NG9-1-1, 9-1-1 ACOG should focus on remedying the deficiencies outlined in the table above and illustrated in the figure below.

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Figure 6: Training Readiness

4.6 Computer-Aided Dispatch (CAD) Findings and Analysis Score: 3.33 The same GIS data supporting the SI on the ESInet also should be used in the CAD systems across 9-1-1 ACOG’s jurisdictional footprint to enhance local call-processing and call-dispatching efforts, as well as providing the CAD system map display necessary to facilitate alternate-call-routing support across the region. PSAPs on 9-1-1 ACOG’s ESInet will have the capability to automatically reroute (i.e., alternate route) 9-1-1 calls for any reason. The PSAP receiving these calls may be unfamiliar with the geography of the sending PSAP. By making the GIS data available to the receiving PSAP, 9-1-1 ACOG is increasing the capabilities of the telecommunicators to successfully handle these calls. 9-1-1 ACOG does make GIS data for NG9-1-1 available to member PSAPs for download; the data is updated monthly. However, 9-1-1 ACOG does not track usage or communicate directly with the CAD administrators at the jurisdictions within the agency’s AoR. Meanwhile the State does not aggregate 9-1-1 GIS data nor is this data available from a single source. 9-1-1 ACOG-member jurisdictions that share a PSAP boundary with jurisdictions external to 9-1-1 ACOG must seek out and validate 9-1-1-specific GIS data from these jurisdictions individually. The integration of NG9-1-1 GIS data with CAD systems is not mandatory for the successful migration to NG9-1-1. However, to fully realize the benefits of NG9-1-1, every ACOG-member PSAP must work closely with 9-1-1 ACOG and each other to implement regional GIS data into their respective CAD systems and

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maintain this data regularly. The following improvements are recommended or required for 9-1-1 ACOG to enhance the CAD environment as it relates to NG9-1-1:

Table 6: CAD Improvements


Coordinate GIS data updates with each jurisdiction to ensure that the most recently aggregated GIS data is being used. Recommended

Coordinate with the State to identify the need for statewide 9-1-1 data validation and aggregation to support the CAD function. Make 9-1-1 GIS data available through the OKMaps portal.

Recommended

Update 9-1-1 ACOG’s 9-1-1 GIS data weekly for consumption by the CAD community. Strongly recommended

To support alternate routing and better situational awareness for telecommunicators through the CAD system, 9-1-1 ACOG should focus on remedying the deficiencies outlined in the table above and illustrated in the figure below.

Figure 7: CAD Readiness

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4.7 General Information Technology (IT) Findings and Analysis Score: 8.50 / 10 GIS rendering and data editing requires a high degree of computing power. The server and desktop hardware supporting GIS must perform well above the requirements of a personal computer (PC) used for standard word processing or accounting. The software used by GIS professionals is improving rapidly. Indeed, the capabilities of the software can improve exponentially even with minor releases. It is imperative then, to meet deadlines and perform the advanced validation tasks necessary for NG9-1-1, that ACOG’s 9-1-1 GIS team has access to up-to-date hardware and software. ACOG maintains an enterprise licensing agreement with Esri, the industry standard for GIS. This license covers all GIS staff in the 9-1-1 & Public Safety Division and includes both desktop software and server-side database and management tools. 9-1-1 ACOG generally is only one or two minor releases behind the current software version release from Esri. GIS staff members indicated that downtime to perform the updates is the main reason for upgrade delays. ACOG’s IT department refreshes staff PCs on a three-year rotation. The GIS PCs meet or exceed the recommended minimum configuration for spatial data rendering and advanced analytics capabilities. The IT staff position responsible for managing the hardware refresh position currently is vacant; this is a concern for the GIS team as two of the three members are scheduled for hardware replacement in this fiscal year. However, the risk to the NG9-1-1 migration is very low because the current PCs for these staff members are performing well and exceed industry standards for such usage. 9-1-1 ACOG has contracted with a managed services provider, ROK Technologies, to host its NG9-1-1 data. The cloud environment provides Esri’s ArcGIS server and analytics to 9-1-1 ACOG. The environment is available to 9-1-1 ACOG-member jurisdictions and other partners. MCP recommends a thorough review of the Esri contract and the development of an SLA with the company to ensure availability of data and services to fully support the NG9-1-1 requirements. The systems and software used at 9-1-1 ACOG meet or exceed current industry standards. However, NG9-1-1 dictates higher security and system redundancy and recovery capabilities than are maintained at 9-1-1 ACOG. The following improvements are recommended or required for 9-1-1 ACOG to enhance its general IT posture:

Table 7: General IT Improvements


Ensure that near-term and long-term planning and budgeting continues to cover 9-1-1 ACOG’s GIS software and server licensing. Required

Verify and improve data recovery capabilities to public-safety grade. Strongly Recommended

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Review and update the managed services contract with ROK Technologies for data hosting. Add a level of service requirements to the contract as required to support NG9-1-1.


To facilitate the transition to NG9-1-1 utilizing the IT services within ACOG, 9-1-1 ACOG should focus on remedying the deficiencies outlined in the table above and illustrated in the figure below.

Figure 8: General IT Readiness

4.8 Addressing Findings and Analysis Score: 6.00 Every step in providing 9-1-1 services relies upon location. Address standards, from creation to display of addresses on the telecommunicator’s screen, is vital to the 9-1-1 mission. The processes used to create, verify and manage addressing must meet 9-1-1 standards. The address data also must be kept current, ahead of development in the conceptual stages of construction, to provide 9-1-1 services to the men and women building the new roads and homes.

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9-1-1 ACOG’s GIS has an addressing workflow, though strict adherence to the process at the agency is questionable and unknown at “A” jurisdictions that maintain their own addressing. Many “B” jurisdictions will send citizens seeking a new address to the U.S. Post Office, which in turn will send that citizen to 9-1-1 ACOG. Whether addressing standards exist at each jurisdiction is unknown. Internal to 9-1-1 ACOG, the assignment of a new address or change of an existing address is well-coordinated with the public safety staff prior to release to the citizen or business. This coordination does not include “A” jurisdictions because they send new and updated addresses directly to GeoComm for inclusion in the regional dataset. 9-1-1 ACOG receives addressing changes in bulk from “B” jurisdictions. ACOG’s 9-1-1 GIS team generally can implement the edits within 72 hours, but the dates the changes were executed are unknown when they are received by 9-1-1 ACOG. Jurisdictions for which 9-1-1 ACOG maintains addressing are updated within 72 hours of the request being received. New road centerlines and associated address ranges most often are updated from as-built drawings rather than from the plats. This delay creates a risk of location confusion within the PSAP during construction because the real-world conditions are not mirrored in the CAD system. Address creation and maintenance varies widely across 9-1-1 ACOG’s AoR. Substantial improvements to the address creation and maintenance process at 9-1-1 ACOG are necessary. The following improvements are recommended or required for 9-1-1 ACOG to enhance its addressing capabilities:

Table 8: Addressing Improvements


Standardize the address assignment rules used to determine the appropriate address across 9-1-1 ACOG’s entire jurisdictional footprint. Required

Establish an address update schedule for all jurisdictions. Required

Update road centerlines and address points prior to the commencement of construction activities. Required

Update, distribute, and follow the addressing workflow. Strongly recommended

To better standardize the addressing practices and results across the region, 9-1-1 ACOG should focus on remedying the deficiencies outlined in the table above and illustrated in the figure below.

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Figure 9: Addressing Readiness

4.9 Documentation Findings and Analysis Score: 4.80 The migration to NG9-1-1 is complex and requires careful planning. The processes for creating and maintaining GIS data may change, sometimes drastically, to meet the demands of the NG9-1-1 environment. Mitigating the many risks to the success of this undertaking necessitates the development of, and strict adherence to, documents regarding workflows, standard operating procedures (SOPs), strategic planning and industry standards. At the top of the list for documents is a strategic plan. This plan will identify the short-term and long-term goals for GIS data. Comparing these goals with the current capabilities and availability of staff will provide justification for staff-augmentation requests. The strategies for GIS data should support the goals and schedule of the broader public safety program. Finally, the strategic plan must align with 9-1-1 ACOG’s overall strategy and be maintained annually to ensure continued alignment with the 9-1-1 ACOG Board, show progress toward strategic goals, and facilitate budgeting and staffing projections. ACOG’s 9-1-1 GIS team does set annual goals. These goals, however, may or may not be aligned with 9-1-1 ACOG or State NG9-1-1 efforts. The GIS staff does make a herculean effort to achieve all of the annual goals but is understaffed, which limits its ability to achieve success, as well as its ability to mitigate unplanned workload increases caused by events such as the addition of a jurisdiction’s data maintenance due to the loss of GIS staff at the jurisdiction. Several SOPs do exist at 9-1-1 ACOG though they are not widely distributed, enforced, or utilized internally or by the member jurisdictions. Consistency is key to the validation of individual and aggregated GIS datasets. SOPs for the creation, maintenance, distribution and refresh of GIS data assist greatly in meeting the requirements of the NG9-1-1 environment.

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Current, accurate, and fully attributed GIS data is quintessential to the operation of the NG9-1-1 system. The loss of GIS data or services for any length of time could prove disastrous to the public safety mission. ACOG’s 9-1-1 GIS team must maintain a disaster-recovery plan to ensure that the data, systems and staff are able to update the GIS data used for location validation and emergency call routing. The ESInet can continue to operate with State-provided GIS data, but the longer data updates are not provisioned to the NGCS, the greater the risk of 9-1-1 calls misrouting or other location-based issues. ACOG’s 9-1-1 GIS team is unaware of a continuity of operations plan (COOP) or disaster-recovery plan. If one or both does exist, the needs of ACOG’s 9-1-1 GIS team most likely are not explicitly detailed in the plan(s) and the plan(s) has not been updated with input from GIS staff in recent years. 9-1-1 ACOG created memorandums of understanding (MOU) with its member jurisdictions for data maintenance at the time support was initiated. These MOU usually are not updated when services change or to reflect the current landscape. With the introduction of the more-stringent specifications for NG9-1-1, these MOU should be converted to service level agreements (SLAs) and updated to reflect the current level of service being provided by and to 9-1-1 ACOG. SLAs should be developed between 9-1-1 ACOG and each member jurisdiction, 9-1-1 ACOG and the State, and between 9-1-1 ACOG jurisdictions and their respective neighbors external to 9-1-1 ACOG. All agreements should be reviewed annually and updated appropriately. Proper, complete, and current documentation will greatly assist 9-1-1 ACOG in mitigating staff turnover, breakdowns in intergovernmental relationships, and other unforeseen obstacles that may jeopardize the NG9-1-1 migration. The following improvements are recommended or required for 9-1-1 ACOG to improve its documentation posture:

Table 9: Documentation Improvements


Develop and maintain a GIS strategic plan coincident with the broader public safety strategy for 9-1-1 ACOG and with the Oklahoma Geographic Information Council strategic plan.


Review, update, distribute and enforce the use of SOPs for data development, maintenance, and distribution. Strongly recommended

Update ACOG’s COOP to include 9-1-1 ACOG’s GIS data and services requirements. Strongly recommended

Develop a 9-1-1 GIS disaster-recovery plan to ensure the availability of data maintenance and validation services. Strongly recommended

Review, update, distribute, and enforce the use of error-correction workflows internal to 9-1-1 ACOG and at member jurisdictions. Strongly recommended

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Update MOUs governing existing services provided to or by member jurisdictions. Strongly recommended

Develop SLAs with member jurisdictions, with ACOG’s IT Department, and with the State to ensure continuity of operations. Strongly recommended

Develop and distribute a SLA template for use by border jurisdictions with jurisdictions external to 9-1-1 ACOG. Recommended

To ensure continuity across the region and through staff turnover as well as enforce consistency in the NG9-1-1 GIS data, 9-1-1 ACOG should focus on remedying the deficiencies outlined in Table 9 above and illustrated in Figure 10 below.

Figure 10: Documentation Readiness

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5 Recommendations

Proper planning is critical to the success of the NG9-1-1 migration. Short-term project planning and long-term strategic planning are vital and will identify the need for additional resources, further coordination with member jurisdictions, and drive outreach and education efforts. 9-1-1 ACOG should invest in the creation and annual maintenance of a GIS strategic plan to support NG9-1-1. Not only will this benefit ACOG’s 9-1-1 GIS team, but it also will aid 9-1-1 ACOG leadership in planning for the future needs of all 9-1-1 ACOG operations. The strategic plan should identify the need to remedy the gaps identified in this assessment. Additionally, the strategic plan should include an annual projects plan. This plan will guide the efforts of ACOG’s 9-1-1 staff for the year. These projects should be accompanied by milestones and clearly defined goals, tied back to the recommendations in this assessment.

6 Conclusion

While there are great strides being made in various aspects of 9-1-1 ACOG’s mission, there are some areas where improvements could be beneficial, both immediately and for the long-term continued success of the organization that will move it toward the “ideal” state, which the MAPS program defines as a NG9-1-1-ready, or best-in-class public safety organization. The first step in improving an already great public safety GIS program is to identify areas of risk and translate them into opportunities. Now that 9-1-1 ACOG has completed the MAPS assessment, recommendations have been made to improve upon the foundational work that is already in place and to establish metrics for measuring future progress. A summary of recommendations can be found in Appendix B. Some of the areas assessed have recommendations that are new; however, most recommendations are to review and assess the current model, plans and practices, and update them as necessary to improve cohesiveness for employees and to align better with industry standards and best practices. The MAPS program is intended to help: • 9-1-1 ACOG understands where its strengths and weaknesses lie to drive future investment and

highlight risk • Establish metrics for measuring future progress • Plan a course for the future with “stepping stone” projects that will help it reach its long-term goals and

vision With this assessment and the recommendations herein, 9-1-1 ACOG is poised for success in the migration to NG9-1-1 within jurisdictional footprint.

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Appendix A – Next Generation 9-1-1 (NG9-1-1) and Address Standard

This document shall serve as the primary reference document for Next Generation 9-1-1 (NG9-1-1) Geographic Information System (GIS) Components and Address Standard in the State of Oklahoma regarding GIS based addressing. The standard set forth is to be maintained, utilized, and distributed under the authority of the Oklahoma 9-1-1 Management Authority, the Oklahoma Geographic Information Council, and the Oklahoma Office of Geographic Information. This standard is mandatory for NG9-1-1 purposes in the State of Oklahoma. The following guidelines should be incorporated into all addressing applications, both geospatial and tabular, to ensure interdisciplinary compatibility.

Version 1

Oklahoma Geographic Information Council Adopted: April 6, 2018 Draft Submitted for Public Review: November 3, 2017 - January 5, 2018

Oklahoma 9-1-1 Managment Authority Adopted: May 3, 2018 Draft Submitted for Public Review: November 3, 2017 - January 5, 2018

Version 2.1

Oklahoma Geographic Information Council Adopted: February 1, 2019

Oklahoma 9-1-1 Managment Authority Adopted: February 7, 2019

Any questions or comments concerning the NG9-1-1 and Address Standard should be directed to Charles Brady, Chair of the Address Standards Workgroup, at [email protected] or Lance Terry, State 9-1-1 Coordinator, at [email protected].

Please visit the links below to review the Address Standards:

NG9-1-1 and Address Standard Document

NG9-1-1 and Address Standard Schema

mailto:[email protected]

mailto:[email protected]


http://okmaps.onenet.net/documents/OK_ADDRESS_SCHEMAS_21_ADOPTED_02-07-2019.xlsx

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Appendix B – Consolidated Recommendations from this Report

GIS Data Readiness


Acquire and validate VoIP ALI records Strongly recommended

Inventory MLTS/PBX phone systems and assess risk level Recommended

Educate jurisdictions on the importance of adopting the State’s NG9-1-1 schema. Move ETL process internal to 9-1-1 ACOG until all jurisdictions are on the State’s NG9-1-1 schema or can provide ETL data to 9-1-1 ACOG

Recommended

Increase staffing by at least one analyst position to support additional data development, maintenance and validation-testing efforts Strongly recommended

Perform validation testing on the complete dataset for every 9-1-1 ACOG jurisdiction at least quarterly. Test monthly in high-growth areas Strongly recommended

Update the State’s NG9-1-1 and addressing standard as revisions are made to NENA’s GIS Data Model Standard and related standards Required

Production Environment


Develop a staffing plan utilizing external 9-1-1 ACOG FTE GIS resources to mitigate occurrences of unusually high data-maintenance needs. Formalize the plan with memorandums of understanding


Add additional staff to meet demands regarding CAD coordination, 72-hour turnaround times, and performing special projects Recommended

Migrate parent database into 9-1-1 ACOG and replicate out to contractor(s) Recommended

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Regional Coordination


Coordinate PSAP polygon creation and maintenance with neighboring jurisdictions external to 9-1-1 ACOG Strongly recommended

Coordinate road centerline creation, maintenance and address range validation with neighboring jurisdictions external to 9-1-1 ACOG Strongly recommended

Incorporate snap-to points in boundary resolution workflows Recommended

Validate all address points for every jurisdiction at least monthly for full attribution and to guard against overlap Strongly recommended

Training



Increase regional awareness of NG9-1-1 efforts and GIS data requirements through outreach and education sessions with regional GIS and CAD staff at member jurisdictions

Strongly Recommended

Participate in the GeoComm data maintenance toolset user community to remain aware of software updates and issues Recommended

Expand NG9-1-1 GIS awareness though quarterly informational sessions and a newsletter targeted at non-technical leadership in 9-1-1 ACOG and at member jurisdictions



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Computer-Aided Dispatch (CAD)


Coordinate GIS data updates with each jurisdiction to ensure the most recent aggregated GIS data is being used Recommended

Coordinate with the State to raise the need for statewide 9-1-1 data validation and aggregation. Make the 9-1-1 GIS data available through the OKMaps portal

Recommended

Update 9-1-1 ACOG’s GIS data for CAD consumption weekly Strongly recommended

General Information Technology


Ensure that near-term and long-term planning and budgeting continues to cover 9-1-1 ACOG GIS software and server licensing Required

Verify and improve data-recovery capabilities to public-safety grade Strongly recommended

Review and update the managed services contract with ROK Technologies for data hosting. Add a level of service requirements to the contract as required to support NG9-1-1


Addressing


Standardize address-assignment rules used to determine the appropriate address across the 9-1-1 ACOG’s entire jurisdictional footprint

Required

Establish an address update schedule for all jurisdictions Required

Update road centerlines and address points prior to the commencement of construction activities Required

Update, distribute, and follow addressing workflow Strongly recommended

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Documentation


Develop and maintain a GIS strategic plan coincident with the broader public safety strategy for 9-1-1 ACOG and with the Oklahoma Geographic Information Council’s strategic plan


Review, update, distribute and enforce the use of SOPs for data development, maintenance, and distribution Strongly recommended

Develop a 9-1-1 GIS disaster-recovery plan to ensure the availability of data maintenance and validation services Strongly recommended

Review, update, distribute, and enforce the use of error-correction workflows internal to 9-1-1 ACOG and at member jurisdictions Strongly recommended

Update MOUs governing existing services provided to or by member jurisdictions Strongly recommended

Develop SLAs with member jurisdictions, with ACOG’s IT Department, and with the State to ensure continuity of operations Strongly recommended

Develop and distribute an SLA template for use by border jurisdictions with jurisdictions external to 9-1-1 ACOG Recommended

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Appendix C – Data Quality Summary

1 Introduction

Mission Critical Partners (MCP) performed a series of quality control (QC) tests on each specific geographic information system (GIS) dataset to test for conformance with current and draft National Emergency Number Association (NENA) standards and best practices. These tests support identification of underlying data-integrity issues, which could cause emergency calls to be misrouted to neighboring public safety answering points (PSAPs), prevent correct information from displaying on a telecommunicator’s tactical mapping screen, or delay the arrival of emergency responders to an incident location. For the master street address guide (MSAG), automatic location information (ALI) and GIS database comparisons, MCP utilized the methods outlined in NENA 71-501, NENA Information Document for Synchronizing GIS Databases with MSAG and ALI. MCP also utilized the data formats and structures detailed in NENA 02-010, NENA Standard Data Formats for 9-1-1 Data Exchange and GIS Mapping, as the basis for recommended changes to the MSAG and ALI data. The GIS data schemas are taken from NENA 02-010 and NENA STA-006.1-2018, NENA GIS Data Model for NG9-1-1 Standard. MCP then compared the GIS data with the MSAG and ALI data to measure data quality and data accuracy alignment between the GIS, MSAG and ALI databases.

2 Methodology

Numerous jurisdictions throughout the United States maintain GIS location data at the local level or within regionalized areas. These individual GIS datasets from each locality will be combined into the foundational database for NG9-1-1, where all location-related data is stored. Aggregating GIS data from numerous sources such as county, municipal or PSAP jurisdictions for provisioning within the emergency-call routing function (ECRF) and location-validation function (LVF) components of an NG9-1-1 system presents unique challenges. It is imperative to establish the process and mechanisms necessary to assess, improve, and maintain this localized GIS data into a single NG9-1-1 dataset. It is very important to build rules, policies and procedures to maintain authoritative boundaries for emergency service zones (ESZs), PSAPs and municipalities, and to establish a governance process for changes to boundary files—considering annexations and dissolutions—managing effective dates, providing for conflict resolution among neighboring PSAPs, and generally enforcing topology rules for PSAPs. The path to NG9-1-1 GIS data readiness, outlined in the figure below, requires accurate and up-to-date GIS data.

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It is imperative that local GIS data adheres to the applicable data standards and that an effective plan for data maintenance is implemented. An early and critical step during this evolution is synchronizing the GIS databases developed by the 9-1-1 division of the Association of Central Oklahoma Governments (9-1-1 ACOG) with the MSAG and ALI data. These databases should be based on a common dataset and consistent with applicable standards. The objective is to achieve a NENA-recommended 98 percent match rate, i.e., a less-than-2-percent “no records found” rate and minimal discrepancies. 2.1 GIS Datasets Data analysis was performed using the following datasets from ACOG:

Road centerlines file MSAG table Site/structure address points file ALI table Other:

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2.2 GIS Data Models 9-1-1 ACOG has implemented some form of a GIS data model for its road centerlines. Maintaining GIS data in support of NG9-1-1 does not require 9-1-1 ACOG and its member jurisdictions to migrate to NENA’s NG9-1-1 data model. However, 9-1-1 ACOG and jurisdictions will be required to modify their current data models to include all of the attribution required by NG9-1-1 systems, and if required, develop an extract, transform and load (ETL) process for exporting data in the NG9-1-1 format to a designated repository. 2.3 GIS Data Review The QC process begins with a comparison of the GIS data file format, data fields and data structures against the NENA standards identified above. For the GIS data, a series of tests was performed on each of the listed NENA-standardized attribute fields. The effort included testing for the following: • Identification of any additional fields to be added to the dataset to comply with NENA standards • Conformance with NENA standards for attribution • Identification of data-attribute inconsistencies Road centerlines represent the estimated centerline of a roadway in the real world. This is typically the center of the paved roadway. Road centerlines, in GIS data, are linear segments with a beginning point and an endpoint, called nodes. A road segment will have a beginning node and an ending node. It is imperative that road centerlines break at every proper intersection with other road centerlines, as well as intersections with the PSAP and ESZ boundaries. The beginning and ending nodes are important for interpolating the estimated location of an address. Each road segment also has a left and right side. The beginning node determines the left and right sides of a road segment. If a person stood at the beginning node and looked toward the end node, the left side of the street is on the same side as the person’s left hand and the right side of the street is on the right-hand side of the person. Each road segment has left- and right-side attributes for Incorporated Municipality, Zone Improvement Plan (ZIP) Code, Postal Community, and MSAG Community. Each road segment also has four address-range components representing left low address, right low address, left high address, and right high address. When an address is geocoded, an approximated location of the address is acquired by locating the street name and using the four address-range fields in the road centerline data to estimate the address location. 2.3.1 NENA-Required Attribution In June 2018, NENA published NENA-STA-006.1-2018, which identifies requirements and recommendations regarding the development of NG9-1-1 data layers. This NENA standard is designed to meet the needs of an i3-compliant NG9-1-1 system and be backward compatible with today’s E9-1-1 systems. Within an NG9-1-1 system, the ability to validate locations and routing of an emergency call will depend on the standardization, quality and accuracy of the GIS data.

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NENA-required attributes include: • Discrepancy Agency ID • Date Updated • Site/NENA Unique ID • Street Name • Left from Range Value • Left to Range Value • Right from Range Value • Right to Range Value • Parity Left • Parity Right • Country (Left and Right) • State (Left and Right) • County (Left and Right) • Incorporated Municipality (Left and Right) 2.4 GIS Data Testing From the provided datasets, the following data checks/comparison tests were performed:

Initial standardization checks: Determines missing required fields within provided datasets as well as range parities—such as the low range is greater than the high range—and checks for range overlaps.

Topology check: Looks for topology errors in the road centerlines file, including dangles, overlaps, and

intersections that are not correctly split, as well as multipart and self-intersecting geometries.

Road centerlines file versus MSAG table: Compares road centerline road names against MSAG road names and centerline ranges against MSAG ranges.

Address points file versus road centerline file: Geocodes address structure points against the road

centerlines to determine a list of addresses that do not match the address ranges.

Address points file versus MSAG table: Verifies that addresses existing in the address points file have a matching street name and range in the MSAG table.

Address points file versus ALI table: Compares the addresses existing in the address points file against

addresses existing in the ALI Table.

ALI table versus road centerlines file: Verifies that addresses existing in the ALI table have a matching street name and range in the road centerlines file.

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ALI table versus MSAG table: Verifies that addresses existing in the ALI table have a matching street name and range in the MSAG table.

3 Findings

After performing the data checks, the following results were determined. 3.1 Initial Standardization Checks 3.1.1 Road Centerlines File

Road Centerline Attribute Values Review

Total Road Centerline Records 98,987

Attribute Number of Records

Discrepancy Agency ID Missing 98,987*

Date Updated Missing 98,987

Site/NENA Unique ID Missing 98,987

Street Name Missing 100

Invalid Street Type 25

Left from Address Missing 12,983

Left to Address Missing 12,962

Right from Address Missing 5,393

Right to Address Missing 5,370

From Address Is Greater than to Address 3,987

Address Values on Both Sides Are Either Odd or Even 18

Centerline Records with Possible Overlapping Ranges 213

Parity Left Missing 2

Parity Right Missing 2

Country Left Missing 0

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Road Centerline Attribute Values Review

Country Right Missing 0

State Left Missing 0

State Right Missing 0

County Left Missing 4

County Right Missing 4

Incorporated Municipality Left Missing 42

Incorporated Municipality Right Missing 53

*Field missing in attribute table. This field should be added to the table and populated accordingly. 3.1.2 MSAG Table

MSAG Attribute Values Review

Total MSAG Records 29,921


Invalid Street Name 18

Invalid Address Range 18

MSAG Records with Possible Overlapping Ranges 0

3.1.3 Address Point File

Address Point Attribute Values Review

Total Address Point Records 39,847


Discrepancy Agency ID Missing 39,847*

Date Updated Missing 39,847*

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Address Point Attribute Values Review

Site/NENA Unique ID Missing 39,847

Street Name Missing 1,955

Invalid Street Type 0

Address Number Missing 11

Country Missing 17

State Missing 2

County Missing 5

Incorporated Municipality Missing 0

*Field missing in attribute table. This field should be added to the table and populated accordingly. 3.1.4 ALI Table

ALI Attribute Values Review

Total ALI Records 200,258


Invalid Address 21

3.2 Topology Check

Road Centerline Topology Review

Number of Dangle Errors 125

Number of Overlap Errors 796

Number of Road Intersection Errors 570

Number of Centerlines with Multipart or Self-Intersecting Geometries 223

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3.3 Road Centerline File vs. MSAG Table

Road Centerline and MSAG Comparison

Match No Match %

Road Centerline Street Names that Exist in the MSAG 19,148 1,511 92.7%

MSAG Street Names that Exist in the Road Centerlines 19,148 1,135 94.4%

Centerline Address Ranges that Exist in the MSAG 80,361 18,626 81%

3.4 Address Point File vs. Road Centerline File

Address Point and Road Centerline Comparison

Match No Match %

Address Point Matches on Road Centerline 39,172 675 98.3%

3.5 Address Point File vs. MSAG Table

Address Point and MSAG Comparison

Match No Match %

Address Point Matches on MSAG Record 34,965 4,882 88%

3.6 Address Point File vs. ALI Table

Address Point and ALI Comparison

Match No Match %

Address Point Matches with ALI Record 11,038 28,809 28%

ALI Record Matches with Address Points* 14,316 185,942 7%

*9-1-1 ACOG provided 200,258 ALI records and 39,847 address points for analysis, which accounts for the very low match rate between the ALI and address points data. A better match rate would be determined if 9-1-1 ACOG provided a more comprehensive file of address points.

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3.7 ALI Table Versus Road Centerline File

ALI and Road Centerline Comparison

Match No Match %

ALI Record Matches on Road Centerline 198,222 2,036 99%

3.8 ALI Table Versus MSAG File

ALI and MSAG Comparison

Match No Match %

ALI Record Matches on MSAG Record 186,409 13,849 93%

4 Recommendations

MCP will provide back to 9-1-1 ACOG all GIS files and recommends that 9-1-1 ACOG continues to review this data with the respective GIS data-maintenance providers to improve the quality of the data within its area of responsibility.

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