iowa statewide interoperable communications system 9-1-1 … · 2020. 10. 16. · public safety...

Iowa Statewide Interoperable

Communications System

9-1-1 Feasibility Study

Assessment of Existing Conditions and

Analysis Report

January 23, 2012

Public Safety Consulting, GIS, and Software www.geo-comm.com

Contents

Executive Summary ..................................................................................................................... ES-1

Overview ............................................................................................................... ES-1

Governance ........................................................................................................................................... ES-1

Funding ................................................................................................................................................... ES-2

Network ................................................................................................................................................ ES-3

PSAP Structure and Workload ......................................................................................................... ES-5

Technology and Interoperability ...................................................................................................... ES-6

Similar State Studies ............................................................................................................................ ES-8

Data Report Card ................................................................................................................................ ES-8

Conclusion ............................................................................................................................................. ES-9

Section 1: Governance Analysis ............................................................................................... 1-1

Iowa 9-1-1 Governance Overview .................................................................................................... 1-1

Current Legislation and Regulatory Framework ............................................................................ 1-2

Current Support Structure ................................................................................................................. 1-4

Summary .................................................................................................................................................. 1-7

Section 2: Analysis of Current Funding Methods, Formulas, and Models ........................... 2-1

Overview of Funding Methods ........................................................................................................... 2-1

Conclusions ........................................................................................................................................... 2-10

Appendix A ........................................................................................................................................... 2-11

January 2012

Iowa Statewide Interoperable Communications System


Assessment of Existing Conditions and Analysis Report


Section 3: Analysis of Current 9-1-1 Networks (Wireline and Wireless) ............................ 3-1

Iowa Network - Assessment and Analysis ............................................................ 3-1

Analysis of Two Networks .................................................................................................................. 3-1

Network Outages .................................................................................................................................. 3-7

Conclusions ........................................................................................................................................... 3-18

Section 4: Analysis of Current PSAP Structure and Workload ........................................... 4-1

Analysis of Current 9-1-1/PSAP Environment - Wireline and Wireless .................................. 4-1

9-1-1 Workload Assessment .............................................................................................................. 4-2

Analysis of Staffing Considerations .................................................................................................... 4-3

Analysis of PSAP Training .................................................................................................................... 4-6

Industry Training Standards ................................................................................................................. 4-7

Further Training Considerations ........................................................................................................ 4-7

Conclusions ............................................................................................................................................. 4-8

Section 5: Radio Technical Analysis ........................................................................................ 5-1

Analysis of Radio Technology Systems ................................................................. 5-1

Radio Frequency Band .......................................................................................................................... 5-1

Modulation Methods ............................................................................................................................. 5-2

System Ownership ................................................................................................................................ 5-4

Narrowbanding ...................................................................................................................................... 5-5

Mobile Data ............................................................................................................................................. 5-5

System Configuration............................................................................................................................ 5-7

Conclusions ............................................................................................................................................. 5-7

Radio Interoperability Analysis ............................................................................ 5-10

January 2012





End User Interoperability .................................................................................................................. 5-10

PSAP Interoperability .......................................................................................................................... 5-11

Interoperability Agreements ............................................................................................................. 5-12

Mobile Data Interoperability ............................................................................................................. 5-14

Conclusions ........................................................................................................................................... 5-15

Section 6: Analysis of Similar Studies ..................................................................................... 6-1

Analysis of Other State Studies .......................................................................................................... 6-1

North Carolina E9-1-1 Funding .......................................................................................................... 6-1

Indiana Statewide E9-1-1 Plan ............................................................................................................. 6-3

Michigan Next Generation Feasibility Study ................................................................................... 6-6

Summary ................................................................................................................................................ 6-10

Section 7: Data Report Card .................................................................................................... 7-1

Overview .................................................................................................................. 7-1

Status of Public Safety GIS Data ......................................................................................................... 7-1

Maintenance of Existing Data .............................................................................................................. 7-3

Data Report Card Summary ............................................................................................................... 7-3

Centerline Review ................................................................................................................................. 7-4

ALI to MSAG Comparison .................................................................................................................. 7-5

ALI to Centerline ................................................................................................................................... 7-5

ALI to Address Points .......................................................................................................................... 7-7

Analysis Results by Jurisdictions ............................................................................ 7-9

Pocahontas County ............................................................................................................................... 7-9

City of Sioux City ................................................................................................................................ 7-11

January 2012





City of Des Moines ............................................................................................................................. 7-13

Black Hawk County ............................................................................................................................. 7-15

City of Ames ......................................................................................................................................... 7-17

Washington County ............................................................................................................................ 7-19

Next Generation Standards ................................................................................. 7-22

GIS Data Layers ................................................................................................................................... 7-22

Attribute Fields ..................................................................................................................................... 7-23


Executive Summary

Overview

There are numerous complex issues involved in conducting an analysis and assessment of public safety

communications systems to achieve a comprehensive feasibility study of any state’s 9-1-1 system.

GeoComm has conducted an analysis of the current 9-1-1 system in the State of Iowa to provide a

comprehensive study detailing the strengths and weaknesses of the current Iowa program. Throughout the

assessment process, GeoComm identified and documented findings and conclusions related to the 9-1-1

environment and public safety communications interoperability throughout the state. During this task and

as there is a transition into the Draft Recommendations Report, GeoComm continues to review, survey,

interview, and conduct further analysis as needed to refine and clarify data and develop sound and practical

recommendations for the State of Iowa.

Governance

The governance for Enhanced 9-1-1 (E9-1-1) services in Iowa is different for wireline E9-1-1 and wireless

E9-1-1 and responsibilities for managing and establishing surcharge levels to pay for the service are split

between local and state government. As such, there is no single repository for information about the

overall “9-1-1 system” or operations, limited coordination of services, and not a single control point for

managing the overall costs of 9-1-1.

Because of this bifurcated service provisioning and management model, the resulting lack of and

opportunity for state policy makers to have a clear view of how 9-1-1 is managed, how it is paid for, what it

costs to operate, and what consistent service standards are followed make it difficult to establish and enact

effective governance policy and to manage costs.

In 2010, the state E9-1-1 Program Office proposed legislative modifications to update the language in the

legislation to bring the law related to E9-1-1 service more in line with current technology and regulations.

This proposed legislation is important for three reasons. First, the proposed changes are necessary to the

state’s ability to move forward with Next Generation 9-1-1 (NG9-1-1) services by updating language and

correcting outdated technical references which will allow the state to use 9-1-1 funding for the elements

and components of NG9-1-1 services. The second reason why pursuit of the proposed 2010 modifications

is important to the state and local PSAPs is that the changes sought to broaden the use of 9-1-1 surcharge

funds to include enhanced services such as mass notification systems and better prepare the state for

coordination of large scale events. Finally, the 2010 legislative initiative sought to equalize surcharge

revenues for all communications service types and eliminate wireless carrier reimbursement no longer

required as determined by the Federal Communications Commission (FCC). This change could help to

provide additional funding for E9-1-1 enhancements.

January 2012



Assessment of Existing Conditions and Analysis Report ES-2


GeoComm finds that more collaborative methods for addressing the concerns of local agencies and for

NG9-1-11 planning and implementation will be required. A more integrated and coordinated approach will

be essential to sustaining the high quality of E9-1-1 service in Iowa E9-1-1 and that will require all parties,

local and state, service provider and policy maker to commit to more inclusive and participatory

governance.

Funding

Another issue facing Iowa is the decline of wireline E9-1-1 surcharge revenues as levied by many of the

county-based Joint E9-1-1 Services Boards. For every landline telephone that is disconnected so that a

subscriber can save money and revert to just using their cell phone for service, all of the 9-1-1 surcharge

that the county was expecting evaporates and that subscriber only pays his cell phone 9-1-1 surcharge,

which goes directly to the state.

GeoComm has evaluated the level of funding that both wireline and wireless surcharge revenues contribute

to the local agency’s 9-1-1 budget and the state E9-1-1 Program as a whole. More than 80 percent of the

PSAP budgets require other (non-surcharge) revenue to meet budget requirements. It is also evident from

the data provided that wireline revenues continue to decrease at an increasing rate. The fiscal year 2011

revenue estimate was approximately six percent less than 2010 and eight percent less than in 2009. The

wireline surcharge accounts for approximately 80 percent of total revenue the PSAP has available for the

operational budget. In contrast, wireless revenues continue to increase but at an ever decreasing rate.

Over the past three fiscal years, 2008-2010, revenues from wireless surcharge grew by 5.4 percent in 2009

but only 4.9 percent in 2010. The wireless surcharge accounts for approximately 20 percent of total

surcharge. Fortunately, total PSAP E9-1-1 expenditures over the same three year period studied are

relatively flat.

County boards have both designated and undesignated 9-1-1 carryover budget line items and are allowed a

carryover operating surplus of 25 percent of the annual 9-1-1 budget without lowering the wireline

surcharge rate. Designated carryover funds are for projected capital expenditures for future 9-1-1 public

safety related projects. Many of the boards appear to carry a substantial designated fund reserve.

Up to 21 percent of the collected 9-1-1 surcharge funds are designated to reimburse wireless carriers

for expenditures associated with the provision of E9-1-1 services and for 9-1-1 service provider

network connectivity cost reimbursement and also third party database management system

reimbursement. Twenty-five percent of the collected funds are distributed to county Joint E9-1-1

Service Boards to supplement their annual budgets. The remainder of the collected funds is to be used

for the enhancement of PSAP upgrades and improvements.

January 2012





GeoComm identified the following trends with regards to wireless revenues received and expended by the

State of Iowa.

The state expenditure for wireless cost recovery expenditures averages close to 16 percent of the

available funds rather than the 21 percent authorized by statute

The network, database, and selective routing costs associated with the wireless 9-1-1 system

require close to 40 percent of the available funds

The PSAP disbursement is 25 percent of the available funds

The state provides an average of 81 percent of its quarterly surcharge revenues for the provision of

enhanced wireless 9-1-1 services, leaving close to 19 percent available to increase the carryover funds.

Given the structure 9-1-1 services in the State of Iowa, its funding mechanisms, and the decline of surcharge

revenues, GeoComm finds that the current 9-1-1 surcharge model will not sustain the current level of

9-1-1 services across the state and for the long-term. GeoComm finds that the state and local jurisdictions

need to consider several options for mitigating the decline of funding. Joint E9-1-1 Service Boards should

explore methods for reducing the costs to provide E9-1-1 services in their communities including but not

limited to sharing technology or infrastructure as well as combining PSAPs or other local cost sharing

efforts.

As proposed in the last legislative session, the state should consider increasing the wireless surcharge to a

maximum of $1.00 to match the wireline maximum. The 53 percent increase in surcharge revenue would

alleviate strain on local governments funds required to sustain E9-1-1 services. This could increase the

amount provided to county 9-1-1 boards to operate E9-1-1 services in their jurisdiction. In addition, the

state should consider modifying the formula for distribution of wireless funds and removing cost recovery

for carriers and service providers.

Network

One of the areas that GeoComm was requested to assess was the impact of the two network

infrastructures and other cost aspects related to the large number of Public Safety Answering Points

(PSAPs) operating in the state. In an effort to evaluate the total costs of 9-1-1 service today, GeoComm

reviewed the information regarding specific aspects of the current environment at the 18 study PSAPs.

Unfortunately, some of the selected PSAPs did not or could not provide call data, which hampered our

ability to conduct a comprehensive assessment.

Network standards, outlined in state law, are generally related to current technology and processes, and

these standards are voluntary. The standards will need to be modified for Next Generation services.

January 2012





GeoComm found that network infrastructure Best Practices are not thoroughly understood by many of the

PSAPs in Iowa.

There are opportunities to improving the understanding of network standards and best practices among

PSAPs. Redundancy and diversity methodology education can be useful to make useful decisions at the local

level to improve continuity of operations, and conditional routing plans for the PSAP provide a further

opportunity for improvement. In addition, how to assess E9-1-1 grade of service and the ability at the local

level to produce meaningful statistics and reports of call volume, activity by hour of the day and day of the

week, call duration times, speed of answer, and abandoned call rates can assist the PSAP Manager by

providing useable statistical information to evaluate scheduling, training, and related issues.

It was also evident that the number of wireline trunks configured to the individual PSAPs may not be based

on empirical data which defines adequate access to 9-1-1 while maintaining the industry accepted service

threshold of P.01 grade of service.

GeoComm found that PSAPs reported the need to transfer wireline E9-1-1 calls to neighboring PSAPs.

The neighboring PSAPs may be served by a different wireline selective router (if they are served by any

9-1-1 selective router at all) or may even be in a different state. PSAPs should carefully evaluate the call

transfer process and consider efforts to maximize service by minimizing the need to repeat call detail

information to PSAPs that share service area or borders with other states. This may mean enhancing

connectivity to more than the selective router they are currently connected to; or it may mean additional

connectivity between selective routers.

There are many single points of failure risks within the Iowa network. Wireline selective routers are not

interconnected; there some PSAPs still direct trunked which means they are not connected to any selective

router; and there is limited redundancy or diversity which increases the risks if an end office serving the

PSAP becomes isolated leaving the PSAP vulnerable and unable to adequately serve its constituents. For

wireless, there is a single selective router serving the 9-1-1 needs within the entire state, and there is no

back up or interconnectivity for that selective router in the event of a service disruption.

In order to reduce 9-1-1 outage potential or service interruptions, risk management and mitigation planning

for emergency services requires significant advanced considerations and potential expense to the state or

local 9-1-1 authority; however, it is a legitimate consideration in comprehensive planning efforts and should

be encouraged.

The State of Iowa, PSAPs, and the elected/appointed officials with authority regarding enhancing the current

level of 9-1-1 services (including transport, connectivity, and delivery of all approved information) will need

to cooperatively develop and adopt modified language in all E9-1-1 related service tariffs. GeoComm

January 2012





further encourages, as part of the analysis of this report, a continued active dialogue among stakeholders of

both wireline and wireless 9-1-1 networks.

Managing the migration to NG9-1-1 requires a high degree of coordination and collaboration. Whether the

state and local jurisdictions continue with the status quo, or seek improvements to management and

operations within the current structure or advance the implementation of Next Generation services, it is

important that the decision makers remain focused on E9-1-1 customer service, responder safety, and

effective resource management. The resources necessary to support the current PSAP configuration are

substantial and efforts to better control such costs are reasonable and appropriate.

PSAP Structure and Workload

From a PSAP operational and call answering perspective, there does not seem to be a negative impact of

the two networks. The existence of two networks is largely transparent to PSAP operators.

In nearly half of the agencies GeoComm visited, dispatch personnel were tasked with a variety of other

duties such as jail duties that required them vacate a position at times to go into the jail, leaving the 9-1-1

telephones and police radio unattended for short periods of time. This procedure creates a liability for the

PSAP, presents an officer safety concern, and suggests potential service performance vulnerabilities.

Despite a variety of data collection approaches, GeoComm found it difficult to obtain complete and

detailed information from the data collection tools and even the on-site observations and interviews. The

ISICS Feasibility Study Project Team is aware of the data collection issues, and that these issues have

challenged our ability to conduct a fully comprehensive assessment and analysis.

Throughout GeoComm’s interviews with participating PSAPs, many PSAP Managers expressed that staffing

does not appear to be a serious issue. That might appear an accurate assessment on the surface.

However, further evaluation reveals that no standardized process to determine appropriate staffing levels in

the PSAPs is being consistently used. Although staffing levels may seem to be appropriate at many agencies,

the current methodology used to determine these levels, if one is employed at all, may not produce

accurate results.

Without a comprehensive and current evaluation of staffing needs that is based on industry accepted

standards, the PSAP is guessing at the appropriate staffing levels. The belief that the PSAP is either

adequately staffed or understaffed is not based on any quantifiable or validated data and may not be able to

be substantiated should the PSAP be called upon to do so either because of a service complaint or legal

issue.

January 2012





There is an attempt to ensure that all Iowa 9-1-1 telecommunicators /dispatchers) receive basic training in

the fundamentals of call interrogation, call processing, and general dispatching guidelines.

Iowa legislation requires that telecommunicators receive 40 hours of basic telecommunicator training

within the first year of employment.

The legislation also requires that eight hours of continuing education training be provided as well. The 40-

hour course requirement is being met by all of the PSAPs GeoComm visited. Some PSAP training

managers; however, expressed concern over the content and consistency of the classes offered by the state

academy.

In GeoComm's sampling of 18 PSAPs two key items from the APCO/NENA American National Standards

PSAP Service Capability Criteria Rating Scale were utilized. This standard was developed to assist PSAP

managers and their governing authorities in identifying current level of service capability. The initial focus of

this rating scale was to rate a PSAPs’ day-to-day operations as well as survivability during terrorist attacks,

natural disasters, health emergencies, and other major incidents.

GeoComm also found that Emergency Medical Dispatch (EMD) is provided by most PSAPs in Iowa. 67

percent of the 18 sample PSAPs GeoComm observed were providing EMD.

Technology and Interoperability

Agencies across the State of Iowa today use multiple radio systems for daily operations. Those systems

provide adequate to good coverage of local jurisdictions, with little ability for the end user to operate in a

normal, day-to-day mode outside the local system. Car-to-car and scene of action local channels exist in

almost every end user radio and allow some communications when well outside the normal system.

However, these channels are not intended for extended operation or communication with a local dispatch

center.

VHF radio systems are by far the most prevalent public safety systems in Iowa. Even where other systems

exist, the backup and interoperable systems are VHF. Most PSAPs are able to communicate on the

nationally recognized fire and law enforcement VHF interoperability channels. PSAPs and other fixed

locations are usually limited to a single law and single fire channel, while mobiles and portables are typically

programmed with the primary service channels for surrounding jurisdictions.

Most agencies in the state are actively moving to meet the FCC December 31, 2012, deadline to complete

narrowbanding for VHF and UHF radios. Those agencies are aware of State of Iowa plans and schedules to

narrowband state radios and have made a concerted effort to synchronize local narrowbanding with state

agency narrowbanding.

January 2012





State agencies that are responsible for moving their own radios to narrowband must be aware that local

agencies are indeed working to stay synchronized and must also take a proactive role to keep all local

agencies informed of any changes to the currently published narrowband plans.

Along with the narrowbanding requirement, many agencies across the country are considering moving from

analog to digital modulation. There are several factors favoring moving to digital radio. First, the physics of

moving from wideband to narrowband operation usually means a loss of effective voice range for any given

radio system. When that loss occurs within the primary coverage area of the user agency, some measures

may be required to regain the lost coverage, where applicable.

On any given system, with no other system changes such as tower additions or height adjustments, a digital

signal will normally have a greater effective clear voice range than analog. This allows the system user to

regain most or all the useful range lost by narrowbanding.

With nearly 40 percent of Iowa PSAPs currently able to use some form of digital communication the public

safety community in the state has demonstrated a desire to move in this direction. GeoComm expects this

percentage to grow as more agencies take advantage of federal grant programs requiring the purchase of

Project 25 (P25) digital capable radios.

Beyond voice communications the exchange of data to and from mobile units is becoming commonplace in

public safety. The entire national broadband movement is based on this desire to provide a truly

nationwide, seamless system of data exchange. That broadband system does not yet exist, yet more than a

third of Iowa agencies have some local mobile data capability. Today that capability is based almost entirely

on the use of commercial systems. As the national broadband system becomes a reality, and as the growing

federal regulatory movement encourages the transitions of these systems, we can expect Iowa users and

many others to transition to that higher speed, more robust system.

The state of both voice and data radio communications across the State of Iowa, it is well structured to

provide good local coverage for agencies and PSAPs. Local end users generally have the ability to

communicate with their immediate neighbors, but have limited capability to interact with agencies from

beyond that range. PSAPs generally do not have remote backup facilities that would allow radio dispatch

operations should the local PSAP become incapacitated.

Mobile data exchange beyond the local member agency is essentially non-existent. Data systems today are

generally application specific and depend on full user registration and a common over the air

communications system.

January 2012





Similar State Studies

There is value in studying and analyzing what other states have been doing in order to compare and

contrast Iowa’s specific issues. How other communities or states have addressed funding, standards,

legislative reform and NG9-1-1 planning can serve to validate Iowa’s own efforts or to provide new insight

and offer alternatives the state might not have considered.

In this report, GeoComm has reviewed recently conducted studies in three states similar to Iowa, North

Carolina, Indiana, and Michigan. The similarity may be in the issues that the state faces, the size and

complexity of the state structure, and/or the approach to dealing with current issues. These states were

selected specifically for their similarity to Iowa in one of the areas listed above, or because of their unique

approach.

Data Report Card

Accurate data has always been highly important to 9-1-1 and public safety response. As PSAP and E9-1-1

service transitions into NG9-1-1, the importance of having accurate Geographic Information Systems (GIS)

increases dramatically. GIS plays a critical role in the validation of location information and routing of 9-1-1

emergencies into the correct PSAP under a NG9-1-1 model. Therefore, the importance of highly accurate

GIS data for local and surrounding areas is critical.

The ISICS Board study called for the six areas to receive an in-depth analysis of their public safety GIS data.

The following areas were determined to be appropriate for the study:

Urban – City of Des Moines, Polk County; City of Ames Police Department, Story County; and

Sioux City in Woodbury County

Rural – Pocahontas, Washington, and Black Hawk County

The analysis process used in the study follows NENA standards outlined in Synchronizing GIS with MSAG &

ALI, approved September 8, 2009. The analysis called for a review of three main databases, GIS data layers,

Automatic Location Identification database (ALI), and Master Street Address Guide (MSAG). In addition,

GeoComm did an independent analysis on the street centerline prior to testing the ALI database against

the layer. The analysis process related to the NENA specifications for a street centerline data layer being

used for public safety.

Individual results for the six study PSAPs are included in this report.

In future 9-1-1 systems, GIS data will be taking the place of the MSAG data that is being used today.

Accurate and complete GIS data is a requirement based on the elevated use of GIS in a Next Generation

environment.

January 2012





The centerline data is the most common GIS data layer used in public safety and was the main layer

analyzed for this study. The results show that 15 counties do not have access to the basic public safety GIS

layer. The centerline from the six study areas show 20 percent of data as a whole has spatial or attribute

issues that should be reviewed. Synchronization testing of the centerline and sampling of over 60,000 ALI

records was over 85 percent.

Conclusion

GeoComm is confident that this report provides the ISICS Board and the 9-1-1 Council with a

comprehensive assessment and analysis of 9-1-1 and interoperability within the state. The information

gathered thus far in the Existing Conditions Report, coupled with this assessment and analysis will be the

basis for development of potential options for the future of public safety communications for the State of

Iowa.


1

Governance Analysis

Iowa 9-1-1 Governance Overview

The structure of 9-1-1 governance and oversight in the State of Iowa is somewhat unique in that one has to

view two separate structures to understand the Iowa 9-1-1 system. The state has established a two tiered

approach to managing 9-1-1 services. As GeoComm established in the Existing Conditions report, wireline

9-1-1 is addressed and managed at the local level through individual county Joint E9-1-1 Services Boards (on

behalf of their local PSAPs). The local authorities contract for and manages wireline 9-1-1 in an

independent and specifically local manner. In the case of Iowa, this means essentially a multitude of

different ways the systems are dealt with using a complicated and disparate network of five geographically

diverse wireline Enhanced 9-1-1 (E9-1-1) selective routers which are not interconnected. This structure

can be just as complex and costly for the 9-1-1 service provider as it is for the PSAP. Each of the individual

county Joint E9-1-1 Service Boards are authorized through the statute1 to set their own 9-1-1 surcharge fee

within defined parameters. Because of this structure, there are potentially as many different billing

processes for a service provider as there are Joint E9-1-1 Service Boards. This causes a multitude of

disbursement responsibilities, all of which add cost to the service.

Wireless 9-1-1 services are managed in a coordinated manner at the state level by the E9-1-1 Program

Office of the Homeland Security and Emergency Management Division (HSEMD). The E9-1-1 Program

Office determines the wireless 9-1-1 surcharge level (as guided by state law) and the routing and required

network elements, collects the revenues and pays the bills associated with the wireless 9-1-1 network. All

wireless 9-1-1 calls are switched through one selective router location and passed through the network to

the appropriate destination PSAP based on the location of the cell tower through which the 9-1-1 call was

initially processed. The six state patrol dispatch facilities are managed in a coordinated way through the

Iowa Department of Public Safety and receive transferred wireless 9-1-1 calls from primary local PSAPs

throughout the state.

Because the governance and responsibilities are both divided between local and state government within

the present structure, there is no single repository for information about the 9-1-1 system or operations,

no coordination of services, nor a single control point for managing the overall costs of 9-1-1.

1 Chapter 34A, Iowa Code

January 2012



Assessment of Existing Conditions and Analysis Report 1-2


Current Legislation and Regulatory Framework

Overview

In the 2010 legislative session, a number of significant changes and modifications to the statute pertaining to

9-1-1 services were proposed but the legislation was not enacted by the end of the session. The proposed

2010 modifications are important for three reasons.

First, the modifications are directly related to the state’s ability to move forward with Next Generation

9-1-1 (NG9-1-1). The changes would update the language and correct outdated technical references that

may be open to interpretation of the state’s ability to use 9-1-1 funding for the components of NG9-1-1

services.

The second reason why pursuit of the proposed 2010 modifications is important to the state and local

PSAPs is that the changes sought to broaden the use of 9-1-1 surcharge funds to include enhanced services

such as mass notification systems and better prepare the state for coordination of large scale events.

Finally, the 2010 legislative initiative sought to equalize surcharge revenues for all communications service

types and eliminate wireless carrier reimbursement which is no longer required as determined by the

Federal Communications Commission’s (FCC’s) “King County” ruling.2 The FCC initially required that a

cost recovery mechanism be in place for both the wireless carrier and the PSAP before the carrier would

be obligated to deliver wireless E9-1-1 service. In what is now known as the “King County” ruling, the

FCC stated that disputes about cost recovery had become a significant impediment to the implementation

of wireless E9-1-1 and eliminated the carrier cost recovery requirement but not the PSAP cost recovery

requirement. The clarification that came out of this ruling established a demarcation point within the

wireless E9-1-1 system for distribution of cost responsibility between the PSAP and wireless carriers.

In addition to the legislative initiative that began in 2010, GeoComm assessed several other elements of the

legislative and regulatory framework in Iowa.

Tariffs - Because of the structure under which 9-1-1 services in Iowa have been established and the

rates and charges permitted by the Iowa Public Utilities Commission through its regulatory process,

the 9-1-1 service provider tariff mileage charges are high. Mileage charges occur because the

selective routers are not within close proximity to the PSAP and the 9-1-1 service provider must

transport the voice and data elements of the 9-1-1 call over long distances. There is a process

followed by the Iowa Public Utilities Commission for reviewing the tariff and company authorized

rate of return and if appropriate adjusting rates.

2 FCC Docket Number 94-102, Order on Reconsideration, Revision of the Commission’s Rules To Ensure

Compatibility with Enhanced 911 Emergency Calling Systems, Request of King County, Washington, adopted May 14,

2002

January 2012





E9-1-1 Service Plan - Current state law requires a local E9-1-1 Service Plan be established,

containing specific information about 9-1-1 services in the jurisdiction, and that the Plan is

“maintained” by the Joint E9-1-1 Service Board in the local jurisdiction. However, there is not a

clear understanding of what “maintained” means in the legislation or in state rules. It is implied that

whenever an element required in the Plan changes (such as costs, number of trunks, members of

the Joint E9-1-1 Services Board, etc.) then the Plan should be updated and resubmitted to the state

E9-1-1 Program Manager for approval.

Notice of plan modification is supposed to be provided to all public safety agencies serving in the

jurisdiction and all providers in the jurisdiction. Operationally and historically; however, that has

not been done. There is a concerted effort underway by the E9-1-1 Program Office to request

updates to the local E9-1-1 Service Plans. A template for Plan updates has been developed and is

available on the department website.3 This template and instructions should be of significant

assistance to local Joint E9-1-1 Service Boards. Compliance with the request to update the local

E9-1-1 Service Plans appears to be on a voluntary basis and without clear direction in rules or legal

interpretation.

State Role in Oversight and Management of Entire 9-1-1 System - The state E9-1-1 Program Office,

as we have noted, focuses only on wireless 9-1-1 service and has oversight authority over this one

element of service in the state. The result of this limited responsibility is that state and local policy

makers do not have the full picture of 9-1-1 operations, service levels, or costs in Iowa. In addition,

the Iowa legislature cannot obtain a full understanding of how much 9-1-1 costs in its current

configuration or the impact of the current 9-1-1 structure. The state does not require local

entities to produce information that would provide a clear view of operations, and unless local

entities are compelled to produce information, a clear view of operations is not readily available.

Information and statistics about call volume, operational costs, network connectivity, or service

provided is essential data for policy makers to make informed decisions.

Public Utilities Commission - The Iowa Public Utilities Commission’s role is limited and appears

to only deal with approval of tariff rates for services. There is a requirement that Competitive

Local Exchange Carriers (CLEC) register with the state but there are no requirements or

standards to assure that:

The local PSAP receives the proper revenue from service providers

The 9-1-1 service levels are commensurate with other providers

What is Working

Ability for a single entity to coordinate, manage, and oversee the entire wireless network

Ability for a single, statewide entity to manage all costs (collections and payments) for wireless

9-1-1 service

Locals required to submit annual budget to the state for that portion of the 9-1-1 surcharge

revenues they receive from the state

3 http://www.iowahomelandsecurity.org/programs/E_911.html

January 2012





A mechanism is in place to record and document information that outlines how 9-1-1 services

function on a county-by-county basis within the state

What is Not Working

Fragmented oversight of 9-1-1 emergency communications networks as a whole

Complicated interaction with for service providers adds to costs

Limited service level standards and inconsistent service levels leads to unequal service being

provided to the people of Iowa

Quality assurance of some system elements may be difficult to conduct

Local E9-1-1 Service Plans are not “maintained”

Cannot report to the legislature on the “State of 9-1-1 in Iowa” as there is limited ability to have a

snapshot of all PSAP functionality and operations

Tariff costs may need to be reviewed in light of NG9-1-1 service elements and transport costs for

legacy system

Role of Iowa Public Utilities Commission is limited

Legislative language needs to be contemporized to prepare for Next Generation service and to

expand the state’s ability to implement next generation technology

Local budget submissions are limited to reporting how 9-1-1 wireless E9-1-1 surcharge revenue

funds are used therefore an overall view of what it costs to operate 9-1-1 is not available

Current Support Structure

Overview

Within the State of Iowa, there are essentially four different levels of boards or oversight organizations,

three statewide boards and 99 local boards all having authority and responsibility for specific elements of

the public safety emergency communications system. These include the state E9-1-1 Program Office of the

Department of HS/EM, the ISICS Board, the 9-1-1 Council, and the local Joint E9-1-1 Service Boards. The

question of how each of the four boards work together and how sharing of strategic plans is done or to

what degree coordination of planning activities is accomplished deserves assessment

State E9-1-1 Program Office - This office is largely focused on wireless 9-1-1 service within the

state. The activities of the office are well-coordinated, and the network and costs of the service

appear to be well managed. Migration to NG9-1-1 services is inevitable, the wireless network is a

logical transitional technology for Next Generation, and the state role in planning and advancing

Next Generation policy is essential. There is limited ability to assist locals with procurement

processes, which can lead to higher costs at a local level. The state E9-1-1 Program Office staff is

small and is limited in its ability to do much more than the current scope assigned to this office.

Because the office is advised by the 9-1-1 Council, coordination of activities between the state

E9-1-1 Program Office and the Council is conducted.

Iowa Statewide Interoperable Communications System Board (ISICSB) - The mission of the ISICS

Board is to implement, develop and oversee policy, operations, and fiscal components of

January 2012





communication interoperability efforts at the state and local level and coordinate with similar

efforts at the federal level, with the ultimate objective of developing and overseeing the operation

of a statewide integrated public safety communications interoperability system.

While radio communications specifically is not mentioned in the mission, the focus of the ISICS

Board has been placed on radio communications with interoperability in radio communications

paramount. Statewide communications planning is conducted, with little control over local efforts.

After several years of planning and without legislative action to sufficiently fund a statewide system

the likelihood of a truly integrated and interoperable radio communications functionality statewide

is dim.

Emergency responders across the Nation are communicating more effectively during large planned

and emergency events because of the All-Hazards Type III communications Unit Leader (COML)

training program. The emergency response community identified the need for COML training, and

with DHS support, helped to create a formal program to train COMLs on operational and technical

aspects of communications and procedures to use during incidents. The COML Course offers

standardizing training and response. COML training has help jurisdictions to standardize their

planning for an incident so all responders are working off the same plan of action. The ISICS Board

has held several COML Courses since 2009 and will be sponsoring another in Dubuque in January

2012.

The ISICS Board is also involved in a number of training and exercise initiatives including table top

exercises looking at interstate interoperability with a Tri-State Planning Group comprised of Iowa,

Minnesota, and Wisconsin, In December 2010, the Tri-State Planning Group held an

interoperability briefing and table-top exercise focusing on interoperability for the three states and

covering a sixteen county area in northeast Iowa. A full-scale interoperability exercise was held in

2011, and another exercise is scheduled to be held in March of 2012.

In 2011, the ISICS Board acquired the CASM (Communications Asset Survey and Management) tool

to track interoperability and narrowbanding throughout Iowa. Forty-six other states are also using

this Department of Homeland Security tool.

The 9-1-1 Council - The mission of the 9-1-1 Council is to advise and make recommendations to

the Homeland Security and Emergency Management Division (HSEMD) Administrator and the state

E9-1-1 Program Manager related to the development and implementation of the state E9-1-1

system as described in Iowa Code 34.15 and the portion of 474.1 related to the Iowa Utilities

Board. The membership of the 9-1-1 Council is broad-based and representation from all aspects of

9-1-1 service in the state is provided for in the law.

Local Joint E9-1-1 Service Boards - While representation is generally prescribed in legislation, there

is inconsistent utilization of board function. Some local Joint E9-1-1 Service Boards are responsible

only for budget approval, while others are more integrally involved in policy and operational

decisions. The legislation only states that the Board is to maintain the E9-1-1 Service Plan and that

the Plan is to specify the method of and cost for implementing the E9-1-1 system.

9-1-1 Plans - Legislative intent is unclear; potentially excellent tool for state to be aware of

network implications; most present plans are useless; until recently, no model plan existed for

locals to follow to ensure all required components are included in a manner and format and

that is useful for comparison and reports to the legislature; some effort has begun on

requesting updated 9-1-1 Plans

January 2012





Impact on Network(s) - Wireline networks are not integrated which limits functionality; limits

public safety ability to transfer calls where necessary for response

Impact on Costs - Potentially higher costs incurred because local planners do not understand

network engineering or the tariff

Number of PSAPs - The number of PSAPs operated by government, which today stands at 117

for 99 counties in Iowa, is a large number. The impact of this large number of PSAPs can be

seen in several areas: (1) local costs to operate and manage the PSAPs including staffing,

management, technology, and infrastructure costs, network connectivity and facility; and (2)

state costs related to administration, oversight, wireless trunking connectivity costs, and

accounting.

Communication - Communication between the state E9-1-1 Program Office and the PSAPs is

limited. In some cases, the PSAP may not be aware of state E9-1-1 Program Office activities or

how they might affect the PSAP. Local agencies need to be well informed of the activities and

function of the state office and should pay attention to information being released and shared

from that office. The state office should have mechanisms to obtain feedback and reaction

from the local agencies to help formulate solid and sustainable planning for collaborative efforts.

Lack of communication in both directions leads to misunderstanding and mistrust of what is

happening as it relates to 9-1-1 services and planning in the state. Misunderstanding and

mistrust lead to entrenched positions or reactions to situations that may or may not be real,

and contribute to a lack of cooperation.

What is Working

Statewide coordination of wireless 9-1-1 services

State acting as catalyst for NG9-1-1 planning, policy, and initial implementation

A legal process exists for documenting 9-1-1 elements on a PSAP by PSAP basis within the state

What is Not Working

Collaboration between state and locals is limited

Limited role of state E9-1-1 Program has led to lack of statewide coordination and fragmented

operations for wireline 9-1-1

State staff is small which limits the capability of the office

Carrier reimbursements are no longer required by the FCC; the state may be paying unnecessarily

for the service

Most local E9-1-1 Service Plans are not updated

Many PSAPs are not well educated on network elements and do not understand network

management

E9-1-1 traffic studies have not been conducted regularly; without traffic studies the local entity or

does not know if they are over or under trunked. The cost impact of over-trunking at the local

level, or the grade of service provided is unknown.

January 2012





Local authorities operate with minimal interaction with neighboring jurisdictions on 9-1-1; however,

there has been some regional efforts in radio systems integration and planning.

Standards for statewide coordination are not in place

Summary

In conclusion, while the State of Iowa governance structure has advantages and disadvantages, the dual

approach to managing 9-1-1 services in the state has resulted in service fragmentation. The inability of the

state policy makers to have a clear view of how 9-1-1 is managed, how it is paid for, what it costs to

operate, and what consistent service standards are followed make it difficult to establish and enact effective

governance policy and to manage costs. Future legislative efforts may need to consider a more integrated

and coordinated approach than has been needed in the past. The state can anticipate that this concept may

be met with acceptance by some who realize that the limited coordination of all 9-1-1 services may not

have been in the best interest of the Iowa public. In contrast, others may express concern that increased

coordination at the state level may lead to less control at the local level. Collaborative methods for

addressing these concerns will be required. NG9-1-1 will require increased state coordination in order to

be functionally effective.


Overview of Funding Methods

As stated in the Existing Conditions Report, 9-1-1 services in the State of Iowa are funded through the

combination of wireline and wireless 9-1-1 surcharge funds and local, general revenue funds. Some state

grants from the wireless 9-1-1 emergency fund are also available to the county Joint E9-1-1 Service Board

for Public Safety Answering Point (PSAP) projects.

The 9-1-1 surcharge funds are collected on telephone bills of wireline and wireless telephone service

subscribers and prepaid wireless customers. In some cases a surcharge is paid by Voice over Internet

Protocol (VoIP) subscribers. Even though surcharge fees are collected from different technology

subscribers across the State of Iowa, the fees are levied, collected, and managed differently. To supplement

the surcharge fees in funding 9-1-1, PSAPs across the State of Iowa often utilize local general revenue funds

to fully fund emergency 9-1-1 services.

Wireline Surcharge Funding

In 1988, each county in the state was directed by statute to establish a Joint E9-1-1 Service Board (E9-1-1

Board or alternative legal entity under Chapter 28E of the Iowa Code) to develop a county-wide wireline

Enhanced 9-1-1 (E9-1-1) plan describing the services provided and the area served, and establishing the

means for providing and funding the system. The major funding resource for the systems was the wireline

9-1-1 surcharge fee. The wireline surcharge fee was authorized by a voter referendum for each E9-1-1

Board jurisdiction with a fee of up to $1.00 per month per telephone access line. In the same manner, the

voters can approve a fee of up to $2.50 per month for an initial 24 month period. Currently there are 81

counties in Iowa with a $1.00 per month surcharge. Fifteen counties have a fee of less than $1.00 and two

counties have a fee of greater than $1.00. Scott County is the only county that does not have a local

wireline surcharge fee. However, they are funding their PSAP and 9-1-1 system via a property tax levy

under a 28E Agreement implemented by their County Emergency Management Agency.

The wireline surcharge fees are collected monthly by the carriers and remitted quarterly to the Joint E9-1-1

Service Boards for deposit into their respective E9-1-1 service funds. The carriers are allowed to retain

one percent of the gross surcharges collected as compensation for the costs of billing and collection of the

fee. Each county E9-1-1 Board establishes the surcharge rate within the constraints of the statute and the

voters’ approval as part of its annual budget filed with the state 9-1-1 Program Manager and Iowa

Department of Management (DOM). Money deposited in their E9-1-1 service fund may be used for the

provision of enhanced emergency communications services through the payment of recurring and

nonrecurring costs such as network equipment, software, database, addressing, initial training, other start-

up, capital, and ongoing expenditures.

January 2012





E9-1-1 surcharge funds are to be used only to pay costs directly attributable to the provision of E9-1-1

telephone systems and services and may include costs for portable and vehicle radios, communication

towers and associated equipment, and other radios and equipment permanently located inside the Public

Safety Answering Point (PSAP).1 Surcharge funds may not be used for personnel costs associated with

PSAP operations but may be used for personnel costs associated with database management.

The county Joint E9-1-1 Service Board is authorized to maintain designated and undesignated carryover

funds, not to exceed 25 percent of its annual budget, without lowering the surcharge rate.

Wireless Surcharge Funding

In 1998, the state statute was amended to provide for the implementation and funding of E9-1-1 services

for wireless subscribers. The law provides for a maximum wireless surcharge fee of $0.65 per month per

subscriber telephone number. The fee is also applied to prepaid subscribers of wireless telephone services.

The maximum rate of $0.65 has been in effect since 2004. As opposed to sending the wireless surcharge

fees to each county E9-1-1 Board for deposit, wireless carriers are required to remit the funds directly to

the state for deposit into the State of Iowa E9-1-1 Emergency Communication Fund, managed by the E9-1-1

Program Manager. The wireless state E9-1-1 Program is operated as part of the Iowa Homeland Security

and Emergency Management Division (HSEMD).

The statute also provides direction as to the distribution of the revenue deposited in the emergency

communication fund. Wireless surcharge funds are to be allocated for the operations of the state E9-1-1

Program Office, cost reimbursement for wireless carriers, reimbursement for vendors providing network

and database services and an allocation to county Joint E9-1-1 Service Boards.

In addition, special project funds are distributed as state grants to PSAPs for upgrades and improvement,

and some of the wireless funds are being directed to the planning and implementation of the state’s Next

Generation 9-1-1 (NG9-1-1) system as matching funds for a federal grant. The state’s $1.4 million

contribution to the NG9-1-1 system includes $1.3 million in matching funds for the federal grant to

complete Phase I of the NG9-1-1 system, planned for September 2012. The remaining $100,000 will be

used to support both the legacy and NG9-1-1 networks during NG9-1-1 testing and implementation. The

state also has funds set aside for network capacity increase.

1 Reference 605-10.13 (34A)

January 2012





Voice over Internet Protocol Funding

The Voice over Internet Protocol (VoIP) surcharge fee is collected at the wireless rate of $0.65 per month

and remitted to the county Joint E9-1-1 Service Board when the fee is applied. It is important to note that

the state 9-1-1 Program Manager indicated to GeoComm that VoIP calls are frequently transported over

the wireless network but that sometimes the VoIP provider will contract with a third-party provider to

utilize the wireline network to access the PSAP network; and that VoIP providers in Iowa claim it is unclear

as to whether they fall under the current 9-1-1 statute and/or state regulatory authority. Not all VoIP

providers collect and remit the fees, and GeoComm has not received data differentiating the VoIP

surcharge fees from the total wireline fee received by the county Joint E9-1-1 Service Boards.

Local General Revenue Funding

GeoComm has found that the level of local funding required for each county to both provide 9-1-1 services

and operate PSAPs varies a great deal. The local funding revenue source included in the end of fiscal year

2011 budget estimates reported to the state ranged from zero local funds reported by the Calhoun, Scott,

Washington, and Worth County Joint E9-1-1 Service Boards to as much as $520,830 reported by the Page

County Joint E9-1-1 Service Board. Local funding reported in the Joint E9-1-1 Service Board budgets may

include bond funds, grant funds, interest on investments, and local tax dollars.

Another annual budget revenue source is carryover funds from the previous year. The annual budget

format provided by the Iowa DOM does include, on both the revenue and the expenditures sides,

accounting for designated and undesignated carryover funds.

Analysis of Funding Methods

Each fiscal year, the county Joint E9-1-1 Service Boards’ are required to file their annual budgets with the

state 9-1-1 Program Manager. A copy of each budget for the past three years is available on the Iowa

DOM website2 . The budget format includes the resources and requirements for each county Joint E9-1-1

Service Board’s fiscal year budget beginning July 1 of each calendar year. On the following page is a budget

example of the fiscal year 2012 budget for the Polk County Joint E9-1-1 Service Board.

2 https://www.iowaonline.state.ia.us/localbudgets/default.aspx?cmd=gotopublicsite

https://www.iowaonline.state.ia.us/localbudgets/default.aspx?cmd=gotopublicsite

January 2012





It is important to note from the exemplar budget that there are several financial resource categories in the

budget, including the beginning fund balance, telephone surcharge (wireline), and other revenues that

includes the wireless E9-1-1 surcharge. The budget financial requirement categories include administration,

communications, data processing, addressing, equipment repair and maintenance, contracted services,

capital expenditures and debt service. Both the beginning and ending fund balance sides of the budget

document include categories of funds that are reserved for encumbrances, unreserved/designated and

unreserved/undesignated.

For the purposes of this funding methodology analysis, GeoComm has evaluated the level of funding that

surcharge revenues contribute to the expenditures of each budget and the state 9-1-1 Program Office as a

whole. Table 1 on the following page provides a summary of total surcharge and other revenue

contributions to the county Joint E9-1-1 Service Boards budgets that were estimates for end of fiscal years

2009 through 2011.

January 2012





Table 1

State of Iowa County E9-1-1 Service Boards

Estimated Budget FY 2009 - FY 2011

Budget Category 2009 Estimated 2010 Estimated 2011 Estimated

Revenue

Wireline Surcharge $14,406,862 $14,077,265 $13,246,008

Wireless Surcharge $2,986,018 $3,195,987 $3,923,721

Other Revenue $5,972,536 $8,006,220 $5,374,396

Total $23,365,416 $25,279,472 $22,544,125

Expenditures

Salaries $1,156,594 $860,344 $704,167

Administration $801,959 $713,113 $800,158

E9-1-1 Telephone Expense $3,145,369 $3,676,175 $3,046,934

9-1-1 Data Processing $1,129,389 $1,721,114 $1,302,866

Signage/Mapping $894,434 $806,053 $742,278

Equipment Maintenance $3,443,606 $3,398,544 $3,716,448

Contract Services $1,703,709 $2,175,359 $2,698,803

Capital Expenditures: Communications $5,563,500 $6,383,792 $4,897,485

Capital Expenditures: PSAP Equipment $3,277,047 $3,171,309 $2,231,005

Capital Expenditures: Signage $1,332,190 $1,596,944 $1,584,137

Debt Service $917,619 $776,725 $819,844

Total $23,365,416 $25,279,472 $22,544,125

Revenue Contributions to Budget

Wireline Surcharge 61.66% 55.69% 58.76%

Wireless Surcharge 12.78% 12.64% 17.40%

Other Revenue 25.56% 31.67% 23.84%

Total 100.00% 100.00% 100.00%

It is important to note when reviewing the annual budgets across the state:

Not all county budget line items were complete for all three years

Each fiscal year was independent

Some counties had a surplus of surcharge revenue to fund their budgets. However, more than 80

percent of the budgets required other (non-surcharge) revenue to meet budget requirements. The

source of these revenues could be carryover fund balances or local funds.

January 2012





Appendix A provides the detail documentation for each county supporting Table 1.

Funding Methods Findings

As GeoComm analyzed the different 9-1-1 funding methods for the State of Iowa and concluded that

wireline surcharge funding is decreasing at an accelerating rate while the wireless surcharge is increasing at

a decelerating rate. In other words, the rate at which wireline 9-1-1 surcharge proceeds are going down is

getting worse (due to more people dropping their landlines), and the rate at which wireless surcharge

revenues are increasing is slowing down, as the penetration of cell phones begins to reach its theoretical

maximum. Most individuals do not need two cell phones, so once a person has one, the rate of increase

would be limited to the increase (if any) in the population. It is also important to note that county Joint

E9-1-1 Service Boards are being required to supplement the surcharge from other sources identified in

their annual budgets.

In examining the budgets, GeoComm found the following:

Revenues

Wireline revenues continue to decrease at an accelerating rate.

The fiscal year 2011 revenue estimate was approximately six percent less than 2010 and

eight percent less than in 2009.

Wireline surcharge accounts for approximately 80 percent of total surcharge.

Wireless revenues continue to increase at a decelerating rate.

The Office of the Auditor for the State of Iowa reported that over the past three years,

fiscal years 2008 through 2010, revenues from the wireless surcharge grew by 5.4 percent

in 2009 and another 4.9 percent in 2010.

Wireless surcharge accounts for approximately 20 percent of total surcharge collected in

the state used to support county Joint E9-1-1 Service Board budgets.

VoIP surcharge is not consistently collected across the state. Even though the VoIP services

are connected to the state, rather than the local 9-1-1 networks, the associated VoIP

surcharges that are collected are remitted to the local Joint E9-1-1 Service Board rather than

the state.

Total surcharge revenues (both wired and wireless) continue to decline at an accelerating rate.

To sustain the current level of service under the current surcharge funding models, increased

revenue from other categories will be required.

Expenditures

Salaries for PSAP operations are not included in the joint service board budgets because they

are not allowed by statute. Budget salaries include database management services.

Other administrative services are relatively constant

January 2012





E9-1-1 telephone expense, equipment maintenance, contract services, and capital expenditures

account for the largest portion of the annual budgets. Annual deviations in these categories

provide the largest change in total expenditures each year

Total expenditures over the three year period studied are relatively flat

Carryover funds

County Joint E9-1-1 Service Boards are allowed a carryover operating surplus of 25 percent of

the annual budget without lowering the wireline surcharge rate.

County Joint E9-1-1 Service Boards have both designated and undesignated carryover budget

line items.

Designated carryover funds are for projected capital expenditures for future projects.

Many of the Joint E9-1-1 Service Board carry a substantial designated fund reserve

Undesignated carryover funds are reserve funds yet to be designated

Analysis of Wireless Distribution

As previously stated, the State of Iowa Wireless E9-1-1 Emergency Communication Fund is managed by the

state 9-1-1 Program Manager. Wireless surcharge revenues are deposited into the fund each quarter to

support the wireless E9-1-1 Program Office activities. The statute requires the 9-1-1 Program Manager to

distribute the funds in the following manner:

$200,000 per year to fund the operations of the State 9-1-1 Program Office

Up to 21 percent of the collected funds to reimburse wireless carriers for expenditures associated

with the provision of E9-1-1 services

Reimburse local exchange carriers for network services

Reimburse vendors for Automatic Location Information (ALI) and Selective Routing (SR) services

25 percent of the collected funds are distributed to county Joint E9-1-1 Service Boards to

supplement their annual budgets

The remainder is to be used for the enhancement of PSAPs through upgrades and improvements.

Funds not expended in the ways identified above are deposited into a Carryover Fund for both

designated and undesignated purposes.

January 2012





The following table provides an overview of the wireless surcharge funds received and distributed for

fourth quarter 2010, first quarter 2011, and second quarter 2011.

Table 2

4th Quarter 2010 1st Quarter 2011 2nd Quarter 2011

Gross Funds Received $4,236,818.31 $4,265,750.10 $4,388,751.88

HLSEM Funding $(50,000.00) $(50,000.00) $(50,000.00)

Interest Earned $12,444.80 $5,685.51 $3,168.77

Expenditures $(403.08) $(397.47) $(230.89)

Funds Available $4,198,860.03 $4,221,038.14 $4,341,689.76

21 Percent for Cost

Recovery $881,760.61 $886,418.01 $911,754.85

Total Cost Recovery

Expense $(666,296.72) $(664,549.46) $(654,744.26)

LEC Network Expense $(276,766.26) $(276,439.24) $(279,200.61)

ALI/Selective Expense $(1,427,550.81) $(1,422,673.63) $(1,405,254.86)

PSAP Funding $(1,049,715.01) $(1,047,231.96) $(1,085,422.44)

Total Expended $(3,420,328.80) $(3,410,894.29) $(3,424,622.17)

Available for Carryover $781,744.43 $ - $ -

Prior Quarter Carryover $1,718,117.81 $2,499,862.24 $3,310,006.15

Carryover Project Expense $ - $ - $(70,580.00)

End of Quarter

Carryover $2,499,862.24 $2,499,862.24 $3,239,426.15

Total Funds in

Carryover $8,098,792.04 $9,684,673.52 $8,880,536.47

Carryover Obligations

US DOT Matching Grant $1,333,456.30

Network Capacity Increase $200,000.00

PSAP Projects $150,000.00

Total Obligations $1,683,456.30

January 2012





Wireless Distribution Findings

As GeoComm reviewed the revenue and expenditure history for the State of Iowa Wireless E9-1-1

Emergency Communications Fund, the project team confirmed that the wireless revenues continue to

increase but at a decelerating rate. According to the data provided in Table 3 below, the revenues grew by

5.45 percent in fiscal year 2009 and by 4.93 percent in fiscal year 2010. Although the audit report for fiscal

year 2011 is not available, based on quarterly reports, GeoComm estimates the wireless surcharge

revenues grew by 1.66 percent in fiscal year 2011 with a total surcharge received being $17,194,581.

Table 3

Wireless E9-1-1 Emergency Communications Fund

Budgetary Comparison Schedule

FY 2008 Actual FY 2009 Actual FY 2010 Actual

Revenues

Fees, licenses, and

permits

$15,286,980 $16,119,584 $16,914,452

Interest on

investments

$148,775 $108,869 $47,926

Refunds and

reimbursements

$1,054 $ - $ -

Total Revenues $15,436,809 $16,228,453 $16,962,378

Expenditures

Personnel services $133,700 $147,877 $157,739

Travel and

subsistence

$9,237 $12,749 $7,939

Supplies and materials $1,355 $556 $350

Contractual services $14,171,590 $15,239,850 $13,590,435

Equipment and repair $1,595 $563 $656

Total Expenditures $14,317,477 $15,401,595 $13,757,119

Excess of revenues over expenditures $1,119,332 $826,858 $3,205,259

Beginning of year balance $2,464,881 $3,584,213 $4,411,071

End of year balance $3,584,213 $4,411,071 $7,616,330

GeoComm has also found the following trends with regards to wireless revenues received and expended

by the State of Iowa:

The state expenditure for wireless cost recovery averages close to 16 percent of the available funds

rather than the 21 percent authorized by statute

January 2012





The network, database, and selective routing costs associated with the wireless 9-1-1 system

requires close to 40 percent of the available funds

The PSAP disbursement is 25 percent of the available funds

The state provides an average 81 percent of its quarterly surcharge revenues for the provision of

enhanced wireless 9-1-1 services, leaving close to 19 percent available to increase the carryover

funds

GeoComm has also determined that the Carryover Fund has continued to increase although a portion of

the fund is designated for certain obligations including:

Matching funds for Phase I of its NG9-1-1 program ($1,333,456.30)

Funds to increase network capacity ($200,000)

PSAP projects ($150,000)

At the end of the second calendar quarter 2011, the total carryover funds in the State of Iowa Wireless

E9-1-1 Emergency Communication Fund were $8,880,536.47.

Conclusions

Given the structure of 9-1-1 services in the State of Iowa, its funding mechanisms and the decline of

surcharge revenues, GeoComm finds that the current 9-1-1 surcharge model will not continue to sustain

the current level of 9-1-1 services across the state for the long-term. GeoComm will continue to evaluate

options for mitigating the decline of service including the following:

Joint E9-1-1 Service Boards

County E9-1-1 Joint Service Boards may need to explore different means for reducing the costs

for their respective jurisdictions.

Joint E9-1-1 Service Boards might need to consider sharing technology as well as combining

PSAPs.

9-1-1 legislation

As proposed in the last session, the state may need to evaluate the need to increase the

wireless surcharge to a maximum of $1.00 to match the wireline maximum in an effort to

alleviate fiscal strain on local government funds required to sustain 9-1-1 services.

GeoComm continues to evaluate to what degree the statute language should be changed to

clarify that any communication device that accesses the 9-1-1 network is subject to the

surcharge fee; or consider expanding the definition of subscribers to any technology that

accesses 9-1-1.

Consideration may need to be given to changing the formula for distribution to the county

E9-1-1 Boards

January 2012





Assessment of the impact of remove cost recovery for wireless carriers3

Analyzing the impact of increasing the percent distribution to the Joint E9-1-1 Boards

Appendix A

Forms located on the following pages.

3 At the outset of wireless E9-1-1 services in the mid 1990’s, the FCC regulations on the wireless carriers permitted

them to charge “9-1-1 jurisdictions” (State, in Iowa’s case) for their costs in developing, implementing and maintaining

these services. In a later ruling by the FCC on a petition filed by King County, WA, the FCC changed course and

declared that wireless carriers had to provide E9-1-1 regardless of whether or not they could get “cost recovery”

from the states. However, numerous states had already passed statutes that presumed that these “cost recovery fees”

would have to be paid to the carriers and contracts were signed to that effect. What is needed now is to change the

stature permitting or requiring such cost recovery payments to the carriers and then informing the carriers thunder

the “King County Ruling” we’re not going to pay you cost recovery anymore.

County

2009

Estimated

FYE Wireline

Surcharge

Revenue

Percent of

Total 2009

Estimated

Budget

Revenue

2009

Estimated

FYE Wireless

Surcharge

Revenue

Percent of

Total 2009

Estimated

Budget

Revenue

2009

Estimated

FYE

Operating

Expenditures

Percent of

Total

Requiring

Non

Surcharge

Revenues

Total Non

Surcharge

Revenue

Required to

Meet Budget

Requirements

Allamakee 92,000$ 48.68% 25,000$ 13.23% $188,975 38.09% 71,975$

Appanoose 70,000$ 59.27% 26,000$ 22.02% $118,100 18.71% 22,100$

Audubon 57,000$ 85.84% -$ 0.00% $66,400 14.16% 9,400$

Benton 136,000$ 76.59% 40,000$ 22.53% $177,569 0.88% 1,569$

Black Hawk 600,000$ 35.08% 75,000$ 4.39% $1,710,150 60.53% 1,035,150$

Boone 150,000$ 80.65% 24,000$ 12.90% $186,000 6.45% 12,000$

Bremer 99,750$ 156.27% 25,750$ 40.34% $63,830 -96.62% (61,670)$

Buchanan 80,030$ 50.28% 30,745$ 19.32% $159,175 30.41% 48,400$

Buena Vista 110,000$ 68.33% 39,000$ 24.23% $160,974 7.44% 11,974$

Butler 80,000$ 61.90% 29,000$ 22.44% $129,247 15.67% 20,247$

Calhoun 61,000$ 62.66% 36,000$ 36.98% $97,355 0.36% 355$

Carroll 150,000$ 61.75% 30,000$ 12.35% $242,918 25.90% 62,918$

Cass 93,000$ 0.00% 34,000$ 0.00% $0 0.00% (127,000)$

Cedar 100,000$ 54.38% 26,000$ 14.14% $183,900 31.48% 57,900$

Cerro Gordo 132,000$ 117.63% 40,000$ 35.64% $112,220 -53.27% (59,780)$

Cherokee 82,000$ 42.06% 25,000$ 12.82% $194,950 45.11% 87,950$

Chickasaw -$ 0.00% 18,500$ 24.13% $76,666 75.87% 58,166$

Clay 115,000$ 43.18% 12,000$ 4.51% $266,320 52.31% 139,320$

Clayton 114,000$ 64.58% 32,000$ 18.13% $176,538 17.30% 30,538$

Clinton 185,000$ 39.33% 64,000$ 13.61% $470,400 47.07% 221,400$

Crawford 100,000$ 46.66% -$ 0.00% $214,300 53.34% 114,300$

Dallas 350,000$ 49.65% 75,000$ 10.64% $705,000 39.72% 280,000$

Davis 48,500$ 45.01% 24,000$ 22.27% $107,750 32.71% 35,250$

Decatur 40,375$ 53.77% 28,000$ 37.29% $75,092 8.95% 6,717$

Delaware 100,000$ 63.71% 30,000$ 19.11% $156,968 17.18% 26,968$

Des Moines 113,548$ 72.32% 30,227$ 19.25% $157,016 8.43% 13,241$

Dickinson 95,938$ 112.64% 23,436$ 27.52% $85,172 -40.16% (34,202)$

Dubuque 500,000$ 56.12% 50,000$ 5.61% $891,011 38.27% 341,011$

Emmet 60,000$ 23.60% 18,000$ 7.08% $254,250 69.32% 176,250$

Fayette 114,420$ 53.41% 24,930$ 11.64% $214,225 34.95% 74,875$

Floyd 90,000$ 59.80% 25,000$ 16.61% $150,500 23.59% 35,500$

Franklin 70,000$ 59.17% 25,000$ 21.13% $118,300 19.70% 23,300$

Fremont 50,000$ 52.41% 25,000$ 26.21% $95,400 21.38% 20,400$

Greene 61,123$ 46.43% 24,860$ 18.88% $131,653 34.69% 45,670$

Grundy 68,336$ 51.42% 25,700$ 19.34% $132,899 29.24% 38,863$

Hamilton 96,000$ 68.54% 35,000$ 24.99% $140,072 6.48% 9,072$

Hancock 71,000$ 31.84% 30,000$ 13.45% $223,000 54.71% 122,000$

Hardin 115,000$ 48.92% 30,000$ 12.76% $235,100 38.32% 90,100$

Harrison 110,000$ 43.59% 10,000$ 3.96% $252,367 52.45% 132,367$

Henry 109,000$ 60.54% 31,000$ 17.22% $180,050 22.24% 40,050$

Howard 55,000$ 74.47% 33,000$ 44.68% $73,851 -19.16% (14,149)$

Humboldt 65,536$ 90.23% -$ 0.00% $72,632 9.77% 7,096$

Ida 45,000$ 48.09% 19,000$ 20.30% $93,580 31.61% 29,580$

Iowa 101,000$ 72.00% 30,000$ 21.39% $140,284 6.62% 9,284$

Jackson 128,060$ 59.70% 10,000$ 4.66% $214,490 35.63% 76,430$

Jasper 194,532$ 58.43% 46,973$ 14.11% $332,927 27.46% 91,422$

Jefferson 110,000$ 47.93% 46,000$ 20.04% $229,500 32.03% 73,500$

Johnson 259,946$ 122.07% 79,958$ 37.55% $212,945 -59.62% (126,959)$

Jones 111,000$ 55.17% 3,000$ 1.49% $201,200 43.34% 87,200$

Keokuk 62,838$ 69.05% 30,000$ 32.97% $91,000 -2.02% (1,838)$


FYE 2009 Estimated Budget Revenue Source Analysis

County

2009

Estimated

FYE Wireline

Surcharge

Revenue

Percent of

Total 2009

Estimated

Budget

Revenue

2009

Estimated

FYE Wireless

Surcharge

Revenue

Percent of

Total 2009

Estimated

Budget

Revenue

2009

Estimated

FYE

Operating

Expenditures

Percent of

Total

Requiring

Non

Surcharge

Revenues

Total Non

Surcharge

Revenue

Required to

Meet Budget

Requirements

Kossuth 91,000$ 69.49% 18,500$ 14.13% $130,961 16.39% 21,461$

Lee 100,000$ 47.51% 48,000$ 22.80% $210,500 29.69% 62,500$

Linn 310,000$ 58.79% 120,000$ 22.76% $527,292 18.45% 97,292$

Louisa 55,000$ 34.48% 20,000$ 12.54% $159,500 52.98% 84,500$

Lucas 52,000$ 38.18% 30,000$ 22.03% $136,200 39.79% 54,200$

Lyon 72,500$ 91.83% 15,000$ 19.00% $78,950 -10.83% (8,550)$

Mahaska 118,000$ 73.47% 27,000$ 16.81% $160,610 9.72% 15,610$

Marion 165,000$ 38.97% 37,000$ 8.74% $423,353 52.29% 221,353$

Marshall 234,000$ 76.17% 10,600$ 3.45% $307,213 20.38% 62,613$

Mills 78,000$ 72.32% 25,000$ 23.18% $107,850 4.50% 4,850$

Mitchell 150,000$ 76.00% 20,000$ 10.13% $197,372 13.87% 27,372$

Monona 68,000$ 70.22% 29,000$ 29.95% $96,841 -0.16% (159)$

Monroe 36,000$ 46.23% 15,000$ 19.26% $77,872 34.51% 26,872$

Montgomery 68,200$ 83.38% 21,600$ 26.41% $81,795 -9.79% (8,005)$

Muscatine 138,900$ 107.76% -$ 0.00% $128,900 -7.76% (10,000)$

O'Brien 94,000$ 76.67% 18,000$ 14.68% $122,600 8.65% 10,600$

Osceola 35,000$ 83.98% 17,500$ 41.99% $41,675 -25.97% (10,825)$

Page 100,000$ 91.37% 16,694$ 15.25% $109,450 -6.62% (7,244)$

Palo Alto 62,000$ 84.70% 10,000$ 13.66% $73,201 1.64% 1,201$

Plymouth 190,000$ 72.92% 40,500$ 15.54% $260,547 11.53% 30,047$

Pocahontas 50,400$ 92.57% -$ 0.00% $54,444 7.43% 4,044$

Polk 2,615,427$ 73.38% 279,425$ 7.84% $3,564,246 18.78% 669,394$

Pottawattamie 597,239$ 92.91% -$ 0.00% $642,782 7.09% 45,543$

Poweshiek 123,000$ 97.08% 50,000$ 39.46% $126,700 -36.54% (46,300)$

Sac 74,000$ 45.91% 25,000$ 15.51% $161,200 38.59% 62,200$

Shelby 92,000$ 88.32% 28,000$ 26.88% $104,172 -15.19% (15,828)$

Sioux 46,805$ 10.07% 19,661$ 4.23% $464,843 85.70% 398,377$

Story 358,000$ 68.41% 54,000$ 10.32% $523,302 21.27% 111,302$

Tama 94,425$ 64.80% 28,325$ 19.44% $145,726 15.77% 22,976$

Van Buren 40,000$ 39.18% 21,250$ 20.81% $102,090 40.00% 40,840$

Wapello 170,000$ 62.92% 35,000$ 12.95% $270,200 24.13% 65,200$

Warren 300,000$ 123.49% 40,000$ 16.47% $242,930 -39.96% (97,070)$

Washington 174,072$ 43.89% 36,084$ 9.10% $396,650 47.02% 186,494$

Wayne -$ 0.00% 10,800$ 5.19% $208,100 94.81% 197,300$

Webster 160,000$ 85.36% 32,000$ 17.07% $187,440 -2.43% (4,560)$

Winnebago 70,000$ 83.04% 20,000$ 23.72% $84,300 -6.76% (5,700)$

Winneshiek 136,000$ 51.46% 12,000$ 4.54% $264,300 44.00% 116,300$

Woodbury 590,000$ 84.28% 50,000$ 7.14% $700,031 8.58% 60,031$

Worth 59,500$ 42.17% -$ 0.00% $141,107 57.83% 81,607$

Wright 59,020$ 78.12% 30,000$ 39.71% $75,550 -17.83% (13,470)$

SCI Regional 376,442$ 74.04% 180,000$ 35.41% $508,400 -9.45% (48,042)$

Totals 14,406,862$ 61.66% 2,986,018$ 12.78% $23,365,416 25.56% $5,972,536

County

2010

Estimated

FYE Wireline

Surcharge

Revenue

Percent of

Total 2010

Estimated

Budget

Revenue

2010

Estimated

FYE Wireless

Surcharge

Revenue

Percent of

Total 2010

Estimated

Budget

Revenue

2010

Estimated

FYE

Operating

Expenditures

Percent of

Total

Requiring

Non

Surcharge

Revenue

Total Non

Surcharge

Revenue

Required to

Meet Budget

Requirements

Allamakee 90,000$ 45.49% 25,000$ 12.64% 197,850$ 41.88% 82,850$

Appanoose 67,000$ 53.24% 28,000$ 22.25% 125,850$ 24.51% 30,850$

Audubon 61,450$ 90.75% -$ 0.00% 67,715$ 9.25% 6,265$

Benton 140,000$ 73.05% 26,000$ 13.57% 191,647$ 13.38% 25,647$

Black Hawk 575,000$ 39.61% 120,000$ 8.27% 1,451,550$ 52.12% 756,550$

Boone 110,000$ 57.89% 30,000$ 15.79% 190,000$ 26.32% 50,000$

Bremer 94,406$ 136.72% 27,280$ 39.51% 69,050$ -76.23% (52,636)$

Buchanan 84,570$ 32.40% 77,750$ 29.79% 260,984$ 37.80% 98,664$

Buena Vista 110,000$ 55.43% 39,000$ 19.65% 198,465$ 24.92% 49,465$

Butler 75,000$ 58.94% 30,000$ 23.58% 127,247$ 17.48% 22,247$

Calhoun 60,000$ 61.63% 30,000$ 30.82% 97,355$ 7.55% 7,355$

Carroll 135,000$ 93.23% 33,000$ 22.79% 144,800$ -16.02% (23,200)$

Cass 93,000$ 115.10% 34,000$ 42.08% 80,800$ -57.18% (46,200)$

Cedar 95,000$ 56.37% 34,000$ 20.18% 168,517$ 23.45% 39,517$

Cerro Gordo 128,000$ 92.22% 34,200$ 24.64% 138,800$ -16.86% (23,400)$

Cherokee 82,000$ 41.51% 24,000$ 12.15% 197,550$ 46.34% 91,550$

Chickasaw -$ 0.00% 18,500$ 23.89% 77,446$ 76.11% 58,946$

Clay 115,000$ 43.84% 12,000$ 4.57% 262,334$ 51.59% 135,334$

Clayton 110,500$ 66.19% 16,000$ 9.58% 166,950$ 24.23% 40,450$

Clinton 180,000$ 36.71% 40,000$ 8.16% 490,300$ 55.13% 270,300$

Crawford 100,000$ 46.66% 18,592$ 8.68% 214,300$ 44.66% 95,708$

Dallas 400,000$ 70.18% 55,000$ 9.65% 570,000$ 20.18% 115,000$

Davis 48,500$ 45.01% 24,000$ 22.27% 107,750$ 32.71% 35,250$

Decatur 40,035$ 57.92% 22,639$ 32.75% 69,124$ 9.33% 6,450$

Delaware 100,000$ 56.76% 30,000$ 17.03% 176,168$ 26.21% 46,168$

Des Moines 113,548$ 81.59% 30,227$ 21.72% 139,161$ -3.32% (4,614)$

Dickinson 88,161$ 91.83% 24,876$ 25.91% 96,004$ -17.74% (17,033)$

Dubuque 500,000$ 63.94% 54,000$ 6.91% 781,990$ 29.16% 227,990$

Emmet 125,000$ 42.87% 20,000$ 6.86% 291,600$ 50.27% 146,600$

Fayette 113,868$ 65.80% 39,612$ 22.89% 173,050$ 11.31% 19,570$

Floyd 85,000$ 62.18% 32,000$ 23.41% 136,700$ 14.41% 19,700$

Franklin 65,000$ 55.67% 30,000$ 25.70% 116,750$ 18.63% 21,750$

Fremont 45,000$ 60.57% 15,000$ 20.19% 74,300$ 19.25% 14,300$

Greene 58,149$ 74.55% 26,289$ 33.70% 78,000$ -8.25% (6,438)$

Grundy 65,000$ 57.82% 24,000$ 21.35% 112,425$ 20.84% 23,425$

Hamilton 96,000$ 76.68% 36,000$ 28.75% 125,200$ -5.43% (6,800)$

Hancock 71,000$ 43.83% 25,000$ 15.43% 162,000$ 40.74% 66,000$

Hardin 115,000$ 120.99% 30,000$ 31.56% 95,050$ -52.55% (49,950)$

Harrison 110,000$ 62.76% 20,000$ 11.41% 175,284$ 25.83% 45,284$

Henry 95,000$ 50.90% 36,000$ 19.29% 186,650$ 29.82% 55,650$

Howard 55,000$ 39.51% 35,000$ 25.14% 139,211$ 35.35% 49,211$

Humboldt 78,064$ 70.46% -$ 0.00% 110,793$ 29.54% 32,729$

Ida 45,000$ 49.94% 15,000$ 16.65% 90,115$ 33.42% 30,115$

Iowa 100,000$ 67.59% 30,000$ 20.28% 147,954$ 12.13% 17,954$

Jackson 129,054$ 57.92% 20,000$ 8.98% 222,800$ 33.10% 73,746$

Jasper 194,030$ 11.82% 48,000$ 2.92% 1,641,745$ 85.26% 1,399,715$

Jefferson 105,000$ 55.29% 45,000$ 23.70% 189,900$ 21.01% 39,900$

Johnson 255,188$ 19.44% 84,500$ 6.44% 1,312,967$ 74.13% 973,279$

Jones 100,000$ 54.37% 33,000$ 17.94% 183,936$ 27.69% 50,936$

Keokuk 59,500$ 51.74% 30,000$ 26.09% 115,000$ 22.17% 25,500$



Kossuth 130,000$ 84.18% -$ 0.00% 154,430$ 15.82% 24,430$

Lee 95,000$ 52.75% 50,000$ 27.76% 180,100$ 19.49% 35,100$

Linn 300,000$ 22.66% 130,000$ 9.82% 1,323,721$ 67.52% 893,721$

Louisa 50,000$ 33.76% 21,000$ 14.18% 148,106$ 52.06% 77,106$

Lucas 46,200$ 40.44% 24,000$ 21.01% 114,244$ 38.55% 44,044$

Lyon 72,500$ 87.58% 15,000$ 18.12% 82,785$ -5.70% (4,715)$

Mahaska 113,000$ 48.88% 32,000$ 13.84% 231,194$ 37.28% 86,194$

Marion 143,657$ 73.58% 40,000$ 20.49% 195,227$ 5.93% 11,570$

Marshall 192,000$ 44.49% 40,000$ 9.27% 431,558$ 46.24% 199,558$

Mills 78,000$ 50.34% 25,000$ 16.13% 154,950$ 33.53% 51,950$

Mitchell 70,000$ 72.16% 20,000$ 20.62% 97,000$ 7.22% 7,000$

Monona 62,000$ 45.47% 34,000$ 24.94% 136,341$ 29.59% 40,341$

Monroe 34,000$ 47.77% 15,000$ 21.08% 71,172$ 31.15% 22,172$

Montgomery 66,500$ 74.25% 24,000$ 26.80% 89,565$ -1.04% (935)$

Muscatine 124,500$ 61.03% 30,000$ 14.71% 204,004$ 24.27% 49,504$

O'Brien 94,000$ 48.68% 18,000$ 9.32% 193,100$ 42.00% 81,100$

Osceola 40,000$ 100.95% 17,500$ 44.16% 39,625$ -45.11% (17,875)$

Page 86,000$ 83.54% 31,000$ 30.11% 102,950$ -13.65% (14,050)$

Palo Alto 60,000$ 86.39% -$ 0.00% 69,450$ 13.61% 9,450$

Plymouth 175,566$ 146.18% -$ 0.00% 120,100$ -46.18% (55,466)$

Pocahontas 50,400$ 92.27% -$ 0.00% 54,624$ 7.73% 4,224$

Polk 2,563,299$ 79.99% 309,779$ 9.67% 3,204,404$ 10.34% 331,326$

Pottawattamie 599,772$ 115.67% -$ 0.00% 518,528$ -15.67% (81,244)$

Poweshiek 110,000$ 44.64% 40,000$ 16.23% 246,400$ 39.12% 96,400$

Ringgold 34,000$ 68.60% 18,000$ 36.32% 49,565$ -4.91% (2,435)$

Sac 72,000$ 50.99% 28,000$ 19.83% 141,200$ 29.18% 41,200$

Shelby 90,000$ 65.34% 30,000$ 21.78% 137,750$ 12.89% 17,750$

Sioux 169,520$ 87.07% 25,653$ 13.18% 194,700$ -0.24% (473)$

Story 355,000$ 66.37% 58,000$ 10.84% 534,898$ 22.79% 121,898$

Tama 88,381$ 42.57% 40,830$ 19.67% 207,625$ 37.77% 78,414$

Van Buren 42,000$ 35.18% 21,000$ 17.59% 119,370$ 47.22% 56,370$

Wapello 150,000$ 55.29% 35,000$ 12.90% 271,300$ 31.81% 86,300$

Warren 250,000$ 103.35% 42,000$ 17.36% 241,891$ -20.72% (50,109)$

Washington 168,788$ 44.57% 29,760$ 7.86% 378,700$ 47.57% 180,152$

Wayne -$ 0.00% 7,000$ 7.69% 90,986$ 92.31% 83,986$

Webster 165,000$ 69.20% 40,000$ 16.78% 238,440$ 14.02% 33,440$

Winnebago 70,000$ 81.87% 20,000$ 23.39% 85,500$ -5.26% (4,500)$

Winneshiek 112,000$ 39.05% 12,000$ 4.18% 286,800$ 56.76% 162,800$

Woodbury 520,000$ 69.20% 50,000$ 6.65% 751,425$ 24.14% 181,425$

Worth 59,500$ 42.17% -$ 0.00% 141,107$ 57.83% 81,607$

Wright 48,659$ 59.67% 30,000$ 36.79% 81,550$ 3.55% 2,891$

SCI Regional 365,000$ 86.50% 180,000$ 42.66% 421,950$ -29.16% (123,050)$

Totals 14,077,265$ 55.69% 3,195,987$ 12.64% 25,279,472$ 31.67% 8,006,220$

County

2011

Estimated

FYE Wireline

Surcharge

Revenue

Percent of

Total 2011

Estimated

Budget

Revenue

2011

Estimated

FYE Wireless

Surcharge

Revenue

Percent of

Total 2011

Estimated

Budget

Revenue

2011

Estimated

FYE

Operating

Expenditures

Percent of

Total

Requiring

Non

Surcharge

Revenue

Total Non

Surcharge

Revenue

Required to

Meet Budget

Requirements

Allamakee 87,000$ 50.63% 25,000$ 14.55% 171,850$ 34.83% 59,850$

Appanoose 60,000$ 57.09% 30,000$ 28.54% 105,100$ 14.37% 15,100$

Audubon 36,200$ 57.76% 24,000$ 38.30% 62,670$ 3.94% 2,470$

Benton 140,000$ 46.03% 11,839$ 3.89% 304,170$ 50.08% 152,331$

Black Hawk 560,000$ 64.14% 90,000$ 10.31% 873,150$ 25.56% 223,150$

Boone 110,000$ 58.51% 35,000$ 18.62% 188,000$ 22.87% 43,000$

Bremer 85,670$ 77.23% 28,170$ 25.40% 110,925$ -2.63% (2,915)$

Buchanan 82,106$ 28.31% 34,872$ 12.02% 290,075$ 59.67% 173,097$

Buena Vista 110,000$ 76.77% 36,000$ 25.12% 143,288$ -1.89% (2,712)$

Butler 74,000$ 59.79% 30,000$ 24.24% 123,776$ 15.98% 19,776$

Calhoun 60,000$ 66.67% 30,000$ 33.33% 90,000$ 0.00% -$

Carroll 130,000$ 81.66% 35,000$ 21.98% 159,200$ -3.64% (5,800)$

Cass 90,000$ 79.65% 22,600$ 20.00% 113,000$ 0.35% 400$

Cedar 120,000$ 82.18% 37,116$ 25.42% 146,026$ -7.59% (11,090)$

Cerro Gordo 128,000$ 92.22% 34,200$ 24.64% 138,800$ -16.86% (23,400)$

Cherokee 70,000$ 66.95% 32,000$ 30.61% 104,550$ 2.44% 2,550$

Chickasaw 68,253$ 57.53% 20,000$ 16.86% 118,635$ 25.61% 30,382$

Clay 115,000$ 57.47% 25,000$ 12.49% 200,120$ 30.04% 60,120$

Clayton 105,000$ 57.45% 10,100$ 5.53% 182,754$ 37.02% 67,654$

Clinton 175,000$ 39.18% 52,000$ 11.64% 446,600$ 49.17% 219,600$

Crawford 90,000$ 36.62% 30,000$ 12.21% 245,800$ 51.18% 125,800$

Dallas 300,000$ 60.94% 50,000$ 10.16% 492,300$ 28.91% 142,300$

Davis 44,000$ 21.13% 25,000$ 12.00% 208,250$ 66.87% 139,250$

Decatur 60,000$ 194.18% 30,369$ 98.28% 30,899$ -192.47% (59,470)$

Delaware 95,000$ 65.60% 32,000$ 22.10% 144,818$ 12.30% 17,818$

Des Moines 124,398$ 72.69% 20,000$ 11.69% 171,145$ 15.63% 26,747$

Dickinson 99,391$ 93.57% 32,408$ 30.51% 106,223$ -24.08% (25,576)$

Dubuque 450,000$ 69.89% 59,000$ 9.16% 643,884$ 20.95% 134,884$

Emmet 86,451$ 47.45% 23,900$ 13.12% 182,181$ 39.43% 71,830$

Fayette 108,492$ 46.82% 45,084$ 19.46% 231,708$ 33.72% 78,132$

Floyd 82,000$ 65.52% 28,000$ 22.37% 125,150$ 12.11% 15,150$

Franklin 60,000$ 38.23% 30,000$ 19.11% 156,950$ 42.66% 66,950$

Fremont 45,000$ 51.96% 25,000$ 28.87% 86,600$ 19.17% 16,600$

Greene 56,552$ 69.06% 27,483$ 33.56% 81,888$ -2.62% (2,147)$

Grundy 58,851$ 53.66% 28,754$ 26.22% 109,675$ 20.12% 22,070$

Hamilton 93,300$ 63.95% 38,000$ 26.05% 145,900$ 10.01% 14,600$

Hancock 61,000$ 65.95% 30,500$ 32.97% 92,500$ 1.08% 1,000$

Hardin 115,000$ 68.64% 30,000$ 17.91% 167,550$ 13.46% 22,550$

Harrison 125,300$ 79.00% 20,000$ 12.61% 158,600$ 8.39% 13,300$

Henry 100,000$ 46.92% 32,000$ 15.01% 213,150$ 38.07% 81,150$

Howard 65,000$ 42.18% 35,000$ 22.71% 154,088$ 35.10% 54,088$

Humboldt 79,481$ 85.36% -$ 0.00% 93,117$ 14.64% 13,636$

Ida 45,000$ 49.94% 15,000$ 16.65% 90,115$ 33.42% 30,115$

Iowa 89,000$ 67.11% 36,000$ 27.15% 132,620$ 5.75% 7,620$

Jackson 120,000$ 56.66% 18,907$ 8.93% 211,800$ 34.42% 72,893$

Jasper 160,000$ 22.22% 50,000$ 6.94% 719,952$ 70.83% 509,952$

Jefferson 104,000$ 53.43% 30,000$ 15.41% 194,650$ 31.16% 60,650$

Johnson 235,586$ 44.95% 81,322$ 15.52% 524,082$ 39.53% 207,174$

Jones 96,000$ 49.30% 41,000$ 21.05% 194,740$ 29.65% 57,740$

Keokuk 56,000$ 62.19% 32,350$ 35.92% 90,050$ 1.89% 1,700$



Kossuth 90,000$ 56.21% 40,000$ 24.98% 160,115$ 18.81% 30,115$

Lee 90,000$ 43.91% 45,000$ 21.96% 204,950$ 34.13% 69,950$

Linn 265,000$ 21.60% 150,000$ 12.23% 1,226,604$ 66.17% 811,604$

Louisa 40,000$ 27.35% 19,000$ 12.99% 146,275$ 59.67% 87,275$

Lucas 46,200$ 67.95% 24,000$ 35.30% 67,991$ -3.25% (2,209)$

Lyon 67,000$ 77.34% 30,000$ 34.63% 86,632$ -11.97% (10,368)$

Mahaska 102,000$ 65.24% 28,000$ 17.91% 156,334$ 16.84% 26,334$

Marion 131,000$ 70.51% 40,000$ 21.53% 185,785$ 7.96% 14,785$

Marshall 180,000$ 73.83% 44,000$ 18.05% 243,787$ 8.12% 19,787$

Mills 75,988$ 66.23% 35,825$ 31.22% 114,740$ 2.55% 2,927$

Mitchell 65,000$ 71.43% 25,000$ 27.47% 91,000$ 1.10% 1,000$

Monona 35,000$ 41.04% 34,000$ 39.86% 85,293$ 19.10% 16,293$

Monroe 34,000$ 44.96% 20,000$ 26.45% 75,622$ 28.59% 21,622$

Montgomery 67,200$ 58.65% 24,000$ 20.95% 114,580$ 20.40% 23,380$

Muscatine 147,000$ 73.13% 20,000$ 9.95% 201,000$ 16.92% 34,000$

O'Brien 94,000$ 59.42% 18,000$ 11.38% 158,200$ 29.20% 46,200$

Osceola 40,000$ 100.95% 17,500$ 44.16% 39,625$ -45.11% (17,875)$

Page 77,000$ 12.50% 30,000$ 4.87% 616,176$ 82.63% 509,176$

Palo Alto 55,000$ 24.50% 30,000$ 13.36% 224,487$ 62.14% 139,487$

Plymouth 150,518$ 63.81% 23,282$ 9.87% 235,879$ 26.32% 62,079$

Pocahontas 50,400$ 88.90% 15,369$ 27.11% 56,691$ -16.01% (9,078)$

Polk 2,300,035$ 87.15% 325,263$ 12.32% 2,639,307$ 0.53% 14,009$

Pottawattamie 581,997$ 71.99% -$ 0.00% 808,494$ 28.01% 226,497$

Poweshiek 108,000$ 46.71% 40,000$ 17.30% 231,200$ 35.99% 83,200$

Ringgold 29,000$ 47.04% 19,000$ 30.82% 61,650$ 22.14% 13,650$

Sac 70,000$ 65.18% 30,000$ 27.93% 107,400$ 6.89% 7,400$

Scott -$ 426,875$ -$ 100.00% (426,875)$

Shelby 123,750$ 123.91% 30,000$ 30.04% 99,873$ -53.95% (53,877)$

Sioux 185,000$ 85.37% 30,000$ 13.84% 216,700$ 0.78% 1,700$

Story 325,000$ 61.82% 61,250$ 11.65% 525,734$ 26.53% 139,484$

Tama 90,133$ 46.97% 30,000$ 15.63% 191,901$ 37.40% 71,768$

Van Buren 40,000$ 33.47% 25,000$ 20.92% 119,500$ 45.61% 54,500$

Wapello 140,000$ 65.79% 40,000$ 18.80% 212,800$ 15.41% 32,800$

Warren 240,000$ 122.19% 42,650$ 21.71% 196,420$ -43.90% (86,230)$

Washington 162,086$ 42.65% 35,633$ 9.38% 380,000$ 47.97% 182,281$

Wayne -$ 0.00% 15,000$ 22.39% 67,000$ 77.61% 52,000$

Webster 165,000$ 79.41% 43,000$ 20.69% 207,790$ -0.10% (210)$

Winnebago 54,805$ 63.47% 24,100$ 27.91% 86,350$ 8.62% 7,445$

Winneshiek 109,000$ 30.68% 30,000$ 8.44% 355,300$ 60.88% 216,300$

Woodbury 480,000$ 69.96% 90,000$ 13.12% 686,125$ 16.92% 116,125$

Worth 38,000$ 57.64% 23,000$ 34.89% 65,930$ 7.48% 4,930$

Wright 54,865$ 58.65% 30,000$ 32.07% 93,550$ 9.28% 8,685$

SCI Regional 336,000$ 78.82% 200,000$ 46.92% 426,261$ -25.74% (109,739)$

Total FY2011 13,246,008$ 58.76% 3,923,721$ 17.40% 22,544,125$ 23.84% 5,374,396$


3 Analysis of Current 9-1-1 Networks (Wireline and

Wireless)

Iowa Network - Assessment and Analysis

In times of emergency, citizens seeking access to police, fire, or Emergency Medical Services (EMS) have

been encouraged to dial 9-1-1 throughout the State of Iowa. Historically, the delivery of emergency

services has been a local or county level service offering. However, due to changes in national priorities,

consumer expectations, and infrastructure options, there is now an environment that can support new

roles and relationships between the system participants, as they deal with issues that have a larger than only

the local impact.

In Iowa, GeoComm finds two distinct service delivery models aimed at maintaining both prompt and

effective access to services via 9-1-1 as well as reinforcing the usual and customary political assignment of

responsibility for such services. This legislatively defined role assignment includes the authority to impose

fees to pay for the costs of enhancing services and modernizing the 9-1-1 infrastructure.

The 99 counties of Iowa retain the responsibility for wireline Enhanced 9-1-1 (E9-1-1) with specific

emphasis on accessing, delivering, and managing the wireline call from the fixed location point of origin

through the network to the Public Safety Answering Point (PSAP) designated as responsible for responding

to such calls. The expansion of wireless devices has prompted a parallel network and associated equipment

to accept, route, and deliver 9-1-1 calls made from wireless devices. The responsibility for answering,

processing, and responding to the wireless calls in a particular jurisdiction begins with the assigned PSAP.

However, the design and management of the network architecture used to transport the wireless call to

that local PSAP is the responsibility of the state E9-1-1 Program.

GeoComm was assigned a representative group of 18 PSAPs to use as the sample for information gathering

and development of strategies for service improvement without any erosion of the level of service

historically achieved through dedicated, secure trunk lines and specialized call-handling equipment.

Analysis of Two Networks

One of the areas that GeoComm assessed was the impact of the two network infrastructures and cost

aspects related to the large number of PSAPs operating in the state. In an effort to evaluate the total costs

of 9-1-1 service today, GeoComm reviewed information from the current PSAP environment, such as call

volume, for the 18 PSAPs. Unfortunately, some of the selected PSAPs did not or could not provide call

data. Regardless, trends in 9-1-1 use, revenue, and costs may still be derived from the overall summary.

January 2012





The State of Iowa (through wireless E9-1-1 surcharge funds) and individual county Joint E9-1-1 Service

Boards (through local 9-1-1 wireline surcharge funds) support the 9-1-1 activity. In an attempt to identify

preliminary cost data for maintaining wireline 9-1-1 services, GeoComm reviewed the official E9-1-1 budget

reports of the 18 PSAPs’ Joint E9-1-1 Service Boards, as submitted to the Iowa Department of Management

using Form E911-11. The budget information per county, listed the actual costs of the previous year and

the proposed expenditures for the current year. It should be noted that the budgets available to

GeoComm for review represent expenses for the elements eligible for 9-1-1 surcharge, but they are not

are representative of all expenses necessary to operate a PSAP. The detail of which operational area the

expenditures actually apply to is not delineated within these reports. The reports do; however, provide a

“snapshot” of what level the Joint E9-1-1 Service Board funds the PSAP operation.

The wireline and wireless networks implemented in Iowa are functioning as they were designed to.

GeoComm finds that the cost of the separate networks is high, and efficiencies are not recognized to the

degree that might be possible because of the separation of responsibilities and oversight. From a network

perspective, the maintenance of two distinct “systems” is inconsistent with the concept of merged services,

shared networks, and the broader definition of calls for service as alternate, expanded access to 9-1-1

emergency services continues to evolve. The potential changes created by expanding network options and

services beyond traditional sources requires a focused, deliberate effort in order to manage the resources

and E9-1-1 telephone service providers.

Network Standards and Regulatory Activity

The State of Iowa has adopted minimum operational and technical standards for each 9-1-1 system within

the Iowa Administrative Code (605-10.14 (34A). These standards include guidance related to various

elements of E9-1-1. The network specific standards include:

Use of ALI (automatic location identification), ANI (automatic number identification), and the

required levels of accuracy

Selective routing of 9-1-1 calls

Seven-digit numbers required and arranged in rollover configuration

Maintenance of multiple methods of interagency communications capabilities for emergency

coordination purposes

9-1-1 call transfer methodology, including calls originating outside the E9-1-1 service area

Ensuring continuous operations and communications during a power outage; with specific initiation

and duration rules

Reasonable efforts to disallow the intrusion by automatic dialers, alarm systems, or automatic

dialing and announcing devices on a 9-1-1 trunk

1 https://www.iowaonline.state.ia.us/localbudgets/default.aspx?cmd=gotopublicsite

https://www.iowaonline.state.ia.us/localbudgets/default.aspx?cmd=gotopublicsite

January 2012





Iowa regulations also recognize voluntary standards, defined as the current technical and operational

standards applying to E9-1-1 systems and services. These standards can be found in the “American Society

for Testing and Materials (ASTM) Standard Guide for Planning and Developing 9-1-1 Enhanced Telephone

Systems” and in publications issued by the National Emergency Number Association (NENA). In addition,

Master Street Address Guides (MSAG) are encouraged to be developed and maintained by using NENA

technical standards. Standards contained in these documents should be considered as guidance and

following the standards is voluntary. The state E9-1-1 Program Office, the E9-1-1 telephone service

providers and Joint E9-1-1 Service Boards and operating authorities all should employ the best and most

affordable technologies and methods available to provide quality E9-1-1 services to the public.

GeoComm has reviewed the cited ASTM standard related to the technical and operational aspects of the

installed systems. It is noteworthy that the ASTM standard “Standard Guide for Planning and Developing

9-1-1 Enhanced Telephone Systems, designation of F 1381 – 92 (Reapproved 2003)” has not been updated

since 2003 and predates Next Generation 9-1-1 (NG9-1-1) as well many improvements surrounding

wireless E9-1-1 deployment and service capability.

The lack of modern statutory recognition in the expansion of technical resources needed to improve and

support the proper planning, installation, operation, and management of 9-1-1 systems in Iowa is

inconsistent with other statutory language, urging the employment of the best and most affordable

technologies and methods available for E9-1-1 services to the public. Sources available to the state include

the Network Reliability and Interoperability Council (NRIC) Best Practices for Network Operators, Service

Providers, and Equipment Supplies as related to network elements; and standards promulgated through the

Emergency Services Interconnection Forum (ESIF), especially those pertaining to inter-network

connectivity.

Regulatory Scope

Iowa regulatory tariff language limits the scope of informational elements that can be relayed to and among

PSAPs in the interest of better emergency response throughout the state. GeoComm has reviewed the

current Iowa tariffs, identified as “Qwest Corporation Services Catalog No. 1 Exchange and Network

Services.” In this document, a full discussion of the role of the “Company” (Qwest, now CenturyLink) is

provided. The role includes points of authorized and approved connectivity by wireless service providers,

the third party contractors, and the costs of selected elements and features. Redundancy and diversity,

although limited by facility capability and additional cost, is available through the tariff in effect.

The state of Iowa, PSAPs, and elected/appointed officials with authority for enhancing the current level of

9-1-1 services (including transport, connectivity, and delivery of all approved information) will need to

January 2012





cooperatively develop and adopt modified language in all tariffs. This effort should seek to reduce the

challenges that may arise from interpretations of the current tariffs and to facilitate the evolution from

existing systems (which favor single, sole source providers of such services) toward a system that allows

expanded access and participation by nontraditional providers. Further, substantially different information

elements that can support enhanced situational awareness of an event beyond the traditional, yet significant

location data can be shared among the participants via a more diverse set of options and costs. Examples

may include over time; photographs, videos, messaging, alarm notifications, access to additional media and

resources as well as dynamic call rerouting, virtual PSAP consolidation through shared infrastructure and

truly effective alternate facility and service models to maintain call taking and dispatch functionality amidst

disaster.

Grade of Service and Trunk Capacity

Section 2.2.51 of the voluntary ASTM standard cited above describes the normal grade of service for 9-1-1

providers as P.01 grade of service, which is a measure of emergency telephone service in which no more

than one call in 100 attempts will be blocked due to all trunks being in use, during the average busiest hour.

There was no opportunity during the initial data collection for an in-depth review of the actual grade of

service per PSAP. It is apparent that at the PSAP level, the methodology used to assess this grade of

service, and data from the service provider to conduct this evaluation, is not often used. Specific reports of

such studies were not among the reports that were made available to GeoComm. The Joint E9-1-1 Service

Board may legitimately anticipate that PSAP management would pursue discussion with the appropriate

service provider(s) regarding the current methodology to assess grade of service as well as identify PSAP

trunk issues, such as individual line outages. Local PSAP data resources and telephone statistical data

software is also helpful in evaluating the current capacity and usage of the deployed systems.

There are opportunities to enhance the understanding of grade of service evaluation at the PSAP level and

further opportunities to increase the assessment tools available to the PSAP management for evaluating

trunk capacity and the local jurisdiction’s needs.

Call Volume

The measurement of actual call volume at the PSAP is frequently used to assess the service delivery

provided by a PSAP. It is common to find staffing, training, equipment, network, and facility issues being

related to overall call volume. In most PSAP environments, wireline 9-1-1 calls are usually totaled

separately from wireless 9-1-1 calls, as well as non-emergency calls on administrative/business lines. In

addition, some PSAPs use the outbound call total to assist in defining workload. To these call related

activities, GeoComm finds ancillary duties such as maintaining surveillance of inmates, internal access

control for doors, to processing required documentation and other administrative information, and report

transactions at a public service “window” assigned to PSAP staff. Despite the commonality of such call

accounting, the actual workload associated with call processing can be dynamic and not always subject to

January 2012





simple numeric calculation as other ancillary duties may not be able to be “counted” for analysis purposes

as call volumes. When looking at networks, GeoComm utilized PSAP provided data such as overall call

volume of wireline, wireless, and non-emergency calls answered at the PSAP.

GeoComm requested call volume data from the 18 PSAPs. Twelve PSAPs were able to produce wireline

E9-1-1 call volume data for 2010. Eight of the 12 PSAPs reported a decrease in wireline calls in 2010 when

compared to 2009. No change was reported by one PSAP and the remaining three noted an increase.

2009 to 2010 Wireline 9-1-1 Call

Volume at 12 of the 18 PSAPs

Decrease 8

No Change 1

Increase 3

The dynamic of diminishing wireline call volume, and in many cases the revenue associated with such

services, is not isolated to Iowa. The decline of wireline telephone installations and the increase in

household use of wireless devices and Voice over Internet Protocol (VoIP) has been cited for several years

as steadily eroding the number of wireline telephone devices. Nationally-known public safety

communication associations such as APCO, NENA, NSA, IACP and others published a white paper in 2005,

related to PSAP and 9-1-1 funding. The topic still has significance today since the need to modify the

existing funding paradigm exists since the revenue sources have shifted and the consumer use patterns have

changed over time.

When looking at wireless call volume for 2010, 17 of the 18 PSAPs noted an increasing from 2009 to 2010.

One PSAP reported a decrease of 1.4 percent in wireless E9-1-1 call volume during the same period.

2009 to 2010 Wireless 9-1-1 Call

Volume at 12 of the 18 PSAPs

Decrease 1

Increase 17

The 2010 reported wireless E9-1-1 call volume for the 18 PSAPs was 323,382 calls. The total wireline and

wireless 9-1-1 call volume reported for the PSAPs was 408,687 calls, of which 79 percent were from

wireless devices.

January 2012





As wireline call volumes decrease, the resulting decrease in E9-1-1 surcharge revenue may be a concern for

the local jurisdiction. As wireless call volumes increase, the resulting limited E9-1-1 surcharge received for

this classification of calls may also be a concern for the local jurisdiction.

Review of 9-1-1 trunk line capacity per PSAP based on call volume

GeoComm found, based upon information provided by the 18 PSAPs, that in some cases the number of

wireline E9-1-1 trunks per PSAP exceeded the number assigned for wireless E9-1-1 calls even though more

9-1-1 calls are received through the wireless 9-1-1 system. In order to explain this apparent contradiction

of capacity versus usage, it is important for public safety leaders to recognize that such configurations can

be a function of service delivery by E9-1-1 telephone service providers, where direct trunking in lieu of

selective routing is used to deliver a call. In such cases, a minimum of two trunks are required per

telephone exchange regardless of call volume in order to assure that the opportunity for blockage of any

9-1-1 call is appropriately diminished. In one example, the separate telephone exchanges being served by a

single PSAP were each assigned two trunks, and the total reached eight. In addition, the associated ALI

data is obtained from an in-house dataset. This process creates recurring costs to the PSAP for trunk

maintenance as well as database management but is based on current accepted practices. Using the same

PSAP with eight trunks as an example, the PSAP received 824 wireline 9-1-1 calls. While it would appear

that there are many more trunks than are needed for the call volumes experienced, in this direct trunked

implementation environment, the industry-accepted 9-1-1 network engineering guidelines dictate the

described configuration and what is allowed under the Iowa code.

Another nearby PSAP in the study group, using an alternate E9-1-1deployment strategy, was served by eight

wireline trunks as well and handled 40,101 E9-1-1 calls. The calls were delivered to the PSAP by the

CenturyLink Selective Router. The same router also delivered 112,703 wireless E9-1-1 calls on seven

additional trunks.

GeoComm affirms that while the standards document cited within the existing Iowa law, ASTM F1381-92,

defines trunk configuration parameters based on service population, the method to reach compliance of

this standard can vary based on system design and implementation options. Generally, all systems utilize

the Poisson tables and are used to provide an estimate of the number of lines needed.2

2 POISSON DISTRIBUTION: In probability theory and statistics, the Poisson distribution is a discrete probability

distribution that expresses the probability of a given number of events occurring in a fixed interval of time and/or

space if these events occur with a known average rate and independently of the time since the last event. (The Poisson

distribution can also be used for the number of events in other specified intervals such as distance, area or volume.)

http://en.wikipedia.org/wiki/Probability_theory

http://en.wikipedia.org/wiki/Statistics

http://en.wikipedia.org/wiki/Discrete_probability_distribution

http://en.wikipedia.org/wiki/Discrete_probability_distribution

http://en.wikipedia.org/wiki/Statistical_independence

January 2012





The lack of meaningful reports of call volume, activity by hour of the day and day of the week, call duration

times, speed of answer and abandoned call rates may prevent the PSAP manager from having the best

statistical information available to assess the actual network capacity and impact on operations. It is equally

important not to confuse network capability and performance with the operational elements created at the

PSAP; such as staffing, workstations scheduling, training, and supervision. In addition, the reliance upon ALI

data as a means to count 9-1-1 calls is not a valid measurement option; since the same call may result in

multiple ALI retrievals, as mid-call location updates are completed.

As a result of this assessment of the 18 PSAPs, GeoComm believes that the assigned number of wireline

trunks to an individual PSAP is strongly influenced by local 9-1-1 service delivery methods and not related

to the availability of existing, empirical data which supports adequate access while maintaining the P.01

grade of service. In addition, it is not been demonstrated that the PSAP and the E9-1-1 telephone service

providers engage in regular review of system performance to assess such capacity issues of either wireline

or wireless network services. The state E9-1-1 Program provides management and oversight of the

wireless 9-1-1 services and therefore has data to evaluate the wireless network.

Network Outages

The review of Iowa re-route reports reinforces the importance of customer premise equipment (CPE)

service and maintenance. In the 31-month period covered by the reports provided to GeoComm, the

most frequently cited reason for call re-routing was a CPE problem.

2011 Network Cited Outages (YTD 1/01/11 through 7/22/11)

113 Outages Total; 3 were Network related Outages

Date Time Location Description

40686 11:59:00AM Humboldt County Network-C3R-LL-Qwest Fiber Cut

40730 0.64375 Montgomery County Network-C3R-LL-Cable Cut

40730 0.64375 Montgomery County Network-C3R-W-Cable Cut

January 2012





2010 Network Cited Outages

198 Outages Total; 17 were Network related Outages


1/20/2010 6:07:00 PM Davis County NETWORK-C2R-W-Fiber Cut

1/20/2010 6:07:00 PM Davis County NETWORK-C2R-LL-Fiber Cut

1/20/2010 3:49:00 PM Davis County NETWORK-C3R-LL-Fiber Cut

1/20/2010 3:49:00 PM Davis County NETWORK-C3R-W-Fiber Cut

1/28/2010 10:38:00 PM Howard County NETWORK-C2R-W-DESMIA-PNAR Work

1/28/2010 10:38:00 PM Howard County NETWORK-C2R-L-MSCYIA-PNAR Work

1/28/2010 10:38:00 PM Howard County NETWORK-C2R-L-CDFLIA-PNAR Work

4/13/2010 8:23:00 PM Hampton PD NETWORK-C3R-LL-MSCY-T1 trouble

4/13/2010 8:23:00 PM Hampton PD NETWORK-C3R-LL-MRTW-T1 trouble

7/29/2010 11:01:00 AM Des Moines PD NETWORK-C3R-LL-Cable Cut

7/29/2010 11:01:00 AM Des Moines PD NETWORK-C3R-W-Cable Cut

7/30/2010 8:24:00 PM Des Moines PD NETWORK-C3R-LL-Local Loop Trouble

7/30/2010 8:24:00 PM Des Moines PD NETWORK-C3R-W-Local Loop Trouble

11/23/2010 11:13:00 AM Jones County NETWORK-C3R-LL-T3 Trouble

11/23/2010 11:13:00 AM Jones County NETWORK-C3R-W-T3 Trouble

12/16/2010 4:28:00 PM Harrison County NETWORK-C2R-W-DACS Trouble

12/16/2010 4:28:00 PM Harrison County NETWORK-C2R-LL-DACS Trouble

2009 Network Cited Outages

192 Outages Total, 13 were Network related Outages


1/22/2009 2:08:00 PM CALHOUN CNTY ILEC-C3R-Network failure-Re-Routed

Wireless

5/13/2009 4:25:00 PM CLAYTON CO C2R, WRLS, IND NETWORK TRBL

5/13/2009 4:25:00 PM CLAYTON CO C2R, WRLN, IND NETWORK TRBL

6/4/2009 12:49:00 AM TAYLOR CO C3R, WRLN, FIBER TRBL IND

6/4/2009 12:49:00 AM TAYLOR CO C3R, WRLS, FIBER TRBL IND

6/30/2009 10:54:00 AM FREMONT CO C3R, WRLS, IND FIBER CUT

6/30/2009 10:54:00 AM FREMONT CO C3R, WRLN, IND FIBER CUT

7/6/2009 4:03:00 PM BUENA VISTA CO C2R, Re-routed LL, FIBER TRBL/WORK

January 2012





10/12/2009 10:19:00 AM WAYNE CO C3R, WRLN, T3 TRBL

10/12/2009 10:19:00 AM WAYNE CO C3R, WRLS, T3 TRBL

11/9/2009 8:48:00 AM AUDUBON CO C2R, T3 TROUBLE

11/19/2009 11:01:00 AM CRAWFORD CO C3R, WRLS, FIBER TROUBLE

11/19/2009 11:01:00 AM CRAWFORD CO C3R, WRLN, FIBER TROUBLE

GeoComm found that the absence of more detailed information in the reports about the nature of the

service interruption and the duration hindered a more complete evaluation of the issues. GeoComm also

found that the outages reported as fiber and/or cable cuts were usually attributed to the “Network” class

of outages. The actual number of network-related outages, based on the minimal notes per outage report

that appear to be a legitimate network issue remains within single digits per year.

Federal Communications Commission (FCC) Network Reliability and Interoperability Council (NRIC) Best

Practices that cover notification to public safety regarding failures, congestion, and low cost alternatives

when end office to selective router connectivity is lost, might provide an opportunity to discuss ways to

maximize the ability of public safety to continue operations (NRIC 7-5-0569). In addition, outage reports

should be completed in a timely manner in order to identify and understand alternate solutions in support

of continued operations.

Network Infrastructure Best Practices

The opportunity to discuss and observe 9-1-1 operations with the 18 PSAP authorities yielded valuable

information. While the county Joint E9-1-1 Service Boards and PSAPs have worked to maintain adequate

services, there is still ample opportunity to improve the level of understanding of network standards,

network best practices, and operational alternatives throughout Iowa.

The recognition of updated standards and practices will support improved redundancy and diversity for

both wireline and wireless networks which are subject to disruption from both man-made and weather-

related events.

For example the common interpretation that the minimal installation of two trunks per exchange3 is

intended to provide adequate connectivity between the local serving office and the PSAP. This

interpretation fails to acknowledge that if these two paths, which each allow one active call, are in the same

conduit, trench, or pipe from the origin to the termination at the PSAP, then they both are vulnerable to a

single service interruption because there may not be geographic diversity of the routing path. In emergency

communications, both redundancy (duplication) and diversity (separation) are important elements. The

3 ASTM F1381, 4.2.1.2, the minimum of two trunks per exchange is recommended in all cases

January 2012





NRIC has as its stated mission “Partner with the Federal Communications Commission, the

communications industry and public safety to facilitate enhancement of emergency communications

networks, homeland security, and best practices across the burgeoning telecommunications industry.”

NRIC reinforced the importance of both redundancy and diversity in BP 7-7-0580, “Network Operators

and Public Safety Authorities should apply redundancy and diversity (e.g., concepts set forth in Best

Practices 0566, 0573), where feasible, to other network links considered vital to a community's ability to

respond to emergencies.”

GeoComm requested Conditional Routing plans from the PSAPs interviewed, from the state, and from the

E9-1-1 service provider. GeoComm found that local level information was often incomplete and unable to

be validated by the E9-1-1 service provider.

It is also apparent that additional education about the Conditional Routing plans per PSAP might be an

opportunity to improve network understanding. Based on PSAP information that was provided to

GeoComm, 9-1-1 calls will automatically roll to local administrative lines if designated E9-1-1 trunks are

disabled. However, the escalation of Conditional Routing levels and further development of alternate

routing plans might benefit from additional discussion and clarification with PSAP management. The need

to fully define the internal PSAP processes for causing alternate routing to take place, other than that

described above, should be clearly outlined within local Standard Operating Procedures (SOPs). These

procedures should be verified by the service provider as being the accepted method of handling

interruptions of service and exercised on a regular basis with appropriate assessment of any additional

changes that may be necessary. It is critical that PSAP fully recognize all the alternatives that exist for

rerouting calls. Considerations for the selected alternate PSAP should include the impact of shifting call

volume, staffing, available workstations, trunk lines, and effective voice and data exchange for the prompt

dispatch of emergency services.

Network Architecture

In 1988, Iowa established a framework for implementation of E9-1-1 service. The framework authorized

agencies to create governance and funding mechanisms to provide E9-1-1 services at the local level. The

Joint E9-1-1 Service Board have installed and managed a traditional 9-1-1 network utilizing leased services

and facilities which includes voice trunks, data circuits, selective routers, and contracted database

management services; as well as direct trunking from designated local telephone company end offices to the

PSAP and locally maintained databases for wireline address location information in lieu of selective routing

and contracted location database services. These local 9-1-1 systems effectively provide for delivery of

legacy (traditional hard wired telephone land-lines) 9-1-1 calls to the PSAP appropriate for the caller’s

location, with location data being displayed for the answering 9-1-1 operator.

January 2012





A state E9-1-1 Program was later authorized to oversee the implementation of a robust wireless E9-1-1

system serving all citizens of the state of Iowa. This approach was due in part to wireless carrier preference

and their urging to allow wireless carriers to deal with a higher level of government rather than numerous

individual counties. It was determined that management of the wireless 9-1-1 system for Iowa would be

most effective at a state level. This action resulted in a bifurcated 9-1-1 system in which wireline service is

managed at the local level and wireless service is managed through the state 9-1-1 Program Office. The

systems in place support two distinct ALI database methodologies, with a defined network component for

voice and data as defined by the configuration. Both direct trunking and selective routing provides two call

delivery systems relative to maintenance, local responsibility, and workload, as well as limitations.

The resulting outcome is today’s environment in which Iowa maintains two separate networks for 9-1-1

services. These systems work together to ensure that any citizen or visitor who dials 9-1-1 from a wireline

or wireless device is immediately connected to the appropriate PSAP based on the location of the wireline

phone or the specific coverage area of the engaged wireless tower sector.

The wireless 9-1-1 ALI data network is limited and normally requires two data circuits between the PSAP

and the dataset to assure access to and retrieval of location data associated with the wireless call. This

service is provided by a contractor and the exact ALI network configuration; including levels of redundancy

and diversity have not been reported. The wireline ALI dataset is commonly, but not always, maintained at

the PSAP for direct trunk deployments. The nature of the redundancy and diversity of such connectivity is

information not presently known.

The 9-1-1 network architecture in Iowa exists in several classes of call origin and configuration. The

wireline 9-1-1 services may be delivered to the PSAP via selective routing as provided by interconnection

agreements between E9-1-1 telephone service providers and Century Link. Alternately, some E9-1-1

telelphone service providers in cooperation with the PSAP and their Joint E9-1-1 Service Board, maintain

direct connectivity between the end offices and the PSAP to deliver the ANI which is used to prompt an

inquiry of the locally-maintained ALI database (usually maintained at the PSAP but not always). There is no

selective routing of the wireline calls in such direct trunking situations.

The wireless 9-1-1 calls are all selectively routed and delivered by the wireless carrier to the CenturyLink

selective router and then to the local PSAP, based on routing tables developed in cooperation with Intrado,

the wireless database manager, and the PSAPs, utilizing guidance offered by the E9-1-1 Program Office. The

wireless selective router is located in Des Moines.

The current wireline 9-1-1 architecture offers some restriction of the PSAPs’ ability to transfer both the

voice and location data associated with E9-1-1 calls between PSAPs. GeoComm found that PSAPs reported

the need to transfer wireline E9-1-1 calls to neighboring PSAPs that were served by a different and separate

January 2012





wireline selective router (Tandem/E9-1-1 Control Office) within the current network configuration. While

specific local accommodations may exist, the normal process for such transfers requires the sending and

receiving PSAP to be served by the same selective router. In the absence of inter-tandem connectivity, it is

more likely that only the voice portion of the E9-1-1 call will be transferred. This limitation also exists

when a PSAP using selective routing and remote database services seeks to transfer a 9-1-1 call to another

PSAP which utilizes direct trunking and local database management.

This process denies the receiving PSAP the opportunity to “see” a plotted map location or verify the

existence of landmarks on shared mapping applications, and creates a need for the caller in crisis to again

repeat the location information to another call taker, all of which precedes actual dispatch of emergency

services.

Network Stability and Risks

There is ample historic reference to network redundancy and diversity that can be assessed within Iowa.

According to the NENA Master Glossary of Terms, diverse routing is defined as “the practice of routing

circuits along different physical paths in order to prevent total loss of 9-1-1 service in the event of a facility

failure.” Redundancy is defined as “the duplication of components, running in parallel, to increase reliability;

A backup system (either a device or a connection) that serves in the event of primary system failure.”

It is understood that from the local serving office to the PSAP, even redundant pathways are not fully

effective unless they are also diversely routed. The description of the wireless network in Iowa appears to

indicate that the last portion of the path between the selective router and the PSAP is shared by wireline

and wireless services for those counties that utilize selective routing and contractual location database

services. This would indicate that the vulnerabilities that exist for the wireline network also exist for the

wireline network at this point in the network.

In Iowa, there are single point of failure risks within the network, and these failure points present challenges

to the PSAP and the state in ensuring on-going availability of 9-1-1 to the citizens they serve. For example

if a backhoe accidently digs up a cable, the lack of diversity or redundancy in any part of the wireless or

wireline E9-1-1 network can result in areas of the jurisdiction or state being without 9-1-1 service.

In the event that an end office become isolated, which means 9-1-1 calls cannot be routed beyond the local

office exchange(s), it becomes necessary to have a local number within the affected exchange(s) to receive

calls for at least basic 9-1-1 service to continue. This level of emergency planning requires advance

considerations and potential expense to the PSAP; however, this emergency planning activity is a legitimate

and necessary consideration in order to reduce failure potential and preserve continuity of operations.

January 2012





Any individual selective router can also fail, creating interruption of the normal E9-1-1 call process. The

E9-1-1 telephone service providers and the PSAP should have a clearly defined plan for such instances,

including initial detection of the outage, effect on call processing and/or pre-determined alternate routing if

such levels of service exist within the extant network. Plans work best when both the provider and the

PSAP are partners in the development. The PSAP has the responsibility to reinforce the planning effort by

training the staff.

A single selective router serving the 9-1-1 needs of all wireless customers within an entire state as well as

the wireline users within 42 counties without support by an alternate means to transmit the crucial location

data to the PSAP during periods of failure, creates another point of potential vulnerability in the network

and increases risk. To avoid the level of risk associated with such single points of failure, or at least in a

meaningful effort to mitigate the impact on service delivery, the GeoComm assessment effort sought to

determine what emergency plans existed at each PSAP. Specific guidance for the PSAP to use when

developing emergency plans can also be found within current standards other than the cited ASTM

document.

As the integration of the planned IP 9-1-1 network continues in Iowa, the opportunity for greater

interconnectivity between selective routers can be further explored. The current deployment of the

selective routing feature, recognized as an integral part of E9-1-1 service, leaves opportunity to make

improvements. The expanded network should make it easier to provide inter-tandem connectivity among

the locations served by these selective routers.

Selective Router/Location Type Area Served

Cedar Rapids DMS 100 13 counties – wireline

Council Bluffs DMS 100 12 counties – wireline

Davenport DMS 100 13 counties – wireline

Des Moines 5E 42 counties – wireline

All PSAPs – wireless

Sioux City DMS 100 14 counties

Every PSAP should work diligently to identify a fully capable alternate PSAP to which their E9-1-1 calls could

be routed during a local interruption of service. It is critical for every PSAP to plan for an outage that may

be longer than a few hours and affect services beyond 9-1-1 call delivery. The ability to effectively move

voice and data between physically separated points, across a secure network requires preplanning. Also,

the existence of adequate transport paths is required. The traditional network that serves each PSAP today

may or may not be capable of meeting this challenge of processing the call for service. The consideration of

January 2012





how to page, alert, and dispatch a response agency must be included in continuity of operations plans.

Further, continuity of operations plans should be exercised during periodic training scenarios. Follow the

training, a candid, and credible after action reports should be developed to provide documentation of

needed improvements in the sustainability and survivability of critical emergency communications network

functions.

Next Generation Network Planning

In Iowa, distinct action has already begun to design and implement an Internet Protocol (IP) network to

transport calls between PSAPs as well as from the selective router to the PSAP for initial call processing.

These efforts, although modified by the use of network and PSAP gateway devices, hold some promise of

enhanced services across the state and should be viewed as an opportunity for more robust wireless and

wireline alternate routing

As cited within “A National Plan for Migrating to IP-Enabled 9-1-1 Systems” provided by the National

E9-1-1 Implementation Coordination Office, September 2009, the issues across the nation are likely to

include the following:

“The primary long-term goal for migrating to IP-enabled emergency networks is to allow the general public

to make a 9-1-1 ’call’ from any communication device in any mode (e.g., voice, text, or video) and potentially

to furnish additional incident information (e.g., photo, crash data). This requires a fundamental change from

the voice-oriented, circuit switched networks that currently exist as the only conduit into 9-1-1 centers.

Along with new policies and procedures, such networks can be combined within an interconnected system

providing true interoperability across county, State, and international borders and among disparate

emergency response and disaster management agencies.”

The expanded capability of NG9-1-1 has the potential to facilitate incremental, scalable subsets as part of

the overall system. The design of a network, which could support alternate forms of communication,

media, and access than the traditional 9-1-1 environment has value to callers and service providers.

In addition, the implementation of NG9-1-1 offers greater potential to increase public and responder safety

through interconnectivity and interoperability; reinforcing collateral efforts presently underway for

statewide interoperability planning in Iowa. In the realm of emergency management, the migration to

NG9-1-1 networks, even if incremental, can facilitate “real time” distribution of event information, allowing

for better overall resource management, reducing the cost to every community in terms of time, materials,

availability of services and risk of injury, as well as reduction of equipment damage and replacement.

NG9-1-1 will allow PSAPs to transfer and share information with other call centers or response agencies

more quickly and with greater accuracy, regardless of the location of the caller. During the initial

deployment period of NG9-1-1 and for a period of time until all legacy PSAPs have completed the migration

process thereafter, specialty gateway computers identified as legacy network and legacy PSAP devices, are

January 2012





likely to be used to translate the transmitted caller information back and forth between digital and analog

formats. The current regulated connectivity to selective routers, isolated from each other in today’s

environment, if modified through revisions would allow access to crucial data at a level not widely available

today. This single feature, providing the ability to transfer 9-1-1 calls within and among jurisdictions along

with all associated call data, can improve service delivery at the local level. This network design feature is

noted here since the deployment of an IP network in Iowa could be a means to facilitate this service

limitation.

GeoComm recognizes the likelihood that as NG9-1-1 deployment is discussed and/or alternate choices are

offered for service connectivity in present systems, there may be some perceived changes of the current

roles and responsibilities among all entities involved in providing 9-1-1 services. It is for this reason that the

existing legal and regulatory environment will likely also need to be modified, so those that wish to

participate in such efforts can effectively adopt the new technologies and arrangements. The consideration

of modifications of such language changes does require the cooperation of legislative and regulatory

agencies; candid and early discussion with the representatives of such groups may be helpful.

This more universal approach to 9-1-1 service and emergency communication functions also allows for the

incremental introduction of modifications, providing an opportunity to identify, demonstrate, and resolve

the often unanticipated consequences of system changes. It is important, however, that stakeholders have a

role in the coordination of these efforts. The emphasis on standards and best practices will further define

such endeavors as the full potential of even partial modifications are supported by adequate technology,

levels of connectivity, most reliable points of connectivity and reasonable costs. In such efforts, specific

changes to regulation, legislation, and system management will be most successful when discussed with

stakeholders in advance.

Managing the Migration

Managing the migration to NG9-1-1 requires coordination and collaboration. GeoComm recognizes that

the discussion about how best to achieve NG9-1-1 readiness remains an on-going discussion point; both

end-to-end managed solutions and independently-owned and operated systems have emerged. The initial

promise of a standards-based approach, supporting open market purchasing, remains elusive as does the

final resolution of appropriate regulatory adjustments to open and level the field for multiple players. NG9-

1-1 needs a champion or perhaps a group of champions to assist the state E9-1-1 Program and the 9-1-1

Council advance the migration of NG 9-1-1 implementation and funding.

The NG9-1-1 effort may be long and tedious, requiring multiple interagency agreements, political support

for modifying legislation, and funding that most likely will not be less than what is being spent today.

January 2012





In such efforts, there will always be some who perceive an erosion of their authority, and others that seek

to become more powerful; such non-productive behavior can be tolerated as long as it does not

substantially impede the progress of the effort.

The state and county government entities that must make this new system work, on behalf of their

constituents, should perhaps focus first on how it should be managed. It will be important to clearly

identify all the points that will need to be defined, revised, and re-authorized in order to accomplish the

goal, and then set upon a thoughtful plan for achieving those individual objectives that support the larger

goal.

In this evolving discussion and predictable debate, the criteria for initial, partial, and even full acceptance

should remain focused on E9-1-1 customer service, responder safety, and effective resource management.

The funding paradigm in use will offer some controlling influence as well. No public service is free and

costs are not always as clearly identified as decision-makers would wish, creating some additional fiscal

considerations.

As the NG9-1-1 migration continues, the debate already underway over additional costs and system

management issues that arise will force further discussion of what is the proper, most efficient array of

PSAPs or network configurations throughout Iowa. Based on the assessment and analysis done to date, it

is clear that in some counties, the functions that relate to actual 9-1-1 call taking and dispatch are often

performed by individuals who have many duties within a parent organization. It is clear that wireless and

wireline 9-1-1 calls can be managed on the same trunks, and service delivery is fundamentally the same for

all classes of calls although the funding and networks are distinct. Each PSAP must maintain specialized CPE,

adequate training and appropriate certification, appropriate network connectivity, ALI database

maintenance, and personnel management efforts regardless of call volume.

GeoComm finds that the wireless service providers may have the greatest to gain from such efforts; their

customers will be the first to utilize the future features heralded as fundamental in the NG environment.

Consideration of the role of the wireless providers in the development of regulation, timelines, and

equipment needs at the PSAP may be helpful since their products and services may offer alternate access

methodology and media transmission opportunities.

A Shared Network Approach in Iowa

In addition, the nontraditional public safety and service entities (health care facilities, transportation

services, schools) may find access to emerging event information via this enhanced network. These

nontraditional entities should be added to the stakeholder list for added value and possible revenue

contribution. The planning effort for a transition to IP based networks and an initial transition to NG9-1-1

January 2012





should include consideration of these simple questions: who else could use this information in real time?

Who might be our partners in a shared network or shared services environment?

The state may also want to consider non-traditional partners in the network infrastructure of NG9-1-1

services. In the past, the 9-1-1 network was proprietary to emergency services. Other services have not

shared the network on which 9-1-1 calls were transported. However, in the NG evolution the network

elements, assuming adequate security can be achieved when required, could be shared between and among

a variety of services not necessarily limited to only other emergency services.

Non-traditional partners such as other government service agencies, non-government agencies; and non-

proprietary infrastructures may be leveraged to share costs or produce more efficient network use to keep

costs contained while continuing highly productive service levels. As stated above, the exploration of new

technology and new non-traditional partners with the appropriate controls and essential network security

can bring expanded efficiencies and potential cost savings to the 9-1-1 network.

Conclusions

The 9-1-1 systems, referred to as traditional or legacy, was developed in cooperation between PSAPs and

E9-1-1 telephone service providers. Often, the E9-1-1 service provider held the role of sales manager,

service manager, new order coordinator, system performance monitor and equipment vendor. Today,

nearly all of these services can be provided by separate entities or offered as package, or managed service

plan. The issue is to carefully consider the impact of choices as it relates to the inter-operability of the

components.

The level of redundancy and diversity should be well understood by PSAP staff and has application to the

selective routers in use today, as well. The level of such network services may also impact emergency

planning and formal Continuity of Operations Plans as the PSAP seeks to best manage the level of service

available in the wake of disaster, which destroys buildings, or creates a long term interruption of service

accessibility.

Single points of failure for any network serving public safety are a threat to the successful resolution of all

9-1-1 calls, the safety of field responders, and the integrity of the effort to provide such services. The

network considerations should assess each component, for the likelihood of failure as well as the immediate

processes to recover from such failure, even if perceived as low risk. This analysis includes local serving

offices, central offices (wireline and wireless), selective routers, database access links (local or remotely

held), alternate access to services for the PSAP as well as its alternate site and other preferred transport

paths for voice and/or data used in completion of the mission related to 9-1-1 services.

January 2012





In Iowa, the legislative and regulatory language we find today, will need to be modified to support the

choices that can arise from pursuing a shared network and migrating to NG9-1-1. Today, the existing

tariffs favor, the long standing and serving telephone companies; there are defined limits to the right of

connection to selective routers and the lingering number of direct trunked systems, the type of data that

can be stored as well as access to it. These changes may need to precede the actual planning effort or may

be in progress while planning continues. The need for clear, well defined regulatory language and

assignment of responsibility is however important.

The requisite fiscal resources to operate a PSAP have increased and will in all likelihood continue to

increase for some time, until all transition to NG9-1-1 are completed. The resources necessary to support

the current PSAP configuration are substantial and efforts to better control such costs are appropriate.

These statements are being raised in many states and are worthy of continued review and discussion, as the

number of PSAPs does have a direct impact on the amount of funding that can be available for distribution

under current rules in Iowa.

The stakeholders in Iowa will need to consider the advantages of these improvements as well as the costs.

The concerns over governance and funding will need to be weighed against the level of service that can be

demonstrated and the more intangible elements of not having to deal with certain issues any longer. The

technology which would allow all calls to travel across a single network is attainable. The management of

such systems however is a substantial responsibility.


4 Analysis of Current PSAP Structure and Workload

Analysis of Current 9-1-1/PSAP Environment - Wireline and Wireless

All of the Public Safety Answering Points (PSAPs) visited identified wireline and wireless 9-1-1 lines

individually, but all came in on the same telephone system, and appeared seamless to the call taker as any

9-1-1 call. GeoComm concludes from the site visits that this two 9-1-1 network into one telephone

system is common throughout the state. However, many PSAPs had separate administrative lines on a

physically different telephone system creating a multitasking challenge when both emergency and non-

emergency telephone calls occurred simultaneously.

While there may be other reasons to consider the impacts of two networks, there does not seem to be a

negative impact of the two networks from a call answering perspective as the local CPE telephone

equipment accommodates the dual network answering process.

In GeoComm's examination of 18 PSAPs (three PSAPs from each of the six Homeland Security Regions

within the State of Iowa), two key items from the APCO/NENA American National Standards PSAP Service

Capability Criteria Rating Scale were utilized. The PSAP Service Capability Criteria Rating Scale was a joint

effort between APCO International and NENA to develop an American National Standards Institute (ANSI)

standard to assist PSAP managers and their Governing Authorities in identifying the current level of service

capability. The APCO Standards Development Committee facilitated development, and it was approved by

ANSI on November 3, 2008. A revised edition was published under the same rules in 2010 and includes

day-to-day operational elements.

The initial focus of this rating scale was to rate a PSAPs day-to-day operations as well as survivability during

terrorist attacks, natural disasters, health emergencies, and other major incidents. For each item the

available ratings are “Standard," which reflects the minimum criteria for PSAPs in the category; “Advanced,”

which represents a higher level of service; or "Superior," which represents the best example of service

within the item.

The 9-1-1 system throughout Iowa generally meets these basic standards set forth by the Association of

Public-Safety Communications Officials (APCO) in their established ANSI standards for PSAP Service

Capability.1

All PSAPs GeoComm observed met the "Standard" criterion for Item 3.2.1, receipt of Enhanced

9-1-1 (E9-1-1) calls using static Automatic Location Identification (ALI) functionality (APCO/NENA

ANS 1.102.2-2010, Section 3.2.1.1).

1http://www.apcointl.com/new/commcenter911/documents/APCO-NENA-ANS1-102-2-2010-web.pdf

January 2012





All PSAPs have Customer Premise Equipment (CPE) to enable the receipt of E9-1-1 calls with

associated data [Call Back Number (CBN) and caller location information] from callers in the

PSAPs jurisdiction; for static Voice over Internet Protocol (VoIP), and wireless Phase I types of

calls.

In most instances, this level of standard compliance extends also to wireline 9-1-1 calls as well.

GeoComm notes; however, that E9-1-1 by definition2 includes selective routing and selective

transfer. In some areas direct trunks from the local exchange office to the PSAP are utilized and

local databases are maintained to provide caller location identification without selective routing in

place. The call taker still receives both the ANI and ALI which is a fundamental requisite of E9-1-1

service delivery, the process does however occur without the utilization of all the regularly

recognized elements of the definition as cited.

GeoComm observed that the PSAPs visited, met functional requirements of the "Superior"

criterion for Item 3.2.2, receipt of E9-1-1 calls using dynamic ALI functionality (APCO/NENA ANS

1.102.2-2010, Section 3.2.2.3) by providing wireless Phase 2 service for all carriers serving the

jurisdiction.

9-1-1 Workload Assessment

GeoComm evaluated the non-emergency call volume, incidents, ancillary duties, and responsibilities in

order to assess the PSAP workload and the impact ancillary duties have on the PSAP operations.

Out of the 61 agencies that returned GeoComm's survey, all but two handle a variety of ancillary duties and

responsibilities. The duties included: assisting with national crime database data entry, queries, and

maintenance; maintaining local records systems by entering tickets, police field interrogation reports,

accident reports and various other forms of documentation; and performing a variety of jail functions. As

with many agencies across America, dispatchers are often tasked with a multitude of ancillary duties in

addition to answering 9-1-1 and administrative telephone lines and dispatching units to calls for service.

Almost half of the agencies that GeoComm visited tasked dispatchers with various jail duties that required

them to go into the jail during their shifts, leaving the 9-1-1 telephones and police radio unattended for

short periods of time.

Leaving telephones and radio unattended exposes the agency to missed calls for assistance, enhanced

liability, officer safety concerns, and other service performance issues for the community. If the dispatcher

is away and a 9-1-1 call is missed, the department is potentially liable for simple or gross negligence. In

addition, dispatchers are the lifelines for officers, deputies, firefighters, and EMS personnel in the field.

2A telephone system which includes network switching, data base and Public Safety Answering Point premise elements

capable of providing automatic location identification data, selective routing, selective transfer, fixed transfer, and a call

back number. The term also includes any enhanced 9-1-1 service so designated by the Federal Communications

Commission in its Report and Order in WC Docket Nos. 04-36 and 05-196, or any successor proceeding.

http://www.nena.org/resource/resmgr/Standards/NENA_00-001_V16.pdf

http://www.nena.org/resource/resmgr/Standards/NENA_00-001_V16.pdf

January 2012





If a field unit needs immediate assistance and the dispatcher misses the radio transmission because he/she is

distracted by jail duties, the department may be legally liable.

As noted above, the majority of PSAPs handle a variety of ancillary duties that do not require leaving the

PSAP. While each PSAP varied in activity level, during the time GeoComm observed, none of the agencies

appeared to be overloaded to the point where the personnel could not effectively manage the ancillary in

addition to their primary call taking and dispatching functions.

GeoComm was able to obtain detailed information about ancillary duties from the 18 PSAPs visited. It was

difficult to obtain complete and detailed information from the data collection tools sent to all Iowa PSAPs

as many of the forms were returned incomplete without sufficient information to assess the level of

ancillary duties in the PSAP. However, based on the direct observations and data collected via survey,

GeoComm finds that 97 percent of the PSAPs in Iowa perform a variety of ancillary duties on behalf of the

local agency and these agencies are busier than is evident by analyzing 9-1-1 call volume alone. Examination

of total workload must take into account all duties of the PSAP personnel.

Analysis of Staffing Considerations

GeoComm gathered staffing data via the online data collection tool and through interviews conducted

onsite at selected PSAPs. GeoComm discovered several PSAPs reporting that all budgeted positions in

their communications centers are currently filled and in some cases, there have been no personnel

vacancies for several years. None of the PSAPs interviewed reported any problems attracting and hiring

qualified candidates.

97%

3%

Percentage of PSAPs

with Ancillary Responsiblities

Ancillary Duties

No Ancillary Duties

January 2012





GeoComm attempted to assess whether allocated staffing and staffing needs are in sync which is extremely

difficult without conducting a detailed staffing assessment. Through PSAP interviews, some agencies

reported a need for additional budgeted positions as authorized staffing levels do not meet the current and

expanding needs of the center. Not only is call volume affecting the perceived need for additional positions

but current staffing only meets minimum coverage requirements when all positions are filled. This

translates to a staffing shortage and the need for overtime when an individual is sick, on vacation, in

training, or for any other reason not available for work. Excessive overtime causes many adverse issues for

PSAPs and is a primary cause of high employee turnover in the industry. PSAP managers who continually

struggle to maintain minimal coverage report feelings of vulnerability as a result.

During GeoComm’s analysis, we did not discover any standardized processes being consistently used to

determine appropriate staffing levels in the PSAPs. Without using data driven processes to determine

staffing levels, there is little validity to the staffing numbers currently in place or the perception of adequacy.

Although staffing levels may seem to be appropriate at many agencies, the current methodology used to

determine these levels, if one is employed at all, may not produce accurate results.

There are two primary types of positions in today’s PSAP. The first is a position justified by the need for an

individual to occupy a workstation or console in the communications center. These are known as

“coverage” positions. These positions exist so that responders in the field have a resource available when

they call into the communications center by phone or radio. They also exist so that the public reaches a

communications professional when calling for help via the telephone. Traditionally, coverage positions

require staffing 24 hours per day, seven days per week, and 52 weeks per year. In many cases, these

coverage positions handle all of the duties required in the PSAP along with other ancillary duties (jailers,

records clerks, receptionists, etc.).

The second type of position in the PSAP is known as a “volume based” position. These positions, if

applicable, fluctuate in number based on call or work volumes. Many PSAPs increase staffing levels due to

an increase of call volume during drive times, special events, holidays, tourist seasons, etc. Volume based

positions may also be impacted by ancillary duties required in individual PSAPs to meet specialized, local

needs.

As noted previously, there are a wide variety of ancillary duties performed in the various PSAPs throughout

Iowa, which certainly affect appropriate staffing levels at each PSAP. No two PSAPs are exactly alike and

there is no “cookie cutter” approach that will provide data to reveal whether staffing levels are as they

should be.

January 2012





Without a comprehensive and current evaluation of staffing needs that is based on industry accepted

standards, the PSAP is guessing at the appropriate staffing levels. The belief that the PSAP is either

adequately staffed or understaffed is not based on any quantifiable or validated data and may not be able to

be substantiated should the PSAP be called upon to do so either because of a service complaint or legal

issue.

Some industry accepted and specific resources that are available that will help PSAPs determine

communications center staffing levels include:

Association of Public Safety Communications Officials (APCO) Project RETAINS Toolkit 2.0

http://www.apcointl.org/new/commcenter911/retains_toolkit.php

National Emergency Number Association (NENA) PSAP Staffing Guidelines Report 54-501A

http://www.nena.org/general/custom.asp?page=PSAP_StaffingGuide

Erlang Traffic and Call Center calculators

Research has shown that there are significant staffing issues inherent to the public safety communications

industry nationwide. Identifying and hiring individuals who have the specific skills and talents to do this type

of work is a challenge. Successfully training individuals continues to be difficult while retaining employees

for a long period of time (until retirement) is the exception, not the rule.

In August of 2011, APCO’s Professional Communications Human Resources Taskforce (ProCHRT) issued

its final report that takes an in-depth look at the human resources issues facing public safety

communications and specifically addresses these hiring and retention issues.

The ProCHRT taskforce was created to examine human resource, staffing, training, and certification issues

that are directly related to the front line employee in our nation’s emergency communications centers.

The taskforce collected relevant data from all 50 states and the District of Columbia in order to develop

the document and report card to the nation.

The report gives a clear picture, state-by-state, of training and certification requirements, retirement plans,

labor laws, and whether or not 9-1-1 employees are considered public safety employees and/or first

responders. The report provides links for the State of Iowa. The links direct you to specific information

for training and certification requirements, retirement plans, and labor laws in the state. In Iowa, 9-1-1

employees are not considered public safety employees and/or first responders. The report also goes in-

depth, defining the communications center, its role in the provision of public safety services, and the unique

human resources challenges that exist in the 9-1-1 environment.

The report card produced by ProCHRT reveals very low grades as a nation in areas of state mandated

training, salary and benefits, in-service opportunities and emergency medical dispatch.

January 2012





All of these issues have a direct impact on hiring and retaining employees in the public safety

communications industry. This report reflects many of the issues that the State of Iowa faces and the data

reported will benefit PSAPs in the state as they develop plans to move forward and improve staffing issues.

Analysis of PSAP Training

Iowa legislation requires that front-line telecommunicators receive 40 hours of basic telecommunicator

training within the first year of employment. This legislation also requires that eight hours of continuing

education training be received in each subsequent year.

The 40-hour course is offered throughout the year at the Iowa Law Enforcement Academy (ILEA) in

Johnston, Iowa. Elements of this training include:

Basic Telecommunicator

National Incident Management System (NIMS)

Incident Command System

Relay Iowa (telecommunication service for the hearing and speech impaired community)

Special Needs

The eight-hour continuing education class is offered at several locations in the state throughout the year.

These in-service training courses are designed to provide the knowledge and skills necessary for

telecommunicators to perform their duties professionally, efficiently, and effectively.

A variety of topics and information are discussed. The curriculum is updated on an annual basis. The eight-

hour requirement may also be met locally, by a PSAP providing this training in-house. Several Iowa PSAPs

satisfy the requirement in this way.

The academy also provides other voluntary communications center related classes:

Communications Supervisor/Management

Communications Training Officer (CTO)

Advanced Telecommunicator (24 hours)

GeoComm’s analysis revealed that the 40-hour course requirement is being met by all PSAPs visited. This

is also true with the recurring training requirement. Records are kept at the ILEA.

January 2012





Several PSAP managers expressed concern over the content and consistency of the classes offered by the

state academy. There is a perception that the coursework does not adhere to industry standards and that

the content of classes is not consistent from class to class.

Industry Training Standards

APCO has led the effort in establishing ANSI standards for many common job functions in the PSAP. The

following excerpt from the APCO Standards website (www.apcostandards.org) explains its role in

standards development along with a description of the ANSI process.

The following ANSI standards that relate to common jobs in the public safety communications center have

been published:

Minimum Training Standards for Public Safety Telecommunicators (formerly known as APCO P33)

APCO ANS 3.103.1-2010

Minimum Training Standards for Public Safety Communications Training Officers APCO ANS

3.101.1-2007

Core Competencies for Public Safety Communications Manager/Director - APCO ANS 1.106.1-

2009

Further Training Considerations

GeoComm’s analysis revealed that Emergency Medical Dispatch (EMD), although not a requirement of any

state law or regulation (in which is the case in some states), services are provided by most PSAPs in Iowa.

The National Academy EMD Protocol is the product most commonly used by those surveyed. This

protocol requires an initial 24-hour certification course for the telecommunicator. This training equips the

front line telecommunicator to provide EMD, or caller-aid instructions over the telephone, as EMS/Rescue

services respond.

“As an ANSI-accredited Standards Developer (ASD), APCO International is required to adhere to

ANSI’s Essential Requirements for due process and has developed policies accordingly for the

development and coordination of American National Standards (ANS). These procedures provide a

mechanism for announcements of standards development activities, ensuring that qualified

organizations develop them, harmonization if duplicate or conflicting standards exist, and that the

approval of standards is coordinated. ANSI further ensures that access to the standards process –

including an appeals mechanism – has been made available to anyone directly or materially

affected by the activity under development and requires periodic reviews to ensure the standard is a

“living” document. Adherence to these guidelines ensures APCO’s standards development process

provides due process, balance, and lack of dominance, as well as provides opportunities to address

all interests and work together toward a common solution.”

January 2012





This service allows individuals who are on the scene of an emergency to receive instructions over the

telephone to provide critical, often life-saving actions to patients prior to professional help arriving on

scene.

In order to maintain certification as an EMD, telecommunicators must complete 24 hours of Continuing

Dispatch Education (CDE) every two years. This can be accomplished in a variety of ways such as through

APCO’s EMD CDE program which produces one hour per month printed training articles and tests that

appear in the APCO monthly magazine.

Conclusions

GeoComm’s analysis and observations reveal that in general, emergency telecommunicators in the State of

Iowa receive the training mandated by legislation. It is also evident that industry accepted EMD services are

provided by numerous (but not all) PSAPs and that the individuals providing these services are certified in

the EMD process and well trained in the protocol. Sixty-seven percent of the PSAPs GeoComm observed

provide EMD services.

GeoComm's analysis reveals that most PSAPs are at full or near authorized staffing levels and are able to

handle the workload with voluntary overtime the majority of the time. It is very rare that forced overtime

is used, if at all.

Observations of the 18 PSAPs revealed that the dispatch staff and officers/deputies appear to have a good

working relationship. This was also apparent of the working relationship with other neighboring agencies

with the ease of contacting them when needed and their availability for backup when necessary.


5 Radio Technical Analysis

Analysis of Radio Technology Systems

A wide variety of radio equipment is in use across the State of Iowa. There are typical systems which

appear to be reliable but with limited growth or interoperability features; and advanced systems which, if

widely deployed have the potential to take public safety agencies well into the future. During the data

collection process, GeoComm received 61 survey data forms from end users and conducted face to face

interviews at 18 local PSAPS. The analysis provided here is based on the data collected from the 61

responding agencies and the 18 PSAPs’ jurisdictions.

Throughout Iowa, the most common radio technology in use today is VHF conventional radio. This typical

system consists of base stations, which may or may not be repeaters, and subscriber radios (mobiles and

portables). This conventional-type equipment comprises approximately 79 percent of the current radios

systems in Iowa. The more advanced systems are the remaining 21 percent and are identified as trunked

radio systems.

Radio Frequency Band

Another factor involved in the analysis of the radio systems is the frequency band or bands available for use

by any given agency. In many cases agencies have the ability to operate on multiple radio bands, thereby

enhancing their ability to interoperate with nearby agencies. Today approximately 88 percent of the

systems in use in Iowa have at least some ability to operate on the VHF radio band. This public safety band

is the one band where nearly everyone can hold at least one radio conversation. The frequencies in use for

interoperability are assigned on a statewide basis, but coverage of any given conversation is limited to the

range of the immediate base or repeater station. Thus, while a user from the northeast corner of the state

may be able to travel to a remote county in the southwest and still be able to arrange a car-to-car

communication with a local agency, that user will not be able to call back to his or her own dispatch center.

The next most common radio band is the UHF public safety band. The responding agencies operating on

this radio band are all also able to operate on VHF radio band. The UHF band in Iowa appears to be used

primarily for tactical operations or by other support agencies, such as transportation. Just over 26 percent

of the responding agencies report the ability to use UHF radio. Like VHF, this band is also subject to

meeting narrowband operation requirements by the end of 2012. Unlike VHF, agencies did not report the

ability to use this band for cross-jurisdictional operations.

January 2012





The 700/800 MHz band, which contains the newest frequencies allocated for public safety use, can be

accessed by approximately 18 percent of the responding agencies. The activity on both the 700 MHz and

the 800 MHz frequency bands is reported as one because today’s radios can operate equally well on either

band, and the bands are seamlessly contiguous. The only difference between the capabilities and

requirements of the two bands are some regulatory differences. The primary example of those regulatory

differences is that the 700 MHz band is required to meet narrowbanding Phase II standard (6.25 KHz

bandwidth equivalency versus 12.5 KHz for Phase I) in 2017. There is no such requirement for 800 MHz

systems.

This chart displays the percentage of the total number of Iowa agencies that use each radio band. The total

is more than 100 percent since some agencies have the ability to operate on multiple bands.

One capability that is unique to the 700/800 MHz band across Iowa is the existence of a privately owned

trunked system that covers the entire state. In this case, unlike the VHF interoperable frequencies, a user

can roam the state and be within range of a “home” channel with a properly programmed radio. This

system is operated by the RACOM Corporation and is generally referred to as the RACOM system.

Although this system provides statewide coverage, only approximately eight percent of the responding

agencies use this system. While this is a small percentage it does represent some areas with a large

concentration of agencies, such as Scott and Black Hawk counties.

Modulation Methods

Modulation is the process the radio equipment uses to change voice or data into a signal that can be carried

across the radio spectrum. The typical methods in use today are either analog modulation or digital

modulation.

88%

26%

18%

VHF

UHF

7/800 MHz

0.0 20.0 40.0 60.0 80.0 100.0

Percentage of Radio Frequency

Bands in Iowa

January 2012





Analog is by far the most common, with nearly 97 percent of local agencies either using this as a primary

method or able to switch to it for interoperability. Digital modulation is available in approximately 39

percent of the reporting agencies in Iowa.

Conventional radio systems can use either analog or digital modulation. Legacy trunked radio systems

generally used analog modulation, but newer trunked systems including standards-based P25 systems use

digital modulation.

Digital modulation is further defined by the method of creating the digital codes from voice patterns. In

public safety there is one accepted standard for use in the United States. This standard is known as Project

25 or P25 digital encoding. This standard refers to more than 50 different blocks of standardized processes

for the encoding, transmission, and decoding of the digital information. P25 is a work in progress and to-

date only some of the 50 blocks have been fully completed and accepted standards. P25 operation has the

advantage of allowing multiple manufacturers’ subscriber radios to operate on a single digital radio system.

P25 also requires that all radios be backwards-compatible with legacy plain-language (not encoded or

encrypted) analog radio operation. Proprietary systems do not necessarily provide this legacy

interoperability nor do they generally allow multiple manufacturers’ equipment to operate within the digital

system. There are other proprietary standards in use today, especially for older analog trunked radio

systems.

The responding agencies in Iowa indicate that nearly all (96.7 percent) of the agencies currently have the

ability to operate in an analog modulation mode. This is not surprising as most digital systems, especially

those complying with the P25 digital standard, retain an analog modulation legacy capacity for

interoperability with older systems. Approximately 40 percent of the agencies responding to the

GeoComm survey report having digital modulation capability. Of those agencies with digital capability, 96

percent are able to use P25 digital modulation.

Across the State of Iowa most agencies are still using analog radio systems, either trunked or conventional.

Where digital systems are in use almost all have held to the national P25 standard and retained the ability

to interoperate with their analog based neighbors. As additional agencies weigh the move from analog to

digital systems across the state, the need to interoperate both with legacy (analog) radio systems and the

overwhelming majority of P25 digital systems should continue to be addressed. By continuing the trend in

Iowa of migrating to the national standard of P25 digital public safety radio systems, agencies will be able to

build on the existing infrastructure by continuing to be able to access neighboring analog operations as well

as choose to purchase subscriber radios in a competitive market. Moving to proprietary digital systems

may or may not allow analog capability. Proprietary systems by design will lock agencies into a single

provider for future radio purchases.

January 2012





System Ownership

System ownership is quite varied across the State of Iowa. Approximately 85 percent of the systems are

described as locally owned, meaning a local agency, board, or other governing body owns and maintains the

system; the other 15 percent are leased from a commercial entity.

With the exception of intergovernmental agencies such as STARCOMM in the Sioux City area or the

Omaha, Nebraska based ORION system most of the locally owned radio systems are conventional VHF

radio systems, owned either by a local county government agency or a major population center. The

current trend in locally owned systems is to migrate from VHF analog conventional to a digital radio

system. The replacement system may be VHF or 700/800 MHz and may be either conventional or trunked.

In all cases any new radio system should include the ability to operate on both law enforcement and fire

service national mutual aid channels appropriate for the band in which their radios operate.

The most common leased system is the analog trunked system owned and operated by RACOM, a

privately-owned radio system supplier. This system is deployed statewide, although only about eight

percent of the surveyed agencies used the system. Many local agencies have been supplied one radio

capable of operating on the RACOM system, thus ensuring at least some level of interoperability across

much of the state. The RACOM system is an Enhanced Digital Access Communication System (EDACS),

which is a proprietary analog trunking standard. This limits interoperability in the trunking mode to those

agencies with a radio specifically capable of utilizing this method of operation. Not every manufacturer may

provide this equipment. RACOM is in the process of converting this system to a P25 digital trunked

system, a slow process that is expected to be complete around the year 2020.

The other leased systems are Motorola radio systems. These are split between analog proprietary systems,

and digital P25 interoperable systems. P25 digital systems are open-standards systems able to be accessed

by radios from multiple manufacturers.

15%

85%

Leased Agency

Radio System Ownership in Iowa

January 2012





Narrowbanding

In light of the current Federal Communications Commission (FCC) regulatory requirement that all public

safety VHF and UHF band radios convert from wideband to narrowband operation on or before December

31, 2012, the GeoComm survey attempted to determine the ability of radio systems in the state to meet

this mandate. Radios currently operating in the 700 and 800 MHz band, both analog and digital, are not

affected by this requirement and therefore, there are no changes to these radios required before 2017 at

the earliest. Of the various VHF and UHF systems in operation the responding agencies show

approximately 87 percent are ready and able to make the transition before the mandated date. There is

considerable activity across Iowa with most agencies taking a proactive role in assuring continued operation

of their radio systems in a legal manner.

GeoComm’s on-site interview process revealed that most agencies are attempting to coordinate local

narrowband transitions with the anticipated change to narrowband of the Iowa State Police and other state

agencies. Therefore, it is important that state agencies continue to keep local agencies informed of any

changes, either to accelerate or delay the process of moving to narrowband. This coordination is needed

to make certain that interoperability between state and local agencies is maintained throughout the

transition.

Mobile Data

Mobile data systems have become important to many public safety agencies. With adequate bandwidth the

fire service can access building plans and hazardous material information, and law enforcement can retrieve

warrants, records, and other vital information. Approximately 36 percent of the responding agencies in

Iowa have some sort of mobile data capability.

0

20

40

60

Capable Not Capable

53

8

Public Safety Narrowband

Capabilities in Iowa

Responding Agencies

January 2012





Of those agencies, 90 percent use commercial air card technology for data transmission. The commercial

air card relies on commercial cellular data carriers to provide connectivity to field units for data. Tied to

an on-board computer, usually an in-vehicle laptop, the user can access data on government servers,

download forms and some photographs, and return completed files to the fixed server. Air cards are

directly affected by the condition of the local commercial system and compete for access with every other

user. In some cases vendors can provide priority access, but when a system is already overburdened,

which often occurs in the vicinity of a local emergency situation, even high priority cards may have difficulty

accessing the data system.

Approximately 18 percent of agencies using mobile data have available some form of local private network

connectivity. The total is more than 100 percent because a few agencies use the air card as a primary, high

speed connection and a slower, local connection for backup. At the present state of technology, these

locally owned, private network data systems are slower than commercial air cards. The private data

network can rarely handle more than form information and some simple drawings or images. Transfer time

is extended on a private system. However, the private system is dedicated to the local government agency

and does not suffer from system overload by the general public during emergency situations.

The next step in mobile data transmission will come in the form of broadband data. Such a system is

currently in the earliest phases of conditional implementation, with a few agencies across the country able

to install early versions. While waivers of current regulations have been granted to a number of agencies

to create local broadband systems, the funding for those systems has not always followed. Given the

current state of the national economy it is unclear when full build-out of a national and interoperable

mobile data system will actually occur.

Agencies in Iowa appear to be well positioned as many of the applications currently running over air card

connections will also be able to transition to a national public safety broadband network.

90.9

18.2

0.0

20.0

40.0

60.0

80.0

100.0

Aircard Agency

Data System Technology

January 2012





System Configuration

Regardless of the band or method of operation most agencies in the State of Iowa limit the dispatch center

to communication with local radio users only. Interoperability and multi-jurisdictional communications are

left primarily to the field unit. When communications occurs on the local frequency, or one of the few

interoperable channels programmed into dispatch centers, the center can hear and talk with out-of-

jurisdiction responders. When a field unit transmits on a neighboring agency’s home channel the field unit’s

PSAP generally cannot hear the conversation.

This mode of operation works reasonably well for most single-agency mutual aid responses or cross-

jurisdictional conversations. It does leave the unit leaving local center contact somewhat vulnerable to

“becoming lost” to his or her home center. Since all responders today appear to recognize and accept this

situation it is a manageable compromise for routine use. However when several out-of-area agencies begin

to respond to a more widespread emergency the situation can become unwieldy. With the technology

available today it is likely that many responders will be competing for time on the same channel. This can

lead to longer wait times to communicate between units and can delay critical transmissions.

Areas such as Sioux City, with its modern trunked system and multiple gateways to connect local system

users with extended legacy users, are the exception to the above rule. When out-of-jurisdiction agencies

enter the STARCOMM area they can access specific channels on their VHF radios that either will directly

connect to talk-groups in the 800 MHz system, or can be patched through dispatch to make the

connection. With proper planning this type of connectivity is available for most modern systems.

The RACOM system also is deployed statewide so users of that system have the ability to roam in most of

the state and still have system connectivity. Where the local agencies do not use the RACOM system the

local dispatch center is usually supplied with a RACOM enabled radio for emergency connectivity.

Conclusions

Agencies across the State of Iowa use multiple radio systems for daily operations. Those systems provide

adequate to good coverage of local jurisdictions, with little ability for the end user to operate in a normal,

day-to-day mode outside the local system. When users must range beyond their home radio system the

norm is to move to one VHF radio channel for fire, and another single channel for law enforcement.

VHF radio systems are by far the most prevalent public safety systems in Iowa. Even where other systems

exist, especially 700 MHz and 800 MHz trunked radios, the backup and interoperable systems are still on

VHF. Most PSAPs are able to communicate on the nationally recognized fire and law enforcement VHF

interoperability channels.

January 2012





PSAPs and other fixed locations are usually limited to a single law and single fire channel, while mobiles and

portables are typically programmed with the primary service channels for surrounding jurisdictions.

Most agencies in the state are moving proactively to meet the December 31, 2012 deadline to complete

narrowbanding for VHF and UHF radios. Those agencies are aware of State of Iowa agency plans and

schedules to narrowband state radios and have made a concerted effort to synchronize local

narrowbanding with state agency narrowbanding. State agencies that are responsible for moving their own

radios to narrowband must be aware that local agencies are indeed working to stay synchronized and must

also take a proactive role to keep all local agencies informed of any changes to the currently published

narrowband plans.

Along with narrowbanding, many agencies across the country are considering moving from analog to digital

modulation. There are several factors favoring moving to digital radio. First the physics of moving from

wideband to narrowband operation usually means a loss of effective voice range for any given radio system.

When that loss occurs within the primary coverage area of the user agency, some means must be found to

regain the coverage. On any given system, with no other system changes such as tower additions or height

adjustments, a digital signal will normally have a greater effective clear voice range than analog. This allows

the system user to regain most or all the useful range lost by narrowbanding.

Next, the current narrowbanding requirements are known as narrowbanding Phase I. There is a proposed

narrowbanding Phase II in discussion which will again halve the permitted bandwidth. It is unlikely that

analog radios will be effective at this bandwidth, but there are digital methods which will allow continued

operation for Phase II. Moving to digital systems today prepares agencies for the next steps in VHF and

UHF voice communications.

With nearly 40 percent of Iowa PSAPs currently able to use some form of digital communication the public

safety community in the state has demonstrated a desire to move in this direction. We can only expect

this percentage to grow as more agencies take advantage of federal grant programs requiring the purchase

of P25 digital capable radios.

Beyond voice communications the exchange of data to and from mobile units is becoming commonplace in

public safety. The entire national broadband movement is based on this desire to provide a truly

nationwide, seamless system of data exchange. That broadband system does not yet exist, yet more than a

third of Iowa agencies have some local mobile data capability. Today that capability is based almost entirely

on the use of commercial systems. As the national broadband system becomes a reality, and as the growing

federal regulatory movement encourages the transitions of these systems, we can expect Iowa users and

many others to transition to that higher speed, more robust system.

January 2012





To summarize, the state of both voice and data radio communications across the State of Iowa is well

structured to provide good local coverage for agencies and PSAPs. Local end users generally have the

ability to communicate with their immediate neighbors, but have limited (usually a single channel) capability

to interact with agencies from beyond that range. PSAPs are more limited in that they typically have only

one law enforcement, one fire, and one agency-to-agency channel for communication with other areas

agencies. PSAPs generally do not have remote backup facilities that would allow radio dispatch operations

should the local PSAP become incapacitated.

Mobile data exchange beyond the local member agency is essentially non-existent. Data systems today are

generally application specific and depend on full user registration and a common over the air

communications system.

January 2012





Radio Interoperability Analysis

Interoperability between users must be considered from several different approaches to get a full and

accurate picture of just how interoperable the public safety systems are in Iowa. The most basic is end

user to end user, and then end user to dispatch, and finally the ability of dispatch centers or PSAPs to

interoperate between systems.

End User Interoperability

A comparison of the radio frequencies available to local agencies as provided by the responding agencies

shows that most agencies in the state have a number of options for mobile and portable users to

communicate across jurisdictional lines. The common denominator is the VHF radio band, where more

than 88 percent of local agencies have at least some operational capability. Except where neighboring

agencies have incompatible systems, such as is encountered with agencies whose primary radio system is

the Omaha-based ORION system. For those agencies mobile and portable radios are programmed with

the major operating frequencies of neighboring jurisdictions. This allows a user on a mutual aid assignment

to easily switch to the operational channel of the agency receiving the aid and interoperate as if the user

were a local unit.

The other method of interoperability on the VHF band that is common and able to be used by any

responder with a VHF radio (even when not the primary system for that user) is use of the common

VLAW and VFIRE nationwide interoperability channels. While the number of frequencies (only one per

service such as fire, law, EMS) is limited, these are common channels used across the nation and provide

interoperability over large areas. The ability to operate and interoperate is limited to receive or transmit

footprint of the individual radio, but the frequencies are common to most agencies throughout the state.

With the exception of users of the RACOM 800 MHz radio system, when a responder leaves his or her

local jurisdiction and switches to the service channel of another agency the user loses the ability to

communicate with the home dispatch control center. If the responder has switched to a channel

monitored by the PSAP serving the area where the responder is now located then he/she will be able to

communicate with that local PSAP. In the case of tactical radio channels, such as many fire-scene channels,

the user may be out of touch with any and all fixed base stations and have to rely on the ability of the

mobile units on scene to contact the appropriate center.

When a mobile unit roams outside its primary service area or responds to a mutual aid assignment the

mobile operator must change to an active channel in the new area. The PSAP is not normally able to

initiate contact with the newcomer until that happens.

January 2012





As previously noted users of the RACOM 800 MHz radio system are an exception to the rule of not being

able to reach their home center when roaming. The RACOM system is an analog trunked radio system

that has some presence throughout the state of Iowa. With proper talk-group selection and programming

that authorizes roaming to all parts of the system it is possible for a RACOM user to maintain some

connectivity anywhere in the state. This does not mean that the user has total access to all normal talk-

groups, only that with the proper programming and system authorization some connectivity can be

maintained.

When users of 700 and 800 MHz radio systems roam outside the footprint of their home system they need

to have a second radio available that will operate on one or more VHF interoperability channels. The

reverse is generally not true, as most 700 and 800 MHz radio systems contain gateway channels allowing

the PSAP to patch together a VHF interoperability channel to a 700/800 MHz radio channel or talk-group.

This is understandable since most of the VHF systems were designed and installed long before public safety

had access to any 700 or 800 MHz radio channel. The 700/800 MHz radio systems were all installed with

the knowledge that surrounding users were operating on the VHF band and were usually designed to allow

incoming VHF responders to interoperate with the local system.

PSAP Interoperability

The interoperability choices for PSAPs and dispatch centers are far more limited than those for end users.

Other than local gateway radios tied to some trunking systems, such as that operated by STARCOMM, the

PSAP is generally limited to communicating on local channels or one or two national interoperability calling

channels. Radio connectivity between fixed centers appears to be limited to the point-to-point VHF radio

calling channel (155.370 MHz).

The local dispatch center is generally not able to talk on the home channels of units from foreign

jurisdictions. For day-to-day operations, this is quite normal and poses no problems. When local mutual

aid is required incoming responders are generally able to switch to a local channel, operated by the PSAP,

and initiate communications. The shortcomings of this system will not be seen until a wide area event

occurs, or the local PSAP itself becomes disabled.

In the event of an emergency situation requiring resources from outside the adjoining counties there will

only be a very few interoperability channels available for all staging and situation management. Should

remote responders attempt to use a simplex channel from their home area they will rapidly become “lost”

to the rest of the emergency management system, including dispatch. Also, such use of a frequency outside

its licensed area is a violation of FCC regulations and can interfere with licensed users of that frequency in

the new location.

January 2012





GeoComm finds no capabilities in any survey or local interview response that indicates a remote or backup

dispatch center able to operate radio systems of an adjoining county. Should a natural or man-made event

cripple the dispatch center or if there be a need to abandon the PSAP, provisions have been made to

transfer 9-1-1 call taking capabilities to another PSAP. That transfer may be manual or partial, but it usually

does exist. No such capability exists for the radio system. In the event of such a failure the remote PSAP

may be able to accept and make record of incoming emergency calls, but they will not be able to assign

responders or dispatch the needed service. At best, they may be able to establish either a single-channel

connection or wireline connection to a mobile command post in the affected county where some calls

should be able to be dispatched.

An issue that appeared during our PSAP interviews was that the VLAW, VFIRE, and point-to-point

frequencies are being used for unintended purposes. These channels were never intended to handle

routine traffic. The V channels were developed to create national “calling channels” where transient users

could always establish emergency contact. Point-to-point is usually limited to either establishing a short

contact or relaying vital information. It was reported to GeoComm that these channels are often used for

“routine” or casual traffic between adjoining jurisdictions. This would include simple meeting arrangements

and typical routine “chatter” between units. These channels should be reserved for more vital uses,

ensuring their availability to immediately handle emergency traffic as well as making it a simple matter to

monitor the channel for activity without having to either disable the monitor or simply ignore the channel

due to overuse.

Interoperability Agreements

There are three major methods of establishing interoperability currently available in Iowa:

Shared common channels

Shared open systems

Shared proprietary systems

Nearly 84 percent use one or more shared common channels for interoperability. These are typically VHF

channels common to multiple radio users.

Shared proprietary systems account for about eight percent of the interoperability channels. These appear

to be mostly channels that are available to the RACOM system and are the result of compatible radios

being distributed to some communications centers around the state.

January 2012





The final group of just over three percent is shared open system users. These are either P25 systems able

to operate in a legacy analog mode, or VHF systems with specific shared channels made available for other

users.

These shared channels are made available on either a formal or informal basis. The VLAW, VFIRE, and

point-to-point channels are in a separate category, shared by virtue of their national and state status for

public safety users.

Nearly 69 percent of interoperability in the State of Iowa is based on some form of a formal, written

sharing, and interoperability agreement. This is the desired method as it provides good control of

protocols and establishes who will use what resource during an emergency.

The remaining 31 percent depend on a “handshake” agreement, or simply on the fact that “that’s how we

always have done it.” This can work for local operations and with experienced users; however, agencies

should be cautioned that this type of agreement is problematic when a sudden emergency creates the need

for responders to use the local common system, and they have never done so before. The middle of an

emergency is a very difficult time to teach someone about common or normal procedures.

Another aspect of interoperability agreements is the coordination that the Statewide Communications

Interoperability Plan (SCIP) and regional Tactical Interoperability Communications Plans (TICPs) bring to

the process. The state of Iowa is proceeding under the NECP process to develop plans. To date

approximately 67 percent of local agencies have responded. While this level of participation is useful, it

leaves substantial room for improvement.

0

50

100

Shared

Channel Shared

Open

System Shared

Proprietary

System

51

2 5

Interoperability Agreements Across

Iowa Public Safety Agencies

January 2012





The current SCIP does a very good job of documenting existing conditions across the state of Iowa. It also

provides information regarding local and state contacts as well as many of the facilities available for

emergency communication across the state.

The SCIP also notes, as does this report, that while interoperability among regional responders is relatively

good due to dispatch centers common to multiple disciplines within an area, the mix of VHF, UHF, 700

MHz and 800 MHz systems across the state means that wide-area event responses will require the use of

multiple radios by many responders.

One issue that appeared in the interview process was a discrepancy between how agencies and regions

formalize interoperability planning and documentation. In most regions, PSAPs have formal agreements for

interoperability while others specifically state they have no written plans and that the information is

“universally known with no written documentation”.

Mobile Data Interoperability

The ability to share mobile data connections with responders from other jurisdictions does not appear to

exist today. While it may be possible to connect similar air cards to multiple systems, interoperability is

complicated by the need to use the same back-end database structures and programs between agencies.

Currently the FCC, manufacturers, and various professional organizations are moving to establish a

nationwide interoperable data and voice system. This is the 700 MHz broadband system commonly

referenced in current articles and federal activity. Once developed and standardized this broadband data

system will provide a common language and set of operating channels for public safety data connectivity.

Until that occurs it is unlikely that local actions will have much effect on the state of mobile data

interoperability.

Interoperability Training Exercises

According to the interviews and discussions GeoComm held with representative PSAPs, regular training

exercises do occur across the state of Iowa. The primary issues are that these exercises do not appear to

be uniform, with some agencies reporting monthly, others quarterly, and still others only annual sessions.

Most of these exercises review operational procedures and interoperability within the primary local

jurisdictions and usually include surrounding agencies. There appears to be little opportunity to either

discuss or train for a wide-scale disaster response. These exercises also assume either compatible (usually

same band) radio systems, or the immediate availability of radios on the appropriate band and pre-

programmed with the required channels.

January 2012





As with interoperability agreements, there is a wide disparity in the processes used to develop training

plans and scenarios. Most agencies report using formal training documents, plans and programs for all

training, including interoperability. However some refer to interoperability training as addressing the

“flavor of the year”, or as working entirely toward operational issues involved in interoperability. Very few

identified the ability to address technical issues during any training exercise and none appeared to consider

addressing hardware or direct equipment compatibility issues during those exercises.

Most agencies report that their interoperability training processes are informal and no written process is in

place. Where plans have been developed they appear to discuss the frequency of training and makeup of

the exercise groups. There is little formal discussion of what goes into an interoperability training exercise.

Conclusions

Interoperable communications across the state of Iowa currently depend primarily on the ability of local

agencies to contact nearby local users on common VHF channels. Most agencies do this through a formal

agreement and shared channels. This system works well for daily operation and can handle the average

level of emergency and typical mutual aid event. Regional or statewide events will likely experience

difficulties as the few common channels become overloaded and new responders appear without the

necessary frequencies installed.

An important consideration should be the ability (or lack thereof) to communicate with public safety

agencies from other states. Iowa has significant exposures up and down the east and west sides, with major

rivers and bridges, all of which present a potential hazard. A concerted effort is required to become aware

of, keep current with and make required modifications to create and maintain effective communications

interoperability with Wisconsin, Illinois and Nebraska agencies, particularly. The common borders with

Minnesota and Missouri are less hazard prone, and most of those border counties still rely on VHF on both

sides of those borders, at least to some degree.

Most PSAPS are able to respond to transmissions from incoming first responders outside of their

jurisdictions; however, the PSAP cannot initiate first contact. There is very limited PSAP to PSAP

connectivity (usually on the point-to-point channel) and do not appear to have remote or backup facilities

in other counties that can handle catastrophic failure of the radio dispatching system.

The SCIP and TCIPs have been developed and the SCIP is regularly updated. Planning and documentation

for interoperability beyond the state level is uneven, with some areas having no formal documentation.

Training exercises are held regularly throughout the state of Iowa. Most are based on informal assessment

of current needs and concentrate on operational issues. Rarely are technological issues considered when

either creating or executing interoperability training exercises.


Analysis of Other State Studies

Feasibility studies and assessments are available from a number of states; however, it should be noted that

there are many variables that can make a study unique and not fully comparable. Regardless of this,

GeoComm does recognize that there are state studies that can be helpful to Iowa to review and consider

as potential options. These studies can also serve as validation for current planning and activities underway

in the state.

North Carolina E9-1-1 Funding

North Carolina recently underwent a complete analysis and overhaul of its funding mechanism and

ultimately adjusted and modified its funding model. Initially, North Carolina’s 9-1-1 oversight consisted of a

board that was strictly a wireless board dealing with the issues of wireless 9-1-1 Phase II deployment and

fee collections, much like the situation today in Iowa. Its scope and purpose was focused and limited to

wireless E9-1-1 services, as is the Iowa E9-1-1 Program Office. Today, the wireless board has evolved to a

full scale E9-1-1 Board responsible for the oversight and coordination of future developments of all 9-1-1

service in the state.

Previously, local governments, cities, and counties were able to enact their own specific 9-1-1 surcharges

against wireline only telephone subscribers in their jurisdictions. The surcharge varied locally and did not

have a state enacted cap on the amount. The funding model in North Carolina was an example of a model

where a fee was collected by the local telephone providers and remitted to the local government, again,

much like what happens in Iowa for wireline E9-1-1. A wireless fee per subscriber was also collected on a

statewide basis and remitted to the state board, again with similarities to the Iowa process.

In 2008, the wireless board determined that a new distribution model should require a single fee for all

devices and should have a central collection and distribution point. It was determined that collection

statewide would generate adequate revenue to each primary PSAP to match its previous year total

collections of wireline and wireless fees. This single fee for any device with a centralized collection process

and method was followed during the early years of deploying wireless Phase I and Phase II E9-1-1 services

in North Carolina.

While this new method provided the single fee equality requested by the stakeholders, large E9-1-1 fund

balances were still being maintained by many PSAPs while others appeared to be struggling financially.

January 2012





In 2009-2010 the North Carolina E9-1-1 Board commissioned the East Carolina University (ECU) College

of Business to research the operations of each primary PSAP in the state and provide a suggested funding

model that would lead North Carolina to the next generation of a surcharge model and financial stability.

ECU began its work by a data collection process and research of potential funding methods such as “per

seat” funding based on population, as well as formulas using a combination of population, calls for service,

seasonal adjustments, etc. None of the methods seemed to pass the experimental test of funding actual

costs. It was after significant analysis that the ECU realized that the primary PSAPs had already

demonstrated their funding needs simply by incurring their historical costs. PSAPs were already

determining their seasonal adjustments, fluctuations due to calls for service, costs for operational and

technological upgrades and implementation of new equipment and other cost requirements simply based

upon what they were spending each year. Since North Carolina has restrictions on the use of E9-1-1 fees,

ECU determined what was missing was the historical data that captured actual cost of eligible expenses in

each primary PSAP. This information included capital as well as operational expenses and should, at a

minimum, document at least three to five fiscal. The ECU collected applicable data to determine the actual

costs incurred by each primary PSAP, and it was at that time that the North Carolina E9-1-1 Board was

able to provide detailed cost information over six pre-determined categories of expenditures: telephone

systems, furniture, software, hardware, training, and maintenance (e.g. database and GIS functions). The

challenge in this approach for Iowa is access to the information, resident only with the PSAPs and/or

County Joint E9-1-1 Services Boards, regarding costs, and the ability of the PSAP/9-1-1 Board itself to

produce accurate financial information.

Initial information for North Carolina showed the annual distribution of E9-1-1 revenues to the primary

PSAPs was just over $63.2 million while the actual cost of providing 9-1-1 service was only $46.1 million,

with then-current E9-1-1 fund balances totaling $89.2 million being held by the primary PSAPs at the time

of the study.

Following extensive research and analysis, the North Carolina E9-1-1 Board adopted the new funding

recommendations which were to fund primary PSAPs based on their average five-year expenditure.

Recommendations from ECU, and those ultimately adopted by the E9-1-1 Board, recognized that any new

funding model must address individual PSAP characteristics such as population, seasonal adjustments for

tourist populations, PSAP operational capabilities (law enforcement, fire, and Emergency Medical Dispatch

(EMD) and PSAP technologies. Many of the adopted recommendations were written into North Carolina

Session Law 2010-158 which included the mandate for the E9-1-1 Board to develop a new PSAP funding

model.

In summary, it is the North Carolina E9-1-1 Board’s goal to bring revenues in line with actual costs and

reduce E9-1-1 fund balances. This goal should lessen the likelihood of fund-raiding for non E9-1-1 uses.

January 2012





The North Carolina E9-1-1 Board believes that the steps they have taken to transition their funding

methodology provides for a more effective, sustainable and defensible method of moving forward.

Additional information, including a report on findings and recommendations for E9-1-1 costs and funding

models, is available on North Carolina’s 9-1-1 website.1

Indiana Statewide E9-1-1 Plan

The Indiana Statewide E9-1-1 Plan identifies the key goals and objectives for improving wireless E9-1-1

service and functionality across Indiana and influences Indiana’s statewide decisions concerning wireless

E9-1-1 and landline E9-1-1 services. The successful achievement of the plan’s goals and objectives will result

in Indiana’s ability to continue to meet the public’s high level of expectations for E9-1-1 service, provide a

consistent level of E9-1-1 service statewide, and contribute to the security of funding for all stakeholders.

The Indiana Wireless E9-1-1 Advisory Board (IWAB) assembled a development team with the IWAB’s

executive director, a representative of the Indiana chapter of the National Emergency Number Association

(NENA), two County E9-1-1 coordinators, two representatives of the Indiana Utility Regulatory

Commission (IURC), and INdigital telecom, the Indiana 9-1-1 (IN911) network provider. A consultant

facilitated the compilation and development of the plan.

The primary vision is to assure that Indiana’s citizens and visitors have E9-1-1 service no matter where they

are calling from, what type of wireless device, protocol, or service they use, and whether they

communicate by voice, text, or other media. The plan has the following goals:

Goal 1 - Provide a functionally comparable level of E9-1-1 service statewide.

Establish a stakeholder working group to make recommendations to the Indiana Wireless E9-1-1 Advisory

Board (IWAB) on a variety of technical, operational, and policy matters to advance wireless E9-1-1 in

Indiana identify data elements to measure the technological progress of wireless E9-1-1 and the date

collection mechanism.

Define the baseline level of wireless E9-1-1 service for Indiana.

Identify minimum technical and operational standards.

Draft legislation for governance, funding, and connectivity.

1https://www.nc911.nc.gov. Additional NC 9-1-1 research, reports and models conducted by ECU is available at:

https://www.nc911.nc.gov/911Board/Pastagendabooks.asp?year=2010

January 2012





Goal 2 - Provide all cellular and wireless technology users with equal access to IN911 and

ESInets that are interconnected with it.

Identify the network architectural and application requirements for Short Message Service (SMS) protocol

interfaces. Telecommunications Device for the Deaf (TDD/TTY) messaging, text messaging, instant

messaging, wireless transmission of still images and video images, telematics, language line services, and

video relay for people who are deaf, hard of hearing and have a speech disability. Work with PSAPs and

local government to develop funding sources.

Goal 3 - Achieve the seamless transfer of wireless E9-1-1 voice and data across state lines.

Negotiate formal Memorandum of Agreement (MOA) with county governments from Michigan, Illinois,

Kentucky, and Ohio to build out E9-1-1 to the borders on Indiana and adjacent states, or to the borders of

adjacent regional or state ESInets.2

Numerous challenges facing Indiana Statewide E9-1-1 Plan initiatives are similar to Iowa and successfully

meeting these challenges requires a level of planning and partnership within Indiana that has not been

necessary in the past.

The Indiana legislature enacted legislation in 2003 to remove the wireless carrier cost recovery provision of

the statute and reduce the surcharge from 65 cents to 50 cents per wireless access line. Additional

changes included the creation of an annual equal distribution of approximately $17,000 to each eligible

county in addition to the existing population based distribution and the creation of a technology sub-

account that permitted the IWAB to enter into specific vendor arrangements, and to plan for future

technology applications.

Within 24 months, 12 independent Local Exchange Carriers (LECs) built a statewide, IP-based network

with the potential to provide the Next Generation 9-1-1 network backbone for the State of Indiana.

The next major milestone in legislative policy was enacted in 2008. The primary effect of HB-1204 was to

limit counties to no more than two PSAPs after December 31, 2014, and to prohibit counties from

increasing their landline E9-1-1 fees until consolidation has been accomplished. This same legislation froze

all county E9-1-1 fees until they comply.

2 https://www.in.gov/tos/e911

January 2012





Action Needed to Achieve Goals in Indiana

Indiana’s current statutory framework is similar to Iowa as wireless E9-1-1 is a statewide and state level

function; landline E9-1-1 is local. Currently, there is no state-level mechanism for assisting local

governments with their implementation projects. In order to achieve the plan’s goals and objectives

Indiana’s landline and wireless statutes need updating to reflect industry and technological issues affecting

E9-1-1 and to meet the growing needs of the PSAPs and public safety.

Other objectives of the plan include:

The Indiana Statewide E9-1-1 Plan is a living document. Its intent is to provide a structure for the

advancement of E9-1-1, assist in the migration of Indiana’s PSAPs to the next generation, and allow the state

to qualify for Federal PSAP grant funding. Each objective has a deadline for completion and an associated

metric to measure progress. Their current network vendor use processes in place to monitor and track

network performance. IWAB’s staff is responsible for executing the plan and tracking the progress.

Future centralized services and applications that are common to all PSAPs, specifically where reducing local government costs to provide E9-1-1 service can be achieved within the statutory policy established by the legislature.

Increase staffing for IWAB and establishment of a state entity with appropriate authority, funding and staffing to facilitate/coordinate statewide E9-1-1 planning, and provide services and technology that is vendor neutral. The IWAB has one employee an executive director.

Expansion of the proficiency, in conjunction with the vendor community and stakeholders, to assure that Indiana’s citizens and visitors have E9-1-1 service no matter where they call from; what wireless device, protocol or service they use; whether they communicate by voice, text, image, or video.

In the future, Indiana’s goal is a uniform statewide E9-1-1 infrastructure or interconnected ESInets with equipment and technology to enable a seamless transfer of voice and data on all E9-1-1 calls within Indiana, adjoining states, and regions. The state also desires to include an E9-1-1 program with adequate authority, staff, and funding to support the advancement of E9-1-1 and public safety services statewide.

January 2012





Additional information, including the plan, goals, objectives and measures is available on Indiana’s E9-1-1

website.3

Michigan Next Generation Feasibility Study

The Michigan Emergency Telephone Service Enabling Act (Act) governs the state of Michigan’s 9-1-1

service, provides for the technical and managerial aspects of the state’s 9-1-1 system, and creates funding

mechanisms for the 9-1-1 network backbone and the 181 PSAPs’ capital and operating costs. As in Iowa,

state-level oversight is provided by the Michigan 9-1-1 Committee with the assistance of the State 9-1-1

Administrator’s Office (Office). The Michigan State Police (MSP) is responsible, by statute, for providing

staff assistance to the Committee as necessary to carry out the Committee’s duties, and fulfills this

responsibility through the State 9-1-1 Administrator’s Office. In Iowa, this responsibility falls also to a state

agency, but in the case of Iowa, it is the Homeland Security and Emergency Management Division (HSEMD).

The Michigan 9-1-1 Committee has authority to recommend technical and operational standards for PSAPs,

to recommend model 9-1-1 systems and to provide assistance for the design, implementation, and

operation of those systems. However, the Committee does not have rulemaking authority. That authority

rests with the Michigan Public Service Commission (MPSC), in consultation with the Committee.

The responsibility of the Iowa E9-1-1 Communications Council, as described in the Existing Conditions

report, is to advise and make recommendations to the HSEMD Administrator and the E9-1-1 Program

Manager related to the development and implementation of the state E9-1-1 system. So in many respects

the Michigan and Iowa advisory committees with their broad representation are similar in structure.

In Michigan, the 9-1-1 Committee determined that it should study the feasibility of upgrading Michigan’s

current E9-1-1 system to modern, digital IP-based technology, and so it commissioned a Feasibility Study of

Next Generation 9-1-1 (NG9-1-1) Services. It is generally understood that NG9-1-1 functions enable

shared networks, maximize cost savings and increase partnerships among the stakeholders in a coordinated

and interconnected environment. Many states are finding that this level of coordination and

interconnection has not been necessary in the past under former traditional E9-1-1 architecture, and with

this new level of coordination comes new public policy challenges.

In Michigan, the Feasibility Study of NG9-1-1 Services found, as has been revealed in Iowa, that diversity and

redundancy are absent in the current 9-1-1 system architecture. In Michigan and in Iowa, there is no

interoperability between the selective routers.

3 www.in.gov/tos/e911/indiana

January 2012





The State of Michigan Department of Information Technology (MDIT) has a contract in place with a major

communications provider to provide IP services to all state agencies. A similar service is in place in Iowa as

well. Interconnection agreements with the local exchange carriers are used to supplement services

anywhere in the state that may be outside of the contract provider’s service area. The MDIT contract,

negotiated with the major communications provider, was developed to provide services to state agencies

for general administrative function and was not intended to deliver the strict service levels required for

E9-1-1 services. Because of this, the Michigan 9-1-1 Committee determined that bandwidth requirements

for 9-1-1 along with necessary service levels to support the needs of 9-1-1 would need to be evaluated to

ensure the network would fully support the current and future requirements for 9-1-1, and further,

amendments to the state contract with the communications provider would likely be required. Iowa will

face a similar situation if the State of Iowa IP network is utilized for NG9-1-1 services.

General Policy Findings

Michigan and Iowa as well as other states are facing similar policy issues. As in Iowa, the Michigan 9-1-1

Committee’s statutory authority is only advisory. According to the Michigan Feasibility Study of NG9-1-1

Services, the Committee may develop and recommend statewide standards for emergency telephone

service, make recommendations for counties’ 9-1-1 plans, provide technical assistance for the

implementation of county 9-1-1 systems, and oversee the distribution and use of 9-1-1 funds. The Michigan

9-1-1 Committee does not have rulemaking authority, but it may make recommendations to the Michigan

Public Service Commission (MPSC), which does have the authority to establish rules.

9-1-1 Funding

Funding in Michigan is similar to Iowa in that there is a broad collection mechanism at the state level and

local remittance for a different part of the funding stream directly to the local agencies. Michigan’s state

wireless E9-1-1 surcharge is collected by the communication service providers and remitted to the

Michigan Department of Treasury (Treasury); a separate fee on pre-paid wireless services is also remitted.

The Treasury is responsible for the financial administration of the state’s 9-1-1 program.

There is also a county wireline E9-1-1 surcharge which is assessed, collected, and remitted directly to the

county and administered by the county according to statute. Sixty-six counties collect a local surcharge.

The remaining counties fund 9-1-1 operations through general funds.

Similarities between Michigan and Iowa with regard to the 9-1-1 funding mechanisms are evident in that

there are to two levels of surcharge rates for wireless and wireline state government establishes the

wireless rate and local governments establish the rate for wireline services on a jurisdiction by jurisdiction

basis; and additional costs to operate the systems are generally borne by general fund revenue.

January 2012





In Michigan, county 9-1-1 revenues may be used for the following purposes which are more broad than

those permitted by Iowa statute:

Personnel costs directly attributable to the delivery of 9-1-1 service

Facility costs of the dispatch center directly attributable to the delivery of 9-1-1 service

Training and memberships directly related to 9-1-1 service

Hardware, software, training and peripherals directly attributable to the delivery of 9-1-1 service

Vehicle costs directly attributable to the delivery of 9-1-1 service

Professional services

Public education/information expenses

In Michigan, there is a third 9-1-1 funding mechanism which is known as a “technical charge” and is

reported to be unique to Michigan. It is unknown if any other state has a similar charge. The technical

charge is based on two fundamental ideas. First, it provides a mechanism for the service providers to

recover their costs for providing the service. Second, within any given 9-1-1 jurisdiction, the rate must be

uniform for all end users which equalizes service costs. As a result of these two concepts, along with the

requirement for geographic billing by service district, a pooling arrangement was instituted to minimize the

required settlement process between the service providers and end users. A separate pool is maintained

for each of the 79 service jurisdictions in the State of Michigan.

State Coordination

The Michigan 9-1-1 Office, in conjunction with the Michigan 9-1-1 Committee, provides the framework for

the statewide coordination that is essential to establishing and managing the data networks used for Next

Generation 9-1-1 known as ESInets. This is situation is similar in Iowa.

It should be noted that this state involvement approach is necessary and important and supported by

NENA NGPP policy brief entitled, “Establishing Statewide Emergency Services IP Networks (ESInets)”:

ESInets should be deployed at a sub-state level (regional/county)

ESInets should be interconnected with other sub-state ESInets to establish a standardized,

interconnected and interoperable statewide ESInet

A state level entity or organization is recommended to implement and manage the interconnected

statewide ESInet

A state level entity or organization can play a significant role by providing an IP backbone network

to make interconnection of regional/local ESInets more efficient. Iowa is already well underway on

this approach.

January 2012





Next Generation technologies offer the potential for new 9-1-1 service suppliers and other competitive

options. This will involve new technologies and business arrangements that current laws, regulations, and

tariffs did not foresee. As previously stated, Michigan’s 9-1-1 legacy statutes, regulations and tariffs, as are

Iowa’s, are designed around the traditional regulated telephone service approach to 9-1-1. Michigan has

found that 9-1-1 service suppliers’ tariffs include definitions that describe E9-1-1 system components and

functions in terms of legacy technology. The tariffs do not provide for IP technologies. Iowa statutes and

regulations are in the same position and will require an overhaul similar to that anticipated in Michigan.

Governance structure

Traditional E9-1-1 at the local level occurs in coordination with local service providers. Wireless 9-1-1

required that 9-1-1 authorities take a broader view of service as the wireless radio signals do not follow

traditional landline service boundaries. Many of the NG9-1-1 functions and applications can take place

anywhere and be shared by larger groups than ever before. Michigan found that this will require more

coordination between the entities involved to operate the systems and govern their use.

Michigan was cautioned in the Feasibility Study of NG9-1-1 Services report that an issue to keep in mind

might be that local governments would be likely to believe that they will lose control over PSAP operations

if the state were to increase its involvement and oversight. It is entirely likely that Iowa jurisdictions may

be concerned about this as well. In fact, GeoComm heard this similar concern from local agencies in the

GeoComm-sponsored Discussion Forum hosted in conjunction with the Iowa NENA Conference in

November 2011. This concern makes participatory governance and the inclusion of stakeholders in

governance policy even more important.

Staffing

The Michigan study suggested that staffing at the state level may increase depending on the solution chosen

for Next Generation service. At a minimum, the study noted, there will be new skills required at the state

level and that it may be necessary to hire additional staff. State personnel should have the skills to

effectively manage the service providers.

Policy Considerations

Local 9-1-1 authorities and PSAPs may mistakenly believe that the state will take over their 9-1-1 service.

That concern may get in the way of effective dialogue. Michigan was cautioned that it will be necessary to

help critically important stakeholders more clearly understand that NG9-1-1 involves practical partnerships

in ways that the current system of E9-1-1 did not. Local functions such as staffing, answering calls, and

dispatching may well remain under local control. However, functions associated with system

interconnection, IP network management, data services, data security and data rights, etc., simply must be

managed at a higher level. Increased state involvement, oversight, or management does not need to detract

in any way, the study argued, from how PSAPs do what they do best: answer and respond to 9-1-1 calls.

January 2012





The report further identified that while the Michigan 9-1-1 Committee with its state-level oversight may

have a more centralized role than its counterparts in other states, the Michigan 9-1-1 Office’s lack of

rulemaking authority is a concern that should be remedied.

The Feasibility Study4 reiterated that:

Summary

Iowa’s proposal to update legislation in 2010 should be revived and pursued again in the next legislative

session. As the review of the similar state studies reveals, Iowa is facing several significant issues that have

also been experienced in other states.

The National Emergency Number Association’s (NENA’s) Next Generation Partner Program (NGPP) has

identified the following policy issues related to NG9-1-1:

Need for state-level 9-1-1 leadership and coordination

Funding

Establishing statewide emergency services

Regulation/legislation and tariffs

Systems security

In Iowa, a comprehensive overhaul of legislation will be necessary to modify funding for sustainability, to

update legislative language to allow for implementation of Next Generation, and to realign the duties and

responsibilities of the state E9-1-1 Program. These activities will be necessary to move Iowa E9-1-1

communications forward and should not be delayed.

4 Feasibility Study of NG9-1-1 Services prepared for the State of Michigan 9-1-1 Committee, April 2010

“It should be clear that NG9-1-1 is not a „local exchange service‟ in the manner that E9-1-1 has been. As

the nature of 9-1-1 service evolves away from the regulated telephone industry the regulatory environment

must evolve to reflect the new reality. The 9-1-1 technologies included in the existing framework are those

associated with the legacy, analog telephone environment (e.g., selective routers, ALI database, PSAP

functionality, network infrastructure). Michigan‟s current laws, regulations (what few exist) and tariffs need

to be overhauled in order to pave the way for the competitively and technologically neutral environment that

is necessary to establish an ESInet backbone for NG9-1-1.”

January 2012





GeoComm has already reported in other parts of this document and in the Existing Conditions report that

the ISICS Board and the E9-1-1 Council should be aware of the fact that there is a high level of local

distrust of state authority, and any action on the part of the state might be met with concern or resistance

on the part of local governments, PSAPs or Joint E9-1-1 Service Boards. Often the most effective way to

avoid or mitigate a potential roadblock is to provide a mechanism for stakeholder participation in decisions

that affect them, and to communicate frequently and openly with all concerned. The ISICS Board and the

E9-1-1 Communications Council have the opportunity to effectively fulfill this role, and may want to

increase contact with their constituents during the planning and implementation process for Next

Generation E9-1-1 service. GeoComm is confident that increased involvement and communication with

stakeholders will be beneficial in increasing understanding and awareness that NG9-1-1 will not be possible

without strong state-level involvement.


7 Data Report Card

Overview

In today’s world of public safety dispatch, Geographic Information Systems (GIS) are being used for plotting

caller locations on computerized maps at the individual Public Safety Answering Points (PSAPs). As public

safety transitions into Next Generation 9-1-1 (NG9-1-1), the importance of having an accurate GIS

increases dramatically. GIS also plays an essential role in the validation of location information and routing

of 9-1-1 emergencies to the correct PSAP under a NG9-1-1 model. Therefore, the importance of highly

accurate GIS data for local and surrounding areas is critical.

As the State of Iowa moves toward the NG9-1-1 system, it is important to have an understanding of

available GIS data for use within the system and the condition of the data. The GIS portion of the Iowa

Statewide Interoperable Communications System Board (ISICSB) study focused on determining the status

of GIS data being used in public safety and the condition or accuracy of said data.

To determine the status of public safety GIS data across the state GeoComm released a survey with

questions focusing on types of GIS data used and maintenance of that data within the PSAP. The survey

focused on street centerline and address points that are used for determining an address location and if

their current maintenance program meets their needs for public safety.

Determining the condition or accuracy of the GIS data for purposes of the study required an in-depth

analysis of three urban and three rural areas. The detailed analysis followed National Emergency Number

Association (NENA) standards outlined in Synchronizing GIS with MSAG & ALI found on the NENA website

as document 71-501, approved September 8, 2009. The process involved looking at the spatial and

attribute information in the street centerline, then performing synchronization testing of the ALI database

between the Master Street Address Guide (MSAG), street centerline, and address points, if available.

Service and/or political boundaries were also used in the analysis process.

Status of Public Safety GIS Data

A detailed spreadsheet outlining the status of GIS data for Iowa was provided in the GIS section of the GIS

Status Report of the Existing Conditions Report. The results were determined by a combination of survey

responses, results of a previous study completed by the Iowa Department of Transportation, and

GeoComm’s current Iowa customer base.

January 2012



Assessment of Existing Conditions Analysis Report 7-2


The survey focused on location data such as street centerline and address points as they are the most

costly and time intensive to develop. NENA recommends the use of an address point layer depicting

address locations, not parcel centroids, for use in NG9-1-1. Detailed information such as zip code or suite

numbers can be associated with an address point versus the street centerline.

Survey Results

Centerline

96 – Locations use centerline

58 – Yes response from surveys

38 – Yes from other resources

15 – Currently do not have centerline

3 – No response from surveys

12 – No from other resources

Address Points

67 – Locations use address points

42 – Yes response from surveys

25 – Yes from other resources

44 – Locations do not have address points

15 – No response from surveys

29 – No from other resources

Review

The minimal layer needed in call plotting today and NG9-1-1 functions of validation and routing is a street

centerline. There are 15 or 13.5 percent of jurisdictions in Iowa that do not have this most common GIS

functionality for public safety. As Iowa moves toward NG9-1-1 it is important to note that over 60 percent

of the jurisdictions have access to an address point layer.

It is important to note that mere existence of the data layer does not mean that goals have been achieved.

As an example, Iowa has strong digital parcel mapping programs across the state. If the address point file

has been created from a parcel centroid it may not meet public safety needs. An address point layer for

NG9-1-1 should include a unique point for every address. Multiple addresses may exist on a single parcel.

January 2012





Maintenance of Existing Data

As stated earlier, it is not enough that data exists. There must also be a maintenance program so that

changes that occur in the area are reflected in the map data. Public safety requires a fast turnaround time

for GIS data updates. Questions were included in the survey to determine if the centerline or address

point maintenance program met the needs of public safety. Whether a maintenance program meets public

safety needs could only be determined from survey responses.

Survey Results

Centerline

48 – Survey responses

41 – Yes the maintenance program fulfills their needs

7 – No the maintenance program does not fulfill their needs

Address Points

34 – Survey responses

29 – Yes the maintenance program fulfills their needs

5 – No the maintenance program does not fulfill their needs

Review

The five “No” responders from the address points also responded “No” to the centerline maintenance.

The “No” survey responses could indicate that the local maintenance program is not sufficient, or that a

maintenance program may exist but updated data is not reaching the mapping application in public safety.

Data Report Card Summary

The purpose of the Data Report Card is to outline analysis results of GIS data used for emergency call

location in the PSAPs. In addition, the report will provide information on data requirements for the

NG9-1-1 data model. The ISICSB study called for the six areas to receive an in-depth analysis of their

public safety GIS data. The following three urban and three rural areas were selected for the study.

Category County Agency

Urban Polk Des Moines

Urban Story Ames Police Department

Urban Woodbury Sioux City

Rural Pocahontas County

Rural Washington County

Rural Black Hawk County

January 2012





The Data Report Card will provide ISICSB and the participating communities with a summary status of GIS

and associated database synchronization based on the industry’s NENA standards. The analysis process

used in the study follows NENA standards outlined in Synchronizing GIS with MSAG & ALI found on the

NENA website as document 71-501, approved September 8, 2009. The criteria and configuration

tolerances for various analysis processes are noted in different tabs in the jurisdiction’s Data Report Card

spreadsheet.

The in-depth analysis calls for a review of three main databases.

1. GIS data layers

2. Automatic Location Identification database (ALI)

3. Master Street Address Guide (MSAG)

The first step in the study was to review the GIS data layer(s) provided by the jurisdictions. The centerline

review tests for NENA specific standards for the spatial and attribute features. The criteria are listed in the

Centerline Review section of the report. The boundary layers were also tested based on availability. Gaps

and overlaps between boundary polygons should not exist.

The second step is testing of synchronization of the three databases. Each synchronization scenario is

outlined in the following sections of this report. According to study criteria, GeoComm was to test a

sample of 50,000 ALI records for all study areas combined. The total number of ALI records actually

reviewed for the study was 60,263.

Centerline Review

GeoComm did an independent analysis on the street centerline prior to testing the ALI database against

the layer. The analysis process related to the NENA specifications for a street centerline data layer being

used for public safety. If a centerline contains any attribute or spatial issues, it will negatively affect the

geocoding results. The following criteria were used for centerline analysis:

Address ranges should not contain overlaps or duplicates

Street segments should be broken at intersections or snapped to adjacent segment(s)

Street segments should be coincident with the service or political boundaries. This means if a

street falls along a boundary of a service zone such as fire service boundary or political boundary

the street segment and boundary(s) should line up.

January 2012





Results – Goal is 0%

5.39% - Segments in street centerline with address range overlaps

7.70% - Segments not broken at intersections or snapped to adjacent segments

6.00% - Segments that were not coincident with service or political boundaries

Review

Centerline Issues Sioux City Des Moines Ames Pocahontas Black Hawk Washington

Address range overlaps or

duplicates 27 103 819 0 486 126

Segments not broken at intersections or snapped to

adjacent segment(s)

550 275 204 118 1,085 10

Street segments not

coincident with boundary 25 427 66 223 840 166

ALI to MSAG Comparison

The analysis process compares the sample ALI database for each designated location. The ALI data

contains all the wireline telephone records for the location that are MSAG valid. The MSAG controls what

is included within the ALI database. The optimum result is the ALI to MSAG comparison is zero as all ALI

database records should fall within the MSAG parameters.

Results – Goal is zero

20 ALI records did not match the MSAG

Review

The breakdown of ALI to MSAG issues was nine in Sioux City, eleven in Black Hawk County and two in

Washington County that did not fit the MSAG. The majority of issues were related to street names from

the ALI database that were not found in the MSAG.

ALI to Centerline

Testing the ALI database against the local street centerline is performed to determine what addresses

within the 9-1-1 dataset will plot on the street centerline data and boundary refinement, if available. The

use of boundary refinement is specified in the individual Data Report Card results within this report. The

ALI to centerline analysis plays a critical role moving into NG9-1-1.

January 2012





The desired percentage of ALI to centerline analysis is 100 percent but expectations should be in the 98-99

percent range.


85.66% - Addresses in 9-1-1 ALI database were located on the street centerline

Review

To begin reviewing the results, GeoComm has provided a breakdown of the over 14 percent fallout. The

fallout category assists in determining what adjustments within the centerline or boundary files are needed

to achieve the desired results. As an example, if an address did not locate because it was found multiple

times on the same feature, the ranges need to be reviewed to see why this error occurred.

ALI to GIS Centerline

Fallout Category

Issues Category Description

No house number 2 ALI record did not include a house number.

Address could not be found in

compatible ranges 24

Street name was found but house number was not found the

address ranges in the map data.

Address falls in a gap in the compatible

ranges 382

Street name was found but house number fell within a gap in

the segment ranges.

Address found multiple times 727

There was more than one location for the house number

and street name according to the map data. Issues may be

overlapping address ranges or the refinement boundaries.

Address found multiple times on same

road feature 3,765

The ranges on the specific street segment do not follow standards. Ranges may reflect even and odd values on the

same side of the road.

Address found only in a different ESN 426

Using a service boundary or centerline attributes for geocode refinement. The address was located but the

refinement data was incorrect. Issues may relate to streets

not being broken or coincident with refinement boundaries.

Address found only in a different

community 326

Using a community boundary or centerline attributes for geocode refinement. Issues may relate to streets not being

broken or coincident with community boundaries.

Address is higher than compatible ranges 444 House number in the ALI record was higher than the

address ranges for that street name.

Address is lower than compatible ranges 288 House number in the ALI record was lower than the address

ranges for that street name.

No matching street name found 2,256

Street name in the ALI record was not found in the street segments. Issues may relate to spelling errors, wrong street

designator, or directional.

January 2012





The table below provides a breakdown of ALI to centerline geocoding fallout broken down by category and

jurisdiction.

Fallout Category Sioux City Des Moines Ames Pocahontas Black Hawk Washington

No house number 0 0 0 0 2 0

Address could not be found

in compatible ranges 8 4 6 0 1 5

Address falls in a gap in the

compatible ranges 155 17 51 13 72 74

Address found multiple times 39 0 151 0 403 134

Address found multiple times

on same road feature 14 0 34 0 3,677 40

Address found only in a

different ESN 0 0 0 2 0 424

Address found only in a

different community 0 0 0 0 326 0

Address is higher than


Address is lower than


No matching street name

found 408 145 5 180 1,071 447

Total 814 176 364 226 5,789 1,271

ALI to Address Points

Testing the ALI database against the address point data is performed to determine what addresses within

the 9-1-1 dataset will plot on the point data. NENA recommends the move toward address points at

structure locations with a street centerline as a backup. The ALI to address point analysis plays a critical

role moving into NG9-1-1. The desired percentage of ALI to address point matches is 100 percent but

expectations will vary based on the specifications of the address point data. The goal should be a point for

each unique address within a jurisdiction. The centerline data represent the street network but variables

exist in the development of an address point data set. As example, if the address points reflected the

center of the parcel polygon, multiple addresses within a single polygon would not find a match.


97.28% - Addresses in 9-1-1 ALI database were located on the address points

January 2012





Review

To begin reviewing the results, GeoComm has provided a breakdown of the fallout. The fallout category

assists in determining what needs to be adjustments within the address point or ALI database to achieve the

desired results. As example if an address did not locate because there were multiple points with the same

address, it may be the results of the use of sub addresses. An example of a sub address is unit or suite.

The sub address may be standardized in the point data but not in the ALI. This is a common issue as the

location field in the ALI database is not standardized.

ALI to GIS Address Points

Fallout Category

Issues Category Description

Address found multiple times 1,486 Multiple points for the same unique address. If sub address

used in points but not in ALI then an error would occur

Address not found 2,181

No corresponding point for the ALI address. Could be street name or house number issues within the point data.

Could be that the address in the ALI does not exist. The ALI

record should be reviewed.

Three jurisdictions provided address points for analysis. The table below shows the breakdown by

category of the ALI to address point fallout.

Fallout Category Sioux City Des Moines Ames

Address found multiple times 705 1 780

Address not found 1,780 180 221

Total 2,485 181 1,001

January 2012





Analysis Results by Jurisdictions

The following sections provide individual analysis processes and results. The study obtained local data for

the analysis process so the approach and process may vary based on available data. The analysis for this

report is a straight review of synchronization between the MSAG and the GIS data. It does not take into

account alias tables or address locators that may be used in PSAP mapping applications. To receive a true

picture of data synchronization levels that may affect NG9-1-1 it is important to perform a straight analysis.

The following analysis provides the results based on minimal map data configurations.

It is important to note that analysis processes varied by jurisdiction based on available data and attributes.

The individual documentation section provides technical background for GIS personnel to interpret the

fallout results. A digital copy of the fallout will be provided as part of this report. The digital results will

assist in any cleanup projects that may occur as a result of this study.

Pocahontas County

Source

Sid Enockson provided the MSAG and ALI databases for analysis.

Jeff Lewis from Schneider Corp provided the GIS data. Schneider is under contract to maintain the

GIS data for Pocahontas County.

Data Preparation

The GIS data provided by Schneider included road centerline, corporate limits, E911_fire_district,

E911_ambulance_district, county districts, and a full county boundary. No address points are available for

Pocahontas County.

The street centerline contains multiple street name and address range fields. For analysis purposes range

values found in P_FL, P_TL, P_FR, P_TR fields were used. After review of the fire, ambulance, and county

districts, neither boundary file coincided with ESN values found in the MSAG, so the L_ESN and R_ESN

were used for analysis refinement when geocoding the ALI database against the street centerline.

The original ALI database for Pocahontas County contained 4,822 records. The database contained

records that had a community name of “Outside E9-1-1 County.” These records contained a neighboring

county name in the street name field. These records were removed from the database. All records related

to wireless and Voice over Internet Protocol (VoIP) were also removed from the database prior to

completing the analysis. The database containing only valid county address information had 3,880 records.

January 2012





Analysis Steps

The analysis processes used in the study follow NENA standards outlined in Synchronizing GIS with MSAG &

ALI found on the NENA website as document 71-501, approved September 8, 2009. The criteria and

configuration tolerances for various analysis processes are noted in different tabs in the jurisdiction’s Data

Report Card spreadsheet.

GeoComm performed the following analysis on GIS and 9-1-1 Databases provided:

Centerline Review

Review of street name components for inconsistencies

Range check for overlapping ranges

Review of spatial issues where streets not broken or snapped at intersections

Determine street segments not coincident with fire boundary

ALI Database

Comparison to MSAG for synchronization

Comparison to centerline to determine if the street centerline accommodates all the addresses

in the ALI database

MSAG Database

Review street and community name consistency

Results

Centerline Results Synchronization

Percentage

Review of street name components for possible inconsistencies No Issues N/A

Range check for overlapping ranges 0 100%

Review of spatial issues where streets not broken or snapped at intersections (Overpasses/underpasses not taken into

consideration)

118 94.64%

Determine street segments not coincident with fire boundary 223 N/A

ALI Database Results Synchronization

Percentage

Comparison to MSAG for synchronization 0 100%

Comparison to centerline 226 94.18%

MSAG Database Results Synchronization

Percentage

Review street and community name consistency Issues N/A

January 2012





City of Sioux City

Source

GIS data was provided by Woodbury County Information and Communications Commission. They

provided emergency service zones, address points, and street centerline.

Woodbury County Communications provided the MSAG and ALI databases

Data Preparation

The GIS data provided for analysis included Woodbury County. GeoComm obtained only Sioux City GIS

data by querying out COMM_L and COMM_R fields from Woodbury street centerline.

To obtain the address points that fall within Sioux City, GeoComm selected the ESN boundary for the city

and selected all address points that fall within the boundary. GeoComm created a combined address field

using the house number and street name, excluding the unit number. The combined address field was used

for analysis processes.

The ISICSB study called for an overall study of 50,000 ALI records across the six study areas. An ALI

database contains a record for telephone lines. A single address may have multiple records within the

database. To provide a clear view of an ALI database comparison and still stay within the confines of the

total records, GeoComm created a sub file from the full ALI database that contains unique addresses.

Sioux City ALI had 17,907 unique addresses used in the synchronization analysis.

Analysis Steps






Centerline Review




Determine street segments not coincident with ESN boundary

January 2012





ALI Database



in the ALI database

Comparison to the address point GIS data to determine if the address points accommodate the

addresses in the ALI database

► It should be noted that the process where the error is “Address Found Multiple Times”

takes the data to the house number level, not the unit number. The ALI may or may not

contain that information and may not be consistent.

MSAG Database

Compared address point GIS data to the MSAG to determine if the MSAG accommodates the

addresses in the GIS database.

Results


Percentage

Review of street name components for possible

inconsistencies

Council Oak Dr

Council Oaks Dr

Mside College Dr

N/A

Range check for overlapping ranges 27 99.52%


(Overpasses/underpasses not taken into

consideration)

550 90.28%

Determine street segments not coincident with

ESN boundary 25 N/A


Percentage

Comparison to MSAG for synchronization 9 99.95%

Comparison to address points 2,485 86.12%



Percentage

Review street name and community name

consistency No Issues N/A

Compared GIS address point to MSAG 1,818 94.65%

January 2012





City of Des Moines

Source

Nick Brockman, Public Safety CAD Technician for Polk County Sheriff’s Office, provided the MSAG

data for Des Moines

Dave Lockard from Des Moines provided the ALI database

Aaron Greiner from Des Moines provided the GIS data

Data Preparation

GeoComm was provided the city boundary, streets, and points. Address points were created from

multiple sources. They are a combination of building locations and geocoded addresses. The city also

provided ESZ_fire and ESZ_police layers for analysis. A typical analysis works with a combined fire, law,

and medical boundary layer that coincide with the Emergency Service Zones (ESZ) in the MSAG database.

For analysis purposes, GeoComm used the ESZ_fire for the analysis refinement.


database contains records for telephone lines. A single address may have multiple records within the


total records, GeoComm pulled a random sample of 10,007 unique addresses from the Des Moines portion

of the Polk County ALI database provided.

Analysis Steps






Centerline Review





ALI Database


January 2012






in the ALI database

Comparison to the address point GIS data to determine if the address points accommodate the

addresses in the ALI database

MSAG Database

Compared address point GIS data to the MSAG to determine if the MSAG accommodates the

addresses in the GIS database.

Results


Percentage


inconsistencies No Issues N/A


Review of spatial issues where streets not broken

or snapped at intersections


consideration)

275 92.17%

Determine street segments not coincident with fire

boundary (no combined ESN boundary provided) 427 N/A


Percentage


Comparison to address point 181 98.19%



Percentage



Compared GIS address point to MSAG 1,057 98.58%

January 2012





Black Hawk County

Source

Judy Flores from Black Hawk Public Safety Communications Center provided the MSAG, ALI, and

GIS data for analysis

Data Preparation

GeoComm obtained the boundary layers for jurisdictions, fire and ambulance service. The street

centerline layer was also included in the GIS data. A typical analysis works with a combined fire, law, and

medical boundary layer that coincides with the Emergency Service Zone (ESZ) in the MSAG database.

GeoComm used the fire response zone boundary for analysis.

Street centerline data received belonged to a larger dataset extending outside county boundaries. To

obtain Black Hawk County data the centerline was clipped using a one-mile buffer on the county boundary.




total records, GeoComm pulled a random sample of 10,000 unique addresses from the Black Hawk County

ALI database.

Data Attribute Issues:

After an attribute review of the street centerline, ST_LABEL containing a combined street name

was used for analysis. The field contained a number of leading spaces that needed to be deleted

prior to analysis.

Refinement fields or data layers are needed for analysis. The refinement process accommodates

situations where there could be a duplicate address within a different municipality or emergency

service zone. GeoComm reviewed the data to determine the best approach for designating a

refinement process. The L/R ZONE fields in the centerline were used for the refinement process

based on the following analysis:

Centerline has L/R ESN fields however the attributes did not correspond with ESN info from

MSAG.

After some spot checking it appears the community name in the MSAG possibly represents

postal community as it does not appear to match political boundaries.

No GIS boundary layer that corresponds to the community in the MSAG was provided.

GeoComm looked for possible corresponding boundary information within the centerline. The

majority of the L/R ZONE fields are populated with community names. However, the

attributes are not standardized. As an example, Waterloo is spelled two different ways.

January 2012





The street data appears to have segments representing parking lots. Segments are not connected

to other segments and appear to be used for visual purposes or possible Computer Aided Dispatch

(CAD) functionality. As an example the attributes on some parking lot segments have a street

name of “22 PARKING” with four range field values of 22,22,22,22. Attributes and spatial segments

negatively impacted the analysis results.

The street name attributes in the centerline data have inconsistent ordinal suffixes on numbered

streets. The MSAG does not contain ordinal suffixes. Ordinal suffix examples are the “st”, “nd”,

and “rd” portions of the name for numbered streets such as 1st, 2nd, or 3rd.

The MSAG has inconsistencies in the community name field. As an example, Elk Run Heights is

spelled three different ways. The lack of standards could negatively impact the analysis results.

Analysis Steps




Report Card spreadsheet. The L_ZONE and R_ZONE fields were used for refinement when working with

the ALI database and GIS data.


Centerline Review





ALI Database



in the ALI database

MSAG Database

Review street and community name for consistency

January 2012





Results


Percentage


inconsistencies Issues N/A





consideration)

1,085 89.89%

Determine street segments not coincident with fire

boundary (no combined ESN boundary provided) 840 N/A


Percentage


Comparison to centerline 5,789 42.11%


Percentage

Review street and community name consistency Issues N/A

City of Ames

Source

Connie Hambly, E9-1-1 Database Coordinator from Story County provided the MSAG and ALI

The City of Ames provided the GIS data

Data Preparation

GeoComm was provided the street centerline, address points, and community boundary. The street data

extended beyond the city. Centerlines that fell within the city limit of Ames were used for the analysis. A

typical analysis works with a combined fire, law, and medical boundary layer that coincide with the ESZ in

the MSAG database. Ames has one ESN for the city so response zones or ESN data was not required.




total records, GeoComm pulled 8,116 unique addresses from the Ames ALI database.

January 2012





Attribute information issues:

Street centerline contained parsed out street name fields and a combined street name field. There

were cases where the combined field attributes did not match the parsed out data.

Street name issue

Situations where the street name noted access locations such as “Access to Mobile Home

Park” or “Access to Iowa State Ctr.” The segments also contained address ranges. The street

names do not follow NENA standards and for analysis purposes they contain overlapping

ranges.

A large number of segments containing 1, 1 for the high/low and odd/even address ranges. These

will show up as overlapping segments due to the street name and address range “overlap”

according to the attributes. This situation will have a negative impact on the analysis results.

Analysis Steps






Centerline Review




Determine street segments not coincident with community boundary

ALI Database



in the ALI database

MSAG Database

Review street and community name for consistency

January 2012





Results


Percentage


inconsistencies – Examples

“Access” Street names

Mesa Verde/Verda

Stone Broke/Brook

N/A


(Roy Key Ave – Right from range 30003100) 811 89.91%



consideration)

204 97.49%

Determine street segments not coincident with city

boundary 66 N/A


Percentage

Comparison to MSAG for synchronization 0 100%

Comparison to address points 1,001 87.67%



Percentage



Washington County

Source

Cara Sorrells, Washington County Sheriff’s Office, provided the MSAG, ALI, and GIS data for

analysis with assistance from Duane Royer at the county.

Washington County has a local ALI database and MSAG.

Data Preparation

GeoComm was provided the emergency service zone boundary, sign points, and street centerline GIS data

for analysis. After reviewing the sign point data base and discussions with Duane Royer from the county,

GeoComm did not include the point data base for analysis. The attribute field included a house number

but no street name which is needed for synchronization testing.

January 2012





Multiple fields contained street name information. There appear to be two sets of parsed street name

fields along with combined street name fields. The designators in the FULLNAME field in the map data

appear to coincide with MSAG data. The FULLNAME field was used for synchronization analysis.

GeoComm used the ESN L/R attributes in the centerline data for refinement in the analysis. A second

analysis was completed using the ESN polygon for refinement with the similar results. The fallout listed in

the Data Report Card under the ALI to Centerline tab is the fallout from using the ESN L/R attributes in

the centerline.




total records, GeoComm pulled a random sample of 10,353 unique addresses from the Washington

County local ALI database.

Analysis Steps




Report Card spreadsheet. The ESN L/R fields were used for refinement when working with the ALI

database and GIS centerline data.


Centerline Review




Determine street segments not coincident with ESN boundary

ALI Database



in the ALI database

MSAG Database

Review street name and community name consistency

January 2012





Results


Percentage


inconsistencies No issues N/A





consideration)

10 99.9%

Determine street segments not coincident with

ESN boundary 166 N/A


Percentage


Comparison to centerline 1,271 87.72%


Percentage


consistency No issues N/A

January 2012





Next Generation Standards

The use of GIS data moving forward into a Next Generation 9-1-1 (NG9-1-1) system takes on an expanded

role from the call location in the PSAP today. GIS data will be used in the validation of location information

[Location Validation Function (LVF)] such as civic address or coordinates prior to a device contacting 9-1-1.

GIS will also be used in the routing of the 9-1-1 call to the correct PSAP [Emergency Call Routing Function

(ECRF)]. Essentially the GIS data will be taking the place of the MSAG data that is being used today.

Accurate and complete GIS data is a requirement based on the elevated use of GIS in a Next Generation

system. NENA standards outlined in Synchronizing GIS with MSAG & ALI found on the NENA website as

document 71-501, approved September 8, 2009 are used to prepare data for use within a NG9-1-1 system.

GIS Data Layers

The GIS data model for NG9-1-1 is still in the NENA workgroup stage and has not gone through the final

approval process; however, it is known that there will be two types of GIS data layers provisioned into the

LVF and ECRF. In addition, not all layers being used in PSAPs today will be provisioned to the LVF/ECRF.

The two types of required information are location and service boundary data.

Location Data

The location data layer(s) will be used to validate location information such as a civic address. If the

location cannot be validated or located in the GIS location data then components of the record will be

invalid.

Address points - recommended

Centerline as a backup or main location layer if address points not available

Building footprints are also an option

Service Boundaries

Service boundaries are used for validation and routing processes. The minimal boundary layers are listed

below, however additional boundaries layers may be needed based on the call transfer protocol in the

PSAPs. As an example, in the Next Generation system, a PSAP may transfer a call to poison control;

therefore a poison control service layer would be needed.

PSAP

Fire

Law

Medical

Political

January 2012





Attribute Fields

The GIS data model is still in development and therefore is not ready to be published. However attribute

recommendations have been discussed at various conferences. The NENA documentation is meant to

provide a minimal requirements guide. The final requirements may be based on desired workflow and

specifications of the local ECRF/LVF.

Address Point Specifications

A Next Generation system will have the ability to determine locations such as suite, apartment, floor,

etc. In order to utilize this functionality the map data would need to include the additional location

information. As an example, the system would not be able to determine the location of Apt 201 if an

address point was not developed to include that information. Therefore, the development process of

an address point layer needs to address the desired development process for multi-unit structures.

Type Possible Development Description

Address House number and street name data (recommend

parsed out)

Postal Community Postal community can be determined at the point

level. Difficult to develop with accuracy as a polygon

Postal Code Associated with postal community

Building Such as the building name on a campus

Floor Associated floor within the building

Unit Apartment, suite, or unit number

Location Additional location information

Landmark Vanity address or known landmark name

Type Residential, commercial, etc.

Note: Fields listed above have been discussed at NENA conferences. Final GIS Data Model has not been

approved. Fields may be required or optional.

Centerline Specifications

If address validation and routing will be using the centerline as the location data or a backup to an

address point file, additional fields that are used in the validation process will be required in the Next

Generation centerline. In the call location, typically the centerline utilized the ESN as the refining

search to find the location of the correct address such as 102 Main St. In Next Generation there will

no ESN for refinement, therefore the address information will need to be embedded in the centerline

attributes.

January 2012





Some field descriptions listed below could be required or optional.


Municipality Left/Right Municipality on the left or right side of the from

NODE.

Postal Community Left/Right Postal community spelled out on the left or right

side of the from NODE.

Postal Code Left/Right Postal code on the left or right side of the from

NODE.

MSAG Community Left/Right MSAG community on the left or right side of the

from NODE.

Note: Fields listed above have been discussed at NENA conferences. Final GIS Data Model has not been approved.

Fields may be required or optional.

Service Boundary Specifications

The service boundaries are similar to the ESN boundaries that are used in most systems today.

Current system only allows for fire, law, and medical while a Next Generation system can

accommodate beyond these three services. It could be extended to coast guard, forest patrol, poison

control, etc. The types of service boundaries will vary in different areas. The service boundaries will

be used for routing purposes in an Internet Protocol (IP) world so additional fields containing routing

information will be necessary.


Effective Date

Date the new service boundary goes into effect.

This is important based on annexations, service

agreements, etc.

ID of Agency Unique name for service

Response of Service Type of service represented in boundary

Routing URN/URL for routing

Agency Contact Information URI for the contact information location

Service Display Name Service Name such as Des Moines PD

Note: Fields listed above have been discussed at NENA conferences. Final GIS Data Model has not been approved.

Fields may be required or optional.

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