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BrowardCounty Page1 ©Fitch&AssociatesAssessmentandRecommendationsofBrowardCounty’sRegionalE911 December2016
FINALREPORT–FINDINGSANDRECOMMENDATIONS
DECEMBER2016
ASSESSMENTOFBROWARDCOUNTY’SREGIONALE911
CONSOLIDATEDCOMMUNICATIONSYSTEMS
Submitted by:
FITCH & ASSOCIATES, LLC
2901 Williamsburg Terrace #G, Platte City, Missouri, 64079 816.431.2600 www.FITCHassoc.com
Broward County, Florida © Fitch & Associates, LLC Assessment of Regional E911 Page | 1 26 October 2015 Consolidated Communications System
26 October 2015
Response to Request for Proposal:
ASSESSMENT OF BROWARD COUNTY’S REGIONAL E911
CONSOLIDATED COMMUNICATIONS SYSTEMS
BID NO: N1388702R1
Prepared by:
2901 Williamsburg Terrace #G � Platte City � Missouri � 64079 P: 816.431.2600 � F: 816.431.2653
www.fitchassoc.com
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ASSESSMENTOFBROWARDCOUNTY’SREGIONALE911
CONSOLIDATEDCOMMUNICATIONSYSTEMS
DRAFTFINALREPORT-FINDINGSANDRECOMMENDATIONS
TableofContents
INTRODUCTION ______________________________________________________________________________ 1
EXECUTIVESUMMARY_________________________________________________________________________ 2
RECOMMENDATIONS___________________________________________________________________________ 2OPTIONSDEVELOPMENT ________________________________________________________________________ 2
Figure1.ComparisonofCurrentandThreeOptions“Seats”Required_______________________________________3
OBSERVATIONALFINDINGS_____________________________________________________________________ 4
FINDINGSANDACTIONABLERECOMMENDATIONS__________________________________________________ 5
TECHNOLOGY________________________________________________________________________________ 5Findings—______________________________________________________________________________ 5
OPERATIONALOVERSIGHTANDSYSTEMGOVERNANCE ____________________________________________________ 6Findings—______________________________________________________________________________ 6
PERFORMANCEMEASURES_______________________________________________________________________ 6Findings—______________________________________________________________________________ 6
EFFECTIVENESSANDEFFICIENCY____________________________________________________________________ 7Findings—______________________________________________________________________________ 7
METHODOLOGY______________________________________________________________________________ 9
DISPATCHCENTERBESTPRACTICES _____________________________________________________________ 10Figure2.RequirementsforIAEDMedicalDispatchCenterAccreditation____________________________________11
CURRENTORGANIZATIONANDENVIRONMENT ___________________________________________________ 13
COUNTYDEMOGRAPHICS_______________________________________________________________________ 13CurrentandHistorical ____________________________________________________________________ 13
Figure3.BrowardCountyPopulationGrowth,2005to2015______________________________________________14ProjectedGrowthto2020_________________________________________________________________ 14
Figure4.PopulationProjectionsfor70+YearsAgeCohorts_______________________________________________15STAKEHOLDERRELATIONSHIPS____________________________________________________________________ 16
Participants ____________________________________________________________________________ 16TECHNOLOGYREVIEW _________________________________________________________________________ 17
Telecommunications _____________________________________________________________________ 18ComputerAidedDispatchSystem___________________________________________________________ 19RadioOperations________________________________________________________________________ 20DispatchFacilities________________________________________________________________________ 20
FINANCIALSTRUCTURE_________________________________________________________________________ 21Figure6.BSOExpenditureandBudgetHistory_________________________________________________________22
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STAKEHOLDERINPUT_________________________________________________________________________ 23
METHODOLOGY _____________________________________________________________________________ 23StakeholderInput________________________________________________________________________ 23
STAKEHOLDERPERCEPTIONS–LEVEL1INTERVIEWS _____________________________________________________ 23PositiveIssuesRelatedtotheRegionalE911System ____________________________________________ 24
Figure7.GoalsfortheBrowardRegionalE911System __________________________________________________24Figure8.HistoryofCallTransfersBetween911Centers _________________________________________________24
IssuesofConcernRelatedtoRegionalCommunications__________________________________________ 25STAKEHOLDERPERCEPTIONS-LEVEL2&3INTERVIEWS___________________________________________________ 28
Teamwork _____________________________________________________________________________ 28PersonnelIntegration_____________________________________________________________________ 29InefficientProcedures/Processes____________________________________________________________ 29On-goingTrainingandAccountability________________________________________________________ 29QualityImprovement/Assurance____________________________________________________________ 29EquipmentFailuresandEmergencyProcedures________________________________________________ 29StaffingandWorkSchedules_______________________________________________________________ 30WorkEnvironment/Respect________________________________________________________________ 30
DISPATCHERANDMANAGEMENTSURVEYS ___________________________________________________________ 30SurveyParticipantDemographics___________________________________________________________ 31
Figure9.WorkLocationsofDispatcherandManagementSurveyRespondents_______________________________31Figure10.DispatcherSurveyRespondents’911WorkExperience _________________________________________32Figure11.ManagementSurveyRespondents’911WorkExperience _______________________________________32
SummaryofSurveyResults ________________________________________________________________ 33Figure12.Ibelieveweprovideagoodlevelofservicetocitizenswhocall911._______________________________33Figure13.Pleaseratethefollowing:Ibelieveweprovideagoodlevelofsupporttopublicsafetyfieldpersonnel.___33Figure14.CallersforemergencyservicesprovideaccurateinformationregardingtheADDRESSoftheemergency.__33Figure15.WhenIbeganmycurrentjob,theinitialtrainingIreceivedpreparedmewellforthework.____________33Figure16.Theongoingtraining,Ireceivecontinuestoenhancemyskills.___________________________________33Figure17.TheRegionalCommunicationsSystemisequippedandpreparedtohandlelargescaleemergenciessuchashurricanesormassshootingincidents._______________________________________________________________34Figure18.Theworkmethodsweutilizehelpimprovetheefficiencyinourwork._____________________________34Figure19.Thetechnologiesweutilizeimproveourefficiencycarryingoutourwork.__________________________34Figure20.Policiesandproceduresareeasilyunderstoodandapplied.______________________________________34Figure21.Icaneffectivelyusetechnologytolocatewirelesscallerswhodon’tknowtheirlocation.______________34Figure22.Thetechnologyandinformationsystemsweusearereliableandareappropriatetothejob.___________34Figure23.CADhasthetoolsIneedtohandleincidentsefficiently._________________________________________34Figure24.EquipmentproblemsarehandledappropriatelyandIgetfeedbackonproblemsIreport. _____________35Figure25.OtheroccupantsofthebuildingIworkattreatmewithrespect.__________________________________35Figure26.Uppermanagementsupportsouroperations._________________________________________________35Figure27.ThereiscleardivisionbetweentheCountyandBSOonwhomanagesthecommunicationscenter.______35Figure28.Dutyofficersandsitemanagersareavailableandwillingtohelpmewithproblemsorconcerns.________35Figure29.Ireceivefeedbackonmyjobperformance,includingpositiveacknowledgement.____________________35Figure30.Pleaseratethefollowing:Differentworkscheduleswillimproveourcurrentstaffingchallenges.________35Figure31.Publicsafetyfieldpersonneltreatthedispatchcenterpersonnelprofessionally._____________________36Figure32.ManagementgivesteammembersaclearpictureofthedirectionBSOCommunicationsisheaded. _____36Figure33.Managementunderstandsthedailyproblemswefacewithourjobs.______________________________36Figure34.Overall,Iamsatisfiedwiththejobbeingdonebymyimmediatesupervisor.________________________36Figure35.Managementencouragesotherstoproposenewandinnovativeideas.____________________________36
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Figure36.Managementeffectivelydealswithmisconductorunsatisfactoryperformance. _____________________36Figure37.Pleaserankthefollowingissuesinorderofimportance(1isyourtopconcernand5istheleastconcern._37Figure38.Pleaserankthefollowingissuesinorderofimportance(1isthemostsatisfiedtoyouand5istheleastsatisfied._______________________________________________________________________________________37
DATAANALYSES_____________________________________________________________________________ 38
SOURCESOFDATA____________________________________________________________________________ 38Background ____________________________________________________________________________ 38CADExport_____________________________________________________________________________ 38TelephonyExport________________________________________________________________________ 38RadioExport____________________________________________________________________________ 39
CADANDCDRTIMELINES ______________________________________________________________________ 40Relationship____________________________________________________________________________ 40
Figure39.RelationshipBetweenCDRandCADTimelines ________________________________________________40Validationof[Received]Timestamps ________________________________________________________ 41StatisticsforReceivedTimestamps__________________________________________________________ 42
Figure40.Validated[Received]Timestamps11/1/2015through12/31/2015________________________________42SUITABILITYOFPERFORMANCETARGETS_____________________________________________________________ 43
P1Intervals_____________________________________________________________________________ 44Figure41.NENARecommendation__________________________________________________________________45Figure42.AverageBusyHourBasedonTelephoneTraffic _______________________________________________46Figure43.ComparisonofORCATandFITCHPass/FailDeterminationBasedonAnswerDelays___________________47Figure44.AnswerDelaysatCentralPSAPon11/07/2015________________________________________________48
P2/P3Intervals__________________________________________________________________________ 49Figure45:EMDP2/P3Statistics&Performance________________________________________________________51Figure46:n-EMDP2/P3Statistics&Performance______________________________________________________52Figure47.P2/P3PerformanceforEMDCalls–TargetversusActual________________________________________53
LawEnforcementP2/P3___________________________________________________________________ 53Figure48.LawP2/P3Statistics&Performance ________________________________________________________54
P3Interval _____________________________________________________________________________ 54Figure49.P3PerformanceStatistics_________________________________________________________________55
P4Interval _____________________________________________________________________________ 55Figure50:ComparisonofP4Averagesand90thPercentiles(dataforNov-Dec2015)__________________________56
MODELINGCURRENTDISPATCHOPERATIONS_____________________________________________________ 57
RATIONALE_________________________________________________________________________________ 57MODELSOFDISPATCHOPERATIONS________________________________________________________________ 57
APCORETAINS__________________________________________________________________________ 57ErlangAnalyses _________________________________________________________________________ 58
Figure51.QueuingTheoryTriangle__________________________________________________________________58WORKSTATIONS_____________________________________________________________________________ 58
Figure52.WorkflowsandWorkstationsintheBSODispatchSystem_______________________________________59WAITINGQUEUES____________________________________________________________________________ 59DEFINITIONOF“ERLANGS”______________________________________________________________________ 60QUANTITATIONOFWORKLOADS __________________________________________________________________ 60
Figure53.RecordfromSummationDatabaseofTelephoneTraffic_________________________________________61Figure54.RecordfromSummationDatabaseofCADandRadioTraffic _____________________________________62Figure55.RecordfromAveragedDatabaseofTelephoneTraffic __________________________________________63
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Figure56.RecordfromAveragedDatabaseofCADandRadioTraffic _______________________________________64ERLANGMODELING___________________________________________________________________________ 65
ErlangTables___________________________________________________________________________ 65CurrentBSOStaffing _____________________________________________________________________ 65ModelofCentralIntakeWorkstation ________________________________________________________ 65
Figure57.ErlangModelofCentralIntake_____________________________________________________________66Figure58.ErlangModelCentralIntakeAdjusted_______________________________________________________68
ModelofCentralFIREAssignmentWorkstation________________________________________________ 69Figure59.ErlangModelCentralFIREAssignmentWorkstationBSO________________________________________70Figure60.ErlangModelCentralFIREAssignmentsWorkstation___________________________________________71
DISPATCHOPERATIONSMODELS—OPTIONS_____________________________________________________ 73Figure61.FunctionsRequiredInAllEmergencyServicesDispatchOperations________________________________73
PERFORMANCETARGETS _______________________________________________________________________ 73PERFORMANCETARGETSFORMODELLING____________________________________________________________ 74APPLICATIONTODISPATCHOPERATIONALMODEL/OPTIONS _______________________________________________ 75
Figure62.ChangesinLatenciesfor+1.28σSurgesinAllHours-of-Day______________________________________76Figure63.DependenceofAnswerDelaysonSurgesandDispatchersOnDutyforCentralIntakeat1800Hours _____77
DISPATCHMODELOPTION0_____________________________________________________________________ 77Figure64.DispatchModelOption0 _________________________________________________________________78Figure65.North,CentralandSouthPerformanceandDispatcherHours-OnDutyforDispatchModelOption0______79
DISPATCHOPERATIONSMODEL/OPTION1___________________________________________________________ 80Figure66.DispatchOperationsModel/Option1 _______________________________________________________80Figure67.PerformanceandDispatcherHours-OnDutyinDispatchModelOption1.___________________________81
DISPATCHOPERATIONSMODEL/OPTION2___________________________________________________________ 82Figure68.DispatchModelOption2 _________________________________________________________________82Figure69.PerformanceandDispatcherHours-OnDutyinDispatchModelOption2.___________________________83
COMPARISONOFOPERATIONSMODELS/OPTIONS ______________________________________________________ 84Figure70.ComparisonofOperationsModels/Options_________________________________________________84
RECOMMENDATIONS_________________________________________________________________________ 85
TECHNOLOGY_______________________________________________________________________________ 85Findings—_____________________________________________________________________________ 85
OPERATIONALOVERSIGHTANDSYSTEMGOVERNANCE ___________________________________________________ 87Findings—_____________________________________________________________________________ 87
Figure71.IdentifyingandResolvingOperationalIssues__________________________________________________90PERFORMANCEMETRICS _______________________________________________________________________ 94
Findings—_____________________________________________________________________________ 94EFFICIENCYANDEFFECTIVENESS___________________________________________________________________ 97
Findings—_____________________________________________________________________________ 97
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Attachments
A. SchedulingMatrixSampleB. PerformanceMeasuresC. CalculationofAnswerDelaysD. ErlangMathematics&AssumptionsE. QuantitationofWorkloadsF. SamplePhoneRecordG. SampleRecordsfromFireCAD,LAWCAD,andRadioStatisticsH. CalculationofSurgesI. ErlangTablesofWorkstationsJ. MonthlyPerformanceReportFormat
BrowardCounty Page1 ©Fitch&AssociatesAssessmentandRecommendationsofBrowardCounty’sRegionalE911 December2016
INTRODUCTION BrowardCountyretainedFITCH&Associates(FITCH)toconductanassessmentoftheCounty’sRegionalE911ConsolidatedCommunicationsSystem(RegionalE911System).Asanoverallgoal,FITCHistoinitiallyassesstheE911Systemthroughdatacollectionandbaselineassessments,externalbenchmarking,anddefinitionoffuturestateoptions.FITCHistoevaluatetheSystemagainstindustrybestpracticesandopineonthepertinenceandattainmentofpreviouslyestablishedgoals.TheRegionalE911Systemresultedfromtheconsolidationofeightsmallerpublicsafetyansweringpoints(PSAPs)afterextensivetechnicalreviewsandengagedpublicpolicydebates.TheSystem’sformalimplementationdatewasOctober2014.Sincestart-up,stakeholdershavemadeprogressinmeetinggoals;yet,therehavebeenconcernsabouttherelevantutilityofthecurrentperformancemetricsandtheSystem’sabilitytoquicklyachievealltheambitiousgoalsinitiallydefinedbythevariousstakeholders.Therewassignificantagreement/consensusintheearlystagesoftheconsolidationbasedonnumerousmeetingsandadoptionbyallpartiesofinterlocalagreements.However,itisfairtonotethatsuchconsensushasnowdissipatedinanumberofareas.TheCountycontractswiththeBrowardSheriff’sOffice(BSO)onaperformancebasistooperatetheRegionalE911Systemandprovidedispatchservices.BSOpersonnelreceiveanddispatchemergencyandnon-emergencycallsforpolice,fire,andemergencymedicalservices(EMS)withintheCounty,forallbuttwoofBrowardCounty’s31municipalities.BSOalsoprovidesteletype(queriesonly),whilethemunicipalitiesareresponsibleforanyservicesbeyondthatlevel.ThisreportrepresentsacompilationoffindingsfromthePhaseISystemassessmentandrecommendationsforthefuturestateoftheSystem-Phase2oftheproject.Phase1includedananalysesofqualitativeandquantitativedataasprovidedbytheCountyandotherstakeholders.Thisfinalphaseoftheproject/reportprovidesaseriesofspecificrecommendationsdesignedtoimproveoverallSystemeffectiveness,efficiencyandutilizationofindustrybestpractices.ThedocumentmergesbothPhasesintothisFinalProjectReport.AswithPhase1,FITCHconsultantsspentmanyhoursworkingwithBrowardCountyandBSOpersonnel.Wecontinuetobeimpressedwiththededicationoftheseindividualsandclearlyseethatallunderstandtheimportanceoftheirmissionandexpressadesiretoprovideexcellentservices.
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EXECUTIVE SUMMARY TheExecutiveSummaryofthisreportbringsforwardthefindingsfromthePhase1reportandorganizesthemintofivegroupingsasfollows:
§ ObservationalFindings§ Technology§ GovernanceandOversight§ PerformanceMeasures§ EffectivenessandEfficiency
ObservationalFindingsarethosethatcommentontheRegionalSystemandrequirenofurtheraction.Theseareprimarilyobserved,positiveattributesoftheRegionalSystem.
Recommendations
TheotherfourcategoriesaboveaddressthefindingsfromthePhase1reportandprovideactionablerecommendations.Furtherdiscussion,intendedtoprovidecontextandfurtherexplanationfortherecommendations,shouldbereadindetailandareincludedinthereportsectiontitledRecommendations.Manyoftherecommendationswillrequiresignificantorganizationalandculturalchange.TheSystem,asawhole,willneedtorecognizethatchangemustbeplanned,andmoreimportantlyeachmajorchange,suchasimplementingEmergencyFireDispatch,mustbeexecutedtocompletionbeforeadditionalchanges,suchasEmergencyPoliceDispatch,areinitiated.Incertaincircumstances,lesssignificantchangeprocessescanbemanagedconcurrently.ThisiskeytotheSystem’sultimatesuccess.Throughoutthereport,recommendationstoincreaseresourcesincertainareasarebalancedbyrecommendationsintendedtoimprovetheoverallefficiencyoftheSystem.Intotal,thecurrentfundingofthesystemissufficient.Thereshouldbenoneedforfurtheroverallfunding.
Options Development
Thisreportevaluatesthreeoptionsforbothdispatchprocessconfigurationandthepersonnelneededtostaffworkstationsinordertoachieveadefinedperformancelevel.Theseoptions,andtheresourcesrequiredforthecurrentstaffingdeployedbyBSO,arereflectedbelow.
§ Option0—reflectsthecurrentdispatchconfiguration,butwithperformancetargetsadjustedtoachievenewrecommendedlevelsforcallintakeanddispatchpositions.
§ Option1—reflectsthestaffingrequiredforthenewperformancetargets,bututilizingasinglecallintakequeue.TheCountyrecentlymodifiedtheirsystemstonowutilizethesinglequeuefor911calls.
§ Option2—utilizesthenewperformancetargetsandsinglecallintakequeue,butfurtheroptimizesthefiredispatchoperationsbyconsolidatingthenumberofradiochannelsrequired.
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Figure1belowreflectsBSO’scurrentstaffingasdescribedinBSOreportstitled“PSAPCallAnalysis”coveringtheperiodJanuary2015throughDecember2015.ThetablecomparesBSO’sreportedcurrentstaffingwiththehoursperdayrequiredforeachofthethreeOptions.Therequiredhoursnotedbelowforcurrentstaffingandeachofthethreeoptionsreflectthetotalhoursrequiredtobefunctioning‘inaseat’,bypositiontype,overasingle24-hourperiod.Figure1.ComparisonofCurrentandThreeOptions“Seats”Required
CurrentBSOModel FITCHOptions-Hours
All3PSAPs–"Seats"Required
StaticorVariablebyHour
CurrentStaffingHours
Option0
Option1
Option2
Intake 16.1 Variable 386 493 301 301
F/RDispatcher 15.0 Static 360 116 116 153
LawDispatcher 23.0 Static 552 235 235 235
Subtotal 54.1 1,298 844 652 689
PhoneSupport 3.0 Static 72 72 72 72
TTY 3.0 Static 72 72 72 72
Support 2.0 Static 48 48 48 48
Supervisor 7.0 Static 168 168 168 168
Subtotal 15.0 360 360 360 360
TOTAL 69.10 1,658 1,204 1,012 1,049
Reliefstaffingnotincludedabove1:
FireRelief 3LawRelief 4 IntakeRelief 5.3TheOptionsdefinetheneededpersonnelbyhour-of-dayandaddresssurgecapacityoftheRegionalSystem.IndevelopingtheOptions,thehoursneededinanypositiondonotincluderelieforstaffingmultipliers–onlytheactualnumberofseatsinthedispatchcenterthatmustbefilledatanyhouroftheday.2Itisunderstoodthat,asiscurrentpractice,BSOmustplanfor,andtheCountyfund,resourcestoallowfornecessarybreaks,trainingtimeandotheradministrativeneeds.Option2isthepreferredrecommendation.
1BrowardCountycurrentlyprovidesfundingtoallowforreliefstaffing.2Fitchuseshourstorepresentthehoursrequiredforpersonneltobeactivityoperatingattheirworkstationatagiventime,colloquiallyreferredtoas“buttsintheseat.”
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OBSERVATIONAL FINDINGS BrowardSheriff’sOfficeisanAccreditedCenterofExcellenceasawardedbytheInternationalAcademiesofEmergencyDispatch(IAED).BSOutilizesemergencymedicaldispatcher(EMD)services–abestpracticefor911centers,andarequirementforongoingaccreditation.TheCountyhasimplementedasetofqualityassuranceandimprovementprocessesthatassistinobjectivelymovingtheSystemforward.TheCountyhasestablishedprocesscontrolandqualityimprovementprogramsthatincludemembersfromBSOandthecalltaker/dispatchunion.Thisallowsforeffortstoreviewandimplementservicequalityinitiatives.BSOisanaccreditedorganizationandutilizesqualityassuranceprocessesasprescribedbyIAED.Additionally,anumberofproceduresareinplacetomanagedispatchissues,reviewsituationsandimplementtrainingand/orpolicychangesforimprovement.Thenumberof911callersrequiredtobetransferredhasbeenessentiallyeliminatedundertheconsolidatedregionalsystem.Asaresult,totalcallprocessingtimeswerereducedbyapproximately30seconds.TheNationalFireProtectionAssociation(NFPA)setsabestpracticegoalof30secondstotransfercallersfromtheprimaryPublicSafetyAccessPoint(PSAP)toadifferentPSAP.Bycreatingaregionalsystem,thetransferstepiseliminatedandcallersonlyneedtoexplain/discusstheiremergencyonetime,notmultipletimesaswasthecase,historically.TheP1interval(thetimefromwhenthecallringsinthe911centeruntilthatcallisanswered),andP3interval(thetimefromwhentheassignmentdispatcherreceivesanemergencycallviathecomputer-aideddispatch(CAD)systemuntiltheyalerttheemergencyresponder),canbeaccuratelyevaluatedbasedoncurrentdataintheCADandtelephonysystem.BSOperformswellforthesedispatchintervals.Ontheotherhand,theP2interval(thetimefromwhena911callisanswereduntiltheinformationissenttoanassignmentdispatchertoalertfirstresponder)mustbecautiouslyevaluatedduetothetechnologyanddatalimitationsexistinginthecurrentCADand911systems.TheCountyhasindicatedthisissuewillberemediedwithimplementationofthenewCADinearly2017.
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FINDINGS AND ACTIONABLE RECOMMENDATIONS
Technology
Findings —
TheCounty’sPSAPphonesystemandCADsystemarenoteffectivelylinkedtoallowcomprehensiveevaluationofSystemperformance.Formorethanhalfoftheincidentrecords,theeventintheCADcannotbelinkedtotheuniqueCallDetailRecord(CDR)thatinitiatedtheincident.Technologylimitationsresultedinonly25.6%ofCADrecordsconsideredvalidforuseinanalysisofP2/P3intervals.Countystaffisunabletodirectlyaccessphoneandradiosystemdata–therebylimitingtheirabilitytoanalyzesystemperformancebeyondthatpermittedbypre-designed/cannedreports,whichmakessomeoftherequiredreportingtediousanderrorprone.TheSystemutilizesemergencymedicaldispatching(EMD)software–abestpracticefor911centers.However,nosimilarprogramisutilizedforeitherfireorlawenforcementcalltypes.TheCADnetworkisredundantintheeventofafailure.However,itisnottestedonaregularbasis.Thisisasignificantdeficiencyandisinconflictwithbestpractices.
Recommendations —
TheCountyneedstoinsurethemissionsoftechnologydevelopmentandtechnologysustainmenthavedifferentfocusesandroles.Therefore,theCountyshouldprovideforaTechnologyDevelopmentTeamandaTechnologySustainmentTeamoverthenextfewyearsasnewtechnologiesareimplementedandthesystemcontinuestostabilize.AnabsolutepriorityfortheCountyistodevelopalinkbetween911phonerecordsandtheassociateCADincidentrecords.BSOshouldmaintainEMDcertificationtrainingforallcalltakersthroughtheInternationalAcademiesofEmergencyDispatch(IAED).CalltakerpersonnelshouldalsobetrainedandcertifiedasEmergencyFireDispatchers(EFD)andinthesystemimplementEFDinthenearfuture.Thesecertificationsareconsideredindustrybestpractice.Finally,lawenforcementagenciesshouldconsiderandevaluatetheefficacyofEmergencyPoliceDispatch(EPD)beingutilizedinthefuture.Thissystemisemergingasanindustrybestpractice.
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Operational Oversight and System Governance
Findings —
BSO’soperationofthePublicSafetyAnsweringPointsischallengedwithsignificantmoraleproblemsembeddedinissuesofstaffing,trainingandmanagement.TheCountyhasinappropriatelymade,andpublicsafetyofficialsallowed,someoperationaldecisionstobehandledbytheCountythatshould,instead,bedeterminedbypublicsafetyofficials.Lowlevelsoftrustexistamongmajorstakeholders.Muchofthisisduetoroledefinitions.RelationshipsneedtoberedefinedinorderfortheSystemtomoveforwardeffectively.
Recommendations —
OperationalOversightandSystemGovernanceshouldberedefinedtostrengthentheroleofend-userswhilebalancingthelogisticalconcernsoftheOperator(BSO),andthefinancialandsystemgovernanceresponsibilitiesofBrowardCounty.Alternativeworkschedulesareavailableandshouldbeconsidered.AttachmentA,SchedulingMatrixSample,providessampleschedulesforconsideration.Fillingvacantpositionsinatimelymannerwiththegoalofmaintainingfullstaffingwillreduceexcessivemandatoryovertimeandtheassociatedstress.Thiswillallowresourcestoalignmorecloselytodemandpatterns,therebyimprovingefficiencyinthesystem.SupervisiononthePSAPdispatchfloorsshouldbeataratioofsixtooneasopposedtothecurrenttentooneratio.GreaterqualityassuranceprocessesaretobehandledbyBSOdispatchfloorsupervisors.Resourcesfordispatchertrainingshouldbeincreasedthroughreallocationofcurrentfunding.A“baselevelof911services”fundedbytheCountyshouldbemoreclearlydefinedbyutilizingthecurrentinterlocalagreementsandFITCH’smodelingofperformancelevelsasnotedincalltakingandradiopositions.Individualagenciesdesiringhigherlevelsofserviceshouldbeabletofundadditionalstaffinghoursortechnologyinordertoreceiveservicesspecifictotheirjurisdictionalneeds.TheRegionalSystem’smanagementandtechnologyshouldfacilitatetheseadditionalservicesaslongastheydonotdisruptthebaseservices.
Performance Measures
Findings —
Certainperformancemeasureshavebeenmisinterpreted,incorrectlyapplied,orareinconsistentwithcurrentindustrybestpractices.
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TheCounty’suseofPASS/FAILtargetsprovideslittleinthewayofinformationforcontinuousqualityandperformanceimprovement.ThefailureofthecurrentPASS/FAILorYES/NO,P1busyhourtarget,isthatitprovidesnoguidanceastothelevelofsurgecapacitythatisfiscallyresponsibletobuildintothesystem.
Recommendations —
TheCountyshouldmodifythecurrentmonthlyperformancereportformatandreplaceitwithamonthlyreportthatfocusessolelyondataandprovidesnocommentary.The“busyhour”istoberedefinedinaprospectivemannerbasedonhistoricaldataandistobereassessedinnolessthan12-monthintervals.Thesechangesallowformeaningfulandactionableinformationexchangesandprovideuseragencieswithaneededlevelofoversight.TheCountyshouldpurchaseaperformancemeasurementsoftwarepackagethatwillprovideagencieswithreadyaccesstotheactivitiesandperformanceoftheirrespectivefieldunits,andsimultaneouslyallowtheCountyandBSOtoevaluatesystemperformanceatthemicroandmacrolevels.Onlytheperformanceonemergency/911incidentsshouldbeincludedintheperformancereports.Thecurrentpracticeofevaluatingduplicate911callsonasingleincidentskewsmeasurement.Thetruestructureofthereportshouldbetopresentthenumbersinawaythathighlightsthecallswhereresponsetimeisimportant.Somethoughtshouldbegiventopresentresponsetimesstartingwiththecallreceipttoemergencyservicearrivalonscene.Thiswillgivetheproperpresentationofthecaller’sexperience.Specialattentionshouldbepaidtohighpriorityincidents.Regardingreportingperformanceforvariouscallprocessingtimeintervals,oncethetechnologyissuesareresolved,theP2andP3intervalsshouldbereportedseparatelyandasacombinedmetric.Thereasoningisthat,particularlyforfireandemergencymedicalDeltaandEcholife-threateningcalls,fastandeffectivedispatchperformancecontributestopositiveoutcomes.MonthlyreportsshouldalsoreportP4(turn-outtimes)forfirerescueincidentsandP5(traveltime)forbothfirerescueandlawhighpriorityincidents.Ingeneral,dispatchcenterperformancemetricsaretofocusonoptimizingdispatchprocessesasmuchaspossible,withtheendresultbeingtogethelpmovingtoemergenciesasquicklyaspossible.Theprimaryobjectiveistocontributetothepotentialforpositiveoutcomesforpatientsandproperties.
Effectiveness and Efficiency
Findings —
CurrentPSAPs,trainingfacilityand“fleeto”planshavefacilitylimitations,especiallyrelatedtoadequatespace.
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Theconsolidatedsystemiscapableofclosestunitresponsetolife-threateningemergencies,butprotocolsarenotyetinplacetoimplementthiscapability.Radiotrafficutilization,bybothfire/EMSandlawenforcementunits,iscomparativelyhigh.MDTs(mobiledataterminals)andMCDs(mobilecomputingdevice)arenoteffectivelyutilizedtoreduceradiotraffic.BSOcurrentperformanceindicatesoverstaffingincalltakerpositionsbasedonErlangmodeling.BSOcurrentperformanceindicatesoverstaffinginFireAssignmentpositionsbasedonErlangmodeling.
Recommendations —
CallprocessingstaffingshouldbeadjustedtoachieveP1/call-takingperformanceofbetweenthreetofivesecondsatthe90thpercentilebyadoptingtherecommendedworkstationfunctionalreorganizationasdetailedinthereportsectiontitled,DispatchOperationsModels–Options.Thisadjustment,inconjunctionwiththealreadyimplementedsinglequeforcallintake,providessignificantefficienciesinthecalltakingprocesswhilemaintaininghighlevelsofperformance.Fire-rescueagenciesshoulddevelop,approveandimplementcountywidenearestunitresponseprotocolsthatapplyirrespectiveofjurisdictionalboundariesinthoseincidentsinvolvinghighpriorityincidents(e.g.Delta&EcholevelEMDcalls).RecommendedprocesschangestoradiochannelusageincluderequiringincreasedusageofMobileDataTerminals(MDTs)byfieldresponders.OncetheCADisupgradedtoallowautomaticcomputerassignment/recommendationofresponseunitsforfire/rescuecalls,asingle“gatekeeper”function/firerescuealertchannelcanbeimplementedtomanuallyapprovetheassignmentconsistentwithOption2.Upondispatch,pre-definedtacticalradiochannelswouldbeusedformoreroutinefireincidentsandEMSincidents.Moresignificantincidents(structurefires,major/multipleunitresponses)wouldbeassignedadedicatedtacticalchannel.Thischangeinfirerescueradiooperationsprovidessignificantefficiencieswhilemaintaininghighlevelsofperformance.LawenforcementradiopositionsshouldbeconsolidatedtoincreaseefficiencyconsistentwithOption2.Long-termcapitalbudgetingprogramsshouldbeconsideredassoonaspracticaltoincludetwonewpurpose-specific911facilities.
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METHODOLOGY TheSystemassessmenteffortderiveditsfindingsfromtwoperspectives.First,istheinputreceivedfromstakeholders,especiallyLevel1(elected,appointedandseniormanagementofficials)andLevel2(directors,managersandsupervisorypersonnel).InformationwasalsogleanedfromtheconsiderabletimeFITCHconsultantsspentdirectlyobservingoperationsinallthreeregional911facilities,inthefieldandfromdirectsurveysofdispatchpersonnel.ThesecondperspectiveisbasedonextensiveandsophisticatedanalysesofrawdataprovidedtoFITCHconsultants.Thedataincluded911centerphonerecords,computer-aideddispatch(CAD)recordsandradiosystemrecords.Fromthisinformation,FITCHwasabletoassesstheRegionalE911System’scurrentlevelofperformanceandmodelthatperformance.Todeterminestaffingneeds,BSOandtheCountycurrentlyutilizesastaffingestimatorandretentionratecalculatorknownasRETAINS,aproductoftheAssociationofPublic-SafetyCommunicationsOfficials(APCO).TheRETAINStitlestandsforResponsiveEffortstoAssureIntegralNeedsinStaffing.Theestimatorisrespectedasatoolforestimatingstaffingneedsandincludessomelevelofcomplexity.However,itsapplicationforBroward’sRegionalE911SystemissignificantlylimitedduetoBroward’sfluctuationsincallvolumeonanhour-by-hourbasisandthechangesinstaffingusedtomeetthosedemands.AneasilyoverlookedlimitationoftheRETAINSestimatoristhatitdoesnotincludespecificperformancetargetsaspartofthestaffinglevelcalculations.ThisisveryrelevantastheCountyandBSOoperateunderaperformancebasedcontract.Ofnote,therewereanumberofdatadeficienciesthatlimitFITCH’sabilitytocompletespecificprojectscopepoints.Forexample,whileCADdataforallofcalendaryear2015wasavailable,onlythreemonthsofphonerecordswereavailableduetoasystemupgrade.Fromthesetwodatasets,therewereonlytwomonthsofoverlapbetweenthephonerecordsandtheCADdata.Radiosysteminformationalsohadlimitationsthathampereddetailedsystemperformanceanalysis.Nonetheless,FITCHwasabletoconstructdetailedmodelsandwasabletodrawmeaningfulconclusions.Afullaccountingofdataissuesisdescribedindetailunderthereportsectiontitled,SourcesofData.OncetheSystemassessmentandmodelingofBSO’scurrentoperationswascomplete,FITCHconsultantsthenquantifiedtheoptimalnumberofcalltakersanddispatchersneededtomeetcertainperformancecriteriaintheRegionalE911System.Threeoptionsthatindicatestaffinglevelsandrecommendedperformancegoalsarepresentedforconsideration.Ultimately,thequantifyingofpersonnelisaparticipatoryprocessinvolvingstakeholderstosetnewparameters.Thisprocessiskeyindesigningadispatchcenterthatisbasedonnationalbestpracticesandlocalcompetencies.
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DISPATCH CENTER BEST PRACTICES AccreditationbytheInternationalAcademiesofEmergencyDispatch(IAED)isthegoldstandardforemergencydispatchcentersandpublicsafetyagencies.AchievingandmaintainingstatusasanAccreditedCenterofExcellence(ACE)requirestop-notchsystemsforreportingandreviewingprocesses,andultimatelybenefitpatientsandthecommunity-at-large.Thegoalofaccreditationistoimprovepatientcareandclinicaloutcomes.IAEDprovidesthefollowingseparateaccreditationprocessesfordispatchpersonnel:
§ EmergencyPoliceDispatchCertification(EPD)§ EmergencyFireDispatchCertification(EFD)§ EmergencyMedicalDispatchCertification(EMD)
Eachcertificationareaprovidesstructuredcallprocessingfortherespectivediscipline.IAEDsetsout20pointsasaccreditationrequirements.Figure2belowarticulatesthe20IAEDpointsofexcellencethatmustbeformallydocumented,describedandverifiedaspartofthemedicaldispatchaccreditation/re-accreditationapplicationprocess.
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Figure2.RequirementsforIAEDMedicalDispatchCenterAccreditation3
Formallydescribeanddocumentthefollowing–1) Communicationcenteroverviewanddescription2) MedicalPriorityDispatchSystemTM(MPDS)versionandlicensingconfirmation3) CurrentAcademyEMDcertificationofallEMDpersonnelauthorizedtoprocessemergencycalls4) AllEMDcertificationcoursesareconductedbyAcademy-certifiedinstructors,andallcasereviewisconductedby
Academy-certifiedED-Qs5) FullactivityofQualityImprovement(QI)committeeprocesses.6) IAEDqualityassuranceandimprovementmethodology.7) ConsistentcaseevaluationthatmeetsorexceedstheAcademy’sminimumexpectations8) HistoricalbaselineQAdatafrominitialimplementationofstructuredAcademyQAprocesses(firstQISummaryReport,
ifavailable*)9) Monthlyaveragecaseevaluationcompliancelevelsforthecommunicationcenterforthesixmonthsprecedingthe
accreditationapplication,withcompliancelevelsatoraboveaccreditationlevelsforatleastthethreemonthsimmediatelyprecedingapplication
10) VerificationofcorrectcaseevaluationandQItechniques,validatedthroughindependentAcademyreview11) Implementationand/ormaintenanceofMPDSorientationandcasefeedbackmethodologyforallleadpersonnel12) VerificationoflocalpoliciesandproceduresforimplementationandmaintenanceoftheMPDS.Includeallpolicies
relatingtoEMDpractices13) Copiesofalldocumentspertainingtoyourcontinuingdispatcheducation(CDE)program14) SecondaryEmergencyNotificationofDispatch(SEND)orientation15) EstablishedlocalresponseassignmentsforeachMPDSDeterminantCode16) MaintenanceandmodificationprocessesforlocalresponseassignmentstoMPDSDeterminantCodes17) Thecommunicationcenter’sincidence(numberofoccurrences)ofallMPDScodesandlevelsforthesixmonths
immediatelyprecedingapplication18) AppointmentandappropriateinvolvementoftheMedicalDirectortoprovideoversightofthecenter’sEMDactivities19) Agreementtosharenon-confidentialEMDdatawiththeAcademyandothersfortheimprovementoftheMPDSand
theenhancementofEMDingeneral20) AgreementtoabidebytheAcademy’sCodeofEthics,CodeofConduct,andthestandardssetforthforanAccredited
CenterofExcellenceBrowardstakeholdersshouldappreciatethatAccreditationguaranteesthatalltheprocessesneededforhighqualitypatientcareareimplemented.HowpromptlytheyarecarriedoutisacomponentofperformanceindependentofAccreditation.TheIAED-ACEaccreditationrequirementscontainnotimemetrics.RequirementsforACEAccreditationarecomprehensiveandreflecttheeffortrequiredtoachieveandmaintainaccreditation.Evenforthebestdispatchcenters,accreditationistypicallyamulti-yearprocess.
3https://accreditation.emergencydispatch.org/resources/General/MEDICAL%20Accred-Re-Accred.pdf,June2016
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TheBrowardSheriff’sOfficefirstaccomplishedaccreditationin2003.BSOmaintainedaccreditationandwasreaccreditedforthethree-yearperiod2015to2018.Ofnote,BSOusesonlythemedicaldispatchprotocolandisonlyaccreditedformedicaldispatch.
FINDING:BrowardSheriff’sOfficeisanAccreditedCenterofExcellenceasawarded
bytheInternationalAcademiesofEmergencyDispatch.
TheBrowardSheriff’sOfficehasalsorecentlybeenreaccreditedfortheircommunicationsservicesbytheCommissiononAccreditationforLawEnforcementAgencies(CALEA).Otherattributesofhighperformancedispatchcentersincludedailymeetingsofdispatchstafftoreviewthepriorday’sevents,refinedeploymentandreviewanyoperationalconcerns;regularsurveysbyemergencyprovideragenciestoincludequestionsregardingthedispatchprocess;continuousfeedbackloopsforimprovementthroughouttheorganization;andclinicaloversightregardingemergencymedicaldispatchingbyafull-timemedicaldirector,whohasdirectinvolvementwiththecenter’sperformanceandpersonnel.
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CURRENT ORGANIZATION AND ENVIRONMENT AmeaningfulanalysisofthecurrentSystemrequiresanappreciationoftherecenthistoricalandcurrentorganizations,andtheirenvironment.Thefollowingsectionshighlightdemographictrendsimpactingdemandsforservice,existingrelationshipsamongstakeholdersandtechnologyimpactingSystemperformance.
County Demographics
Itimportanttounderstandtheutilizationofemergencyservicesfromahistoricalperspective.Firerescuedepartmentshaveseenasignificantincreaseinemergencyactivity.Whilereportedstructurefiresaredowndramatically,inthelastdecadealonethereisbeena40%increaseinoveralltotalemergencycallsbasedprimarilyonEMSandactivatedfirealarms.4Therefore,thefollowingdemographicinformationprovidesacontexttounderstandsomeofthedriversofsystemdemand.
Current and Historical
Today,BrowardCountyisamostlydeveloped,1,200+squaremileurbanareawithonly10.5squaremilesleftofdevelopableland.AccordingtotheUniversityofFlorida’sBureauofEconomicandBusinessResearch(BEBR),theCounty’stotalpopulationisestimatedat1,827,367asofApril1,2015.5Ofthe31municipalitiesinBrowardCounty,thethreelargestcitiesaretheCityofFortLauderdalewitharesidentpopulationof178,590,PembrokePines,166,611,andHollywood,149,728(July1,2015,USCensusdata).BrowardCounty’shistoricgrowthpeakedintheyear2000withanaverageannualgrowthof2.72%.Between2000and2005,averageannualgrowthhadslowedto1.44%,resultinginaresidentpopulationof1,739,487persons.Growthbegantoslowdueinparttosky-rocketinghousingcosts,followedbythe2008economicslump.In-migrationofresidentstypicallyfueledtheCounty’srapidpopulationgrowth.However,“excessivelyhighhousingcostsfollowedbydiminishingjobopportunities,reducedin-migrationandpopulationgrowthtoitssmallestlevelinsixtyyears.”6Nevertheless,thecontrastofaddedpopulationbetween2005and2010andthatexperiencedbetween2010and2015,issignificant.Figure3belowrepresentsthepopulationgrowthinfive-yearincrementsfor2005to2015.
4Ahrens,M.(2016).TrendsandPatternsofU.S.FireLoss.N.F.P.Association,NationalFireProtectionAssociation.5ProjectionsofFloridaPopulationbyCounty,2020-2045,withEstimatesfor2015,FloridaPopulationStudies,Vol.49,Bulletin174,January2016.UniversityofFlorida,BureauofEconomicandBusinessResearch.6Broward-by-the-Numbers,Number57,page1,July2009.BrowardCountyPlanningandRedevelopmentDivision,accessedJune2016.
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Figure3.BrowardCountyPopulationGrowth,2005to2015
Atotalof32,573residentswasaddedtoBroward’spopulationbetween2005and2010,but104,201residentswereaddedtothepopulationbetween2010and2015,representing5.9%growthforthatperiod.7
Projected Growth to 2020
TheUniversityofFlorida’sBureauofEconomicandBusinessResearch(BEBR),providesannualpopulationforecastsforthestateandforallFloridacounties.BEBR’sprojectionsofoverallpopulationgrowthinBrowardCountyisexpectedtoslowintheoutyearsto2020.BEBR’sJanuary2016populationprojectionsforBrowardCountyareprovidedas“low”,“medium”and“high”.Themediumprojectionsarethoughttogenerallyprovidethemostaccurateforecastsoffuturepopulationchange.BEBRforecastsBroward’smediumpopulationat1,914,500asofApril1,2020,whichrepresentsa2.04%increaseover2015.TheUSCensus’AmericanCommunitySurveyfor2007-2011,notesthatBrowardCountyisanetexporterofworkersinthedaytimeduringtheworkweek.WhilethecitiesofFortLauderdaleandPompanoBeachexperienceasignificantnetincreaseintheirdaytimepopulations,suburbanareastendtolosepopulationinthedaytimeduetomanyworkerscommutingoutofthearea.Downtownareasgenerallyseeasignificantincreaseindaytimepopulation.ThegreatestdaytimegainsareseeninthemunicipalitiesintheeasternpartoftheCounty,suchasFortLauderdaleandPompanoBeach.8
7PopulationdatawasderivedfromtheBrowardCountysourcenotedinthepreviousFootnoteandwasusedinsteadofUSCensusdataasitismorecomplete.CensusdataandBrowardCounty’sestimatesandprojectionsarerelativelysimilaranddonotrepresentasignificantdisparity.8Broward-by-the-Numbers,Number60,page1,March2013.BrowardCountyPlanningandRedevelopmentDivision,accessedJune2016.
1,739,4871,772,060
1,876,261
1,650,000
1,700,000
1,750,000
1,800,000
1,850,000
1,900,000
2005 2010 2015
BrowardCounty- TotalPopulation
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TheBEBRpopulationforecastsincludedatabyagegroups.Ofparticularinterestistheagecohortof70+years,whichsignificantlyimpactstheneedforhealthcareservicesand,inparticular,emergencymedicalservices.BEBR’sdataregardingagecohortsof70+years,providesestimatesfor2012andprojectionsfor2015and2020.Theinformationispresentedbelow.Thistrendingdemographicwillhaveaconcurrentimpacton911servicesaswell.Figure4.PopulationProjectionsfor70+YearsAgeCohorts
Theprojectednumbersincreaseovereachfive-yearperiodandforeachagegroup,exceptfortheagecohortof80to84years.Overall,thenumberofBrowardresidentsovertheageof70years,isexpectedtoincreasebyapproximately41,700individualsor15.4%asestimatedbetween2012andprojectedfor2020.Thefigurebelowrepresentsthegrowthfortheentireagegroupof70+years.
Figure5.PopulationProjectionsforResidentsAge70+Years
010,00020,00030,00040,00050,00060,00070,00080,00090,000
2012 2015 2020
PopulationProjections:ResidentsAge70+Years
70to74 75to79 80to84 85+
184,061 195,592225,755
0
50,000
100,000
150,000
200,000
250,000
2012 2015 2020
ProjectedPopulationGrowth70+AgeGroup
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Intuitivelythereexiststhesensethatasthesizeoftheoldercohortincreases,thenumberofagerelatedemergencyeventswillalsoincrease.Theincreasednumberofpeopleinthe70+agegroup,inparticular,isexpectedtodrivedemandforemergencymedicalservices.Thecriticalquestionis,byhowmuch?Fourstudiesprovideinsightintotheimpactofsuchademographictrend.First,theDepartmentofEmergencyMedicine,UniversityofNorthCarolinaatChapelHill,ChapelHill,NorthCarolina,conductedaretrospectivestudyof2.7millionEMStransportstoemergencydepartmentsacrossNorthCarolinain2007.Amajorfindingofthisstudywasthatindividuals65yearsofageorolderaccountedfor38%ofallEMStransportstoNorthCarolinaemergencydepartments.9AsecondstudysupportedbyFlorida’sPinellasCountyMentalHealthandSubstanceAbuseTaskForce,withcooperationofthePinellasCountyDataCollaborative,evaluatedtheagedistributionofemergencymedicaltransportsinPinellasCounty,FL,fromJuly1999throughJune2000.StatisticsfromthesummermonthsinPinellasCountyareequallyrelevanttoBrowardCounty.Duringthisseason,thestatisticsreflecttheeffectsofthestablydomiciled,localpopulation.Distortionsduetotheinfluxofwinter“snowbirds”areabsent.AccordingtotheUnitedStates2000Census,PinellasCountyhad22%ofitsdomiciledpopulationinthe65+cohort.Duringthesummermonths,whenthereisnopopulationdistortionduetosnowbirds,atleast50%ofallemergencymedicaltransportsinvolvedthe65+cohort.InPinellasCounty,theonefifthofthedomiciledpopulationinthe65+cohortaccountedforonehalfofallemergencymedicaltransports.SimilarobservationsregardingageandemergencymedicaltransportsweremadeinsmallerandearlierstudiesinForsythCounty,NorthCarolinain1995,andinDallas,Texasin1990.10FITCHbelievesthatthedemandforemergencymedicalservicesinBrowardCounty,likeitsFloridawestcoastneighbor,PinellasCounty,willbedrivendisproportionatelybythe65and70+yearoldcohorts.
Stakeholder Relationships
Participants
Ofthe31municipalitiesinBrowardCounty,allbuttwo,CoralSpringsandPlantation,areparticipantsintheRegionalE911System.TheSystemistheresultofa2002CharteramendmentthatcalledforcoordinationbetweentheCountyandmunicipalitiestoestablishacountywidecommunicationsinfrastructureforfireandemergencymedicalservices.Aprimaryoutcomeofconsolidationwasto
9TFPlatt-Mills,BLeacock,JGCabañas,FSShofer,SAMcLean,PrehospitalEmergencyCare,2010Jul-Sep;14(3):329-333.doi:10.3109/10903127.2010.481759.“Emergencymedicalservicesusebytheelderly:analysisofastatewidedatabase.”http://www.ncbi.nlm.nih.gov/pubmed/20507220.10JLWofford,WPMorgan,MDHeuser,ESchwartz,RVelez,MBMittelmark,AmJEmergMed,1995May,13(3):297-300.“Emergencymedicaltransportoftheelderly:apopulation-basedstudy”andCEMcConnel,RWWilson,SocSciMed,1998Apr,46(8):1027-1031.“Thedemandforprehospitalemergencyservicesinanagingsociety”.
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enableclosestunitresponsestolife-threateningemergenciesandprovidesupportforregionalspecialtyteams.11Thecurrentsetofstakeholderscanbemorereadilyidentifiedasfollows:
§ BrowardCounty,withlegislativeandfinancialresponsibilitiesfortheSystem,§ BSOasthecontractedOperatoroftheSystem,supplyingpersonnelanddirectmanagementof
thethreepublicsafetyaccesspoints(PSAPs)locatedthroughouttheCounty,and§ MunicipalfirerescueandlawenforcementagenciesasendusersoftheRegionalE911System’s
services,andBrowardSheriff’sOffice(BSO)asanenduserpublicsafetyagency.
Aswillbehighlightedfromstakeholderinput,relationsamongthethreemajorstakeholdersarenotoptimal.ThiswasemphasizedbyrecentfindingsfromfacilitatorsworkingwithCountyandBSOstaff.Theyconcludedthat the designofoneteamreportingerrorsontheotherteam’sworkdoesnotsupportacollaborativerelationshipbetweentheCountyandBSO.Theyindicatedthatthetwoteamsarenotpositionedtobecollaborativeinreachingthesamegoalandwilllikelycausemoreexpendedenergyandtimeindefendingtheirrespectiveperspectives.Thefacilitatorsrecommendedfocusingontheredesignoftheexistingworkingmodeltosupportacollaborativeworkingteam.
FINDING:Lowlevelsoftrustexistamongmajorstakeholders.Muchofthisisdueto
roledefinitions.RelationshipsneedtoberedefinedinorderfortheSystemtomove
forwardeffectively.
Itisnoteworthythatsincetheconsolidationeffortbegan,currentstakeholdershaveengagedinasustaineddiscourseon911services–somethingthatwasrarelydiscussedbefore.TheoutcomeofthisdialogisthatthenewSystem,withgreatlyincreasedscrutiny,isnowidentifyingandaddressinglong-standingissues.Itislikelytheseissuesexistedbefore,butindividualPSAPsdidnothavethetransparencythatexistsnow.FITCHnotedthatattemptstoobtainspecifichistoricalperformancedatafromvariouscommunitieswasunsuccessfuleitherbecauseofaninabilityorunwillingnesstoprovidesuchinformation.Fromoneperspective,thetensionthatexistsnowcanbeseenasanoutcomeofthetransparencyandprogressthatisnowbenefitingthepublicandfirstresponders.
Technology Review
Thetechnologyassessmentwasaccomplishedthroughdiscussionswithtechnicalsupportpersonnelanddirectobservationson-siteatthedispatchconsoles.Theassessmentfocusesontelecommunications,thecomputeraideddispatch(CAD)systemandradiooperationstechnologies.Belowarethekeyissuesobservedintheinitialassessment.
11BrowardSheriff’sOfficeRegionalAgreementsaccessedthroughBroward.org,RegionalCommunicationsandTechnology,BrowardCountyRegional911andBrowardCountyCharter,RevisedNovember4,2008,ArticleV.PublicSafety,Section5.03(A).
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Telecommunications
TheRegionalE911SystemcurrentlyoperatesonanIntradoPower911telephonesystem(version5.5),witharedundantnetwork.AutomaticCallDistribution(ACD)andprerecordedansweringisinuseindependentlyateachfacilityfor911calls,whilenon-emergencycallsaredistributedacrossallthreePSAPs.FITCHconsultantswereadvisedthatasinglequeueforhasbeenimplementedwhichnetworksallthreeCountyPSAPfacilities.AnAutomaticCallDistribution(ACD)systemhasbeenimplementedacrosstheentirenetworkfor911calls,whichwillsignificantlyimprovetheefficiencyofcallhandlingandavoidunnecessarydelays.ThedesignoftheACDNetworkEnhancementincludeslocalpreferencecallhandlingbeforeroutingcallstotheregionalqueue.PartofthedatarequiredtodescribethetotaltimelineofasingleincidentresidesinthephonesystemandtheotherpartresidesintheCAD.AmajorissueidentifiedbyFITCHisthefailureofthephoneandCADsystemstoeffectivelylinkrecordsassociatedwithasingleincident.TheCountyrecentlyacknowledgedthelackofthislinkageasanissueofconcern,andhasindicatedtheyarecurrentlyundertakingeffortstoeffectivelyaddressthisissue.Afteraconcertedeffortwiththedataprovided,FITCHwasabletolinkincidents,butforfewerthan50%oftheincidentrecords.ThistechnologydeficitsignificantlylimitstheabilitytocalculatetheP2/P3callprocessingintervals.MostimportantisthattheSystemcannotreliablyanswerthefundamentalquestionofhowlongittakesbetweenwhenacallismadeto911andwhenhelparrives.
FINDING:County’sPSAPphonesystemandcomputer-aideddispatch(CAD)systems
arenoteffectivelylinkedtoallowcomprehensiveevaluationofSystem
performance.
Duringdatacollection,therewerechallengesinobtainingdirectaccesstothephonesystemandtheradiosystemdatatables.Countystaffreportedtheyprocesstheirreportsthroughastandardizedreportinginterface,andlackdirectaccesstophonesystemdata.Countystaffdidadvisefundingisavailabletopurchasethenecessarysoftwaretoallowdirectaccesstocriticalsystemdata.
FINDING:Countystaffisunabletodirectlyaccessphoneandradiosystemdata–
therebylimitingtheirabilitytoanalyzesystemperformancebeyondthatpermitted
bypre-designedreports(a‘canned’reportingsystem)whichmakessomeofthe
requiredreportingtediousanderrorprone.
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Computer Aided Dispatch System
ThecurrentMotorolaPrintTracCADsystem,originallydeployedin1994,serveseachofthethreePSAPfacilities.Forsomeagencies,suchastheCityofFt.Lauderdale,thisCADisbelievedtobeabackwardsstepintechnology.TheCountyhasacknowledgedtheageoftheircurrentsystem,andsomehistoricalproblemswithnetworkstability.Forthesereasons,consultantswereadvisedthatthereareplanstoupgradetoaMotorolaNextGenCADinthenearfuture,currentlyreportedasearlyas2017.TheCounty,BSOandendusersarecollaboratingtoidentifyimprovementsinthenewCADinordertoimprovetheoverallSystem.Atpresent,theCountyisriskaversetoroutinelytestingtheredundantnetworkdesignbecausetransferringsystemprocessingtotheCADdisasterrecoverysystemrequiresmanualintervention,andcantakeuptofourhourstocomplete.Asnotedabove,thecurrentCADdoesnothaveaneffectivemethodtoassociaterecordsfromthephonesystemtotheappropriateCADrecord.
FINDING:TheCADnetworkisredundantintheeventofafailure.However,itisnot
testedonaregularbasis.Thisisacurrentdeficiencyandisinconflictwithbest
practices.
For911personneltoeffectivelydispatchemergencyresponders,twoessentialpiecesofinformationarerequired–whereistheemergency,andwhatistheemergency.DirectobservationsandanalysisofCADdatareflectthatthecurrentabilitytoobtainanaccurateincidentlocationishamperedbyanumberofissues.Operatorsstruggletoquicklyobtainandvalidatethecaller’s/incidentlocation.Thisproblemwasidentifiedpriortothisstudyandanumberofmitigatingstrategieshavealreadybeendeployed,mostlyrelatedtocalltakertraining.Inparticular,analysisbytheCountyandBSOnotethatcalltakerswho‘deviate’fromrecommendedprocesses,especiallyinmedicalcalls,takelongertoprocessthecalleffectively.911personnelreported,andFITCHpersonnelobserved,inconsistentperformanceofmappingtechnologythatdecreasedthecapacitytoquicklylocate911callers.Thereareanumberoftechnologysolutionsthatwillhelpimproveaddressing,andthereforeoverallcallprocessingtimes.BrowardRegional911SystemdispatchersarecertifiedasEmergencyMedicalDispatchers(EMD)andassuchprovidepre-arrivalinstructionstocallersinneed.Aspartofthatprocess,BSOmaintainsaqualityassurance(QA)programthatincludesspecializedQApositionsandPriorityDispatch’sAQUAsoftwarethatmeasures,analyzesanddocumentscallprocesses.Thesoftwareassistsinpinpointingtrainingneedsanddocumentscontinuousimprovementefforts.TheQAprogramshouldmeetcriteriaidentifiedinDispatchCenterAccreditationRequirementsnotedintheDispatchCenterBestPracticesreportsection.CompliancewithcertainoftheserecommendedstandardsarereportedbyBSOtotheCountyforinclusioninmonthlyreports.TherealsoexistoptionstohavethisQAreviewdonebyexternalpartiesto
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ensureobjectivity.WhiletheuseofEMDisabestpractice,theuseofsimilarfireandlawenforcementsystemsarenotbeingutilizedwithintheBrowardsystem.
FINDING:TheSystemutilizesemergencymedicaldispatching(EMD)services–a
bestpracticefor911centers.However,nosimilarprogramisutilizedforeitherfire
orlawenforcementcalltypes.
Radio Operations
Differentfire,lawenforcementandEMSagenciesworkoffseparateassignmentandtacticalchannels,oftenrequiringmultipledispatchersforthesameemergencyincident.Asnotedelsewhereinthisreport,thereisahighlevelofradiousageforverbalcommunicationsbetweenfieldpersonnelandradiooperators.Thisraisesquestionsregardingtheutilizationofmobiledataterminals(MDTs)andtheefficiencyofthecurrentoperations.Dispatchstaffingcanbeutilizedmoreefficientlyiffieldagenciesagreetoutilizeoneassignmentand/ortacticalchannel.Regardingfireradiooperations,therearemultiplefiredispatchchannelsoperatingindependentlyofoneanother.Whilelikelyaremnantofpre-consolidation’sindependent911centers,thisisnotthemostefficientoreffectivewaytohandleradiooperations.Manylargersystemslimitthenumberofassignmentradiochannels,andthenquicklymoveunitsofftoanoperatingortacticalchannelbasedonthetypeofincident.Fire/EMSapparatushavemobiledatacomputers(MDCs)withaircardsinstalledintheunits.ItappearsthatrespondersdonotusetheMDCsasameanstoupdateunitstatuschangesorcommunicateroutineinformation.Thisinformationexchangeisbestexecutedviathemobiledatacomputers.UsingMDCscanreduceerrors,isamoreefficientmethodtocommunicate,andcanfreeupradiochannelsformorecriticalcommunications.
FINDING:Radiotrafficutilization,bybothfire/EMSandlawenforcementunits,is
comparativelyhigh.MDTsandMDCsarenoteffectivelyutilizedtoreduceradio
traffic.
Dispatch Facilities
FITCHconsultantsspentsignificanttimeinthethreePSAPS,North,CentralandSouth.WhileCentralhasthelargestfootprintoffloorspace,NorthandSouthdispatchfacilitiesmustcopewiththelimitedavailablesquarefootageattheirlocations.ItshouldbenotedthatstakeholdersundertookasignificantevaluationofpotentialdispatchsitespriortoselectingthecurrentPSAPlocations.Thisincluded
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evaluatingcharacteristicssuchashurricaneratings,back-uppowergeneratorsandredundantpowerfeeds.WhileitisrecommendedthatasystemthesizeandcomplexityofBroward’shaveatleasttwogeographicallydisparatesites,stakeholderswererequiredtoselectexistingfacilitiesthatcouldbemodifiedtominimallyachievetheexistingneeds.
TheSouthdispatchcenterisnotapurposebuilt-facilitydesignedforhighvolumedispatchoperations.Thebuildingisasharedfacilitycombiningafirestationanddispatchcenteroperations.Currentdispatchcenterstructuralchallengesincludefluctuatingheating,ventilation,andairconditioning,inadequatetrainingroomsizeanddesign,andlimitedrestroomfacilitiesandquietrooms.Southdispatchcenterisdesignatedasoneofthe“fleeto”orbackupcommunicationfacilitiesintheeventaplannedorspontaneousevacuationoccursatoneoftheothertwocenters.Southdispatchisnotdesignedforsustainedlongtermdispatchoperationsasa“fleeto”center.Theformer911centerintheBrowardSheriff’sheadquartersbuildingonW.BrowardBoulevardwaseliminatedasthe“fleeto”siteinlargepartbecausethestructurehasalowerhurricaneprotectionrating.Notingrecentincidentswhereevacuationofanexistingsitewasrequired,theremaybeareasontoreconsiderthatplan.WithregardtotheSouthdispatchfacility,consultantsobservedthecloseproximityofpersonnelansweringcallsanddispatchingresources.Thedispatchroomisnotconduciveforeffectivecalltakinganddispatchoperations.Theroomisdesignedwithverylittlesoundabsorbingconstruction.Wallsrequiresoundingabsorbingelements.Dispatchandcalltakingpersonnelarealmostinarmsreachofeachother.Consolesrequiresoundabsorbingpanelsthatshieldtheindividualworkstationsfromeachother.Thecombinationoflimitedacousticabsorbingconstruction,personnelincloseproximitytoeachother,differentindividualspeakingvolumesandthelackofeffectivenoisecancellingheadsetsforthetelephoneconversationsresultsinexcessivebackgroundnoisethathampersoperations.
FINDING:CurrentPSAPs,trainingfacilityand“fleeto”planshavefacility
limitations,especiallyrelatedtoadequatespace.
Financial Structure
TheOperatorAgreementbetweenBrowardCountyandBSOclearlyspellsoutthemeansbywhichBSO,asthecontractor,istobecompensatedforservicesrendered.Article4.Compensation,Section4.2,oftheOperatorAgreement,statesthattheCounty“shallfundtheCapitalandOperationalExpensesoftheSystem.”Thissamesectionnotesthatthe“Countyshallprovideformanagement,administration,andoversight”oftheSystem.
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AspartoftheCounty’sannualbudgetprocess,BSOdevelopsadetailedlineitembudgetinconcertwiththeCounty.Annualbudgetdocumentsprovidesufficientdetailtodeterminetheintentofexpenditures.TheCountymaintainsapprovalauthorityofthefinalbudgetamountandpositioncount.TheCountyandBSOmaintainstrictcontrolsonthebudgetedfunds.Atthebeginningofeachmonth,theCountyadvancestoBSOanannualizedmonthlypaymentbasedontheapprovedoramendedbudget.BSO’smonthlyreportsofactualexpendituresarereconciledagainstthemonthlybudgetandonaquarterlybasisanyexcessfundsarerecoupedbytheCountyinthefollowingmonth’sadvance.Pertheagreement,BSOmaintainsaseparatespecialfundexclusivelyforrevenueandexpensesassociatedwiththeE911System.The figurebelow indicatesa three fiscalyearhistoryofactualexpendituresandbudgetedexpenditures.12Figure6.BSOExpenditureandBudgetHistory
AppropriationLineItem FY14/15Actual FY15/16Budget FY16/17Budget
PersonalServices $37,878,111 $38,791,420 $40,865,470
OperatingExpenses $214,711 $453,940 $506,680
CapitalOutlay $160,200 $3,230 $0
Total $38,253,022 $39,248,590 $41,372,150
Positions 443 447 447
TheCounty’sFY16/17budgetfortheOfficeofRegionalCommunicationsandTechnologyincludesatotalof33positionsandthetransferoffundingtoBSOfordispatchservices.TheFY2017AdoptedOperatingBudgetindicatesthatORCAT’spositioncountincreasedbysixpositionssinceFY15/16asfollows:
§ Two positions were added in mid-year FY16 to provide “on-site county management andadministrationofthePublicSafetyNetwork.”
§ OneAssistantDirectorpositionisaddedtosupportongoingcapitalprojectandcustomerrelations.§ TwoInformationTechnologySpecialistpositionsareaddedtosupportPublicSafetyApplications.§ OneCommunicationsSystemTechnicianisaddedtosupporttheLocalGovernmentRadioSystem.
RevenuesupportfortheRegionalE911Systemisderivedprimarilyfrom911communicationsfees,advaloremtaxes(propertytaxes),andintergovernmentalrevenues.MajorcapitalexpendituresfortheRegionalE911systemareaCountyresponsibilityandareincludedintheCounty’sCapitalImprovementPlan.TheCounty’sFiscalYear2017-2021CapitalProgramincludesadditionalfundingforthereplacementoftheCADsystems,$48.7millionforthereplacementofthepublicsafetyradiosystem,and$350,000forplanningandanalysisstudiesregardingPSAPfacilities.
12BrowardCounty,FL.FiscalYear2017AdoptedOperatingBudget,BSOConsolidatedDispatchContract,p.2-34.
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STAKEHOLDER INPUT
Methodology
Thisreportsectionprovidesfindingsandanalysesbasedonqualitativedatafromstakeholderinterviewsandsurveys.Alongwithdetaileddataanalysesoutlinedlater,thesetwodatasourceswereanalyzed,andspecificattentionwaspaidtointersectionsbetweenqualitativeandquantitativedata.
Stakeholder Input
Earlyintheproject,theconsultantsconductednumerousinterviewswithCountyandBrowardSheriff’sOfficeofficialsandotherkeymanagementpersonnelthatincluded:
§ BrowardCountyAdministratorandseniorexecutives§ BrowardSheriff’sOfficeofficials§ OfficeofRegionalCommunicationsDirector§ BrowardCountyChiefsofPoliceAssociation§ FireChiefsAssociationofBrowardCountry§ BrowardCountyLeagueofCities§ MembersofBrowardCityCountyManagersAssociation
Inaddition,consultantsinterviewedRegionalE911management,communicationsoperatorsandCountystaff.Consultantsobserveddispatchprocessesandoveralloperations.AttheendofMarch2016,FITCHlaunchedasurveytoolspecificallyforRegionalE911CommunicationsOperatorsandaseparatesurveyforRegionalE911managementpersonnel.Surveyinvitationsweresentto377dispatchpersonnelandobtaineda34.5%response.Fifty-onesurveyinvitationsweresenttodispatchmanagementpersonnelanda47%responsewasobtained.Surveyresponseswereanonymous.
Stakeholder Perceptions – Level 1 Interviews
Attheinceptionofthisproject,andthroughoutitsinitialphase,FITCHmetwithseniorlevelstakeholdersfromBrowardCounty,BrowardSheriff’sOffice,lawenforcementagencies,firerescueagencies,andmunicipalleaders.Thesediscussionsincludedbothelectedofficialsandseniormanagementpersonnel.Thefocusofthesediscussionswastounderstandperceptionsandkeyconcernsregardingtheinitialimplementationandcurrentoperationsoftheregionalcommunicationssystem.Theissuesraisedinthesediscussionshelptofocustheanalysisofquantitativedataandensuresalientitemsarecaptured.Fromaqualitativeperspective,thesediscussionsprovidedinsightintotheperceptionsamong,andworkingrelationshipsbetween,majorstakeholders.Therewasahighdegreeofconsensusonavarietyofissues-bothpositiveandnegative.Whiletherootcauseofsomeitemsmaybeperceiveddifferentlybysomestakeholders,theconsistencyofthefollowingitemsindicatesthatfutureattentioniswarrantedtoaddresstheissuesraisedherein.
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Positive Issues Related to the Regional E911 System
DuringdiscussionsleadingtoconsolidationofthedisparatePublicSafetyAccessPointsintoanintegratedregionalcommunicationssystem,stakeholdersidentifiedeightgoalsfortheirnewsystemasnotedbelow.Figure7.GoalsfortheBrowardRegionalE911System
1.Improveservice2.Employthebesttechnologyavailabletoexpediteemergencyresponse3.Establishconsistentperformancemetrics4.Reducedelayintransferofemergencycalls5.Fasteremergencyresponsetimes6.Enhanceinteroperabilityandcoordinationamongstrespondingagencies7.Fewererrorsduetostandardizedcallhandlinganddispatchprotocols8.Savesignificantamountoftaxpayers'dollars
Whilesomeofthegoalswerenotmetinthefirst20monthsofoperation,itisimportanttoacknowledgethatothershavebeenrealized.Thesearesummarizedbelow.§ Stakeholdersgenerallyagreedthatthenewsystemhasalreadyestablishedsomestringentperformance
measures,andthatthesemeasuresarebeingreportedinaconsistentmanneranddisseminatedwidely.Theseattributeswereabsentpriortoconsolidation.
§ Thegoaltoreducedelaysrelatedtotransferringmisdirected911callersfromonePSAPtoanotherhasbeendramaticallyreducedsinceinceptionoftheSystem.Quantitatively,therehasbeenasignificantreductioninthenumberoftransfersforemergencycallers,therebyreducinganydelaysingettingassistancetopersonsinneed.Table5belowreflectsthesignificantreductionthathasoccurredbetweenOctober2013toJanuary2016.ItisgenerallyassumedthatcalltransfersbetweenPSAPsincura30-secondimpactontotalcallprocessingtimes.13
Figure8.HistoryofCallTransfersBetween911Centers14
2013StandAlonePSAPs
(October2013)2014ConsolidatedPSAP
(October2014)2016ConsolidatedPSAP
(January2016)PercentChange2013–2016
Countof911Transfers 12,291 7,581 1,690 (86.25%)
13SeeSection7.4.4fromNFPA1221(2016).14DerivedfrompresentationtoFloridaE911Coordinatorsfoundat(http://www.dms.myflorida.com/content/download/111575/622381/broward)andJanuary2016ConsolidatedCommunicationsMonthlyReport.
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FINDING:Thenumberof911callersrequiredtobetransferredhasbeenessentially
eliminatedundertheconsolidatedregionalsystem,andreducedtotalcall
processingtimesbyapproximately30seconds.
§ End-usersacknowledgethatcollaborationamongfirstresponderagencies,bothlawenforcementandfirerescueagencies,hasincreasedsincetheregionalsystembegan.Thiscollaborationincludesgreaterconsistencyindispatchpolicyandproceduresandmorecommonnomenclatureamongfirstresponders,therebyenhancingcoordinationandcontrolinthefield.ParticipantsalsoacknowledgetheleveloftransparencyintheRegionalE911Systemissignificantlygreaterthanagenciesexperiencedundertheirformermodel.
§ ItwasfurthernotedbyallstakeholdersthatBrowardCountyisintheprocessofupgradingmajortechnologicalcomponentsoftheRegionalE911System.TheCountyismakingsignificantinvestmentswhichwilladdressthecomputer-aideddispatch(CAD)system,publicsafetyradiosystem,andfirestationalertingsystem.TheseupgradesrepresentsignificantcapitalexpendituresfromBrowardCounty’sCapitalImprovementPlanBudget.WhiletheCountyhassoughttoensurestakeholderinputiswidespread,someexternalstakeholdersbelievethatoutreacheffortstotheend-usersneedtobefurtherstrengthened.
Issues of Concern Related to Regional Communications
ItisclearthatthemajorityofstakeholdersbelievetheSystemhasimproveditsoverallperformancesinceRegionalE911’sformallaunchinOctober2014.Nonetheless,thereremainconcernsthatexistingprocessesandgovernancestructureskeepthesystemfromachievingsignificantadditionalimprovements.Oneofthemajorconcernssharedbyallstakeholdersisthestateofrelationsamongthevariousparties,specificallytheCounty;BSOintheirroleascontractorinoperatingtheregionalcommunicationsystem;andend-users,namely,lawenforcementandfirerescuepersonnelwhoprovidedirectservicestoresidentsandvisitors.AllpartiesrelyontheRegionalE911System’stechnologyandoperationstosupporttheirrespectivemissions.Whilethesestakeholdergroupsareclearlyengagedandmotivatedtoachievethesamegoals,thereisaconsensusamongthepartiesthat“somethingisbroken”.Everygroupindicatedthat“thereisalackoftrust”betweensystemparticipants.StakeholdersotherthanBrowardCountyattributemuchofthistotheCounty’sroleinsystemoversight.FromtheCounty’sperspective,theyremainresponsiblefortheoverallsystem.Thisresponsibilityisparamountduetotwofactors.First,theBrowardCountyCharter,ArticleV.–PublicSafety,Section5.02.–Fireprotection,notesthattheCounty“shallprovidefundingforthecommunicationsinfrastructure...[that]shallfacilitateclosestunitresponseforlife-threateningemergencies...”TheCounty’sresponsibilitiescanonlyberealisticallyachievedthroughcoordinationamongvariousproviderstoensurearegionalapproach.Thisprocessmustincludeutilizationofcommon
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technologyandapplicationofconsistentpoliciesamonglawenforcementandfireagencies.Aregionalsystemisthemosteffectiveandefficientmethodtoaccomplishthismandate.Withtherecentconsolidation,BrowardCountyisabletoprovideforclosestunitresponse.However,fire-rescueagencieshavenotyetadoptedthenecessaryprotocols,andthereforetheCountyandBSOareunabletoimplementthissystem.
FINDING:Theconsolidatedsystemiscapableofclosestunitresponsetolife-
threateningemergencies,butprotocolsarenotyetinplacetoimplementthis
capability.
ThesecondfactoristhatBrowardCountyfundstheregionalbackboneandcarriesthefinancialburdenforthetechnologyandinfrastructuretoachieveregionalcommunications.TheCountyalsofundsthecontracttostaffandoperatethethreeRegionalE911sites.Duringinitialdiscussionscontemplatingconsolidationtoaregionalcommunicationssystem,participants,largelymunicipalandend-userrepresentatives,draftedaseriesofstringentperformancemeasures,mostlypatternedaftervariousnationalrecommendationsincludingfromtheNationalEmergencyNumberAssociation(NENA)andNationalFireProtectionAssociation(NFPA)and.Byalmostalladmissions,thesemetricsarerelativelyaggressiveandweredesignedtoreflectthedesireofthecommunitythatpublicsafety,andspecifically911services,shouldmeethighstandardsofperformance.Forsome,adoptionofthesemeasures,asoriginallydraftedandtheirsubsequentadoptionasbenchmarksforRegionalE911’sperformance,canarguablybeconsidered“stretchgoals.”ThesemeasuresareembodiedintheBrowardCounty/BrowardSheriff’sOfficeoperatoragreementtitled,“TheOperationofCall-Taking,Teletype(QueriesOnly)andDispatchServicesfortheConsolidatedRegionalE911CommunicationsSystem.”AttachmentB,PerformanceMeasures,providesthedetailofperformancemeasuresasoutlinedinExhibitDoftheOperatorAgreementandwithintheagreementsbetweenBrowardCountyandparticipatingmunicipalities.Additionaldocuments,includingtheinterlocalagreementsrelatedtotheregional911systemcanbefoundonlineatwww.broward.org,RegionalCommunicationsandTechnology,RegionalAgreements.Stakeholdersclearlydesirestrongperformancemeasures,andtheCountyhastheresponsibilitytomonitorandreportonthatperformance.Yet,stakeholdersexternaltoBrowardCountygovernment,namelyBSOandtheparticipatingcities,believethattheCounty’sapplicationoftheseperformancemeasureshas,insomeways,beenunreasonableandpunitive.Countystaffbelievestheyhaveappliedthestandardsconsistentlyandwithinthelanguageoftheapplicableinterlocalagreements,whichcanbemodifiedwithstakeholderconsensus.Thisissueofrelevantandmeaningfulperformancemeasuresisanareaofsignificantfrictionbetweentheparties.FITCHhasidentifiedanumberofproblemsinthecurrentassessmentofSystemperformance.ThisissueisdiscussedinmoredetailintheDataAnalysis
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sectionofthisreport,withspecificrecommendationsregardingappropriateperformancemeasuresprovided.StakeholdershaveexpressedconcernwiththequalityofservicesbeingprovidedbytheBrowardSheriff’sOfficeastheSystemOperator.Someconcernsrevolvearounddispatchercompetency(largelyseenasanoutcomeofthecurrenttrainingreceivedbyRegionalE911personnel)andtheapplicationofpoliciesandprocedurescurrentlyusedbycalltakerandradiooperatorpersonnel.Thereisalsoaperceptionthatcollectivebargaining/laborissueswithintheSheriff’sOfficehaveimpededtheSheriff’sabilitytoeffectivelymanagetheworkforce.Theselimitationsarebelievedtohaveledtopoorerserviceandsupportforfieldpersonnel.StakeholdersoutsideBrowardCountyperceivethattheCounty’sintenseprocess-drivenoversightofthesystemischaracteristicoftheseissuesoutlinedabove.ComplaintstowardsCountystaffincludethattheCountystaffisessentiallyattemptingto“runoperations”ofthelawenforcementandfirerescueagencies.ThesestakeholdersciteexamplesoftheCountydefiningandmanagingprocessesforsystemchanges.Uponexaminingthisissuemoreclosely,FITCHhasidentifiedexamplesoftheCounty’sworkintrudingintoareasthatareclearlyoperationalinnature.Whilethereissomevaliditytotheseconcerns,itmustbefurthernotedthatend-usersofthesystem,namely,lawenforcementandfirerescueagencies,haveinmanywaysacquiescedcontroltotheCountybyagreeingtoasomewhatlimitedandambiguousroleforinputintothesystem’soperations.Most,ifnotall,protocolchangesandguidanceofthesystemoccursafterfireandpolicechiefassociationshaveapprovedofthesechanges.Therealsoexistsanincidentmanagementsystemdesignedforend-userstoidentifysystemissues.Thisissueofoversightandroles/responsibilities,inessencetherulesofengagement,isonethatFITCHhasidentifiedasrequiringmoredialogamongtheparties.Thisreportincludesrecommendationsonwhatrulesshouldbeadopted.Finally,anumberofmunicipalelectedandchiefexecutiveleaderslargelyvoicedsimilarconcernstothoseabove.Oneadditionalconcernbymanycommunitieswasthattoomuchemphasisisplacedonperformancemetricsinlieuofensuringthequalityofservices.However,leadersinPembrokePinesvoicedtheopinionthatcall-processingtimes(referredtoasP2/P3)neededgreaterattentiontomorecloselymirrortheirexperiencepriortoconsolidation.Whilemunicipalleadersdonotfullyshareacommonperspective,theprevalentconcernbymanylocalleadersofanoveremphasisonmetricsoverqualitycanbebettercharacterizedasgoaldisplacement.TheCounty’ssignificantfocusonperformancemetricsandmanagingchangeprocessesincludingsomeofanoperationalnature,doesnotlenditselftofullyallowanimblesystembedevelopedthatcanadjustandensurequalityservicesandmeetend-userexpectations.Theimpactofthisgoaldisplacementhas
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ledtotheSheriff’sOfficeexpendingextraordinaryefforttoaddressprocessissuesratherthandealingwithmoresubstantiveissuesofstaffing,training,andstrongerRegionalE911oversight.
FINDING:TheCountyhasinappropriatelymade,andpublicsafetyofficialsallowed,
someoperationaldecisionstobehandledbytheCountythatshould,instead,be
determinedbypublicsafetyofficials.
Stakeholder Perceptions - Level 2 & 3 Interviews
Interviewsofmid-levelandsupervisorypersonnelwereconductedacrossallthreemajorstakeholdergroups:TheCounty,BSO,andend-users.Level3interviewswithCommunicationsOperators/DispatchersatNorth,Central,andSouthRegionalE911facilitieswerealsoconductedinthefirsthalfofMarch2016.One-on-oneinterviewswereconductedonavoluntarybasisusingopen-endedquestions.Positiveattributesnotedconsistentlythroughouttheinterviews,werethatRegionalE911personnelarededicated,wanttosucceed,wanttodoagoodjob,andtheyfeelthatfailureisnotanoption.Intheinterviewprocess,concernswererepeatedlyexpressedaboutthefollowing:
§ Teamwork§ Personnelintegration§ Inefficientprocedures/processes§ Ongoingtrainingandaccountability§ Qualityimprovement/assurance§ Equipmentfailuresandemergencyprocedures§ Staffingandworkschedules§ Workenvironment/respect
Belowaresummariesofcommentsregardingeachoftheaboveitems.
Teamwork
OnethemethatemergedthroughouttheLevel2and3interviewscaneasilybedescribedassilosorthelackofteamwork.Mid-levelmanagersandsupervisorypersonnelwerequestionedonhowtheirroleintegrates,orotherwiseassistsothersinresolvingsystemissues.Theexpression,“Idon’tlookatthat,”or“someoneelsedealswiththat,”wasacommonresponse.Therewaslittleevidencethatsupervisoryandmid-levelmanagershaveachievedamoreglobalperspectiveoftheSystem’sfundamentalgoals.Therewasalsolittleevidenceofasenseofteamworkbetweenvariousoperatingunits,evenwithinthesameemployer.
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Personnel Integration
Jobclassificationtitlesandskillsofpersonnelfromsmallerdispatchcentersdidnotequatetorequiredcorecompetenciesneededtoachievesuccessinaregionaldispatchcenter.Initialtrainingwasconductedmonthspriortotheregionalimplementationanditappearsthatsomepersonnelinthesmallercentersreceivedlimitedinitialtrainingthatprovedinadequate.Thesefactorsmadeintegrationofpersonneldifficultatbestand,insomecases,continuestoimpactoperationalefficiencies.
Inefficient Procedures/Processes
Variousproceduresaretime-consumingandineffective.Thetrainingprocessof“readandsign”isineffectivedueprimarilytothevolumeofdocumentscirculated.Twotothreenewreadandsigndocumentsarepublishedperweekthatrequiredispatchpersonnelacknowledgementandunderstanding.Itwasreportedthatmanyofthesedocumentseithercancel,modifiedperviouspolicies,orarenotapplicabletodispatchoperations.TheTrainingSupervisorisrequiredtomanuallygradetrainingtestsandassessments.Thisisatime-consumingandinefficientprocessthatcanbealleviatedthroughthepurchaseofarelativelyinexpensivegradingdevice.Thiswouldprovidethetrainingsupervisorwithmoreactualtrainingtime.Policiesaffectingfire,law,andEMSagenciesarenotcommunicatedtofieldpersonnelinatimelymannercausingconflictsbetweenthefieldandBSOdispatchers.DutyOfficersaremireddowninadministrativedutiesandarenotfocusedonsupervisingdispatchpersonnelormaintainingsituationalawareness.
On-going Training and Accountability
Dispatchersexpressedasaprimaryconcernwhattheyperceiveasalackofqualityon-goingtraining.PersonnelreportedthattheTrainingOfficershavenotformallymetwiththeTrainingSectionintwoyears.Thiscancreategapsinknowledgeexchangeandnewtrainingtechniques,anddoesnotallowfordiscussionofthestrengthsandopportunitiestoimprovenewpersonnel.Itwasalsoreportedthatdispatchpersonnelareoftenheldaccountablefortrainingtheydidnotreceive.
Quality Improvement/Assurance
PersonnelexpressedthattheirperceptionoftheBSOQualityAssuranceunitisthatitisfocusedmoreonpunitivemeasuresthanskillsenhancement.
Equipment Failures and Emergency Procedures
CADoperationalissues,lock-ups,slowdowns,andrebootsareadailypartofBSOoperations.Whilethereremainsareportingsysteminplaceforthesetypesofissues,end-usersadmittheydon’treportproblemsbasedontheirexperienceof“noresponse”topriorefforts.DispatchpersonnelexpressedlimitedknowledgeortrainingonmanualmodeproceduresintheeventofaCADfailureforanextended
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duration.CalltakersanddispatchersreportednorealaccesstothecriticalsupportivedocumentationsuchasmapbooksorruncardsintheeventofaCADfailure.Likewise,whendispatcherpersonnelwerequeriedabouthurricaneoperationsandpreparednesstheyexpressedlittletonoknowledge.TheonecommonprocedurementionedisthattheyaretoreporttotheE911Center.Personnelcouldnotidentifywhetheron-sitesuppliesorsleepingarrangementsareaccountedfor,nordidtheyexpressknowledgeofschedulingorspecialoperationalexpectations.
Staffing and Work Schedules
Inadequatestaffingwasarecurringthemevoicedbydispatchpersonnelatalllevels.Dispatchersreportthatmandatoryovertimeisassignedmultipletimeseachweek.Personnelvoicedthatthecurrentworkschedulecompoundedwiththefrequencyofmandatoryovertimeiscreatingburnoutandhighstresslevels.ItwasnotedthatBSOcurrentlyutilizesonly8-hourshiftschedulesforpersonnel.Thispracticeisnottypicallyseeninlargedispatchcenterswhere8,10and/or12hourshiftsinvariouscombinationsareemployedtomoreeffectivelyalignstaffingwithsystemdemands.Asnotedlater,FITCHfoundevidencethatBSOadjustsstaffingpatternsveryeffectivelytoaddressvarianceindemand.Yet,alternateshiftschedulesmayalsoprovidegreatersatisfactiontoemployeesandhelpaddresscurrent‘burn-out’perceivedbymanyworkinginthe911centers.FITCHwillprovidespecificrecommendationsregardingalternateschedulingpracticesinsubsequentreports.
Work Environment/Respect
RegionalE911personnelwhoareco-locatedinfacilitieswithotheragenciesandorganizationsnotethattheyhavelimitedaccesstobasicbuildingfacilitiessuchasrestrooms,elevators,parking,andentrancesites.Communicationsoperatorsnotedthatsomeagenciesdonottolerateanytypeofdisrespecttowardsdispatchpersonnelwhileothersseemtoignorethenegativebehavior.PersonnelperceiveexcessiveinvolvementbytheCountyinoperationalissuesandmentionthataCountysupervisoroccupiesanofficeonthedispatchfloorwhiletheNorthCentersitemanagerislocatedonadifferentfloor.
Dispatcher and Management Surveys
Inanefforttoexpandoutreachtostakeholders,FITCHlaunchedtwosurveytools,onefordispatchpersonnelandonefordispatchcentermanagement.Thepurposeofthesurveyswastoobtainabroaderrangeofimpressionsandopinionsfromthepersonnelbymeansofananonymoustool.OnMarch29,2016,surveyinvitationsweresentdirectlyfromtheFITCHofficesto377dispatcherpersonneland51managementpersonnel.ThesurveytoolwasavailablefortwoweeksandclosedonApril12.Thesurveyaddressedservicelevels,workloads,equipment,attitudesandmanagement.Participantswereprovidedwithstatementsandaskedtoindicatetheiragreementordisagreementwiththestatementusingthefollowingchoices:
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1. Stronglyagree2. Agree3. Neutral4. Disagree5. Stronglydisagree
Ofthe377invitationstodispatchpersonnel,130personnelsubstantiallycompletedthesurveyresultinginaparticipationrateof34.5%.Therewere15additionalincompletesurveysandthoseanswerswereincorporatedintotheresults.Ofthe51invitationssenttomanagementpersonnel,therewere24completedsurveysresultinginaparticipationrateof47%.Therewerealso9incompletesurveysandwhereapplicable,thoseanswerswereincorporatedintothesurveyresults.
Survey Participant Demographics
RespondentsarefairlywelldistributedacrossthreeofthefourworklocationsasnotedinTable6below.
Figure9.WorkLocationsofDispatcherandManagementSurveyRespondents
WorkLocation %ofDispatcherRespondents %ofManagementRespondents
PublicSafetyBuilding 8% 20%NorthDispatch 31% 32%CentralDispatch 26% 20%SouthDispatch 35% 28%
Ofthedispatchsurveyrespondents,thelargestpercentage(47%)workedforBSOpriortoconsolidationoftheRegionalCommunicationsCenter,andthenextlargestcontingent(14%)previouslyworkedfortheCityofFortLauderdale.Approximately15%ofdispatchsurveyrespondentsreportedthattheyhadnotpreviouslyworkedforanyoftheparticipatingcitiesorforBSO.Ofthemanagementsurveyrespondents,thelargestpercentage(46%)workedforBSOpriortoconsolidationandthenextlargestcontingent(25%)previouslyworkedfortheCityofFortLauderdale.Approximately4%ofmanagementsurveyrespondentsreportedthattheyhadnotpreviouslyworkedforanyoftheparticipatingcitiesorforBSO.Thefiguresbelowindicatethepercentageofdispatchandmanagementsurveyrespondentsandthenumberofyearsofexperienceworkingina911environment.
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Figure10.DispatcherSurveyRespondents’911WorkExperience
Seventy-fivepercent(75%)ofdispatchsurveyrespondentsreportedthattheyhadworkedina911environmentforatleastsixandupto15ormoreyears.Eighteenpercent(18%)indicatedtheyhadtwoyearsorlessexperienceworkingina911environment.Figure11.ManagementSurveyRespondents’911WorkExperience
Noneofthemanagementsurveyrespondentsreportedfewerthansixyearsworkexperienceina911environmentandtheoverwhelmingmajority,75%,reportedatleast15yearsofexperience.
18%
7%
23%
18%
34%
0% 5% 10% 15% 20% 25% 30% 35% 40%
0*2+years
3*5+years
6*10+years
11*15+years
15++years
9*1*1+Work+Experience+of+Dispatch+Survey+Respondents
0%
0%
12%
12%
76%
0% 10% 20% 30% 40% 50% 60% 70% 80%
0+2,years
3+5,years
6+10,years
11+15,years
15+,years
9+1+1,Work,Experience,of,Management,Survey,Respondents
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Summary of Survey Results
Foreaseofreading,thefiverangesofagreement/disagreementwithsurveystatementsaresummarizedintothreegroupsasfollows:
1. agree/stronglyagree,2. neutral,and3. disagree/stronglydisagree.
ThefiguresthatfollowprovidethesummarizedpercentagesforboththeDispatchandtheManagementsurveysandresultsaregroupedintothreecategoriesasnotedabove.
Service Level Statements
Figure12.Ibelieveweprovideagoodlevelofservicetocitizenswhocall911.
DispatcherResults ManagerResults
§ 64%eitheragreed/stronglyagreed§ 13%wereneutral§ 23%eitherdisagreed/stronglydisagreed
§ 69%eitheragreed/stronglyagreed§ 17%wereneutral§ 14%eitherdisagreed/stronglydisagreed
Figure13.Pleaseratethefollowing:Ibelieveweprovideagoodlevelofsupporttopublicsafetyfieldpersonnel.
DispatcherResults ManagerResults
§ 69%eitheragreed/stronglyagreed§ 14%wereneutral§ 27%eitherdisagreed/stronglydisagreed
§ 76%eitheragreed/stronglyagreed§ 7%wereneutral§ 17%eitherdisagreed/stronglydisagreed
Figure14.CallersforemergencyservicesprovideaccurateinformationregardingtheADDRESSofthe
emergency.
DispatcherResults ManagerResults§ 5%eitheragreed/stronglyagreed§ 17%wereneutral§ 78%eitherdisagreed/stronglydisagreed
Notaskedofmanagers
Figure15.WhenIbeganmycurrentjob,theinitialtrainingIreceivedpreparedmewellforthework.
DispatcherResults ManagerResults
§ 54%eitheragreed/stronglyagreed§ 18%wereneutral§ 28%eitherdisagreed/stronglydisagreed
§ 61%eitheragreed/stronglyagreed§ 3%wereneutral§ 36%eitherdisagreed/stronglydisagreed
Figure16.Theongoingtraining,Ireceivecontinuestoenhancemyskills.
DispatcherResults ManagerResults
§ 39%eitheragreed/stronglyagreed§ 24%wereneutral§ 37%eitherdisagreed/stronglydisagreed
§ 46%eitheragreed/stronglyagreed§ 25%wereneutral§ 29%eitherdisagreed/stronglydisagreed
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Figure17.TheRegionalCommunicationsSystemisequippedandpreparedtohandlelargescaleemergencies
suchashurricanesormassshootingincidents.
DispatcherResults ManagerResults
§ 31%eitheragreed/stronglyagreed§ 28%wereneutral§ 41%eitherdisagreed/stronglydisagreed
§ 69%eitheragreed/stronglyagreed§ 7%wereneutral§ 24%eitherdisagreed/stronglydisagreed
Workload Statements
Figure18.Theworkmethodsweutilizehelpimprovetheefficiencyinourwork.
DispatcherResults ManagerResults
§ 16%eitheragreed/stronglyagreed§ 26%wereneutral§ 58%eitherdisagreed/stronglydisagreed
§ 41%eitheragreed/stronglyagreed§ 21%wereneutral§ 38%eitherdisagreed/stronglydisagreed
Figure19.Thetechnologiesweutilizeimproveourefficiencycarryingoutourwork.
DispatcherResults ManagerResults
§ 24%eitheragreed/stronglyagreed§ 11%wereneutral§ 65%eitherdisagreed/stronglydisagreed
§ 17%eitheragreed/stronglyagreed§ 35%wereneutral§ 48%eitherdisagreed/stronglydisagreed
Figure20.Policiesandproceduresareeasilyunderstoodandapplied.
DispatcherResults ManagerResults
§ 19%eitheragreed/stronglyagreed§ 16%wereneutral§ 65%eitherdisagreed/stronglydisagreed
§ 36%eitheragreed/stronglyagreed§ 21%wereneutral§ 43%eitherdisagreed/stronglydisagreed
Equipment Statements
Figure21.Icaneffectivelyusetechnologytolocatewirelesscallerswhodon’tknowtheirlocation.
DispatcherResults ManagerResults§ 51%eitheragreed/stronglyagreed§ 24%wereneutral§ 25%eitherdisagreed/stronglydisagreed
Notaskedofmanagers
Figure22.Thetechnologyandinformationsystemsweusearereliableandareappropriatetothejob.
DispatcherResults ManagerResults
§ 27%eitheragreed/stronglyagreed§ 20%wereneutral§ 53%eitherdisagreed/stronglydisagreed
§ 7%eitheragreed/stronglyagreed§ 32%wereneutral§ 61%eitherdisagreed/stronglydisagreed
Figure23.CADhasthetoolsIneedtohandleincidentsefficiently.
DispatcherResults ManagerResults§ 34%eitheragreed/stronglyagreed§ 20%wereneutral§ 46%eitherdisagreed/stronglydisagreed
Notaskedofmanagers
BrowardCounty Page35 ©Fitch&AssociatesAssessmentandRecommendationsofBrowardCounty’sRegionalE911 December2016
Figure24.EquipmentproblemsarehandledappropriatelyandIgetfeedbackonproblemsIreport.
DispatcherResults ManagerResults
§ 8%eitheragreed/stronglyagreed§ 19%wereneutral§ 73%eitherdisagreed/stronglydisagreed
§ 32%eitheragreed/stronglyagreed§ 14%wereneutral§ 54%eitherdisagreed/stronglydisagreed
Attitude Statements
Figure25.OtheroccupantsofthebuildingIworkattreatmewithrespect.
DispatcherResults ManagerResults
§ 38%eitheragreed/stronglyagreed§ 33%wereneutral§ 29%eitherdisagreed/stronglydisagreed
§ 56%eitheragreed/stronglyagreed§ 16%wereneutral§ 28%eitherdisagreed/stronglydisagreed
Figure26.Uppermanagementsupportsouroperations.
DispatcherResults ManagerResults§ 22%eitheragreed/stronglyagreed§ 21%wereneutral§ 57%eitherdisagreed/stronglydisagreed
Notaskedofmanagers
Figure27.ThereiscleardivisionbetweentheCountyandBSOonwhomanagesthecommunicationscenter.
DispatcherResults ManagerResults
§ 48%eitheragreed/stronglyagreed§ 21%wereneutral§ 31%eitherdisagreed/stronglydisagreed
§ 67%eitheragreed/stronglyagreed§ 22%wereneutral§ 11%eitherdisagreed/stronglydisagreed
Figure28.Dutyofficersandsitemanagersareavailableandwillingtohelpmewithproblemsorconcerns.
DispatcherResults ManagerResults§ 37%eitheragreed/stronglyagreed§ 32%wereneutral§ 31%eitherdisagreed/stronglydisagreed
Notaskedofmanagers
Figure29.Ireceivefeedbackonmyjobperformance,includingpositiveacknowledgement.
DispatcherResults ManagerResults
§ 27%eitheragreed/stronglyagreed§ 23%wereneutral§ 50%eitherdisagreed/stronglydisagreed
§ 66%eitheragreed/stronglyagreed§ 15%wereneutral§ 19%eitherdisagreed/stronglydisagreed
Figure30.Pleaseratethefollowing:Differentworkscheduleswillimproveourcurrentstaffingchallenges.
DispatcherResults ManagerResults
§ 65%eitheragreed/stronglyagreed§ 17%wereneutral§ 18%eitherdisagreed/stronglydisagreed
§ 42%eitheragreed/stronglyagreed§ 35%wereneutral§ 23%eitherdisagreed/stronglydisagreed
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Figure31.Publicsafetyfieldpersonneltreatthedispatchcenterpersonnelprofessionally.
DispatcherResults ManagerResults
§ 22%eitheragreed/stronglyagreed§ 33%wereneutral§ 45%eitherdisagreed/stronglydisagreed
§ 16%eitheragreed/stronglyagreed§ 44%wereneutral§ 40%eitherdisagreed/stronglydisagreed
Management Statements
Figure32.ManagementgivesteammembersaclearpictureofthedirectionBSOCommunicationsisheaded.
DispatcherResults ManagerResults
Notaskedofdispatchers
§ 55%eitheragreed/stronglyagreed§ 26%wereneutral§ 19%eitherdisagreed/stronglydisagreed
Figure33.Managementunderstandsthedailyproblemswefacewithourjobs.
DispatcherResults ManagerResults
Notaskedofdispatchers
§ 44%eitheragreed/stronglyagreed§ 11%wereneutral§ 45%eitherdisagreed/stronglydisagreed
Figure34.Overall,Iamsatisfiedwiththejobbeingdonebymyimmediatesupervisor.
DispatcherResults ManagerResults
Notaskedofdispatchers
§ 67%eitheragreed/stronglyagreed§ 15%wereneutral§ 18%eitherdisagreed/stronglydisagreed
Figure35.Managementencouragesotherstoproposenewandinnovativeideas.
DispatcherResults ManagerResults
Notaskedofdispatchers
§ 59%eitheragreed/stronglyagreed§ 22%wereneutral§ 19%eitherdisagreed/stronglydisagreed
Figure36.Managementeffectivelydealswithmisconductorunsatisfactoryperformance.
DispatcherResults ManagerResults
Notaskedofdispatchers
§ 30%eitheragreed/stronglyagreed§ 22%wereneutral§ 48%eitherdisagreed/stronglydisagreed
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911 Center Concerns Rankings
Figure37.Pleaserankthefollowingissuesinorderofimportance(1isyourtopconcernand5istheleast
concern.
DispatcherRankings ManagerRankings
1. Adequatestaffing2. Officersafety3. Increaseinworkload4. Lossofspecificcommunity5. Improvedaccountability
1. Adequatestaffing2. Officersafety3. Training4. Improvedaccountability5. Increaseinworkload6. Lossofspecificcommunity
Communication Center Equipment Satisfaction Rankings
Figure38.Pleaserankthefollowingissuesinorderofimportance(1isthemostsatisfiedtoyouand5istheleast
satisfied.
DispatcherRankings ManagerRankings
1. CAD2. 911telephonesystem3. Radiosystem4. Recordsmanagement5. Communicationcenterfacility
1. Radiosystem2. Communicationcenterfacility3. 911telephonesystem4. CAD5. Recordsmanagement
Inadditiontothespecificquestionssummarizedabove,anopen-endedquestionpermittedrespondentstovoiceissuestheyfeltmostimportant.Forlinepersonneltheissuesofmandatoryovertimeduetolimitedstaffingandtheneedforadditionaltrainingwerehighlightedmostoften.Supervisorypersonnelfeltmoststronglythattheinitialconsolidationwasrushedandthisresultedinamultitudeofproblemsthatremaintoday.Overall,theresultsabovehighlightanorganizationthathassignificantmoraleproblemsandfrustrationwithlingeringstaffing,trainingandmanagementissues.
FINDING:BSO’soperationofthePSAPsarechallengedwithsignificantmorale
problemsembeddedinissuesofstaffing,trainingandmanagement.
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DATA ANALYSES
Sources of Data
Background
DispatchoperationsinBrowardCountyareconductedatthreelocations,theNorth,Central,andSouthdispatchcenters.Dispatchfunctionsinallthreecentersoccurat“intake”workstationsand“assignment”workstations.TheanalysesrequiredtocharacterizetheBrowarddispatchoperationsinvolvesquantitatingalltheworkloadsflowingacrosstheseworkstationsbytallyingalltheprocessingintervalsexperiencedattheseworkstations.Theprimarydatarequiredforthesecalculationsresideinthreerepositories:TheIntradoVIPERtelephonyserver,theComputerAidedDispatchSystem,andtheradiologs.Therealsoexistsalogofoutgoingtelephonecalls.FITCHenteredintothisprojectwiththeexpectationthatcompletedownloadsofrawdatafromthesethreesourceswouldbeavailable.Theactualavailabilityofrawdatawassignificantlyless.Thesingleexportofdatathatwentsmoothlywastheoutgoingtelephonelogs.Substantialdelayswereintroducedintotheproject’stimelineduetoexportsofincompleteandincorrectdataelementsprovidedfromCountystaff.Onceidentified,thesedataissueswerecorrectedorappropriateanalyticalapproachesweredevelopedbyFITCHtoaddressanylimitations.Thetelephonyserverandradiologspresentedmoresevereproblems.Inthesetwocases,Browarddidnothavethetechnologytodirectlyexportanydatafromthesesourcesinmachinereadableformats.Instead,FITCHwaspresentedwithhumanreadabletextdocuments.FITCHhadtoapplycumbersomeworkaroundstoconvertdatainhumanformattodatathatwasusefullymachinesearchable.
CAD Export
InterpretingthecontentsoftheCADexportwasnotasmoothprocess.TheprimaryproblemwasgettingCountystafftoprovidecleardefinitionsofwhicheventalonganincidentprocessingtimelinewasbeingloggedintowhichtimestampintheCAD.TheP1,P2,andP3timeintervalsarealldelimitedbystartandstoptimestamps.Initialdata,whenanalyzed,hadunusualcharacteristicsandwassubsequentlydeterminedtocontainincorrectdatafields.NewdatawasquicklyobtainedoncetheissuewasidentifiedtotheCounty,andFITCHwasabletoverifyitusefulnessfordataanalysis.Ultimately,CADdataforFIREandLAWincidentswasprovidedforJanuary2015throughDecember2015.
Telephony Export
BrowardCountystaffinformedFITCHthattheywereunabletooutputrawdatafromtheIntradoVIPERtelephonyserver.ThebesttheycouldprovidewastooutputhumanreadableCallDetailRecords(CDRs)astextdocuments.TheyoutputonereportperdispatchcenterperdayofyearfromJanuarythroughOctober2015inthetelephonysystem’sabbreviated“BasicFormat”.TheyoutputacombinedreportforallthreedispatchcentersperdayofyearforNovember,2015throughJanuary2016inthetelephonysystem’s“ExtendedFormat”.Morethanonethousandindividualreportdocumentswereprovidedto
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FITCH.Thereportsthatwereprovidedwereintendedtobehumanreadable.Assuch,thetextfilesthatwereprovideddidnotconformtothestandardtextfileformatsroutinelyusedfordatatransfersbetweendatabases.FITCHhadtoconverteachoftheBrowardCDRreportstoamachinereadableformatsuitableforinputintoadatabase.Thisrequirededitingthereportdocumentsatthelevelofthehexadecimalbytescomprisingthefiles.Uponinspection,theBasicFormatCallDetailRecord(CDR)reportswerefoundtocontaininsufficientdetailsoftelephonyoperations,andwereunsuitablefortheanalysesrequiredfortheconductofFITCH’sstudies.BrowardinformedFITCHthatExtendedFormatreportswerenotavailablefortheperiodJanuary2015throughOctober2015duetoanupgradeofthetelephonysystem.Asaconsequence,theanalysesoftelephonydatainthisreportarelimitedtothethree-monthperiodofNovember2015throughJanuary2016forwhichtheExtendedFormatCDRswereavailable.GettingtheExtendedFormatCallDetailRecordsintomachinereadableformatwasonlythefirststep.Thereafter,theblockoftextdescribingeachsingleincidenthadtobeparsedintoindividualdatafields.FITCHreverseengineeredthetelephonyprimarydatatablefromthehumanreadablereportsthatweregeneratedbyBrowardfromthetelephonyserver.TheoverlapbetweenthetelephonydataandtheCADdataislimitedtoNovemberandDecember2015.Althoughnotcomplete,theconsultantsfeelthatthisisasufficientsampletocometomeaningfulconclusionsaboutthebehaviorofthesystemoverthewholeyear.ThisopinionisbolsteredbythelargenumberofincidentscapturedinthistimeperiodandthelimitedimpactofseasonalityhasonperformancedataintheBrowardsystem.
Radio Export
BrowardCountystaffinformedFITCHthattheywereunabletoexportrawdatafromtheradiologs.Theonlyinformationtheycouldprovidewasa611-pagePDFofayear-endsummaryreporttitled“TalkgroupsatZoneSummary150101–151231”.FITCHwaseventuallyprovidedacross-referencetableshowingacronymsfortheradiochannelsandtheagencybeingdispatched.Unfortunately,thecross-referencetable,asinitiallyprovided,wasinaccurate.Acronymsappearinginthecross-referencetabledidnotappearinthePDFoftheyearendsummary,andvice-versa.Multipleverbalinquirieswererequiredtofinallyachieveaconsistentpictureofacronymsfortheradiochannelsandtheagencybeingdispatched.Onlytwopiecesofrelevantdataperdispatchchannelweretobefoundinthedocument.Thefirstwasthetotalannualtransmit-receivetimeperdispatchchannel(air-time),andthesecondwastheaveragedurationpertalk-listencycle.Theannualair-timeperdispatchchannelwascombinedwiththeannualincidentcountperdispatchedagency,astakenfromtheCAD,toobtaintheaverageair-timeperincidentforeachspecificagency.ThesebroadaveragesaresufficientforthecalculationsofworkloadsneededintheErlangmodelingforthisreport.
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CAD and CDR Timelines
Relationship
AccesstodataintheBrowardsystemiscomplicatedbecausethereisnosinglesourceforallofthefactoidsrequiredtodescribetheoverallperformanceofthesystem.ThetelephonyserverandtheComputerAidedDispatchsystemcontaintheprimarydatatablesforthesystem.Therelationshipofthesetwodatatablesisdiagrammedbelow.Theuppertimelinebelow,showsthenamesandrelativesequenceofthetimestampsthatcompriseaCallDetailRecord,CDR,foranincidentinthetelephonyserver.ThelowertimelineshowsthenamesandrelativesequenceofthetimestampsthatcomprisetherecordofanincidentintheCADserver.
Figure39.RelationshipBetweenCDRandCADTimelines
Theprocessingofanincidentbeginswhenacallringsintothe911trunklineat[CDRBegin].TheanswerdelayintervalP1,asdefinedtoFITCHbyBrowardCounty,extendsfromwhenthecallingphonenumberisvalidatedat[ANIValid]untilacalltakerisidentifiedasavailableat[CallConnected].Theintakecalltakerpicksupthecallat[AGENTCONNECTED].Thespilloverofdatafromthetelephonyserver(theCDRtimeline)totheCADserveroccursatthispoint.Thebeginningofthespilloverprocessisloggedinthetelephonydatatablesasthe[AGENTCONNECTED]timestamp.TheendofthespilloverprocessisloggedintotheCADdatatablesasthe[Received]timestamp.
CDR Timeline
CAD Timeline
CDR Begin
CDR End
Agent ConnectedCall Connected
ANI Valid
Agent Disconnected
ReceivedTransmitted
ArrivedEnroute
Closed
Dispatched
P3P2
P1
VIPER Spillover
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Itisimportanttograspthatthereisnochangeincalltaker,thatis,thesamecalltakerremainsonthelineinthespilloverfromtheCDRtimelinetotheCADtimeline.Togetacompletepictureofwhatanintakecalltakeractuallydoes,itisnecessarytolookattimestampsloggedintobothtimelineswhich,inturn,requiresalinkbetweenthetimelines.Theintakeprocessinginterval,P2,extendsfromthe[Received]timestamptothe[Transmit]timestampwhentheintakedispatcherreleasestheincidenttotheassignmentworkstations.Theassignmentprocessinginterval,P3,extendsfromthe[Transmit]timestampuntilthe[Dispatch]timestamp.ThecombinedP2/P3intervalextendsfromthe[Received]timestampuntilthe[Dispatched]timestamp.ThecriticalfailureofinformationtechnologyintheBrowardsystemisthatthe[Received]timestampisemptyforasignificantnumberofincidentrecordsintheCAD.
FINDING:Formorethanhalfoftheincidentrecords,theeventintheCADcannotbe
linkedtotheuniqueCallDetailRecord(CDR)thatinitiatedtheincident.
Validation of [Received] Timestamps
Almosthalfofthe[Received]timestampsaremissingintheCAD.Thosethataremissingareblatantlyobvious.However,therearecorruptionsapparentevenamong[Received]timestampsthatarepresent.Thereareexampleswherethe[Received]timestamphasthewrongdatecomparedtotheothertimestampsthatcomprisetheincidentrecord.Thereareexamplesinwhichthe[Received]timestampischronologicallyafterthe[Transmit]timestamp,inlargepartbecausetheCADwasoverwritingtimestampswhenacalltakerrebidtheANI/ALIinformation.Thesecorruptionsbecamedetectablebecausetheyaresoextreme.Theconsultants’concernwasthatlessextremecorruptionsremainedundetectedamongthe[Received]timestamps.Forthoserecordswherea[Received]timestampexists,theCountyusesallthoserecordsfortheircalculationofperformancemeasures.Wherearecordhasatimestampwithanobviouswrongdate,Motoroladevelopedacomputerscripttoextractonlythetimeofdayfromtherecordtouseinitscalculationandignorestheerroneousdate.FITCHdeterminedavalidationofdataonthereceivedtimestampwasnecessarytoincreasethestatisticalvalidityofreportedperformance.Thisvalidationprocessisexplainedinmoredetailbelow.Tovalidatesomesubsetoftheexisting[Received]timestamps,theconsultantsappliedthefollowingmethodology.A[Received]timestampintheCADdatatableswasconsideredtobevalidatedwhentwocriteriaweremet:
Thereexistsan[AGENT_CONNECTED]timestampinthetelephonedatatableswithinthepreceding5seconds.
AND
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ThetelephonenumberintheCADdatatablematchesthetelephonenumberinthetelephonedatatables.
The[Received]timestampintheCADdatatablesistakentologtheendoftheVIPERspilloverprocessfromthetelephonedatatables.The[AGENT_CONNECTED]timestampinthetelephonedatatablesistakentologthebeginningoftheVIPERspilloverprocess.TheVIPERspilloverprocessitselfrequires2–3secondstocomplete.A5-secondwindowwasappliedtoaccommodateanyslightoffsetsinclocktimebetweenthedatatables.
Statistics for Received Timestamps
Thefigurebelowprovidesstatisticsfortheavailabilityofvalidated[Received]timestampsaswellasthenumbersofincidentrecordsintheCADthatcanbeclearlylinkedtothetelephonerecordthatinitiatedtheincident.Figure40.Validated[Received]Timestamps11/1/2015through12/31/2015
Parameter Count Percentage
LAWRecords 136,595 With[Received]timestamps 36,417 26.7% With[Received]timestampsvalidated 24,131 17.7% With[Received]timestampsOut-of-Range 890 0.7%FIRERecords 43,722 With[Received]timestamps 29,369 67.2%
With[Received]timestampsvalidated 22,067 50.5% With[Received]timestampsOut-of-Range 235 0.5%
The[Received]datafieldcontainsthreecategories:NULLS,validatedtimestampsandnon-validatedtimestamps.Onlythevalidated[Received]timestampsshouldbeusedtocalculateP2/P3intervals.Evenwhenavalidated[Received]timestampisused,thereisstillnoguaranteethattheP2/P3intervalwillbefreeofreversebias.15
15Fromstrictapplicationofindustrialengineeringandstatisticalstandards,theCountycanmakenoassurancethattheP2/P3dataprovidedtoFITCHandtostakeholdersisstatisticallyvalid.TheinescapableflawwithallcurrentP2/P3statisticsisthattheydependonthe[Received]timestamp–ofwhichthereareonlysamples.TheCountyisunabletofullyidentifywhy/how[Received]timestampsaremissingor‘outofsequence’;doesnotknowifthereisabiasforhow[Received]timestampsareselectedtogomissingorallowedtobecome‘outofsequence’;doesnotknowifthereisa“reverse”biasforthe[Received]timestampsthatarelefttorunstatisticson(describedaboveasvalidated)–andthereforecannotstatisticallyprovethatremaining[Received]timestampshavebeenrandomlyselected.Withoutproofofrandomness,thennoneoftheP2/P3statisticsarecredibleunderstrictstatisticalmethods.Thisisnotauniqueproblemencounteredwithcomplexdataanalysis–yetaproblemnonetheless.Notwithstandingthisdisclaimer,theresultsreportedherearemadeunderanassumptionthattheremainingsampleprovidedistheresultofrandomness.
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FINDING:Employingtheproceduresabove,FITCHfoundonly25.6%ofCADrecords
validforuseinanalysisofP2/P3.
Suitability of Performance Targets
TheConsolidatedDispatchSystemwaslaunchedwithhighexpectationsandaconcurrentsetofaggressiveperformancetargets.TheSystemwasdesignedtoincludeQualityImprovementTeamsandqualityassuranceprocessestomonitorperformanceasjudgedbymeetingornotmeetingspecifictargets–essentiallya‘PASS/FAIL’or‘YES/NOanalysis.WhiletheCountydoesreporttrenddataforcertainmetricsintheirsupplementalsections,thefocusonpercentage‘PASS/FAIL’or‘YES/NO’againsttargetsdoestheCountyadisserviceinthatitmayfosteranexpectationthatthesystemcansomehowbemadeperfect.Therealityofemergencyservicesystemsisthattheyareexpectedtobeoverwhelmedatsometimeoranother.ConsidertheimpactrecentshootingsinOrlandohadontheiremergencyservices–orarecenttornadoinBrowardCounty.Theinitialchallengeuponconsolidationwaslearninghowtomakethesystemwork.Forexample,theCountyhasimplementedfairlycomprehensivequalityassurance/qualityimprovementprocessesaspartoftheconsolidatedSystem.TheIncidentManagementTrackingSystemtoidentifyissuesfromendusersandOperationalReviewTeamsmadeupofendusers,addvaluetotheSystem.ThesetypeofeffortsallowforamoreclinicalperspectiveonhowtheSystemcanimprove,andhasledtheconsultantstofeelthatthesystemhasturnedacorner.Thechallengeisnowhowtomakethesystemworkevenbetter.Performancetargetsshouldbeselectedsuchthattheycontributetomakingthesystemworkbetter.
FINDING:TheCountyhasimplementedasetofqualityassurance&improvement
processesthatassistinobjectivelymovingtheSystemforward
TheinterpretationofthecurrentperformancetargetsisfromtheperspectiveofaPASS/FAILcutoff.Thisconceptisborrowedfromtheindustrialengineeringcommunitywhereitisreferredtoas“InspectionbyAttributes”.Themostformalized,currentembodimentofPASS/FAILacceptancetestingis“SamplingProceduresandTablesforInspectionbyAttributes”,ANSI/ASQZ1.4-2008.ThemethodologyusedinBrowardisclassifiedasa“singlesamplingplan”whereinalotisacceptedorrejectedonthebasisofpullingasinglegroupofsamplesfromthelotforinspection.W.EdwardDemingwastheindustrialstatisticianwhoiscreditedwithbeingamajorcontributortotheJapaneseindustrialresurgenceafterWWIIthroughhisintroductionoftotalqualitymanagement(TQM).DemingheldtheuseofPASS/FAILtargetsinverylowregard.HenotedthatthemainuseofPASS/FAILtargetswastobeatthesupplieroverthehead.Thecorollarytothisishisadmonishmentto“managethe
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causenottheresult.”16DonaldWheeler,anotherwell-knownqualitycontrolexpert,cautionsthatyoucannotimprovethequalityintheprocessstreamusingPASS/FAILtargetsbecausethemethodteachesnothingabouttheprocessthatproducedtheproduct.17FITCHseesbothDeming’sandWheeler’sdynamicsplayingoutinBrowardCounty.TheattractionofPASS/FAILtargetsisthattheyareeasytoimplement,and,atfirstglance,appeareasytointerpret.Theunderlyingrealityismuchmorecomplexandlessconvenient.
FINDING:TheCounty’suseofPASS/FAILtargetsprovideslittleinthewayof
informationforcontinuousqualityandperformanceimprovement.
P1 Intervals
ThetargetthathasreceivedaninordinateamountofattentionfromBrowardstakeholdersgoesbythemoniker“P1”.Inthefigureabove,(RelationshipBetweenCDRandCADTimelines),theP1intervalsextendsfromwhenthecaller’stelephonenumberhasbeenvalidatedatthe[ANIValid]timestampuntilanavailableintakedispatcherhasbeenidentifiedatthe[CallConnected]timestamp.TheP1intervalisalsoreferredtoastheanswerdelay.ThistimeintervalisthesubjectofrecommendationsfromboththeNationalFireProtectionAssociation(NFPA)andtheNationalEmergencyNumberAssociation(NENA).
Implementation of the P1 Target
AspartoftheCounty’scurrentimplementationoftheP1target,dispatchoperationsofthepriordayarereviewed.The“busyhour”ofthedayisidentified,andtheanswerdelayinthathouriscomparedtothetargetinordertoissuethePASS/FAILassessmentforthathour.Forinstance,the“busyhour”lastWednesdaymayhavebeen1900hours,whilethe“busyhour”lastThursdaywas0300hours.Undercurrentpractice,the“busyhour”isavariablethatisselectedretrospectively.ThisimplementationislooselymodeledontherecommendationinNENA56-005andiswellunderstoodbyallstakeholders.Thismetricalonefailstorepresenttheoverallperformanceofthedispatchintakeoperationbyfocusingexclusivelyonone-offeventsthatrandomlyimpactthesystem.TheoutcomeoftheCounty’smethodologyisthatBSOisdriventodeploymaximumstaffingatallhoursofthedayanddisregardtheincreasedannualcostincurredtofixaone-offproblemthathappenedat3AMlastThursdaymorning.theCounty’simplementationoftheP1targetdoesnotleadtoactionableteachingsaboutthefunctioningofBSOdispatchoperations.
16TheW.EdwardsDemingInstitute,http://www.blog.deming.org,accessedMay2016.17DonaldJ.Wheeler,“UnderstandingStatisticalProcessControl”,SPCPress,1992.ISBN978-0-945320-69-2
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NENA 56-005
ThetextofNENA56-00518Section3.1isreproducedinFigure7below.Figure41.NENARecommendation
TheCounty’simplementationofthe‘busyhour’criteriainNENA56-005,Section3.1,focusessolelyonthe“busyhour”oftheday,thusignoringtheother23hoursoftheday.Bydefault,thesehoursaredealtwiththroughanimpliedsyllogismthatmaybeparaphrasedasfollows:IF AlliswellinthebusyhourofthedayTHEN Allwillbewellintheremaininghoursoftheday.Takenbyitself,thissoundsreasonable.However,forthistobevalidandforNENA56-005toapplytoBroward,thesamenumberofdispatchersmustbeondutyatthebusyhourandatallotherhoursoftheday.ConfoundingtheapplicationofNENA56-005toBroward,BSOadjustsitsintakestaffingonanhour-by-hourbasis.TheCounty’simplementationoftheNENArecommendationdoesnotaccommodatethisreality.ThesecondcriteriainNENA56-005,Section3.1isthat95%ofallcallsshouldbeansweredwithin20seconds.WhenexaminingtheCounty’sreportingofthesetwocriteria,onemustconsiderthedisconnectintheirrelativeperformance–“busyhour”performancehaslargely“FAILED”whilethe95%within20secondscriteriahasPASSEDbyastatisticallylargedegree.Thisshouldcauseonetopauseandcontemplatewhy.
Busy Hour
AnyattempttoimplementNENA56-005requiresthatthe“busyhour”bedeterminedandthentheanswerdelayinthathourbecalculated.EvenifNENA56-005wasthecorrectmetrictoevaluateBSOdispatch,theCounty’sdeterminationofthebusyhourassumestheCountyshouldretrospectivelydefinethepreviousday’sbusyhour.Bycontrast,the“busyhour”istobedeterminedbyexaminingthehistoricrecordandcalculatingstatisticsoncallcountsineachhourofthedayacrosssomesubstantialspanofdays.The“busyhour”istobefixedasnotedbyNENAtobeapracticeinotherPSAPs.Itisnotavariable.
18NENACallAnsweringStandard/ModelRecommendation,NENA56-005,06/10/2006.NationalEmergencyNumberAssociation(NENA)StandardOperatingProceduresCommittee,Call-TakingWorkingGroup.
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InthecaseofBrowardCounty,FITCHdeterminedthe“BusyHour”ofthedaytobe1800hoursaveragedoverCY2015asshowninFigure8below.Figure42.AverageBusyHourBasedonTelephoneTraffic
FINDING:CertainperformancemeasuresareapoorrepresentationofSystem
performanceandinconsistentwithcurrentindustrybestpractices.
Discrepancies Regarding Workstations
Answerdelaysaretiedtospecificworkstations,eachwithitsuniqueidentification(ID)number.Then,activitiesamongworkstationsareaggregatedforaspecificPSAP.FortheanswerdelayataPSAPtobevalid,therosterofworkstationsascribedtothePSAPmustbecorrect.FITCHconductedadetailedaccountingofthenumbersandIDsoftheactiveworkstationsbyhourofthedayateachPSAPfromNovember2015throughJanuary2016.Asacrosscheck,FITCHconductedthesameaccountingacrossBSOdispatchwithoutregardtotheidentityofthePSAPs.Thetwoaccountingscouldnotbereconciled.ThesumofactiveworkstationsattheindividualPSAPoftenexceededthesumofactiveworkstationsobtainedwhenPSAPIDsweredisregarded.Manuallysteppingthroughtherecordsinquestionrevealedthesourceofthediscrepancy.Inmultipleinstances,numberedinthethousands,asingleworkstationIDappearedundertwoPSAPs.Theseinstancesweremanuallyresolvedbyconsensus:allPSAP-workstationpairingswereadjustedtothereflecttheobservedmajorityPSAP-workstationpairingforeachworkstationinquestion.SincetheconsolidationoftheseparatetelephonynetworksinFebruary2016,thisworkstationIDduplicationhasbeenrectified.
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Answer Delays
ThelaststepintheimplementationofNENA56-005isthecalculationoftheanswerdelayinthebusyhour.Themajorityof911callsenteringthesystemproceedinthenormalmannerfromring-intopick-upbytheintakedispatcher.Onthesecalls,theCountycalculatesanswerdelayscorrectly.However,thereareasubstantialnumberofcallsinwhichthecallerdisconnectsbeforetheintakedispatcherhastheopportunitytoconnecttotheincomingline.Onthesecalls,theCountycalculatesanswerdelaysinawaythatcouldbeunfavorabletoBSO.Answerdelaysonthemajorityof911callsarecalculatedastheintervalfromwhenthecallisreadytobepresentedtowhentheintakedispatcherpicksup.Thisportionofthetallyofanswerdelaysiscorrect.Theproblemisencounteredonthesecondsetof911callsinwhichthecallerdisconnectsbeforetheintakedispatcherpicks-up.Inthesecases,theCountykeepstheanswerdelayclockrunninguntiltheintakedispatcherconnectstothedeadline.FITCHtakesthepositionthatitmakesnosensetoincrementtheanswerdelayclockpastthepointwherethereisnolongeranyoneontheincomingline.Regardlessofthetwomethodsofcalculationnotedabove,therequirementforhang-up911callstobeproperlyaddressedby911personnelismet.ItturnsoutthataFAILSturnintoPASSESwhentheanswerdelayclockisstoppeduponcallerhang-upasreflectedintheexamplebelow.DifferenceswerefoundbetweentheCounty’scalculationsandthosedonebyFITCHbecauseoftheduplicateworkstationIDsidentifiedabove.TheCountyhasindicatedthattheissuewassubsequentlyresolved,butafterthetimeperiodforwhichdatawasprovidedtoFITCH.Figure43.ComparisonofORCATandFITCHPass/FailDeterminationBasedonAnswerDelays
PSAP Date HourORCAT FITCH
<10sec calls % P/F P/F <10sec calls % Ranked90th%-tile[sec]
South 01/15/16 2000 60 69 87.0 FAIL PASS 63 69 91.3 9.42
Thetruthtablesrequiredtocalculateanswerdelayswithandwithoutcallerhang-upsaresurprisinglycomplex.Forillustrativepurposes,thetruthtableandcodingrequiredtoimplementthecalculationofallanswerdelaysinFITCH’sdatatablesarepresentedinAttachmentC,CalculationofAnswerDelays.
Utility of the P1 Target
TheapplicationoftheP1busyhourtargetasameasureoftheoverallintakeperformanceoftheBSOdispatchsystemisapoorrepresentationofSystemperformanceandlacksthestatisticalvaliditytomeaningfullyserveasaguideforbalancingcostsagainstperformance.Acertainlevelof“overstaffing”inadispatchcenterisrequiredtoabsorbtherandomsurgesthatareexpectedinanysystem.
FINDING:ThefailureofthecurrentPASS/FAILorYES/NOP1busyhourtargetis
thatitprovidesnoguidanceastothelevelofsurgecapacitythatisfiscally
responsibletobuildintothesystem.
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FITCH Assessment of Historic P1
Toprovideperspective,itisinstructivetoexaminethedetailsofBSO’shistoricanswerdelaysonpickupattheintakeworkstations.FromtheCounty’sNon-ComplianceReports,BSO’sCentralPSAPreceivedaFAILratingfor1600hoursonNovember7,2015.FITCHwenttotheCallDetailRecordsfromthetelephoneserverandcompliedthehistoricanswerdelayshour-by-hourforCentralPSAPonthisdate.Theseresultsarepresentedbelow.Figure44.AnswerDelaysatCentralPSAPon11/07/2015
Broward E911 Consolidated Communications SystemHistoric Answer Delays
FAIL 1600 Hours
([CIM] Call Connected) timestasmp - ([CIM] ANI: timestamp ) = Answer DelayExcept: Answer_Delay clock stops running when caller disconnectsas indicated by ([CIM] Caller Disconnected before Supervision) timestasmp
Central PSAP 2
00:0001:0002:0003:0004:0005:0006:0007:0008:0009:0010:0011:0012:0013:0014:0015:0016:0017:0018:0019:0020:0021:0022:0023:00
Hourof Day Σ Erlangs
Obs'd HrsOnTask
11/07/2015
18.08 4.70433.13 129.25
AverageErlangs
Phone Traffic
Avg Intakes per Hour
Ans Delay @ActiveWkStn's
Observed Staffing & Performance
Weighted% Immed Ans
WeightedAns Delay
446 1.42
90 %-tile [sec]OUT ADM 911
ADM 911OUT
1.311.38
1.591.431.401.491.581.501.371.381.391.41
1.37
1.391.341.401.31
1.311.581.661.601.371.281.33
1517
19202119212525232321
15
22212217
12101012192017
3.4893.109
5.6126.0257.3016.8734.9326.0086.0676.4845.6555.393
2.486
4.7175.1295.3016.312
2.9132.5821.9732.8293.2273.3025.175
8190
183168166176149188188187166173
63
121133148135
5460415784
118173
1719
38505455365546424642
15
38283531
1188
11353441
1113
21252930103122301118
6
10261522
411
120122630
Date PSAP Location ORCAT Assessment
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Fourpointsareimportantinthedatapresentedabove:1. BSOcontinuouslyadjuststhenumberofactiveworkstationsbyhour-of-day.BSOdoesNOTuse
constantintakestaffing.2. BSOadjustsitsintakestaffingwithgreatfinesseasdemonstratedbytheconsistencyoftheanswer
delaysinthefaceofwidelyvaryingdemandbyhour-of-day.3. BSOdidNOTFAILat1600hourswhenFITCHcalculatedanswerdelayssoastoproperlyaccountfor
callerhang-ups.4. Theanswerdelaysineachhour-ofdayaswellastheweightedanswerdelayacrossall24hoursof
thedayareallexemplary.ItisFITCH’sexperiencethatBSO’sanswerdelaysabovearemorethancomparabletootherhighperformingdispatchsystemsinNorthAmerica.BSO’sanswerdelayatthe90thpercentileis1.4seconds.ThismeansthatBSOintakedispatcherspickupthenextincomingcallbeforethesecondring,ninetimesoutoften.Toputthatinperspective,theacceptableanswerrateis90%at3ringsor10seconds
P2/P3 Intervals
ThesecondtargetthatisthesubjectofattentionfromBrowardstakeholdersgoesbythemoniker“P2/P3”.Inthefigureonpriorpagesabove,(RelationshipBetweenCDRandCADTimelines),theP2/P3intervalsextendsfromwhentheVIPERspilloverfromthetelephonyservertotheCADserveriscompletedatthe[Received]timestampuntiltheincidentisreleasedbytheintakedispatchertotheassignmentdispatcheratthe[Transmit]timestamp.TheP2/P3intervalcanalsobereferredtoastheprocessinginterval.ThistimeintervalisthesubjectofarecommendationfromtheNationalFireProtectionAssociation.19NFPA1221definestwodifferent‘buckets’ofcalltypes,andforeach‘bucket’hasdifferentperformancemeasures.ThespecificsareoutlinedintheAssociation’sdocument,butgenerallyallowsEMSandotherspecializedincidentswithalongercallprocessingtime.WithinthisanalysiswedefinethefirstgroupasEmergencyMedicalDispatch(EMD),intendedtoevaluateunderonesetofcriteriaeightspecificcalltypesincludingthosethatrequireEMD20.Thesecond‘bucket’isshownhereas“n-EMD”,andgenerallyincludesmoretypicalfirerelatedcalls.Unfortunately,theCADhasnomannerwithprecisionbywhichtoidentifywhichcallsbelonginwhich‘bucket’.Forthatreason,theCountyindicatestheymakeassumptionsandsimplyplaceallmedicallyrelatedcallsintotheEMDbucket,whileeverythingelsegoesintothen-EMDbucket.Thispracticeisnotcompletelyconsistentwiththeadoptedperformancemeasures,butFITCHwasunabletoidentifyabetterprocessforthisadditionaldatalimitation
19NFPA1221(2016).StandardfortheInstallation,MaintenanceandUseofEmergencyServicesCommunicationsSystems.20Theothercalltypesincludecallsrequiringlanguagetranslation;callsrequiringtheuseofaTTY/TDDdeviceoraudio/videorelayservices;callsofcriminalactivitythatrequireinformationvitaltoemergencyrespondersafetypriortodispatchingunits;hazardousmaterialincidents;technicalrescue;callsthatrequiredeterminingthelocationofthealarmduetoinsufficientinformation;andcallsreceivedbytextmessage.Inaggregate,theseothercalltypesrepresentasmallnumberofoccurrences.
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Treatment of [Received] Timestamps
CalculationoftheP2/P3intervaldependsonthe[Received]timestamp.This,ofcourse,presentsaproblembecauseonlyhalfofthe[Received]timestampscanbevalidatedintheCADforEMScalltypes(whichrepresentthelargestcategoryofcallsintheFirequeue).theCounty’sreportsappeartobeextremelyprecise.TheyreportpercentfailsintheP2/P3intervalsto±0.01%regardlessofthenumberofvalid[Received]timestampstheyactuallyhaveavailable.Whennumbersofavailablemeasureddataarerestricted,questionsregardingprecisionandconfidencemustbefaced.“Precision”istheintervalthatwillbrackettherightanswer:±10%,±1%,±0.01%?“Confidence”istheprobabilitythatrandomnoiseinthesamplesethasnotskewedtheanswer.Whenalimitedsetofdatagoesintoanaverage,theprecisionandconfidencelevelofthecalculatedaveragearenotamatterofopinion.Rather,theyarethesubjectsofspecificcalculations,asformallydescribedinthedocument“StandardPracticeforCalculatingSampleSizetoEstimate,WithSpecifiedPrecision,theAverageforaCharacteristicofaLotorProcess”,ASTM122-09e1.TheCountydoesnotshowthespecificprecisionsandconfidencesassociatedwiththeirreportedperformancemetrics.
Implications of the Missing [Received] Timestamps
Counter-intuitively,themissing[Received]timestampsposemoreofaproblemthantheonespresent.Themissing[Received]timestampserodethecredibilityoftheP2/P3intervalsthatcanbecalculatedfromthe[Received]timestampsthatareavailable.TheconvenientassumptionabouttheP2/P3intervals,ascalculatedbytheCounty,isthatthenumbersautomaticallyserveasametricforthesystemasawhole,thatthevariabilityintheP2/P3intervalsthattheycalculate,properlyreflectsthevariabilityinalltheP2/P3intervals,eventheonesnotabletobecalculated.Unfortunately,thisassumptionisnotnecessarilytrueandshouldnotcurrentlybereliedonasabasisforpolicydecisions.AgainreferringtoASTM122-09e1,forthepulledsub-lotofsamplestocorrectlyreflectthepropertiesofthefulllot,theprocessmustbeinastateofstatisticalcontrolwhereinthesub-lotofsamplesisinfluencedbyasinglesourceofvariability(asimposedbytheproductionprocess).Thisprocedurecannottreatmulti-levelsourcesofvariability.Thislimitationtakesusbacktothemissing[Received]timestamps.Tostartwith,wedonotfullyunderstandwhy/howthesetimestampsaremissing.Wedonotknowwhethertherewasaspecificbiasoperatingtoselectwhichtimestampswentmissing.ThefirstconsequenceisthatareversebiaswouldthenbeimposedontheP2/P3intervalscalculatedfromtheremainingtimestamps.ThesecondconsequenceisthatthecalculatedP2/P3timestampswouldbestatisticallybiasedandmaynotrepresentthepropertiesofthesystemasawhole.
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Preliminaryinvestigationofthewhy/howbehindthemissingtimestampsindicatesthatoperatorinterventionbytheintakedispatchersplaysamajorroleinmissingtimestamps.Thisisaproblem,ashumaninterventionisalmostguaranteedtobevariableandtherefore,statisticallybiased.Evenmoreconfounding,thedegreeofbiasisthenalmostguaranteedtobeoperatorspecific,therebyintroducingatimedependentvariabilitytothebias.
Credibility of P2/P3 Statistics
FITCHalsolearnedthattheCAD[Received]timestampsbecomecorruptedwhenevera911calltakerrebidsorasksthe911systemsoftwaretoverifyandupdateacaller’slocation–essentiallyoverwritingtheoriginaltimestamp.Fortunately,thevalidationprocessFITCHemployedessentiallymitigatesthatbias.Arguably,theoverwritingofthe[Received]timestampshouldbenefitBSOintheCounty’sreportedcompliance.Howeveroncerejectingtheserecordsthroughthevalidationprocess,FITCH’scalculationofperformanceisbetterthanthatcalculatedbytheCounty–indicatingthereislikelyotherunknownfactorsstillinfluencingthisperformancemetric.TheCountyindicatedtheyincludeallrecordswith[Received]timestampsinanabundanceofcaution,whileFITCHemployedavalidationprotocolthatexcludessomerecords.WhileFITCHisabletoreportsomeP2/P3performance–readersshouldremainmindfulofthestatisticallimitationsandproceduraldifferencesdiscussedabove.Thefiguresbelowsummarizetheanalysisoffire-rescueincidents–distinguishingthosethathavebeencharacterizedasEMDrelated,andthoselabeled“n-EMD”.Ofthetotal43,722recordsavailable,only21,292areconsideredvalidforuseinthisanalysis.Figure45:EMDP2/P3Statistics&Performance
Parameter Value
EMDCount 39,214[Rcvd]absent 11,198[Rcvd]present 28,016[Rcvd]notvalidated 7,013[Rcvd]validated 21,003[Rcvd]validated>165sec21 718[Rcvd]validated<166sec 20,285 50th%-tile 54.72sec Average 61.16sec StdDev ±27.47sec 90th%-tile 100.80sec 95th%-tile 121.33sec 99th%-tile 157.79secCompliance Count<91sec 17,496 %<91sec 86.30% Count<121sec 19,331 %<121sec 95.30%
21TheP2/P3intervalsforEMDCallTypesgreaterthan165secondswereassumedtobe“purposefullypending”andexcludedfromanalysis.
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Figure46:n-EMDP2/P3Statistics&Performance
Parameter Value
n-EMDCount 4,508[Rcvd]absent 3,155[Rcvd]present 1,353[Rcvd]notvalidated 289[Rcvd]validated 1,064[Rcvd]validated>180sec22 57[Rcvd]validated<181sec 1,007 50th%-tile 68.70sec Average 76.54sec StdDev ±33.16sec 80th%-tile 103.70sec 95th%-tile 147.00secCompliance Count<91sec 388 %<91sec 38.50% Count<121sec 831 %<121sec 82.50%
ForEMDcalltypes,actualperformancefellshortofthestatedbenchmarkby4%atboththe90thand99thpercentilecompliancetargets.Theimportantquestionforpolicymakersiswhatdoesthatshortcomingrepresentfromapracticalperspective.Thefigurebelowhighlightstheanswerbynotingtheactualperformancewouldrequireagoalofalmost101secondsinordertoreacha90thpercentilecompliance.Therefore,atthe90thpercentilethevariancebetweenactualperformancecomparedtothetargetisjustunder11seconds.While11secondsatthe90thpercentilemayseemsignificantitshouldbenotedthatthismaynotbetrue.ThemeasurementusedbytheCountyincludesallcalltypes,hotandcoldresponses.Responsetimehasalimitedoutcomeeffectonaverysmallsubgroupofcalls,namely,whatinEMDvernacularisreferredtoas“EchoandDelta”calls.Thissubsetrepresentsfewerthanaquarterofthecallsthatarebeingmeasured.Further,thissubsethasfewerquestionsatthecalltakingpointandisusuallysignificantlyfastertoprocessthanthelargergrouppfcalls.
22TheP2/P3intervalsfornon-EMDCallTypesgreaterthan180secondswereassumedtobe“purposefullypending”andexcludedfromanalysis
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Figure47.P2/P3PerformanceforEMDCalls–TargetversusActual
Notwithstandingthechallengesdescribedabovewiththe[Received]timestamps,theCountyhasindicatedtwoeffortsarealreadybeingundertaken.ThefirstisaCADsoftwarepatchthatwillpreventthe[Received]timestampfrombeingoverwrittenwhenacalltakerrebidsacall.ThisisexpectedtooccurwithinthecurrentCADsystem.ThesecondeffortwillarguablyfixtheoverallissuebyclearlyassociatingphonerecordswiththeproperCADrecord.ThatfixiscurrentlybeingworkedonaspartofthenewCADsystemdeployment.
Law Enforcement P2/P3
ItshouldbenotedthatstakeholderswereunabletoidentifyanynationalstandardsorresearchthatsupportstheBrowardlawenforcementgoalsofhandling90%ofPriority1and2callswithin45secondsand90%Priority3callswithin90seconds.Thesecallsrepresentthemostimportanttimesensitiveincidentsforlawenforcement,generallyconsidered‘in-progress’typeincidents.Atpresent,theCountyisnotreportingonlawenforcementP2/P3performance–andalsonoteworthy,nopolicechiefinterviewedbyFITCHraisedtheissueorcomplainedaboutthelackofreporting.
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AttheCounty’srequest,FITCHundertookanexaminationofP2/P3callprocessingtimeswithintheCityofPembrokePines.AccordingtothedataanalyzedbyBrowardCountyforNovemberandDecemberof2013,whilePembrokePineswasoperatingtheirowncenteronBrowardCounty’sCAD,performancewaswellbelowthetarget.ForPriority1and2calls,the45secondtargetwasmetlessthan1%ofthetime(0.79%)whilethePriority3callsmetthe90secondtargetonly12.78%ofthetime.WhenexaminingPriority1and2callsinPembrokePinesforNovemberandDecember2015,theperformanceincreasedtojust1.47%complianceforthe45secondtarget.Asnotedbelow,theperformancefortheentiresystemisconsistentlydismalcomparedtothebenchmarktarget.Figure48.LawP2/P3Statistics&Performance
Parameter Value
LAWallPriorities 136,595LAWallPrioritieswValidatedRcvdTimestamp 24,131PercentwithvalidatedRcvdandvalidP2/P3intervals 17.7%LAWwPriority1&2 10,030LAWwPriority1&2withvalidRcvdandvalidP2/P3intervals 5,244PercentagewithvalidatedRcvdandvalidP2/P3intervals 52.3%P2/P3ProcessingInterval Ranked50th%-tile 119.5sec Average 143.8sec Ranked90th%-tile 254.1sec Ranked95th%-tile 322.2sec
WithregardtolawenforcementP2/P3timesonly,therearenonationalrecommendationsonthismetric.Stakeholdersutilizedbestjudgment,butlackingdataappearedtohavemisjudgedthecapacityoftheSystemtoprocessthehighestlevelofcalls(Priority1and2)within45seconds.ThehistoricallawenforcementP2/P3performancereportedbytheCounty,andsimilarlydismalperformancecurrentlyfound,questiontheuseofa45-secondtarget.Infactonlyasinglestudycanbeidentifiedthatexamineslawenforcementcallprocessingtimes,publishedinlate2014.23Thatresearch,utilizingasimilarrankingschemataasinemergencymedicaldispatch(EMD),didnotevenconsidera45-secondbenchmark.Accordingly,thereisnobasistoassumea45-secondtargetisanachievableperformancestandardforlawenforcementcalls.
P3 Interval
ThedatafortheP3intervalisintheCAD,butitisnotbeingconsideredseparatelybytheBrowardsystemeventhoughitisavaliddatasource.P3whichfocusesonthattimefromwhenacalltakersendsanemergencyrequesttotheradiopositionuntiltheradiooperatordispatchestheappropriateunits.ThevalueofexaminingP3separatelyisthatitcanassistsystemmanagersinfocusingonwheretolook
23Warner,etal.(2014).CharacterizationofCallPrioritizationTimeinaPolicePriorityDispatch.AnnalsofEmergencyDispatch&Response2(2):17-23.
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forfurtherimprovements.Asshownbelow,firecallstake11secondsonaverageand22secondsatthe90th%-tiletoprocesstheP3timeinterval.Therefore,withupto90secondstoachieveP2andP3,thisinformationindicatesthegreateropportunityexistsinmorecloselyexaminingtheP2componentofcallprocessingtimes.Figure49.P3PerformanceStatistics
DisciplineAssignmentInterval,P3 PreviousNFPA
Seconds@50th%-tile Seconds@90th%-tile Second@90th%-tile
FIRE 11.0sec 22.2sec 60secLAW 45.6sec 68.4sec notapp
BSOgenerallyappearstodowellonLAWassignmentswhenevaluatingP3alone,althoughasnotedabove,therearenoformalrecommendationsforthisinterval.Aswithfirerescuecalls,theintervalsusedtocalculatethe90thpercentileforLAWassignmentshavebeenfilteredtomodifylongdurationoutliersinthisdataset.Mostofthetime,operationsinthedispatchcenterareinsulatedfromeventsinthefield,butnotalways.Eventsinthefieldcan“backup”intothedispatchoperations.ThisisknowntobeacommonoccurrenceinLAWassignments.Policedepartmentstypicallyhavemorecallsinthequeuethanavailableunits,thusoneoftheresponsibilitiesofthedispatchcenteristoholdlowerprioritycallswhilehigherprioritycallsareattendedto.Addingtothecomplexityisthatcallsinpoliceenvironmentsarefromtwosources:thefirstisincoming911callsandthesecondisself-initiatedcalls(trafficstops).ThisrealitymeansthatthedispatcherhastobemorefluidforLAWcallassignmentsthanforFire/EMS.So,forexample,thenextrequestforservicehitsthependingscreenattheassignmentworkstation.Theassignmentdispatcherhasalotgoingoninthefieldanddeterminesthatthenewcallisoflesserpriority.Thedispatcherthendecidestoputthisnextrequestonhold.Whenfieldactivitydecreases,thedispatcherreturnstotheholdingrequestandexecutesitsassignment.However,theP2/P3clockkeepsrunningthroughoutthisprocess,leadingtoaninflatedP2/P3processingintervalthatdoesnotreflecttheamountoftimeactuallyconsumedprocessingtheincident.
FINDING:TheP1andP3intervalscanbeaccuratelyevaluatedbasedoncurrent
dataintheCADandtelephonysystems.BSOperformswellforthesedispatch
intervals.TheP2intervalmustbecautiouslyevaluatedduetotechnologyanddata
limitations.
P4 Interval
ThedatafortheP4interval–thattimefromwhentheradiodispatcheralertsemergencyresponders,typicallyinthefirestation,untiltheyareresponding–wasreportedintheCADdataprovidedtoFITCH.Summaryinformationonthismetricisprovidedbelow.
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Figure50:ComparisonofP4Averagesand90thPercentiles(dataforNov-Dec2015)
Target
PerformanceCount Validated
RawCompliancesAverage
[sec]
90th%-tile
[sec]Actual
Count%
ChuteFIREResponse90%@80sec
6,620 6,620 3,051 46% 138.0sec 197.6sec
ChuteEMSResponse90%@60sec
37,102 37,102 13,787 43% 111.3sec 174.6sec
WhilenotpartoftheRegionalE911Systemperformance,itdoesimpactthecaller’sexperienceforpublicsafetyservice.Itisreportedheretoallowfordiscussionbystakeholders.
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MODELING CURRENT DISPATCH OPERATIONS
Rationale
ThebenefitofamodelofdispatchoperationsisthatitpermitsFITCH,aswellasstakeholders,toposequestionsthatotherwisecouldnotbeaddressedintherealworld.Computertimeisinexpensivecomparedtoconductingthesameexperimentsusingtherealstreamofincomingcalls,actualdispatchersandrealPSAPs.Themodelbecomesacost-effectiveandtimelytoolforpredictingthebehavioroftherealsystem.Ofcourse,thelimitationtothisapproachisthevalidityofthemodel.Itmustbeemphasizedthattheperformanceofadispatchsystemhastwodistinctcomponentsthataresotightlyintertwinedthatitiseasytoconfusethedifference.Thefirstcomponentisthelengthoftimeittakestoexecuteeachfunctionofthedispatchprocess.WithinBSOdispatch,theP3intervalisanexampleofthiskindofcomponent.Thesecondcomponenttoperformanceishowlongittakesbeforeadispatchercanbeginexecutingthenextrequestinthequeue.WithinBSOdispatch,theP1intervalisanexampleofthiskindofcomponent.
Models of Dispatch Operations
APCO RETAINS
APCORETAINSisastaffingestimatorandretentionratecalculatorproducedbytheAssociationofPublic-SafetyCommunicationsOfficials(APCO).TheRETAINStitlestandforResponsiveEffortstoAssureIntegralNeedsinStaffing.TheestimatorisarespectedtoolforjudgingstaffingneedsTheoutstandingbenefitofAPCORETAINSisthatincanbeimplementedusingdatathatisreasonablyaccessible,oftenfromhardcopyreportsthatalreadyexistinthesystem.Fromthisstartingpoint,APCORETAINScanbeusedtocreatealowlevelmodelofdispatchoperations.Inputsaresuppliedtothemodelasbroadaveragesandestimates.Forinstance,countsofeventsareusedassurrogatesfortheactualdurationsrequiredtoprocesseachspecificevent.Theoutputsprovideaballparkestimateofthestaffingrequiredtomakethedispatchprocesswork.Thelimitationtotheutilityoftheseoutputsisthattheyaresilentontheperformancetobeexpectedfromthesystem.APCORETAINSprovidesnoguidancetodecisionmakersfacingfinancialandpolicyquestionsregardinghowmuchperformancewillchangewhenthestaffingbeingcommittedtothesystemchanges.
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Erlang Analyses
AsnotedintheAPCORETAINSWorkbook:24Erlangformulasareconsideredthestandardforanyprocessthatrequiresanapplicationofqueuingtheory,suchasthenonlineararrivaltimesofincomingcallsinacallcenter.TheErlangformulasuseastatisticalsolutionthataddressestherandomnessofcallarrivaltime.
AgnerKrarupErlangwasaDanishmathematician,statistician,andengineerwhoinventedthefieldoftelephonenetworksanalysiswhileworkingfortheCopenhagenTelephoneCompanyfrom1908through1929.ThegoalofErlang’squeuinganalysesistodeterminehowmanyserviceprovidersshouldbemadeavailabletosatisfyusers,withoutoverprovisioning.Tomeetthisgoal,Mr.Erlanghadtoquantifythethree-corneredrelationshipbetweenrequestsforservice,numberofagents,andlatencyinthefigurebelow.Figure51.QueuingTheoryTriangle
TheconceptsandmathematicsintroducedbyMr.Erlanghavestoodthetestoftime.Inthemodernworld,thesemethodsareusedtoanalyzequeuingprocessesinsystemsasdiverseasshoppersusinggrocerystorecheckoutcashierstodatapacketswitchingthroughInternetroutersatmegahertzfrequencies.
Theassumptions,mathematics,andlimitationsofErlangqueuingtheory,asappliedtodispatchoperations,aretreatedingreaterdetailinAttachmentD,ErlangMathematics&Assumptions.
Work Stations
ThefirststepintheconstructionofanErlangmodeloftheBSOdispatchoperationsistoidentifywhichtypesofworkstationtoincludeinthemodel.ThisprocessisstraightforwardforBSOdispatchoperations.TherearethreePSAPlocations.AteachPSAPthereisagroupofintakeworkstations.Thisisthefirsttypeofworkstation.TherearealsoagroupofLAWassignmentandFIREassignmentworkstations.25Thesearethesecondandthirdtypesofworkstations.Theorganizationofworkflowsisdiagrammedbelow.
24APCORETAINSstaffingandRetentioninPublicSafetyCommunicationsCenters:EffectivePracticesGuideandStaffingWorkbook,page5,August2005.APCOInternational.25TheuseofFIREinthisreportreferstofiresuppressionandemergencymedicalservicesdispatchprocesses.
Requests
AgentsLatency
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Figure52.WorkflowsandWorkstationsintheBSODispatchSystem
Theroundedrectanglesabove,representtypesofworkstations.Thetextinsideeachroundedrectanglesrepresentsthefunctionsthatareexecutedatthattypeofworkstation.“Intake”referstothefunctionofdeterminingwhatistheemergencyandwhereisitlocated.“A&P”referstoassessmentofacuityandprioritizationofresponse.“PreAr”referstoprearrivalinstructionsonemergencymedicalincidentswithEcho-Deltadeterminants(lifethreatening).“FIREAssignment”isthefunctionsofidentifyingasuitableunitfortheresponseandnotificationofthatunit.“RadioSupport”referstoradiocommunicationwithunitsinthefieldonincidentsin-progress.“LAWAssignment”isthefunctionsofidentifyingasuitableunitfortheresponseandnotificationofthatunit.“RadioSupport”referstoradiocommunicationwithunitsinthefieldonincidentsin-progress.TheconsultantsrecognizethattheLAWandFIREAssignmentworkstationsineachPSAParefurthersubdividedbyagencydispatched,atleastonthearchitecturalplotplansofthePSAPs.ThislevelofgranularitycouldnotbeincorporatedintothemodelingbecausedataavailableintheCADcontainsnoidentifiersofwhichassignmentworkstationisphysicallyresponsibleforeachincidentrecordintheCAD.
Waiting Queues
Theconfigurationofworkstationsthatisusedintheregional911centersisreferredtoasa“TripleQueue”model.Thisnomenclaturereferstothethreewaitingqueuesthatoccurinthemodel.Awaitingqueueexistswhenaclientrequestsservicefromadispatcherataworkstation.Thelengthofthewaitingqueueisameasureofhowlongittakesbeforethedispatcherattheworkstationisabletobeginservicingthisnextrequestforservice.TherearetwointernalandoneexternalwaitingqueuesintheTripleQueueModel.Whenanexternalclient(911caller)requestsservicefromtheIntakeWorkstation,thewaitingqueueinfrontoftheIntake
Pre-Arrival Instructions only on EMS incidents with Echo-Delta determinants1
LAW RadioSupportAssign
FIRE RadioSupportAssign
ClearRequest Intake + A&P + PreAr1
LAW RadioSupportAssign
FIRE RadioSupportAssign
ClearRequest Intake + A&P + PreAr1
LAW RadioSupportAssign
FIRE RadioSupportAssign
ClearRequest Intake + A&P + PreAr1
North PSAP
Central PSAP
South PSAP
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workstationisreferredtoasthe“P1”intervalorthe“answerdelay”.WhentheIntakeWorkstationtransmitsanincidentrecordtotheAssignmentWorkstationforprocessing,thisactionisalsoarequestforservice,whereintheclienthasnowbecometheIntakeWorkstationsendingthecallfromthecalltakertotheradiodispatcher.ThewaitingqueueinfrontofeitherAssignmentWorkstationisreferredtoas“assignmentlatency”.
Definition of “Erlangs”
ThenextstepintheconstructionofanErlangmodeloftheBSOdispatchoperationsistoidentifytheworkloadsflowingacrosseachtypeofworkstation.Eachfunctionataworkstationrequiresadurationforitsexecution.Thesumofallthedurationsforallofthefunctionsbeingexecutedatatypeofworkstationistheworkloadflowingacrossthattypeofworkstation.Inqueuingtheory,workloadsaremeasuredin“Erlangs”.AnErlangissimplytheratioofthesummeddurationsofalltheactivitiesatatypeofworkstationperonehourontheclock.Inthemodelingthatfollows,bothErlangsandworkloadswillbeexpressedasdecimalhours.Forexample,aworkloaddurationof15minutes(00:15:00hh:mm:ss)willappearas0.250.Accountingforworkloadsmaysoundsimple,butinpractice,itisanextensivebookkeepingexercise.Thedurationsofalloftheactivitiesateachtypeofworkstationshavetobesummedforeachhour-of-dayforeachday-of-year.TheenormityofalltheseaccountingsisthebarrierthatpreventscasualusersfromattemptingErlanganalysesofqueuingprocessesincomplexsituationssuchasadispatchoperation.
Quantitation of Workloads
Primary Sources
AdetaileddiscussionofworkloadsatworkstationsispresentedinAttachmentE,QuantitationofWorkloads.ThedurationsoffunctionsbeingexecutedattheIntakeWorkstationswereobtainedfromtwoprimarysources:theCallDetailRecordsforincomingcallsfromtheIntradoVIPERtelephonyserverandthelogofoutgoingcalls.DataexportsfromthesesourceswereincorporatedintotheFITCHTelephonedatatableandtheOutgoingPhoneLogdatatable.AsamplerecordfromtheFITCHtelephonedatatableandfromtheOutgoingPhoneLogarepresentedinAttachmentF,SamplePhoneRecord.ThedurationsoffunctionsbeingexecutedattheAssignmentWorkstationswereobtainedfromtwoprimarysources:theexportofdatafieldsfromtheComputerAidedDispatchsystemandthe611-pagePDFyear-endsummaryreporttitled“TalkGroupsatZoneSummary150101–151231”.DatafromthesesourceswasincorporatedintoFITCH’sLAWIncidentdatatable,theFIREIncidentdatatable,andtheRadioTrafficdatatable.SamplerecordsfromthesedatatablesarepresentedinAttachmentG,SampleRecordsfromFireCAD,LAWCADandRadioStatistics.
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Summation Database by Hour-of-Year
ThenextstepinthemodelingprocesswastocreatetwoSummationdatabases,eachonewith8,760records,onerecordforeachhouroftheyear.ThepurposeoftheSummationdatabaseswastoserveasarepositoryfordatathathadbeenaggregatedbyhour-of-year.Specialtyalgorithmswerewrittenthatqueriedtheprimarydatatablesbyhourofyear,fetchedandsummedtheactivitiesoccurringinthathour,andwrotetheresultsintothecorrespondingrecordforthatparticularhouroftheyearintheSummationdatabase.ASummationdatabasewaspreparedthataggregateddurationsfromthetelephoneCallDetailRecordsaswellastheOutgoingPhoneLog.AsamplerecordfromthisSummationdatabaseispresentedbelow.AseparateSummationdatabasewaspreparedthataggregateddurationsfromtheFIRE,LAW,andRadioTrafficdatatables.SamplerecordsfromtheSummationdatabasesarepresentedbelow.Figure53.RecordfromSummationDatabaseofTelephoneTraffic
Broward E911 Consolidated Communications SystemPhone Records by Hour of Year
68911 Trunks 7,246.5159ADM / AIM 7,313.6416Outgoing 633.91
143Totals 15,194.06
12/28/2015
Date
12 28 Mon 2 9 8,674
Mo Day DayName
Dayof Wk
Hourof Yr
Hr ofDay
Count Processing Σ [sec]Central
22911 Trunks 1,531.4153ADM / AIM 6,380.67
9Outgoing 1,428.5084Totals 9,340.58
North
33911 Trunks 2,680.2761ADM / AIM 7,674.9217Outgoing 1,132.05
111Totals 11,487.24
South
338Totals 36,021.88
BrowardCounty
Count Processing Σ [sec]
Count Processing Σ [sec]
Count Processing Σ [sec]
123 11,458.19911 Trunks
173 21,369.2342 3,194.46
ADM / AIM
Outgoing
1,378
RecordNumber
1.18
1.271.42
0.92
1.081.13
1.16
1.451.62
1.13
1.331.62
16Active Wkstat'n
10Active Wkstat'n
13Active Wkstat'n
39Active Wkstat'n
0.201.44
0.331.35
0.331.59
0.281.49
[sec]
Ranked 95th %-tile
Average
± Std Dev
911 Ans Delay
Predicted 90th %-tile
[sec]
Ranked 95th %-tile
Average
Ranked 90th %-tile
± Std Dev
911 Ans Delay
Predicted 90th %-tile
[sec]
Ranked 95th %-tile
Average
Ranked 90th %-tile
± Std Dev
911 Ans Delay
Predicted 90th %-tile
[sec]
Ranked 95th %-tile
Average
Ranked 90th %-tile
± Std Dev
911 Ans Delay
Predicted 90th %-tile
Ranked 90th %-tile
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Figure54.RecordfromSummationDatabaseofCADandRadioTraffic
Averaged Databases by Hour-of-Day
ThenextstepwastocreatetwoAverageddatabases,eachcontaining24records,onerecordforeachhour-day.TheSummationdatabaseswerequeriedbyhour-of-day.Eachactivityinthathour-of-daywasaveragedoverallthedaysoftheyear,andtheresultswrittenintothecorrespondingrecordintheAverageddatabase.SamplesrecordsfromtheAverageddatabasesarepresentedbelow.
Broward E911 Consolidated Communications SystemCAD Records by Hour of Year
40Law 3,415
Fire
432.63 3,880.87
01/01/2015
Date
1 1 Thu 5 23 24
Mo Day DayName
Dayof Wk
Hourof Yr
Hr ofDay
CAD Count Assgn Workld[sec]
CentralPSAP
Xmit/Rcv'sCount
Radio Workld[sec]
11 100 117.84 999.42
19Law 757
Fire
217.70 1,982.38
CAD CountNorthPSAP
6 74 70.86 579.65
20Law 1,044
Fire
223.48 2,023.87
CAD CountSouthPSAP
7 68 83.52 732.99
79Law 5,215
Fire
873.81 7,887.12
CAD CountBrowardCounty
24 242 272.22 2,312.06
24
RecordNumber
Assgn Workld[sec]
Assgn Workld[sec]
Assgn Workld[sec]
Xmit/Rcv'sCount
Xmit/Rcv'sCount
Xmit/Rcv'sCount
Radio Workld[sec]
Radio Workld[sec]
Radio Workld[sec]
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Figure55.RecordfromAveragedDatabaseofTelephoneTraffic
Broward E911 Consolidated Communications SystemCall Details by Hour of Day
12/28/2015
Date
12 28 Mon 2 9 8,674
Mo Day DayName
Dayof Wk
Hourof Yr
Hr ofDay
90.86 45.52 9,064.63 4,232.1235.49 18.93 4,293.97 2,494.0918.63 10.35 872.81 607.96144.97 68.88 14,231.41 6,301.04
911 TrunksADM / AIMOutgoing
Totals
Count ProcessingCentral
avg ± std dev avg ± std dev
29.74 15.78 2,906.29 1,438.2136.25 19.76 4,840.51 2,671.118.75 5.96 431.27 495.8674.74 36.03 8,178.06 3,720.07
911 TrunksADM / AIMOutgoing
Totals
Count ProcessingNorth
avg ± std dev avg ± std dev
32.81 22.02 3,567.31 2,336.7432.33 22.23 4,311.92 3,022.0011.50 8.13 501.05 440.8576.63 46.61 8,380.28 5,125.83
911 TrunksADM / AIMOutgoing
Totals
Count ProcessingSouth
avg ± std dev avg ± std dev
296.34 134.66 30,789.75 12,983.64Totals
Count Processing
avg ± std dev avg ± std dev
BrowardCounty
153.40 69.31 15,538.23 6,082.26104.07 54.81 13,446.39 7,255.7138.87 19.67 1,805.13 1,044.79
911 TrunksADM / AIMOutgoing
15.58 4.29Intake WrkStn
10.89 2.56Intake WrkStn
10.87 3.83Intake WrkStn
36.00 9.01Intake WrkStn
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Figure56.RecordfromAveragedDatabaseofCADandRadioTraffic
Broward E911 Consolidated Communications SystemCAD Records by Hour of Day
37.00Law
2,677.75
Fire
353.00 3,159.42
01/01/2015
Date
1 1 Thu 5 23 24
Mo Day DayName
Dayof Wk
Hourof Yr
Hr ofDay
CAD CountCentralPSAP
11.96 147.51 130.68 1,100.30
avg
± sd 8.84 824.76 94.64 844.43
3.67 73.72 40.23 338.91
avg
± sd
18.02Law
1,030.33
Fire
204.19 1,859.55
CAD CountNorthPSAP
5.40 78.74 64.05 517.07
avg
± sd
avg
± sd
5.77 478.77 65.05 592.38
2.59 55.53 30.73 247.98
28.82Law
1,498.91
Fire
266.46 2,629.78
CAD CountSouthPSAP
7.10 91.21 86.25 767.82
avg
± sd
avg
± sd
8.36 639.70 77.70 761.26
2.71 48.78 33.03 294.21
83.85Law
5,206.99
Fire
823.65 7,648.75
CAD Count
24.47 317.45 280.99 2,385.19
avg
± sd
avg
± sd
19.21 1,565.22 193.43 1,793.53
5.82 116.30 66.95 567.58
BrowardCounty
Assgn Workld[sec]
Xmit/Rcv'sCount
Radio Workld[sec]
Assgn Workld[sec]
Xmit/Rcv'sCount
Radio Workld[sec]
Assgn Workld[sec]
Xmit/Rcv'sCount
Radio Workld[sec]
Assgn Workld[sec]
Xmit/Rcv'sCount
Radio Workld[sec]
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Erlang Modeling
Erlang Tables
AfterthetwoAveragedbyhour-of-daydatabaseshavebeenprepared,itisnecessarytocreatethefinaldatabasetorecordtheresultsoftheErlangmodels.IntheErlangdatabase,eachrecordisreferredtoasanErlangTableandrepresentsthehour-by-hourperformanceofasingletypeofworkstation.AcompletemodelofdispatchoperationsrequiresoneErlangTableforeachtypeofworkstationthatcomprisesthemodel.FromthewayBSOdispatchoperationsarecurrentlyorganized,acompletemodelwillrequirenineErlangTablesbecausethereareninetypeofworkstationspresent.EachErlangTableisanhour-by-hourcompilationtheeventcountsimpingingonaworkstationaswellasthesumofthedurationsrequiredtoprocesstheseevents.Thus,anErlangTableiscomprisedof24linesofdatafields,onelineperhour-of-day.TheeventcountsanddurationsareretrievedfromtheAverageddatabasesandwrittenbacktothecorrecthourintheErlangTable.ThesesamedataarealsopassedtoanalgorithmthatexecutestheErlangprobabilitycalculation.Thestatisticsfromthiscalculationarethenwrittentothecorrespondinghour.
Current BSO Staffing
InordertoconductanErlangmodelofcurrentoperations,itisnecessarytoknowhowmanydispatcherswereactivelyondutyattheirworkstationineachhourofthedayfortheperiodbeingmodeled.FITCHwasnotprovideddutyrostersthatcontainedthisdetailedlevelofdetailfor2015.TheworkaroundwastorelyonBSO’scallanalysisreportsfor2015,inwhichstaffingattheworkstationsattheCentral,North,andSouthPSAPswerereportedbyhour-of-day,onaverage.26
Model of Central Intake Workstation
ThefigurebelowpresentstheErlangTableforthemodeloftheIntakeWorkstationattheCentralPSAPasstaffedusingthehourlydeploymentofdispatchersasindicatedinthedocumentPSAPCALLANALYSISNOVEMBER2015.xls.
26BrowardCountyDocument:PSAPCallAnalysis,January2015.xlsthroughPSAPCallAnalysisDecember2015.xls.
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Figure57.ErlangModelofCentralIntake
Thereareeightcolumnsinthefigureabove.Thecontentsofthesecolumnsisasfollows:
§ Column1presentsthehourofday.§ Column2talliestheaveragecountofcallscominginonthe911trunks.§ Column3talliestheaveragecountofcallscominginontheADMandAIMtrunks.§ Column4talliestheaveragecountofoutgoingcalls.
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§ Column5talliesthetotalErlangsofworkloadflowingacrosstheCentralIntakeWorkstation.TheErlangsarethetotalofthedurationsrequiredtoprocessthe911incidents,theADMandAIMincidents,andtheoutgoingcalls.
§ Column6presentsthenumberofdispatchersactivelyondutyattheirworkstations(OnTask).§ Column7presentstheprobabilitythatthenextrequestforservicewillbeimmediatelyansweredby
adispatcher.§ Column8presentsthemaximumanswerdelayatthe95thpercentileexperiencedinthathourofday.
The7.10secondsappearingatthebottomofthecolumnofanswerdelaysisthe“weightedaverage”answerdelayforthewhole24hours.Theanswerdelayineachhour-of-dayisweightedbytheincidentcountinthathour,andtheweightedaverageforthewholedaycalculated.TheresultsofthisErlangmodelpresentacuriousresult.Theweightedaverageanswerdelayof7.10secondsatthe90thpercentileisextremelydivergentfromtheanswerdelayof1.42secondatthe90thpercentilethatwasobtainedbyreferringtothecallrecordsintheprimaryCDRdatatableandpresentedinFigure9(AnswerDelaysatCentralPSAPon11/07/2015)inpriorsectionsofthisreport.ThisdiscrepancyissoseverethattheconsultantsconcludethatBSO’sactualdeploymentofintakedispatchersissubstantiallyhigherthanindicatedinthedocumentPSAPCALLANALYSISNOVEMBER2015.xls.TheconsultantsemployedareverseErlanganalysistohoneinontheactualdeploymentofintakedispatchersusedbyBSO.Theapproachwastorunthemodelagain,retainingalloftheworkloadfromthehistoricrecord,butadjustingthedeploymentofdispatchersOnTaskuntiltheweightedaverageanswerdelaycamedownintotherangeof1.42seconds.Theresultofthisapproachispresentedbelow.
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Figure58.ErlangModelCentralIntakeAdjusted
Broward E911 Consolidated Communications SystemWorkstation Performance by Hour-of-Day
ImmediateAnswer [ % ]
766665689
101111121212
13131412111010
9
13
94.3593.6696.6098.0098.9896.0697.7397.0196.3896.5897.0196.0497.4197.4697.07
98.5497.9298.2797.8197.6696.9998.0197.00
97.97
Central Intake workstations staffed so as to reproduce a 1.42 second weighted average answer delay.
Central Intake 1
63.7650.9640.5034.9231.5431.4042.0568.0584.9792.39
101.73
117.60124.32130.46132.68132.88138.77145.08125.20110.58102.88
90.1575.87
2.9782.4982.1141.8761.6331.6791.9293.0763.7494.2684.728
5.1835.1665.2925.5595.3165.5796.0125.0474.5354.1663.8853.613
00:0001:0002:0003:0004:0005:0006:0007:0008:0009:0010:0011:0012:0013:0014:0015:0016:0017:0018:0019:0020:0021:0022:0023:00
111.80 4.996
Hourof Day Σ Erlangs
21.3718.0914.1212.6711.8811.5317.2429.5737.0243.1550.92
52.0152.5953.9757.7550.1550.6750.7742.3533.7829.7128.5528.37
53.43
97.25
Req'd HrsOnTask
13.4810.82
8.507.476.886.828.87
15.6619.3822.0124.38
24.8426.2627.5526.0227.2425.0724.2222.2221.3619.5417.2115.95
25.27
Triple PSAP2015Year Dispatch Model Workstation Name
90.86 3.95335.49 18.63
AverageErlangs
Hourly Averages
4.43
Ans Delay @
5.933.071.730.794.181.651.721.911.691.331.811.060.991.140.730.500.760.620.881.041.480.971.75
OnTask
Workstation Staffing & Performance
Weighted% Immed Ans
WeightedAns Delay
232 1.43
95 %-tile [sec]911 ADM Out
ADM Out911
0.00Surge
σ+Surge
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Thedifferenceinstaffingbetweentheabovefiguresisstriking.InFigure57,BSOdeployed198dispatcherhoursOnTask.Figure58containsthenumberofdispatcherhourOnTaskrequiredtoreproducetheanswerdelaystakenfromthehistoricrecord.ThenumberofdispatcherhoursOnTaskincreasedfromtheoriginal198hoursto232hours,a17%increase.Theconsultanthasnorationalizationforwhythisoccurred.BSO’sdeploymentofdispatchersaboveneedstobeputintoperspective,asjudgedagainstotherhighperformingdispatchsystems.Achieving7.10secondsatthe90thpercentileweightedover24hoursatanintakeworkstationisaveryrespectablelevelofperformance.Addingadditionaldispatcherstotaketheanswerdelaydownto1.42secondatthe90thpercentilemustbeviewedasoverstaffing.
FINDING:BSOcurrentperformanceindicatesoverstaffinginCallTakerpositions
basedonErlangmodeling.
Model of Central FIRE Assignment Workstation
ThedocumentPSAPCALLANALYSISNOVEMBER2015.xlsalsospecifiedthestaffingattheCentralFIREAssignmentworkstation.InthiscaseBSOspecifiedaconstantlevelofstaffingas5dispatchersineachhourofday.TheErlangmodelforthisdeploymentofdispatcherattheCentralFIREAssignmentworkstationispresentedbelow.Theanswerdelaysexhibitedbythisdeploymentofdispatchersare0.00secondsacrosstheboard.Theseanswerdelaysarecompletely“offthecharts”.Inordertoplacethisdeploymentofdispatchersintoperspective,theconsultantsranasecondErlangmodeloftheCentralFIREAssignmentworkstationinwhichdeploymentsofdispatcherswereadjusteddownwardtobringanswerdelayintoarespectableandrealisticrange.Theresultofthismodelispresentedbelow.
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Figure59.ErlangModelCentralFIREAssignmentWorkstationBSO
Broward E911 Consolidated Communications SystemWorkstation Performance by Hour-of-Day
ImmediateAnswer [ % ]
555555555555555
55555555
5
100.00100.00100.00100.00100.00100.00100.00100.00
99.9999.9899.9799.9799.9799.9799.97
99.9799.9799.9799.9899.9899.9999.99
100.00
99.97
Central FIRE Assignment workstations staffed to BSO specs as documented inPSAP CALL ANALYSIS NOVEMBER 2015.xls
Central Assign FIRE 6
9.968.848.057.446.937.328.69
11.8515.0017.1418.79
19.0118.6818.5519.1418.3718.7218.5716.9616.3115.4513.9311.96
0.2870.2550.2320.2140.1990.2110.2520.3420.4360.4970.547
0.5550.5460.5440.5680.5430.5550.5500.5020.4790.4540.4080.347
00:0001:0002:0003:0004:0005:0006:0007:0008:0009:0010:0011:0012:0013:0014:0015:0016:0017:0018:0019:0020:0021:0022:0023:00
18.73 0.546
Hourof Day Σ Erlangs
99.98
Req'd HrsOnTask
108.5796.5687.7481.1575.5179.9994.39
129.07163.64186.62204.97
207.54203.84202.36208.99200.30204.37202.47185.08178.08168.45152.07130.68
204.29
Triple PSAP2015Year Dispatch Model Workstation Name
14.35 0.4190.00 156.53
AverageErlangs
Hourly Averages
Hourly Averages
0.00
Ans Delay @
0.000.000.000.000.000.000.000.000.000.000.000.000.000.000.000.000.000.000.000.000.000.000.00
OnTask
Workstation Staffing & Performance
Weighted% Immed Ans
WeightedAns Delay
120 0.00
95 %-tile [sec]FIRE LAW Radio
LAW RadioFIRE
0.00Surge
σ+Surge
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Figure60.ErlangModelCentralFIREAssignmentsWorkstation
Broward E911 Consolidated Communications SystemWorkstation Performance by Hour-of-Day
ImmediateAnswer [ % ]
111111122222222
22222221
2
71.2874.5576.8078.6080.1578.8674.7895.2392.7790.9989.5089.5289.2589.5189.59
89.6289.2589.4190.8591.5292.2693.5365.34
88.85
Central FIRE Assignment workstations staffed to FITCH specifications
Central Assign FIRE 6
9.968.848.057.446.937.328.69
11.8515.0017.1418.79
19.0118.6818.5519.1418.3718.7218.5716.9616.3115.4513.9311.96
0.2870.2550.2320.2140.1990.2110.2520.3420.4360.4970.547
0.5550.5460.5440.5680.5430.5550.5500.5020.4790.4540.4080.347
00:0001:0002:0003:0004:0005:0006:0007:0008:0009:0010:0011:0012:0013:0014:0015:0016:0017:0018:0019:0020:0021:0022:0023:00
18.73 0.546
Hourof Day Σ Erlangs
87.24
Req'd HrsOnTask
108.5796.5687.7481.1575.5179.9994.39
129.07163.64186.62204.97
207.54203.84202.36208.99200.30204.37202.47185.08178.08168.45152.07130.68
204.29
Triple PSAP2015Year Dispatch Model Workstation Name
14.35 0.4190.00 156.53
AverageErlangs
Hourly Averages
Hourly Averages
10.22
Ans Delay @
8.637.666.886.246.798.630.731.181.531.851.851.901.851.842.031.851.941.901.591.441.291.05
13.48
OnTask
Workstation Staffing & Performance
Weighted% Immed Ans
WeightedAns Delay
40 3.12
95 %-tile [sec]FIRE LAW Radio
LAW RadioFIRE
0.00Surge
σ+Surge
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Achievinga3.12secondlatencyatthe95%weightedover24hoursisarespectablelevelofperformanceforanassignmentworkstation.Thesignificanttake-awayfromthismodelisthatarespectableleveloflatencycanbeattainedusingonly40dispatcherhoursOnTask.ThisisonethirddispatcherhoursthatBSOallocatestothisworkstation.Again,BSO’sallocationmustbeviewedasoverstaffing.
FINDING:BSO’scurrentperformanceindicatedoverstaffinginFIREAssignment
positionsbasedonErlangmodeling.
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DISPATCH OPERATIONS MODELS — OPTIONS Allcommunicationscentersthatdispatchemergencyservicesmustexecutefourfunctionsintheconductoftheiroperations.Thesefunctionsarediagrammedbelow.Figure61.FunctionsRequiredInAllEmergencyServicesDispatchOperations
Intheabovediagram,“Intake”collectsthebasicinformation:Whatisthechiefcomplaint?Whereistheincidentlocated?“Processing”comprisesanAssessmentofAcuityandaPrioritizationofresponse,“A&P”.Theincidentisthentransferredtoan“Assignment”queuewhereunit(s)arechosentomaketheresponseandtheunit(s)notified.Thelastfunctioninthesequenceis“RadioSupport”forunitsrunningincidentsin-progress.Thedifferencebetweenvariousmodelsofdispatchoperationsboilsdowntowhichofthedispatchpersonnelexecutewhichofthefourfunctions.Inmanymodels,asingledispatchermaybetaskedwithexecutingmorethanoneofthesefunctions.PartofFITCH’scharterinthisprojectwastoproposechangestotheconductofdispatchoperationsthatmayleadtoimprovedefficiency.FITCH’sproposedmodelsofdispatchoperationswillbereferredtoasOption0,Option1,andOption2.Option0issonamedbecauseitincludesnochangestowayworkloadsandworkstationsarecurrentlystructuredinthePSAPs.ThequantitationoftheworkloadsusedinthefollowingmodelsisdescribedinAttachmentE,QuantitationofWorkloads.
Performance Targets
BoththeNationalEmergencyNumberAssociation,NENA,andtheNationalFireProtectionAssociation,NFPA,makerecommendationsconcerningtheconductofoperationsattheIntakeworkstations.Asdiscussedearlierinthisreport,theNENArecommendationisnotappropriatefortheBrowardsystembecauseitusesvariablestaffingbyhour-of-day.NENAisapplicableonlytosystemsusingconstantstaffingatallhouroftheday.ThisleavesNFPAastheapplicablerecommendation.NFPA1221,Section7.4.1,recommendsthattheanswerdelayattheIntakeworkstationsshouldnotexceed15secondsatthe95thpercentile.
0:00 T1 T2 T3 T8
Pickup; Chief Complaint
Assess Acuity; Set Priority
To Assignment Que
Unit Notified
Call Closed
ProcessingIntake Assignment Radio Support
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FITCHconsidersNFPA1221tobean“idealistic”recommendationbecauseitisincompleteontwoimportantpoints.
§ First,NFPA1221doesnotclearlyspecifywhattimeintervalistobesampledtodetermine
compliancewiththe15second@95th%-tilerecommendation.§ Second,NFPA1221issilentonwhatshouldhappenatthedownstreamworkstationsthatcomprise
theremainderofthedispatchfunctions.
Inordertomodeldispatchoperations,FITCHdeveloped“OperationalTargets”thataddressedthedeficienciesofNFPA1221andareapplicableintherealworld.BrowardisauniquecaseinFITCH’sexperienceinthattheexistingsystemalreadyperformstoveryhighstandards.Infact,theexistingsystemcanbesaidto“overperform”andcanbesaidtobeoverprovisionedwithstaff.Howthiscameaboutisdiscussedinearliersectionsofthisreport.Thecurrentstaffinginthesystemissuchthatveryexpensiveincrementsofstaffinghaveledtoverysmalladditionalincrementsindispatchperformance,andhaveledtonodiscernibleimprovementtooutcomesinthefield.Giventhisuniqueenvironment,FITCHselectedoperationtargetsfortheBrowardsystemthat“dialback”dispatchperformancetoalevelthatisinbetterbalancewithfieldoutcomes.Thecurrentanswerdelayattheintakeworkstationsaveragedoveralltwenty-fourhoursofthedayis1.42secondsatthe95thpercentile.Bywayofcomparison,acrossNorthAmericaanintakeanswerdelayof15secondsatthe95thpercentileistakenasadistinguishingcharacteristicofahighperformingdispatchsystem.Withthesedataasbackground,FITCHdecidedto“dialback”theanswerdelayattheintakeworkstationsto6secondsatthe95thpercentile.Whilethisisslowerthancurrentperformance,itisstilltwoandhalftimesfasterthanthenationaltargetforahighperformingdispatchsystem.
Performance Targets for Modelling
Measurementsofperformanceattheworkstationsagainstthenewoperationaltargetsrequiresthreecalculationstepsandapplicationoftwocriteria:
IntakeWorkstations:
Answerdelaysarecalculatedforeachhour-of-dayatthe95thpercentile.Hourlyanswerdelaysareweightedbytheeventcountineachhour.Theweightedaverageanswerdelayiscalculatedoverthewhole24hours.FirstPerformanceCriteria
Weightedaverageanswerdelay(over24hours)<6seconds@95thpercentile.
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SecondPerformanceCriteria
Answerdelayinanysinglehour<2X(6seconds@95th%-tile)
AssignmentWorkstations:
Latenciesarecalculatedforeachhour-of-dayatthe95thpercentile.Hourlylatenciesareweightedbytheeventcountineachhour.Theweightedaveragelatencyiscalculatedoverthewhole24hours.FirstPerformanceCriteria
Weightedaveragelatency(over24hours)<[email protected]
Latencyinanysinglehour<2X(6seconds@95th%-tile)
FRmsrRadioWorkstation
LatencyattheFRmsrRadioworkstationinOption2isaspecialcase.Thisworkstationhandlesradiosupportforincidentsrequiringmulti-stationresponses.Thisworkstationmaybeotherwisereferredtoasatacticalsupportworkstation.Theconsultantassumedthatthecrewswouldneednotacticalsupportwhiletheywereloadingtotheirapparatus.ChutetimeintheBrowardsystemonmulti-stationresponseincidentsaverages02minutes15seconds(02:15).Consequently,latencyattheFRmsrRadioworkstationwasdesignedtoaverage02:15orless.27
Forsystemsthatexhibitrandomdistributionsofresponsetimes(normaldistributions),2.907isthefactorthatconverts95thpercentilesto50thpercentilesandviceversa.Therefore,latencyof(6.00sec@95th%-tile)=Latency(2.06sec@50th%-tile).
Application to Dispatch Operational Model/Options
In Option 0 and Option 1
ThefirststepintheconstructionofdispatchmodelsistocollecttheaveragesworkloadsflowingacrosseachworkstationasdescribedinAttachmentE,QuantitationofWorkloads.FITCHthenincrementedtheseaverageworkloadsineveryhourofdaybythesurgeinthatparticularhourthathitsthesystemonedayoutoften.Surgesaremeasuredinunitsofstandarddeviationsrepresentedbythesymbol“σ”.ThemethodsusedtotreatsurgesinthisreportarepresentedinAttachmentH,CalculationofSurges.
27FRradiosupportfunctionshavebeenspecializedbasedonwhethertheincidentrequireasinglestationresponse(ssr),oramulti-stationresponse(msr).
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Withthe+1.28σsurgeaddedtoeveryhour-of-day,thenumbersofdispatchersOnDutywasempiricallyadjustedoverthewhole24hoursuntilthecalculatedanswerdelaysorlatenciesconformedtothenewoperationaltargets.Thisnumberofdispatcherswasmaintainedandtheworkloadswerereturnedtotheiraveragevalues.ThetablesinAttachmentI,ErlangTablesofWorkstations,reflectoperationsofthesystemunderaverageconditionsofworkload,butwiththeenhancednumberofdispatcherHours-OnTask.Thisapproachtosurgecapacitywasacompromise,inanattempttodesignarobustdispatchsystemwithoutexcessiveoverprovisioningofdispatchers.Itmustbeemphasizedthata+1.28σsurgeineveryhour-of-day,backtoback,isaveryrareevent.Theincreaseinanswerdelaysandlatenciesongoingfromaverageworkload,0.00σ,toa+1.28σsurgeispresentedbelow.Figure62.ChangesinLatenciesfor+1.28σSurgesinAllHours-of-Day
Workstation
AnswerDelay&Latency
Weightedover24-Hours
[sec]@90th%-tile
0.00σ +1.28σ1
CentralIntake 2.58 5.73NorthIntake 2.12 5.37SouthIntake 2.03 9.35ConsolidatedIntake 5.32 6.00CentralLAWAssign&[email protected] 3.22 6.48CentralFIREAssign&[email protected] 2.40 4.66NorthLAWAssign&[email protected] 2.69 6.09NorthFIREAssign&[email protected] 2.67 5.18SouthLAWAssign&[email protected] 2.43 5.55SouthFIREAssign&[email protected] 1.95 4.01ConsolidatedFIREGatekeeper 1.64 [email protected] 136.06 [email protected] 1.35 2.08
1Asurgeof+1.28σwasappliedatall24hoursoftheday.
In Option 2
TheanswerdelaysandlatenciesforallworkstationsinOption2conformtotherestrictionsdescribedforOption0andOption1,excepttheFIREtacRadioworkstation.ThespecializedfunctionoftheFIRETacRadioworkstationpermitslatencyatthisworkstationtobemultipleminuteswithoutanynegativeimpactondispatchoperations.ThefunctionoftheFIREtacdispatcheristoexclusivelymonitorafirerelatedincidentin-progressandtointerveneasneeded.TheFiretacdispatcherisalertedatthesametimetherespondingunitsarealerted.IftheFIREtacdispatcherisdelayedforseveralminutesbeforetheycanbeginpayingexclusiveattentiontotheincident,itdoesnotmatter.TheaverageintervalrequiredintheBrowardsystemforfirecrewstoloadtotheirapparatusis00:02:19[hh:mm:ss].Afirecrewdoesnotneedtacticalradiosupportwhentheyarestillinquartersandhavenotstartedrollingenroute.
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ThedispatcherHours-OnTaskattheFIREtacRadioworkstationwereadjustedsothatthelatencyreflectedthisreality.
Impact of Surges
Thedatabelowwasassembledtoillustratetheimpactofsurgesinthesystem.Thistablereportshow95thpercentileanswerdelaysattheCentralPSAPIntakeworkstationsat1800hourschangeinresponsetochangesinsurgesaswellasdispatchersOnDuty.Threelevelsofsurgesareincludedinthetable:surgesthatappearonedayinten;onedayinthirty;andonedayinonehundred.Theincidentcountsassociatedwiththesesurgesareincludedinthetable.Figure63.DependenceofAnswerDelaysonSurgesandDispatchersOnDutyforCentralIntakeat1800Hours
Surge
0.00σ +1.28σ +1.84σ +2.33σ
Incidents/hr
145 198 222 242
7 40.53 ----- ----- -----8 17.20 ----- ----- -----9 9.79 36.62 ----- -----
10 6.18 15.09 30.55 245.6211 3.98 8.79 13.28 23.1612 2.44 5.82 7.92 11.1213 1.34 4.09 5.35 6.9014 0.62 2.92 3.84 4.7315 0.25 2.03 2.82 3.49
DispatchersOnDuty
AnswerDelays[sec@95th%-tile]
Thegreenshadedcellsareacceptableanswerdelays.Thedataaboveillustratesthenon-linearrelationshipbetweendispatchersandcallvolume.WhenaoneinonehundredsurgecomesthroughtheIntakeworkstations,theincidentcountjumpsfrom145incidents/hourto242incidents/hour,a67%increase.However,therequirednumberofdispatchersincreasefrom10to13,a30%increase.TherelationshipbetweendispatchersOnDutyandworkloadisexplainedindetailinAttachmentD,ErlangMathematics&Assumptions.Dependingontheoperatingpointofthespecificsystem,therelationshipbetweenchangesindispatcherandchangesinworkloadmaybemagnifiedorsuppressed.Browardisfortunateinthattheoperatingpointoftheintakefunctionisintheregimewherethesystemcanabsorblargechangesinworkloadwithmuchsmallerchangesintherequirednumberofdispatchers.
Dispatch Model Option 0
Thefigurebelow,presentsadiagramoftheflowofworkloadsthroughtheOption0dispatchmodel.
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Figure64.DispatchModelOption0
Inthefigureabove,theredovalrepresentsarequestforservicefromthefieldafteracallerhasdetectedanemergencysituation.Asingleroundedrectanglerepresentsasingletypeofworkstation.Theremaybeseveralworkstationsofasingletype,allexecutingthesamefunctions,butinparallel.Thetextinsideeachroundedrectanglerepresentsthefunctionsbeingexecutedatthattypeofworkstation.Thegreenovalrepresentsthefieldrespondersreturningtoastateofnormalcy.Thefunctioningofeachtypeofworkstationischaracterizedbytwoparameters,workloadandlatency.Workloadisthefirstparameterthatcharacterizesaworkstation.Workloadistheamountoftimethedispatcherspendsactivelyexecutingthefunctionsofthatworkstation.ForpurposesofmodellingworkstationsintheBrowarddispatchcenter,workloadswereextractedfromthehistoricrecord.Latencyisthesecondparameterthatcharacterizesaworkstation.Everytimeaclientrequestsservicefromaworkstationthereisthepossibilitytheexecutionsofthatrequestwillbedelayedbyaneedtofinishprocessingapreviousrequestforservice.TherearetwotypesofclientsintheBrowardsystem.ThemosteasilyidentifiedistheexternalclientrequestingservicefromtheIntakeworkstation.LatencyaffectingthistransactionisspecificallyreferredtoastheAnswerDelayortheP1Interval.Therearealsointernalclients.WhenanincidentistransferredfromtheIntakeworkstationtotheAssignmentworkstation,theIntakeworkstationbecomestheinternalclientandtheAssignmentworkstationbecomestheagent.Latencyalsoaffectsthisinternaltransaction.
Pre-Arrival Instructions only on EMS incidents with Echo-Delta determinants1
LAW RadioSupportAssign
FIRE RadioSupportAssign
ClearRequest Intake + A&P + PreAr1
LAW RadioSupportAssign
FIRE RadioSupportAssign
ClearRequest Intake + A&P + PreAr1
LAW RadioSupportAssign
FIRE RadioSupportAssign
ClearRequest Intake + A&P + PreAr1
North PSAP
Central PSAP
South PSAP
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ThestructureofworkflowsinDispatchModelOption0exactlyreflectscurrentoperationoftheBrowardE911ConsolidatedCommunicationsSystem.Thedurationsfortheexecutionofdispatchfunctionsweretakenfromthehistoricrecord.ThedistinctionbetweenOption0andcurrentoperationsisthatOption0ismodelledusingnumbersofdispatchersthatresultinlatenciesthatconformtonewOperationalTargets.TheErlangtablesthatcompriseOption0arepresentedinAttachmentI,ErlangTablesofWorkstations.DatafromthedetailedErlangTablesissummarizedbelow,representingNorth,CentralandSouthPSAPs.Figure65.North,CentralandSouthPerformanceandDispatcherHours-OnDutyforDispatchModelOption0
Workstations Functions
DispatchersImmed
Answer
WeightedAverage
AnswerDelay
[sec]@XXth%-tileMin/
Max
Hours
OnTask
NorthPSAPIntake
CallIntake,A&P1,&PreArv2
4/7 139 94.16%5.03sec@95th
1.73sec@50thNorthPSAPFIREAssign
FIREAssignFIRERadioSupport
1/2 34 90.39%2.67sec@95th
0.92sec@50thNorthPSAPLAWAssign
LAWAssignLAWRadioSupport
2/4 65 88.77%2.69sec@95th
0.92sec@50thNorthHours-OnTask 238
Workstations Functions
Dispatchers Immed
Answer
WeightedAverage
AnswerDelay
[sec]@XXth%-tile
Min/
Max
Hours
OnTask
CentralPSAPIntake
CallIntake,A&P1,&PreArv2
5/11 204 93.75%3.96sec@95th
1.26sec@50thCentralPSAPFIREAssign
FIREAssignFIRERadioSupport
1/2 42 89.00%2.40sec@95th1
0.83sec@50thCentralPSAPLAWAssign
LAWAssignLAWRadioSupport
2/5 92 85.65%3.37sec@95th1
1.16sec@50thCentralHours-OnTask 338
Workstations Functions
Dispatchers Immed
Answer
WeightedAverage
AnswerDelay
[sec]@XXth%-tile
Min/
Max
Hours
OnTask
SouthPSAPIntake
CallIntake,A&P1,&PreArv2
4/8 150 95.86%3.19sec@95th
1.10sec@50thSouthPSAPFIREAssign
FIREAssignFIRERadioSupport
1/2 40 91.76%1.95sec@95th
0.67sec@50thSouthPSAPLAWAssign
LAWAssignLAWRadioSupport
2/4 78 88.02%2.56sec@95th
0.88sec@50thSouthHours-OnTask 268 Option0Hours-OnTask 844
1Assessmentofacuity&Prioritizationofresponse.2Pre-arrivalinstructiononEcho,DeltaEMSincidents.
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Dispatch Operations Model/Option 1
Thefigurebelow,presentsadiagramoftheflowofworkloadsthroughtheOption0dispatchmodel.Figure66.DispatchOperationsModel/Option1
ThedistinctionbetweenOption0andOption1isthatthereisacompleterolloverofincomingcallsbetweentheIntakeworkstationsregardlessofwhichPSAPtheintakeworkstationmaybephysicallylocatedin.TheorganizationofdispatchfunctionsinOption1maintainsthedistinctionsofNorth,Central,andSouthFIREandLAWAssignmentworkstations.TheBrowardE911CommunicationCenterisintheprocessofbeginningatransitiontowardsimplementingthismodelofdispatchoperations.TheErlangTablesthatcompriseOption1arepresentedinAttachmentI,ErlangTablesofWorkstations.DatafromthedetailedErlangTablesissummarizedinTable53,below,representingNorth,CentralandSouthPSAPs.
Pre-Arrival Instructions only on EMS incidents with Echo-Delta determinants1
LAW RadioSupportAssign
FIRE RadioSupportAssign
Clear
LAW RadioSupportAssign
RadioSupportAssign
ClearIntake + A&P + PreAr1
LAW RadioSupportAssign
RadioSupportAssign
Clear
North
Central
South
FIRE
FIRE
Request
Request
Request
North
Central
South
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Figure67.PerformanceandDispatcherHours-OnDutyinDispatchModelOption1.
Workstations Functions
DispatchersImmed
Answer
WeightedAverage
AnswerDelay
[sec]@XXth%-tile
Min/
Max
Hours
OnTask
ConsolidatedIntake
CallIntake,A&P1,&PreArv2
7/17 301 93.18%5.32sec@95th
1.83sec@50thIntakeHours-OnTask 301
Workstations Functions
DispatchersImmed
Answer
WeightedAverage
AnswerDelay
[sec]@XXth%-tileMin/
Max
Hours
OnTask
NorthPSAPFIREAssign
FIREAssignFIRERadioSupport
1/2 34 90.39%2.67sec@95th
0.92sec@50thNorthPSAPLAWAssign
LAWAssignLAWRadioSupport
2/4 65 88.77%2.69sec@95th
0.92sec@50thNorthHours-OnTask 99
Workstations Functions
Dispatchers Immed
Answer
WeightedAverage
AnswerDelay
[sec]@XXth%-tileMin/
Max
Hours
OnTask
CentralPSAPFIREAssign
FIREAssignFIRERadioSupport
1/2 42 89.00%2.40sec@95th
0.83sec@50thCentralPSAPLAWAssign
LAWAssignLAWRadioSupport
2/5 92 85.65%3.37sec@95th1
1.16sec@50thCentralHours-OnTask 134
Workstations Functions
Dispatchers Immed
Answer
WeightedAverage
AnswerDelay
[sec]@XXth%-tileMin/
Max
Hours
OnTask
SouthPSAPFIREAssign
FIREAssignFIRERadioSupport
1/2 40 91.76%1.95sec@95th
0.67sec@50thSouthPSAPLAWAssign
LAWAssignLAWRadioSupport
2/4 78 88.02%2.56sec@95th1
0.88sec@50thSouthHours-OnTask 118 Option1Hours-OnTask 652
1Assessmentofacuity&Prioritizationofresponse.2Pre-arrivalinstructiononEcho,DeltaEMSincidents.ComparingOption1toOption0demonstratesthatconsolidatingadispatchfunctionusesmanpowermoreefficiently.UnderOption0,conductoftheIntakefunctionsrequired493dispatcherhours-OnTaskbetweenthethreeseparatePSAPlocations.UnderOption1,conductoftheIntakefunctionsrequiresonly301dispatcherHours-OnTaskwhenincomingcallsautomaticallyrolloverbetweenthePSAPlocations.UnderOption1,theperformanceoftheIntakefunctionsisindistinguishablefromOption0,yettheIntakefunctionsarebeingexecutedwith192fewerdispatcherHours-OnTask,a39%reduction.
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Dispatch Operations Model/Option 2
Thefigurebelow,presentsadiagramoftheflowofworkloadsthroughtheOption2dispatchmodel.Figure68.DispatchModelOption2
ThedistinctionsbetweenOption1andOption2arethreefold.First,theCADsoftwareismorefullyutilizedtoautomaticallyrecommendunitstoFireRescueresponses.Beforeunitsarenotified,theseautomaticassignmentsaresubjecttoamanualreview.Ineffect,thisreviewisagatekeeperfunctionthatlimitsthenumberofassignmentpositionswithinthedispatchcenter.Thislargelyeliminatestheneedfordisparateassignmentdispatchersto‘shop’forresourcestoassign.Second,theuseofmobiledataterminals(MDTs)byFIREfieldresponderswasincreasedovercurrentpractice.TheconsequenceoftheincreaseduseofMDTsispresumedtobea40%reductioninthenumberofXmit/Rcveventsperincident.Third,theFRradiosupportfunctionshavebeenspecializedbasedonwhethertheincidentrequireasinglestationresponse(ssr),oramulti-stationresponse(msr).FRtacticalsupportandFRemssupportbothhavededicatedradiochannelsandspecializeddispatchers.ConductofoperationsalongtheLAWassignmentlegshasnotbeenaltered.TheErlangTablesthatcompriseOption2arepresentedinAttachmentI,ErlangTablesofWorkstations.DatafromthedetailedErlangTablesissummarizedbelow,representingNorth,CentralandSouthPSAPs.
Pre-Arrival Instructions only on EMS incidents with Echo-Delta determinants1
Request
RadioSupport
LAWAssign
FR ssrRadio
FR msrRadio
FRAssgn
ClearRequest Intake + A&P + PreAr1
Request
North
Central
South
IDUnit
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Figure69.PerformanceandDispatcherHours-OnDutyinDispatchModelOption2.
Workstations Functions
DispatchersImmed
Answer
WeightedAverage
AnswerDelay
[sec]@XXth%-tile
Min/
Max
Hours
OnTask
ConsolidatedIntake
CallIntake,A&P1,&PreArv2
7/17 301 93.18%5.32sec@95th
1.83sec@50thFRReview(Gatekeeper)
FRAssignReview 1/2 38 96.41%1.64sec@95th
0.57sec@50th
FRmsrRadio*FRTacticalRadioSupport
2/4 67 89.33%[email protected]@50th
FRssrRadio*FREMSRadioSupport
2/2 48 91.99%2.08sec@95th
0.46sec@50th
NorthLAWNorthLAWAssignNRadioSupport
2/4 65 90.95%2.69sec@95th
0.92sec@50th
CentralLAWCentralLAWAssignCentralRadioSupport
2/5 92 85.65%3.37sec@95th1
1.16sec@50th
SouthLAWSouthLAWAssignSouthRadioSupport
2/4 78 88.02%2.56sec@95th1
0.88sec@50thOption2Hours-OnTask 700
*FRmsrRadio=multi-stationresponse;FRssrRadio=singlestationresponse
ComparingOption1toOption2,thereisanetincreaseindispatcherHours-OnTaskfrom652to700.Thisisanetincreaseof48dispatcherHours-OnTask.TheincreaseisrestrictedtotheFIREAssignmentandRadioSupportlegbetweenthetwoOptions.ComparingtheFIREAssignmentandRadioSupportlegbetweenOption1andOption2,dispatcherHours-OnTaskincreasefrom116to164.ConsolidatingIntakefunctionsbetweenOption0andOption1resultsinareductionintherequireddispatcherHours-OnTask.TheinverseaffectisseenbetweenOption1andOption2,wheretheradiosupportfunctionsalongtheFIRElegweredividedintosub-specialties.
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Comparison of Operations Models/Options
ThenumberofdispatcherHours-OnTaskcommittedtoeachOptionwasadjustedsoIntakeanswerdelays,P1,andassignmentlatenciesconformedtonewoperationaltargets.ThesetargetsprovideforacapacitytoabsorbsurgesindemandsizedtoreflectactualexperiencetakenfromBroward’shistoricrecord.ThefigurebelowsummarizestherequirementsfordispatcherOnDutyforOption0,Option1,andOption2.Figure70.ComparisonofOperationsModels/Options
DispatchModel
Dispatchers
Min/
Max
Hours
OnTask
Option0:CurrentOpswithFITCHperformancetargets 22/45 844Option1:ConsolidatedIntake 13/36 652Option2:Option1withFRGatekeeper,FRmsrRadio,andFRssrRadiochannels 14/38 700
Note:TheexactdistributionsofdispatcherHours-OnTaskbyhourofdayandworkstationarefoundinAttachmentI,ErlangTablesofWorkstations.FITCHbelievesthattheincreaseindispatcherHours-OnTaskinOption2isjustifiable.Thepurposeofadispatchcenteristofacilitatetheexecutionofemergencyserviceresponsesinthefield.HavingdedicatedcommunicationchannelsandspecializeddispatcherswillimprovetheperformanceandincreasethesafetyofFIREandEMSfieldresponders.FITCHbelievesthatthesebenefitsoutweightheadditionaldispatchcosts.
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RECOMMENDATIONS
Technology
Findings —
TheCounty’sPSAPphonesystemandCADsystemsarenoteffectivelylinkedtoallowcomprehensiveevaluationofSystemperformance.Formorethanhalfoftheincidentrecords,theeventintheCADcannotbelinkedtotheuniqueCallDetailRecord(CDR)thatinitiatedtheincident.Technologylimitationsresultedinonly25.6%ofCADrecordsconsideredvalidforuseinanalysisofP2/P3intervals.Countystaffisunabletodirectlyaccessphoneandradiosystemdata–therebylimitingtheirabilitytoanalyzesystemperformancebeyondthatpermittedbypre-designed/cannedreports,whichmakessomeoftherequiredreportingtediousanderrorprone.TheSystemutilizesemergencymedicaldispatching(EMD)software–abestpracticefor911centers.However,nosimilarprogramisutilizedforeitherfireorlawenforcementcalltypes.TheCADnetworkisredundantintheeventofafailure.However,itisnottestedonaregularbasis.Thisisasignificantdeficiencyandisinconflictwithbestpractices.
Recommendations —
TheCountyneedstoinsurethemissionsoftechnologydevelopmentandtechnologysustainmenthavedifferentfocusesandroles.Therefore,thecountyshouldprovideforaTechnologyDevelopmentTeamandaTechnologySustainmentTeamoverthenextfewyearsasnewtechnologiesareimplementedandthesystemcontinuestostabilize.AnabsolutepriorityfortheCountyistodevelopalinkbetween911phonerecordsandtheassociateCADincidentrecords.BSOshouldmaintainEMDcertificationtrainingforallcalltakersthroughtheInternationalAcademiesofEmergencyDispatch(IAED).CalltakerpersonnelshouldalsobetrainedandcertifiedasEmergencyFireDispatchers(EFD)andinthesystemimplementEFDinthenearfuture.Thesecertificationsareconsideredindustrybestpractice.Finally,lawenforcementagenciesshouldconsiderandevaluatetheefficacyofEmergencyPoliceDispatch(EPD)beingutilizedinthefuture.Thissystemisemergingasanindustrybestpractice.
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Discussion —
Challengesinobtainingdataduringthisproject,timelyrecognitionoflimitationsintechnology,andotherproblemsindicateresourceconstraintswithinORCATtosupportthesignificanttechnologyinfrastructurerequiredforsystemofthesize.Ataminimum,theCountyneedstoensureseparateorganizationalfocusonthosepersonneldedicatedtodeveloping/enhancingtechnologywithinthesystemagainstthoseresponsibleformaintaining/sustainingtheexistingtechnology.TheCountyshouldreorganizeORCATtoensuretheseresponsibilitiesarebifurcated.WenotethatintheFY15/16theCountyfundedtwoadditionalpositionstoprovidemaintenancesupporttotheirpublicsafetyapplications,andintheFY16/17budget,theCountyfundedsixadditionalpositionsintheOfficeofRegionalCommunicationsandTechnologytosupportthefollowing:thePublicSafetyNetwork,ongoingcapitalprojects,theRadioSystem,andPublicSafetyApplications.Theremaystillbearequirementformoreresourcesspecifictocreateaseparate911technologydevelopmentgroup.Theopportunitytorecaptureresourceselsewhereinthesystemallowsforthisrecommendationtobeaccomplishedwithoutanyadditionaloverallfunding.TheCountyhas,andis,expendingsignificantresourcestoupgradeRegionalE911Systemtechnologies.ThephonesystemwasrecentlycompletedandmajorupgradestotheradioandCADsystemsarecurrentlyunderway.However,anumberofchallengeswereencounteredintheharvestingofdata.Thefindingsregardingtechnologylimitationshighlighttheneedtoaddresssomefundamentaltechnologyissuesasthesesystemsarenowundergoingmajorupgrades.Generally,stakeholdersdonotappreciatehowtheseissuesimpacttheabilitytoeffectivelymanagetheSystem.AmajorflawofthecurrentsystemistheinabilitytolinkphonerecordstoCADrecordsandestablishaseamlessstart-to-finishtimelineforanincident.ThisresultsintheCountybasingoverallSystemperformancewithoutbenefitofallthefire/medicaldispatchrecords.ThistechnologydeficitsignificantlylimitstheabilitytocalculatetheP2/P3callprocessingintervals.Asnoted,theSystemcannotreliablyanswerthefundamentalquestionofhowlongittakesbetweenwhenacallismadeto911andwhenhelparrives.Withtheimplementationofthenewnextgenerationcomputeraideddispatch(CAD)systemanticipatedforearly2017,theCountyshouldensurethatthisflawisresolved.SincethereleaseofthePhase1report,Countystaffhasworkedtoidentifytechnologychanges/upgradesthatwillrectifytheproblem.TheCountyandMotorolaindicatetheyhaveaworkingsolutionthatwillbedeployedwiththenewCAD.Thegoalshouldbetolinkatleast90%ofCADrecordswith911recordswheretheyexist.Inaddition,theCountyisunabletocurrentlyaccessradioandphonedatadirectly.ToascribeperformanceevaluationstotheentireSystembasedonpartialandpotentiallystatisticallybiaseddataisquestionable.FITCHtookextraordinaryefforttoconstructdatatablesfromthesetwodatasourcesinordertoassessthesystem.Pass/failassessmentsshouldbecautiouslyweighedbydecision-makersuntilallplannedtechnologyimprovementsareinplace.Countystaffshouldcontinuetoreportonthetrend-datatoestablishbaselineperformance.Recently,theCountyhasindicatedthatthenewCADsystemwillcontainaccesstothenecessarydatafromthe911database.ThisinformationwillbereadilyaccessibletoCountystafftoallowformoredetailed/adhocreporting.TheCountyshouldadditionallyensurethesamecapabilityexistintheradiosystem.
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BSOcurrentlyutilizestheMedicalPriorityDispatchSystem(MPDS)fordispatchingemergencymedicalcallsandprovidingpre-arrivalinstructionstocallers.AsanagencyaccreditedbyIAED,allofBSO’sdispatchersmaintainemergencymedicaldispatcher(EMD)certification.SimilartoEMD,TheCounty,BSOandothersystemparticipantsshouldadoptanddeployEmergencyFireDispatch(EFD)inthenearfuture.Utilizationofthesamevendor,employingsimilarinterfacesandprogramlogic,willallowforthisrecommendationtobeaccomplishedwithrelativeease.SincebothdispatchpersonnelandfieldpersonnelalreadyutilizeEMD,theadditionofEFDshouldbewellaccepted.Currently,thereissignificantlylessuniformityintheprocessingoflawenforcementcallsforservice.Thisisquitetypicalacrossthenation.However,increasingnumberoflawenforcementagenciesareemployingsimilarsoftwareproductsasidentifiedabove.Toprovideforgreateruniformityinhandlinglawenforcementcallsforservice,providedefensibleandobjectiveguidelinesforperformance,withqualityassuranceprocessesthatcanbeappliedandreviewedbymanagementpersonnel,lawenforcementagenciesalongwithBSOshouldundertakeanevaluationofproductssimilartoEmergencyPoliceDispatch(EPD).BecauseofthefundamentalwayinwhichEPDintegratesintothedispatchprocess,thedecisiontoutilizesuchatoolwouldrequirealllawenforcementagenciestoactivelyparticipateinthisevaluationanddecision.
Operational Oversight and System Governance
Findings —
BSO’soperationofthePublicSafetyAnsweringPoints(PSAPs)arechallengedwithsignificantmoraleproblemsembeddedinissuesofstaffing,trainingandmanagement.TheCountyhasinappropriatelymade,andpublicsafetyofficialsallowed,someoperationaldecisionstobehandledbytheCountythatshould,instead,bedeterminedbypublicsafetyofficials.Lowlevelsoftrustexistamongmajorstakeholders.Muchofthisisduetoroledefinitions.RelationshipsneedtoberedefinedinorderfortheSystemtomoveforwardeffectively.
Recommendations —
OperationalOversightandSystemGovernanceshouldberedefinedtostrengthentheroleofend-userswhilebalancingthelogisticalconcernsoftheOperator(BSO),andthefinancialandsystemgovernanceresponsibilitiesofBrowardCounty.Alternativeworkschedulesareavailableandshouldbeconsidered.AttachmentA,SchedulingMatrixSample,providessampleschedulesforconsideration.Fillingvacantpositionsinatimelymannerwiththegoalofmaintainingfullstaffingwillreduceexcessivemandatoryovertimeandtheassociatedstress.Thiswillallowresourcestoalignmorecloselytodemandpatterns,therebyimprovingefficiencyinthesystem.
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SupervisiononthePSAPdispatchfloorsshouldbeataratioofsixtooneasopposedtothecurrentninetooneratio.GreaterqualityassuranceprocessesaretobehandledbyBSOdispatchfloorsupervisors.Resourcesfordispatchertrainingshouldbeincreasedthroughreallocationofcurrentfunding.A“baselevelof911services”fundedbytheCountyshouldbemoreclearlydefinedbyutilizingthecurrentinterlocalagreementsandFITCH’smodelingofperformancelevelsasnotedincalltakingandradiopositions.Individualagenciesdesiringhigherlevelsofserviceshouldbeabletofundadditionalstaffinghoursortechnologyinordertoreceiveservicesspecifictotheirjurisdictionalneeds.TheRegionalSystem’smanagementandtechnologyshouldfacilitatetheseadditionalservicesaslongastheydonotdisruptthebaseservices.
Discussion —
AsapprovedbytheCounty,BSOandmunicipalities,theSystem’sinitial,rapidimplementationtimeframerequiredamorecentralizedoversight/governanceprocess.Intheconsolidationprocess,somecommunitieswereabletoaddservicesthatwerenotprovidedindividuallybefore.Forexample,theconsolidatedSystemutilizesemergencymedicaldispatching(EMD)services–abestpracticefor911centers.ThefocusduringtheseinitialmonthswaswiththeCounty’sOfficeofRegionalCommunicationsandTechnology(ORCAT).Thisapproach,whilearguablyneededduringearlyimplementation,doesnotservetheongoingneedsofotherstakeholders.SomeexamplesoftheCounty’sassumptionofoperationalissuesresultedfromroleambiguity.Andwhilecurrentperceptionsindicatethereisalackoftrustamongstakeholders,thereisalsoevidencethatinotherregardstheSystemhasnow“turnedthecorner”.Futuresystemimprovementswillbenefitfromaredefined,collaborative,andsimplifiedgovernancestructure.Thechallengeformunicipalleaders–fireandpolicechiefs,alongwithlocallyelectedleaders–willbedefiningaclearsetofexpectationssharedbyall.Localofficials,especiallycitymanagers,policechiefsandfirechiefs,mustensuretheircommunitiesinterestsarerepresentedbyactiveengagementwithinanewgovernancestructurethatadjusttheperceivedbalanceofcontrolthathasexistedtothispoint.Whatisrequiredisanoversightprocessthatbalancesend-userconcernsforfieldoperations,againstBSO’srequirementstomanagethe911SystemoperationsandBrowardCounty’sfiduciaryandlegislativeresponsibilities–allwhileensuringtransparencythatallstakeholdersrequire.Therearetwogeneralapproachestomanaging911systems.Thefirstfocusesoncontrol,whichistypicallyfoundwhenonlyasingleagencyistheend-user.Inthiscase,thefocusisoncommandandcontroloffieldresources,dueprimarilytolimitedresourcesrelevanttodemandforservices.Thesecondapproachfocusesonsupportanditservesbothsingleandmulti-agency911systemswell.Thegoalofthisapproachistosupportfieldpersonnel,remainresponsivetofieldneeds,andberegardedasacriticalcomponentofthepublicsafetysystem.BrowardCountyhas,andshouldremainwith,a‘supportapproach’intheirRegional911System.
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TheCounty’sobligations,andresponsibilities,areclear.Astheaccountableentity,itultimatelyhasbothlegislativeandfiscalresponsibilitiestothesystem.However,consistentwithasupportphilosophy,theCountydoesnotneedtonecessarily‘drive’thesystem,butrathershouldadoptaperspectiveoffacilitatingandultimatelymanagingtheSystem’sperformance.Thefollowingdiscussionprovidesspecificrecommendationsforfutureoperationaloversightandsystemgovernance.TheRegional911Systemmustservelawenforcementandfirerescueprovidersandtoachievethatgoal,fieldoperationaloversightmustfocusonthosestakeholders.However,stakeholder’sneedsmustalsobebalancedwiththelogisticalconstraintsofBSO,asOperator,andthefinancialandgovernanceconcernsofBrowardCounty.Duringthefirst18monthsofoperation,theSystemwasseenbystakeholdersastoocentralizedwithintheCountyOfficeofRegionalCommunicationsandTechnology(ORCAT)andtoofocusedoncontractualperformancemetrics.Therequirementsofend-userswerenotbeingmet.Operationaloversight,asusedherein,referstowatchful,responsibleandaccountablesupervisionofthefieldoperationalaspectsoftheRegional911System.Thisincludespolicies,proceduresandprocessesthatimpacttheend-user’sabilitytoprovideservicetoresidentsandvisitors.Forexample,thedeterminationofthenumberofresourcesassignedtoaspecificincident,orthenameanddefinitionofcomplainttypesarepurelyoperationalinnature.However,wheretheneedsoftheenduserbegintoimpactorinfluencethetechnologyneedsofthesystem,theoperationswithina911center,itsrequiredfundingoroverallsystemintegrity,thenothersystemstakeholdersmustproperlybeincluded.FITCHsuggeststhatexistingprocessesberedefinedtofocusmoreonend-userneedsattheinceptionofoperationalissues,andallowingBSOandORCATtoengagelaterintheprocess.Thisshiftprovidesanimblerenvironmentforend-usersandensuresoperationalissuesarefullyvettedbeforeconsideringlogistical,financialorgovernanceconcerns.Aspartofthechangeinfocus,ORCATCommunicationManagersrolesandresponsibilitiesshouldberevisedandclarified.Thesepositionsshouldfocusonqualityassurancereviewsofsignificantdispatchissuesraisedbyend-users,citizensorothersparties;ensuringPSAPfacilitiesandtechnologyareoperatingatmaximumeffectiveness;andcoordinationwithBSOSiteManagers.Toavoidanyconfusion,theexistingORCATpositiontitlesandjobdescriptionsshouldbeupdatedaccordingly.Thesystemhasutilizedapolicylevelcommittee,the4C,duringearlyimplementation.Forreasonsoutlinedpreviously,thefocusnowshouldproperlyshifttoamoreoperationalperspective.Theneedforthe4CnolongerexistsandtheCountyshouldsunsetthegroupasthisnewgovernancemodelisimplemented.Thefigurebelowsummarizesthestepsinasuggestedprocessfortheidentificationofanoperationalissueandthestepstowardaresolution.Thecountyshouldmaintainarepositoryofalldocumentationassociatedwiththisprocesstoensuretransparencyandarchivingofalldecisions.
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Figure71.IdentifyingandResolvingOperationalIssues
Recommended Operating Guidelines for Governance Step 1: Issue Identification and Proposed Resolution 1) Aneedforthecreationand/orrevisiontoapolicy,procedureorprocessofthe911systemcanberaised
byanyofthestakeholders–lawenforcement/firerescueagencyasarepresentativeoftheirmunicipality;BrowardSheriff’sOffice;orBrowardCounty.
2) IssueswouldbeconsideredfirstbytheexistingOperationalReviewTeam(ORT).a) EachlawenforcementandfirerescueagencywouldhavearepresentativeontheORT.Typically,the
ORTwouldmeetbydisciplineasiscurrentpractice–lawenforcementorfirerescue.b) TheORTwoulddetermineifanissueinvolvedonlyasingleagency;asinglediscipline(lawvs.fire);or
aregionalconcern.i) Iftheissueonlyinvolvesasingleagency,theissuewouldmovetosub-paragraph4.
Step1:IssueIdentification
• IssueIdentification byanyStakeholder• ReviewbytheOperationsReviewTeam(ORT)•IfapprovedbyORT,summarizedandforwardedtoBSOandORCAT
•IfapprovedbyORT,BSOandORCAT-proceedtoStep2•Non-approved itemsmaybeescalatedtoStep3
Step2:End-UserApproval
•Chiefofdepartmentapproves,ordoesnotappove,issueandproposed resolutionasdefinedinStep1
•Simplemajorityofthosevotingthroughelectronicmeans•Appoved issuesmovetoStep4forimplementation•Non-approved itemsmaybeescaltedtoStep3
Step3:CAOEscalation
•IssuesnotapprovedatStep1orStep2maybeescalatedtorespectivechiefadministrativeofficer•Chiefadministrativeofficersreviewandconfer•TheymayreferbacktoORTforaddtionalconsideration,notapprovetheissue,ordirectapprovalandimplementationunderStep4
Step4:Implementation
•IssuesapprovedatStep2or3willbeimplemented•ORCATwillfacilitateandmonitor
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c) EachORTgroupshouldbechairedbyauniformedmemberdeterminedbytherespectiveAssociation.BecauseofBSO’suniqueroleasOperatorinthesystem,thechairshouldpreferablybefromamunicipalagency.
3) TheORTwouldclarifytheissueandproposedresolution.Theitemwouldbesummarizedinwrittenformtoensuretheissueandproposedcourseofactionareclearlyidentified.
4) TheORTwouldrecommendapprovalordenialoftheitem5) UponapprovalbyORT,theissuewouldbeforwardtobothBSOandORCATforreview&comment.6) BSOandORCATwouldconsidertheitemunderthefollowingguidelines:
a) BSOwouldevaluateitsabilitytoprovidetherecommendedresolution.Theyshouldconsiderthelogisticalbenefitsandchallenges,aswellasiftheproposedresolutioncanbedonewithexistingresources.IfadditionalresourceswouldberequiredbyBSO,itmustidentifythefinancialimpact.ThefinaldeterminationoffiscalimpactwouldrestwithBrowardCounty’sbudgetoffice.
b) ORCATwouldconsideranylogisticalimpactsfromtheproposedissueresolutionasitrelatestotheCounty’stechnology(i.e.CAD,radio,911system,etc.).ORCATwouldalsoconsideranypotentialfiscalimpacts,thoughthefinalarbiteroffundingshouldresidewiththeCounty’sbudgetoffice.Finally,ORCATwouldevaluatetheissueandproposedresolutionagainsttheRegional911System’soverarchinggoalsandobjectives.
c) Iftheissueinvolvedonlyasingleagency(see2babove)ORCATandtheinvolvedagencywoulddiscussifthemunicipalitydesirestofundthechange/improvementifthesolutionisbeyondthebaseservicesprovidedbytheCounty.
d) IftheissueisdeniedbytheORT,theproposermayelecttoadvancetheissuetoStep3.7) Oneapprovedbyallthreestakeholdergroups(ORT,BSO,ORCAT),theissueadvancestoStep2.8) Iftheissueisnotapprovedbyanyofthestakeholdersin7)above,theproposermayelecttoadvancethe
issuetoStep3.Step 2: Approval by End-Users 1) Issuesapprovedbyallthreestakeholdergroupswillbeapprovedbyfirechiefsand/orpolicechiefs.
a) WhileORTwilloftenbecomprisedofoperationalmanagersfromlawenforcementandfirerescueagencies,approvalatStep2requiresthespecificreviewandapprovalfromthechiefofdepartmentforeachlawenforcementand/orfirerescueasapplicable.
b) Summaryoftheissueandproposedresolution,aspreparedandapprovedatStep1,willbesenttothechiefofdepartmentforlawenforcement,firerescueorbothastheissuemayrequire.
c) Items,assummarizedatStep1,willbeballotedtochiefsofdepartmentelectronically.ThechairoftherelevantORTshallensurethewrittensummaryoftheissueisforwardedtotherespectiveAssociationpresidentfordistributiontoeachchiefofDepartment.
d) Eachchiefofdepartmentisexpectedtoreviewandapproveornotapprovetheitem.e) ConsistentwiththeexistingpracticesforboththeFireChiefsAssociationandPoliceChiefs
Association,asimplemajorityissufficientfortheitemtobeapproved.UltimatelythedeterminationofeachprofessionalAssociation,andofthemethodsbywhichtheyapproveitems,isleftwithinthepurviewofthatAssociation.
2) UponapprovalatStep2,theitemwillmovetoStep4forimplementation.
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Step 3: Escalation to Chief Administrative Officer 1) ShouldanissuenotgarnersupportforapprovalatStep2,theproposerorotherstakeholdermay
electtoescalatetheissuetotheirrespectivechiefadministrativeofficer(citymanager,countyadministrator,orSheriff)asmaybeapplicable.
2) Thechiefadministrativeofficer(ordesignee)oftheagencyseekingtoescalatetheissuemayelecttoupholdthedeterminationmadeatStep1orStep2,orconferwiththechiefadministrativeofficers(ordesignees)ofotherstakeholders.
3) Thechiefadministrativeofficersofallthreestakeholders,shouldtheyagree,mayalsodirectaspecificresolutiontotheissue;requestORTreconsidertheissue;ortakeotheractionsastheydetermineinthebestinterestfortheirlocalgovernment.
Step 4: Implementation 1) IssuesidentifiedatStep1,andapprovedateitherStep2orStep3,shallmovetoStep4for
implementation.2) ORCATwillfacilitatetheimplementationwiththeactivesupportofotherstakeholders.3) ORCATwillmonitorandreporttoallstakeholderstheprogressandissuesapprovedfor
implementation.4) ORTmembersareexpectedtokeeptheirrespectiveagenciesinformedofissuesundergoing
implementation.FITCHnotedthelevelsofstaffingappropriatedinthebudgetprocessfortheRegionalE911System,andthefocusofstaff’seffortsinoperatingtheSystem.Qualitatively,itwasfeltthatpersonnelinthe911centerssufferfromlowmoraleandaperceivedlackofleadership.Attentionhasbeendivertedfrommoremeaningfulactivitiesinordertoaddressissuesoflessimportance,andasensethatavailableresourcesarenotbeingusedeffectively.Quantitatively,applicationbyFITCHofmoredefinitivestaffingmodelsdemonstratesopportunitiestoachievemeaningfulperformanceinthe911centers–wellwithinexistingallocationsofpersonnel,andevenwithsomelevelofthoughtfulreductions.WebelievethiscanbeaccomplishedwhiletheBrowardSheriff’sOfficeremainsanAccreditedCenterofExcellenceasawardedbytheInternationalAcademiesofEmergencyDispatch.ThesectionofthisreporttitledDispatchOperationalModels–Options,proposesseveraloptionsthatincludeanumberofstaffingrealignmentstoaddresstheexistinginefficiencies.TheopportunityalsoexistsforBSOtoalteritscurrentstaffingscheduleinorderto1)alignresourcesnecessarytotheactualdemand,and2)provideopportunitiesfordispatchpersonneltoworkalternateshiftschedules,therebyprovidinggreateropportunitiesforreducedstressanddemandsofmandatoryovertime.AnexampleofonesuchscheduleiscontainedinAttachmentA,SchedulingMatrixSample,thatutilizesacombinationofeighthourand12hourshiftsinordertomorecloselyalignstaffinglevelswithactualdemand.Thesystemevaluatesdemandinfourhourblocksandbybalancingthenumberofpersonneloneithereightor12hourshifts,dispatchmanagersandsupervisorscandevisemoreefficientschedules.Ultimately,thisproposalallowsforindividualdispatchers,basedoncontractualseniorityandexistingmethods,toselectvariousworkschedulesthatwillmorelikelyalignwiththeirpersonaldesires.
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911centeroperationsareextremelystressfulandfrequentlymustaddressunusualorintenseincidents.Therecommendationsregardingsupervisoryspan-of-controlarebasedonthedualrolesofdispatchfloorsupervisors.First,afloorsupervisorplaysanactivequalityassuranceroleinrealtime.Dispatchprocessesinvolvecomplicatedscenariosandinthisrole,afloorsupervisorprovidesimmediatesupportandadherencetopolicy/protocols.Thesecondroleisthatofanactiveliaisonwiththeirequivalentlevelfieldpersonnel.Whenthisroleisfulfilled,fieldsupervisorsanddispatchsupervisorsarewellinformedregardinganyissuesofthedayandthatinformationispassedseamlesslyfromshifttoshift.Characteristicssuchastheserequirehigherlevelsofsupervisionthenmaybefoundinotherdisciplines.Currently,BSOoperateswithasupervisortodispatcherratioofapproximately1:9.For911centers,thesupervisortodispatcherratioshouldbecloserto1:6.WhichtheproposedstaffingoutlinedineitherOption1orOption2,andkeepingexistingsupervisionlevelconstant,willcomeclosetoachievingthedesired1:6ratio.BothBSOandoftheCountyshouldmonitorandreallocateexistingresourcestoachievethistargetsupervisorlevel.Trainingwasalsoanareaidentifiedasrequiringmoreresources.Withtherecommendedadjustmentstostaffingoutlinedelsewhere,someresourcesshouldberedeployedtoenhanceBSO’sdispatchertrainingprograms.BSOhasindicatedtheyarepursuingnewapproachesandtechnologiestoongoingtrainingrequirements.Thisisapositiveeffort,butonethatshouldalsoincludeadditionalpersonnelinordertomorecloselysupporttheidentifiedtrainingdeficitsthatcomeoutofothersystemanalysisandreviews.AsaBSOimplementsanynewapproachestotraining,theyshouldidentifyanyadditionalstaffingresourcesrequiredandseekreallocationofresourcesfromtheCountyQualityassuranceeffortsfallwithinthepurviewofoversightandarerightfullyaresponsibilityoftheCounty.TheCountyisthebodythatshouldconductqualityassuranceassessmentsforcurrentEmergencyMedicalDispatch(EMD)functionsandforanyfuturedeploymentofEmergencyFireDispatchand/orEmergencyPoliceDispatchprotocols.IndependentqualityassuranceprocessessuchasPriorityDispatch’s“NationalQ”arereadilyavailableandcanprovideobjectivefeedbackoncompliancetoprotocols.TheCountyisalsoresponsibleforensuringsystemparticipant’sneedsarebeingmetandagreeduponresponsibilitiesbeingfullfilled.Whereappropriate,thisincludesperformingauditstoensurecontractualresponsibilitiesarebeingmet.Ataminimum,thecontractedqualityassuranceprogramsshouldbeabletoaccommodatethefollowingpoints:
§ Focusonevaluatingtelecommunicatorstrengthsandidentifyareasforimprovement,§ Provideastandardizedoperationthatprovidesconsistentandongoingimprovement,§ Developaclearlydefinedprocessforqualityassurancecasereviewsthatincludecalltakingand
dispatchactivities,§ Assurethatcasereviewsareperformedonaregularbasiswithfeedbackprovidedtothe
telecommunicator,assoonaspossible,§ AssurethatpersonnelresponsibleforperformingQAreviewsmeetminimumqualificationsfor
QualityAssuranceEvaluators,
Additionally,thefollowingpracticesaretobeincludedintheQAprogram:§ Casereviewcriteria
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§ Evaluationguidelines§ OversightCommitteeasperprotocoloragencyguidelines§ Programmonitoring§ Recordkeeping§ Reportingandfeedback§ Writtendirectives.
Severalmunicipalitieshaveexpressedthedesiretoprovidedispatchpersonnelwhoarededicatedtohandlingagency-specificfunctionsuchashandlingpoliceandfirepolicyissues,dedicatedtacticalradiooperators,orhandlingnon-emergencyservicerequests.Beforetheserequestscanbeconsidered,theCountywillneedtoclearlydefinethebaseservicefunctions.ItisunderstoodthattheCountyisresponsibleforfundingthebase911services.Largely,thesebaseservicesarecurrentlydefinedintheInterlocalagreementsbetweenBrowardCountyandvariousmunicipalities.However,thiscurrentdefinitionshouldbefurtherclarifiedtoincorporatethelevelsofperformanceasidentifiedherein.Forexample,whileansweringof911callsisabaseservice,theperformancelevelrecommendedhereistoadjuststaffingtoalevelconsistenttoachievebetween3-5secondsatthe90thpercentile.Similarly,radiochannelstaffingforfirerescueroutineresponseshasbeenmodeledtoreflect2secondsatthe95thpercentile.Respectivemunicipalagenciesshouldbeabletopurchaseadditionalstaffing-hoursinordertoachievetheservicestheydesirethatareaboveandbeyondbaselevel911services.
Performance Metrics
Findings —
Certainperformancemeasureshavebeenmisinterpreted,incorrectlyapplied,orareinconsistentwithcurrentindustrybestpractices.TheCounty’suseofPASS/FAILtargetsprovideslittleinthewayofinformationforcontinuousqualityandperformanceimprovement.ThefailureofthecurrentPASS/FAILorYES/NO,P1busyhourtarget,isthatitprovidesnoguidanceastothelevelofsurgecapacitythatisfiscallyresponsibletobuildintothesystem.
Recommendations —
TheCountyshouldmodifythecurrentmonthlyperformancereportformatandreplaceitwithamonthlyreportthatfocusessolelyondataandprovidesnocommentary.The“busyhour”istoberedefinedinaprospectivemannerbasedonhistoricaldataandistobereassessedinnolessthan12-monthintervals.Thesechangesallowformeaningfulandactionableinformationexchangesandprovideuseragencieswithaneededlevelofoversight.
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TheCountyshouldpurchaseaperformancemeasurementsoftwarepackagethatwillprovideagencieswithreadyaccesstotheactivitiesandperformanceoftheirrespectivefieldunits,andsimultaneouslyallowtheCountyandBSOtoevaluatesystemperformanceatthemicroandmacrolevels.Onlytheperformanceonemergency/911incidentsshouldbeincludedintheperformancereports.Thecurrentpracticeofevaluatingduplicate911callsonasingleincidentskewsmeasurement.Thetruestructureofthereportshouldbetopresentthenumbersinawaythathighlightsthecallswhereresponsetimeisimportant.Somethoughtshouldbegiventopresentresponsetimesstartingwiththecallreceipttoemergencyservicearrivalonscene.Thiswillgivetheproperpresentationofthecaller’sexperience.Specialattentionshouldbepaidtohighpriorityincidents.Regardingreportingperformanceforvariouscallprocessingtimeintervals,oncethetechnologyissuesareresolved,theP2andP3intervalsshouldbereportedseparatelyandasacombinedmetric.Thereasoningisthat,particularlyforfireandemergencymedicalDeltaandEcholife-threateningcalls,fastandeffectivedispatchperformancecontributestopositiveoutcomes.MonthlyreportsshouldalsoreportP4(turn-outtimes)forfirerescueincidentsandP5(traveltime)forbothfirerescueandlawhighpriorityincidents.Ingeneral,dispatchcenterperformancemetricsaretofocusonoptimizingdispatchprocessesasmuchaspossible,withtheendresultbeingtogethelpmovingtoemergenciesasquicklyaspossible.Theprimaryobjectiveistocontributetothepotentialforpositiveoutcomesforpatientsandproperties.
Discussion —
ThediscourseregardingsystemperformancebetweentheCounty,BSOanduseragencieshasbeendifficult.Multiplefactorsincludinglimitationsofsomeperformancemetrics;operationalgovernanceandoversight;andtechnologylimitations,contributetovariousproblemareas.However,FITCHalsofoundareaswheretherehavebeennoteworthysuccesses.Contrarytooftencitedperceptions,theSystemisperforming–quantitatively–betterthanconveyedbystakeholders.Awidelydiscussedmetricthatevaluates911call-answeringtimeswasfoundtobeextremelyrapid,someofthequickestFITCHhasidentifiedinotherlargesystems.Calltransfers,thathappenedwithsomeregularitypriortoconsolidationanddelayedeffectivesystemperformance,hasbeenvirtuallyeliminatedsinceconsolidation.TheCounty’seffortstoensurequalityandefficiency,supportedbyaqualityassuranceandimprovementprogram,shouldcontinue.Additionally,greateroperationalcoordinationandtransparencyamongSystemparticipantshasprovidedqualitativeimprovements.Asuggestedmonthlyperformancereport,focusedonobjectiveperformancedataandappropriatefordisseminationtopolicymakers,iscontainedinAttachmentJ,MonthlyPerformanceReportFormat.Asnotedintherecommendedformat,responsetimesforhighprioritylawandfirerescueincidentswillalsobereported–acknowledgingthepublic’sperceptionofservice.Stakeholdersshouldnotetheadditionofreportingaveragevaluesforperformancemeasures.Whilestakeholdersshoulddesign,assessandreportperformanceutilizingfractileorcomplianceperformance(e.g.90%within10seconds),membersofthepublicgenerallyareusedtoperformancebeingreportedasanaveragetime.Forthesereasons,
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botharerecommendedinAttachmentJ,butstakeholdershouldbeutilizing“Target”andTargetCompliance”intheirassessmentofSystemperformance.Thisdoesnotprecludeadditionalormoredetailedsystemanalysis,butratherismeanttofocusonhigherlevelmetricofSystemperformance.Inaddition,whiletheintentforthemonthlyperformancereportistoremainrelativelyobjectivebysimplyreportingmetrics,theCountycontinuestohavetherightandobligationtoaddressperformanceissuesasoutlinedintheexistinginterlocalagreements.MeasuresoftheSystem’sperformance,asinitiallydraftedbylawenforcement,fireandmunicipalleaders,andimplementedbyCountystaff,donotprovideanappropriateassessmentoftheSystem’sperformance.ThemeasureoftheP1busyhourinterval–thetimefromwhenthe911phoneringsuntilanswered–isapoorrepresentationofSystemperformanceandinconsistentwithcurrentindustrybestpractices.Anotherexampleofgoaldisplacementisthefocusonthetimenecessarytoanswera911call,knownbythemonikerP1.Thismeasurehasreceivedsignificantscrutiny.WhilethereareseveralspecificmeasurestoevaluateP1,muchofthefocushasbeenonwhatisknownas“busyhour”performance.Thissinglemetrichasbeenthesourceoffrictionbetweenvariouspartiesandlikelyledtoabeliefthattheonlysolutionisincreasedstaffing.ThebusyhourmeasureisapoorrepresentationofperformanceintheBrowardsystem.WhenexaminingtheothermetricsassociatedwithP1,theBrowardSystemactuallyexhibitssomeofthebestperformanceseeninlarge911centersacrossthenation.Further,reportsoftheP2/P3interval–thetimefromansweringa911calluntilunitsaredispatched–thatappeartobeprecise,areinfactflawedduetodatalimitations.Interestinglythough,performancecalculatedbyFITCHdifferedfromthatcalculatedbytheCountybyonlyafewpercentagepoints.Oncethetechnologylimitationsareaddressed,thesystemshouldfocusonP1answertimesonlyforthoseincidentsthatgenerateacallforservice.Inthismanner,onlydatafromtheCADsystemwouldbeutilized.UtilizingaprospectivedefinitionofP1alsolimitsrandomsurgesinthesystemtoinappropriatelyleadtoconclusionsofpoorperformanceinthismetric.Basedondataelsewhereinthisreport,thesystem’scurrentbusyhouris1800hrs.Additionally,theCountyhaspreviouslyidentifiedthatcallintaketimesarewhatgenerallyleadtofailuresinmeetingP2/P3performancetargets.Byevaluatingeachcomponentseparately,P2forcallintaketimesandP3forunitnotificationtimes,thesystemandoperatorarebetterabletoidentifyrootcausesofperformanceissues.WhiletheSystemisseenasstrugglingtomeetsomeofitscurrentlydefinedperformancemeasures,thefocusoncertainspecificareashasresultedinalevelofgoaldisplacement.Theuseof‘PASS/FAIL’or‘YES/NO’againstpercentagecompliancetargetsdoestheCountyadisserviceinthatitfostersanexpectationthatthesystemcansomehowbemadeperfect.Therealityofemergencyservicesystemsisthattheywillbeoverwhelmedbysignificantunanticipatedeventsatsomepointintime,i.e.,therecentshootingsinOrlandooratornadoinSouthFlorida.Performancemeasuresshouldbeselectedsuchthattheycontributetoaknowledgebasetomakethesystembetter,ratherthanbeseenasavaluejudgement.Attentiontoperformancemetricsisabestpractice,butmustbeutilizedcarefullytoavoidemergenceofperversebehaviors.Thefocusofperformancemeasuresshouldbeonthetimelyandaccuratecollectionandtransmissionofinformationtofirstresponders.Metricsthatassessperformanceonlowpriorityincidents,whileinteresting,mustbeevaluatedseparatelyfrommetrics
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designedtomeasureperformanceintrueemergencies.Forexample,EMSrelatedcallsarecategorizedthroughtheEMDprocess–withDeltaandEchodeterminantsrepresentingthoseemergenciesrequiringtheclosestandallvehiclestorespondwithlightsandsirens.Ingeneral,dispatchcenterperformancemetricsmustfocusonoptimizingdispatchprocessesasmuchaspossible,withtheendresultbeingtogethelpmovingtoemergenciesasquicklyaspossible.Theprimaryobjectiveistocontributetothepotentialforpositiveoutcomesforpatients,residentsandproperties.TheCounty,BSOandcitiesrequiretoolsthatmakethesedistinctions.TheCountyshouldprovideaweb-basedperformancemeasurementsystemthatprovidesfeedbacktokeystakeholdersinrealtime.Thesystemshouldallowindividualcommunitiestomonitorperformanceofthe911centerandtheirfieldresourcesinrealtime.BSO,asthesystemoperator,shouldbeabletoseeperformanceatboththesystemlevelandattheindividualdispatcherlevelinordertoidentifyandaddressperformanceissues.ThesesystemstypicallytieintotheCADsystemandtheallowevaluationofP1throughP4performancemetrics.Individualcommunitieswouldbelimitedtoseeingonlytheirindividualagencyresources.Boththedisplaysandtargetgoalsshouldbeuserdefinable,byagencyanddiscipline.Mostprovidersofthesoftwareallowforuserstoaccessinformationfromeitheradesktopormobileclient.TheCountyshouldconsiderthiscapabilitytobeabaseserviceforallsystemstakeholders.
Efficiency and Effectiveness
Findings —
CurrentPSAPs,trainingfacilityand“fleeto”planshavefacilitylimitations,especiallyrelatedtoadequatespace.Theconsolidatedsystemiscapableofclosestunitresponsetolife-threateningemergencies,butprotocolsarenotyetinplacetoimplementthiscapability.Radiotrafficutilization,bybothfire/EMSandlawenforcementunits,iscomparativelyhigh.MDTs(mobiledataterminals)andMCDs(mobilecomputingdevice)arenoteffectivelyutilizedtoreduceradiotraffic.BSOcurrentperformanceindicatesoverstaffingincalltakerpositionsbasedonErlangmodeling.BSOcurrentperformanceindicatesoverstaffinginFIREAssignmentpositionsbasedonErlangmodeling.
Recommendations —
CallprocessingstaffingshouldbeadjustedtoachieveP1/call-takingperformanceofbetweenthreetofivesecondsatthe90thpercentilebyadoptingtherecommendedworkstationfunctionalreorganizationasdetailedinthereportsectiontitled,DispatchOperationsModels–Options.Thisadjustment,in
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conjunctionwiththealreadyimplementedsinglequeforcallintake,providessignificantefficienciesinthecalltakingprocesswhilemaintaininghighlevelsofperformance.Fire-rescueagenciesshoulddevelop,approveandimplementcountywidenearestunitresponseprotocolsthatapplyirrespectiveofjurisdictionalboundariesinthoseincidentsinvolvinghighpriorityincidents(e.g.Delta&EcholevelEMDcalls).RecommendedprocesschangestoradiochannelusageincluderequiringincreasedusageofMobileDataTerminals(MDTs)byfieldresponders.OncetheCADisupgradedtoallowautomaticcomputerassignment/recommendationofresponseunitsforfire/rescuecalls,asingle“gatekeeper”function/firerescuealertchannelcanbeimplementedtomanuallyapprovetheassignmentconsistentwithOption2.Upondispatch,pre-definedtacticalradiochannelswouldbeusedformoreroutineforfireincidentsandEMSincidents.Moresignificantincidents(structurefires,major/multipleunitresponses)wouldbeassignedadedicatedtacticalchannel.Thischangeinfirerescueradiooperationsprovidessignificantefficiencieswhilemaintaininghighlevelsofperformance.LawenforcementradiopositionsshouldbeconsolidatedtoincreaseefficiencyconsistentwithOption2.Long-termcapitalbudgetingprogramshouldbeconsideredassoonaspracticaltoincludetwonewpurpose-specific911facilities.
Discussion —
TheCounty’srecentCapitalBudgetincludes$350,000inFiscalYear2017forplanningandanalysisstudiestoidentifydevelopmentoptionsforneworreconstructedPSAPfacilities.TheultimategoalshouldbetohavetwogeographicallydisparatePSAPs28bothofwhicharestaffed24/7/365.Failureofonephysicallocationwillallowthealternatelocationtocontinuetoprovideessentialservices.Currentfacilities,ascurrentlyutilized,appeartobeforclientagenciestocohabitateratherthanconsolidate.Designeffortsthatfocusonconsolidationwillbethemostsuccessful.FITCHdoesnotunderstandfromarootcauseperspective,thefailurebyfieldpersonneltomakebetteruseofmobiledataterminals(MDTs).Thispracticeplacesalargerdemandontheradiosystemand911personnelandfurtherdecreasestheeffectivenessandefficiencyoftheSystem.RequiringfieldpersonneltousetheirunitMDTsinsteadofradiochannelswillallowformoreefficientuseofcurrentdedicatedradiochannelpersonnel.TheCountyshouldensurethatthenewmobileclient,implementedwiththenewCADsystemin2017,meetstheneedsofbothfirerescueandlawenforcementfirstresponders.Firechiefsandpolicechiefsshouldinternallyensuregreaterutilizationofavailabletechnologydesignedtolessentheexistingoverusageofverbalcommunications.
28NFPA1221-2016.Section4.1.5.2
BrowardCounty Page99 ©Fitch&AssociatesAssessmentandRecommendationsofBrowardCounty’sRegionalE911 December2016
Erlanganalysessummarizedelsewhereinthisreport,demonstratesinefficienciesinboththecalltakingandfirerescuedispatchoperations.Adjustingperformancetargets,andmodifyingradiooperationsforfirerescueincidents,bothprovidepotentialsignificantefficiencies.Forthepublic,thereshouldbenodiscernibleimpactonthecallansweringfunction.Forfirerescuepersonneltherewillbeaneedtoadjusttothenewradiochannelassignments-forexample,switchingtoaEMSworkingchannelimmediatelyuponassignment.Insomeregards,systemparticipantsdidnotconsolidatetheir911centers,butrathersimplygeographicallyrelocatedtheiroperations.Theinitialconfigurationoffireandlawradiooperationssimplyreflectedthethenexistingpractices.Toachievetheefficienciesidentifiedhere,fireandlawenforcementagenciesmustconsolidateradiochannelstomoresustainablelevels.Theproposedchangesallowforgreatercapabilityoftacticaloperatorstohandlesignificantfire-rescueincidents.Thisshouldaddressaconcernvoicedbybothfirepersonnelandcurrentradiooperators.Whilethemodelingdemonstratesthatsizableadjustmentsareavailable,implementationofchangesshouldoccurinamoredeliberateandmeasuredmanner.TheCountyshouldrequestBSOimplementanyrecommendedchangesintwoorthreephases–titratingstaffinglevelswhilemonitoringperformance.Ultimately,changesshouldbeabletobefullyimplementedwithin12months.AsnotedintheExecutiveSummary,itisimportantthattheCountyandBSOassurethateachchangephaseiscompletelyembeddedinoperationalproceduresandtheorganization’sculture,beforeseekingadditionalchange.TheCounty’sCharter,statesinpart,thatthe“Countyshallprovidefundingforthecommunicationsinfrastructureandallserviceproviderswillutilizetheelementsofthecommunicationsinfrastructure.Thecommunicationsinfrastructureshallfacilitateclosestunitresponseforlife-threateningemergencies...“.Whiletherehasbeensomepilotprojects,andincreasedautomaticaidforcertainincidents,therehasnotyetbeenaconcertedefforttofullyrealizetheintentoftheCounty’sCharter.Bylimitingtheuseofnearest-unitresponsetoDeltaandEchoincidents,asdeterminedthroughuseoftheexistingEMDprogram,thiswillmeettheCharterlanguageof“forlife-threateningemergencies”whichrepresentapproximately15%ofallEMScalls.
Broward County Attachment B - Page 1 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Attachment A
Scheduling Matrix Sample
Broward County Attachment A - Page 1 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
AttachmentA.SchedulingMatrixSampleOneofthemorecommonworkschedulesfordispatchcenterpersonnelisthefour-dayworkweek.Thisscheduleprovidespersonnelwithalevelofwork-lifebalancethatisacceptableandappropriateforpersonnelworkinginahigh-stressenvironment.Thissectionprovidesthestepsforbuildingaschedulematrixbasedonacombinationof12/8-hourshiftschedulesforafour-dayworkweekandatraditional8-hourscheduleforafive-dayweek.• The4-hourincrementsstartatthetimeofdaytheshiftworkbegins.• Determinethestaffinglevelsneededusingthe4-hourincrements.• Determinethestaffinglevelsneededbydayofweekandhour(4-hourincrements)ofday
baseonnormalactivity.• Thescheduleforthisexampleisbasedonthefollowingsetsofdaysoff:
1. Saturday,Sunday,Wednesday2. Sunday,Monday,Thursday3. Monday,Tuesday,Friday4. Tuesday,Wednesday,Saturday5. Wednesday,Thursday,Sunday6. Thursday,Friday,Monday7. Friday,Saturday,Tuesday
Tables1and2belowprovidesampleschedulesastitled.
Broward County Attachment A - Page 2 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Table1.SampleCombination12/8HourShiftSchedule–4Days/Week
Sunday Monday Tuesday Wednesday Thursday Friday Saturday
1 X 06-18 06-14 X 06-18 06-14 X
2 X X 06-18 06-14 X 06-18 06-14
3 06-14 X X 06-18 06-14 X 06-18
4 06-18 06-14 X X 06-18 06-14 X
5 X 06-18 06-14 X X 06-18 06-14
6 06-14 X 06-18 06-14 X X 06-18
7 06-18 06-14 X 06-18 06-14 X X
8 06-14 X 06-18 06-14 X X 06-18
9 X 06-18 06-14 X 06-18 06-14 X
10 X X 06-18 06-14 X 06-18 06-14
11 X 10-18 06-18 X 10-18 06-18 X
12 X X 10-18 06-18 X 10-18 06-18
13 06-18 X X 10-18 06-18 X 10-18
14 10-18 06-18 X X 10-18 06-18 X
15 X 10-18 06-18 X X 10-18 06-18
16 X 18-06 18-02 X 18-06 18-02 X
17 X X 18-06 18-02 X 18-06 18-02
18 18-02 X X 18-06 18-02 X 18-06
19 18-06 18-02 X X 18-06 18-02 X
20 X 18-06 18-02 X X 18-06 18-02
21 18-02 X X 18-06 18-02 X 18-06
22 18-06 18-02 X X 18-06 18-02 X
23 X 18-06 18-02 X X 18-06 18-02
24 22-06 X X 18-06 22-06 X 18-06
25 18-06 22-06 X X 18-06 22-06 X
26 X 18-06 22-06 X X 18-06 22-06
Combination12/8HourShiftSchedule-4Days/Week
Broward County Attachment A - Page 3 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Table2.Sample8-HourShiftSchedule–5Days/Week
1 X 06-14 06-14 06-14 06-14 06-14 X
2 06-14 06-14 X X 06-14 06-14 06-14
3 06-14 06-14 06-14 06-14 06-14 X X
4 06-14 X X 06-14 06-14 06-14 06-14
5 X X 14-22 14-22 14-22 14-22 14-22
6 14-22 14-22 X X 14-22 14-22 14-22
7 X X 14-22 14-22 14-22 14-22 14-22
8 14-22 14-22 X X 14-22 14-22 14-22
9 14-22 14-22 14-22 X X 14-22 14-22
10 14-22 14-22 14-22 14-22 X X 14-22
11 14-22 14-22 X X 14-22 14-22 14-22
12 14-22 14-22 14-22 X X 14-22 14-22
13 14-22 14-22 14-22 14-22 X X 14-22
14 14-22 14-22 14-22 14-22 14-22 X X
15 14-22 14-22 14-22 14-22 X X 14-22
16 14-22 14-22 14-22 14-22 14-22 X X
17 22-06 22-06 22-06 22-06 22-06 X X
18 X X 22-06 22-06 22-06 22-06 22-06
19 X X 22-06 22-06 22-06 22-06 22-06
20 22-06 22-06 22-06 22-06 22-06 X X
8-HourShiftSchedule-5Days/Week
Broward County Attachment A - Page 4 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Ifthestaffinglevelsneedtobehigherfortheweekend,thenbuildthematrixinreverseorderstartingwithdaysoff(7through1).Additionalpeaktimescanbeaddedasneededtohandleanticipatedsurgesinthesystem.Figure1andTable3belowgiveexamplesofpeakstaffingbasedonfour-hourblocks.
Figure1.GraphicofStaffingChangesin4-HourBlocks
Table3.PersonnelOneDutyin4-HourBlocks
0
2
4
6
8
10
12
14
16
1 2 3 4 5 6
Staffingper4-HourBlocks
4-HourBlock AvgonDuty
9 9 11 10 10 11 10 06-10 10.0
10 11 12 11 12 13 11 10-14 11.4
14 16 16 11 13 14 16 14-18 14.3
15 16 13 11 13 14 16 18-22 14.0
8 9 9 8 11 10 9 22-02 9.1
6 7 6 7 9 7 6 02-06 6.9
Broward County Page 2 © Fitch & Associates Assessment and Recommendations of Broward County’s Regional E911 December 2016
Attachment B
Performance Measures
Broward County Attachment A - Page 1 © Fitch & Associates Assessment of Broward County’s Regional E911 July 2016
ATTACHMENTA:PerformanceMeasuresFROMOPERATORAGREEMENT 22
22FromExhibitDoftheAgreementbetweenBrowardCountyandSheriffofBrowardCountyforTheOperationofCall-taking,Teletype(QueriesOnly)andDispatchServicesfortheConsolidatedRegionalE911CommunicationsSystem
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EXHIBIT "D"
PERFORMANCE STANDARDS
The performance of the Consolidated Regional E-911Communications System (System) will be based on the Lifecycle of an Emergency Call for calls received on the emergency lines (911 lines). As illustrated in the diagram below, operational performance indicators P1, P2, and P3 will be measured, reported and benchmarked against industry best practice standards. Efficiency (cost) measures will be utilized to evaluate the cost of the System.
Emergency Event
9-1-1 Call Initiated
Call Rings
at PSAP
Call Answer
Call Dispatch Unit Arrival
CAD Event
Closed
P1 9-1-1 Call Answer TimeP2 Time from Call Answered to Call Entered in CAD (and forwarded to Dispatcher)P3 Time from CAD Entry until a Unit is DispatchedP4 Time from Unit Dispatched until Unit Arrives on SceneP5 Time from Unit Arrives on Scene until Incident is Closed
Lifecycle of an Emergency Call
Prior to Scope of PSAP Operation
10 secsPSAP / Responder Dispatch Response TimePSAP 9-1-1 Call
Answer Time
Caller Interrogation and Call Entry into CAD
P1 P5P3P2 P4
To ensure the performance of the Consolidated Regional E-911Communications System is evaluated in a reasonable manner, performance standards have been separated based on a transition and post-transition period. COUNTY, OPERATOR and Operational Planning/Implementation Workgroup members will collaborate to provide recommendations to County Administrator on the appropriate operational measures to be used to evaluate the System and establish annual performance targets to ensure incremental progress is being achieved.
Performance Standards will become effective at such time the Participating Community is designated, in writing, by the County as having been migrated to the Consolidated System. Transition Period
The transition period shall begin upon the proper execution of this Agreement and continue through September 30, 2015, as it relates to those Participating Communities set forth on Exhibit "B" as of September 30, 2013.
Broward County Attachment A - Page 2 © Fitch & Associates Assessment of Broward County’s Regional E911 July 2016
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The following Performance Standards ("Standards") will be utilized to track the efficiency and operational performance of the regional system on a monthly basis during transition phase:
Efficiency Measurements:
• Operational Cost per call for System • Operational Cost per E911 call received
Time to Answer Emergency (911) Lines Standard:
• Ninety percent (90%) of all 9-1-1 calls arriving at the Public Safety Answering Point (PSAP) during the busy hour shall be answered within ten (10) seconds (P1)
The busy hour is defined as the hour each day with the greatest call volume.
• Ninety-five (95%) of all 9-1-1 calls should be answered within twenty (20) seconds (P1)
Alarms (audible, silent, panic, fire, smoke, medical, etc.) Received on Alarm Lines Standard:
• Ninety-five percent (95%) of alarms received on alarm lines shall be answered within 15 seconds (P1)
• Ninety-nine percent (99%) of alarms shall be answered within 40 seconds (P1)
First Call Process Time Standard:
Emergency alarm processing for the following call types shall be completed within 90 seconds 90% of the time and within 120 seconds 99% of the time (P2 and P3):
• Calls requiring emergency medical dispatch questioning and pre-arrival instructions
• Calls requiring language translation
• Calls requiring the use of a TTY/TDD device or audio/video relay services
• Calls of criminal activity that require information vital to emergency responder
safety prior to dispatching units
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• Hazardous material incidents
• Technical rescue
• With the exception of the above six call types, 80% of emergency alarm call processing shall be completed within 60 seconds, and 95% of alarm processing shall be completed within 106 seconds (P2 and P3)
• Where alarms are transferred from the primary public safety answering point
(PSAP) to a primary and secondary answering point, the transfer procedure shall not exceed 30 seconds for 95% of all alarms processed* (P2)
*Only applicable if non-participating municipalities operate their own primary and secondary PSAP
Law Enforcement Call Process Time Standard:
• Priority one and priority two law enforcement calls shall be processed within 45 seconds, 90% of the time ** (P2 and P3)
• Priority three law enforcement calls shall be processed within 90 seconds, 90%
of the time ** (P2 and P3) Note: Availability of police units shall be considered when reviewing performance.
Agencies must adopt standard signal codes to evaluate performance and the authority having jurisdiction shall determine time frames allowed to the completion of dispatch.
**Priority assignments based on current proposed standard
Emergency Medical Dispatch Standard:
• 95% case entry compliance rate
• 90% total compliance rate (case entry, chief complaint, key questions, and post-dispatch/pre-arrival instructions)
• 1% of all cases receive quality assurance case review*
*Based on NAED compliance standard for agencies with a call volume of over 500,000
Broward County Attachment A - Page 4 © Fitch & Associates Assessment of Broward County’s Regional E911 July 2016
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Post-Transition Period
The post-transition period begins October 1, 2015. The performance targets of the Consolidated Regional E-911Communications System will be based on the Lifecycle of an Emergency Call for calls received on the emergency lines (911 lines). COUNTY, OPERATOR and Operational Planning/Implementation Workgroup members will collaborate to provide a recommendation to the County Administrator on the appropriate operational measures to be used to evaluate the System and establish annual performance targets to ensure incremental progress is being achieved.
The following Standards will be utilized to track the efficiency and operational performance of the regional system on a monthly basis during the post-transition phase:
Estimated Efficiency Measurements(Subject to Change):
• Operational Cost per call for System (Target: $9.83) • Operational Cost per E911 call received (Target: $14.85)
Efficiency Measurements shall be updated annually by COUNTY Time to Answer Emergency (911) Lines Standard:
• Ninety percent (90%) of all 9-1-1 calls arriving at the Public Safety Answering Point (PSAP) during the busy hour shall be answered within ten (10) seconds (P1)
The busy hour is defined as the hour each day with the greatest call volume.
• Ninety-five (95%) of all 9-1-1 calls should be answered within twenty (20) seconds (P1)
Alarms (audible, silent, panic, fire, smoke, medical, etc.) Received on Alarm Lines Standard:
• Ninety-five percent (95%) of alarms received on alarm lines shall be answered within 15 seconds (P1)
• Ninety-nine percent (99%) of alarms shall be answered within 40 seconds (P1)
First Call Process Time Standard:
Emergency alarm processing for the following call types shall be completed within 90 seconds 90% of the time and within 120 seconds 99% of the time (P2 and P3):
Broward County Attachment A - Page 5 © Fitch & Associates Assessment of Broward County’s Regional E911 July 2016
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• Calls requiring emergency medical dispatch questioning and pre-arrival instructions
• Calls requiring language translation
• Calls requiring the use of a TTY/TDD device or audio/video relay services • Calls of criminal activity that require information vital to emergency responder
safety prior to dispatching units
• Hazardous material incidents
• Technical rescue • With the exception of the above six call types, 80% of emergency alarm call
processing shall be completed within 60 seconds, and 95% of alarm processing shall be completed within 106 seconds (P2 and P3)
• Where alarms are transferred from the primary public safety answering point
(PSAP) to a primary and secondary answering point, the transfer procedure shall not exceed 30 seconds for 95% of all alarms processed* (P2)
*Only applicable if non-participating municipalities operate their own primary and secondary PSAP
Law Enforcement Call Process Time Standard:
• Priority one and priority two law enforcement calls shall be processed within 45 seconds 90% of the time ** (P2 and P3)
• Priority three law enforcement calls shall be processed within 90 seconds 90% of
the time ** (P2 and P3) Note: Availability of police units shall be considered when reviewing performance.
Agencies must adopt standard signal codes to evaluate performance and the authority having jurisdiction shall determine time frames allowed to the completion of dispatch.
**Priority assignments based on current proposed standard
Emergency Medical Dispatch Standard:
• 95% case entry compliance rate
Broward County Attachment A - Page 6 © Fitch & Associates Assessment of Broward County’s Regional E911 July 2016
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• 90% total compliance rate (case entry, chief complaint, key questions, and post-dispatch/pre-arrival instructions)
• 1% of all cases receive quality assurance case review*
*Based on NAED compliance standard for agencies with a call volume of over 500,000
For a municipality that elects to become a PARTICIPATING COMMUNITY subsequent to September 30, 2013, the development and implementation of the transition plan shall contain provisions to minimize adverse impacts on the System by the addition of such municipality.
REVIEW AND REPORTING OF PERFORMANCE STANDARDS (TRANSITION AND POST-TRANSITION)
Standards shall be evaluated monthly using data from the previous month. Each Participating Community, Police Chief’s Association, and Fire Chief’s Association shall be provided a report on OPERATOR’s performance utilizing this data no later than 30 days following the end of the previous month.
COUNTY shall provide an annual report on OPERATOR’s performance to each Participating Community, Police Chief’s Association and Fire Chief’s Association. A draft of the final version of the annual report shall be delivered to the OPERATOR fifteen (15) calendar days before the intended release date. COUNTY and OPERATOR shall meet within five (5) calendar days thereafter to discuss the annual report's content and attempt to amicably resolve any differences, if any, in the statements, findings, and conclusions, or any combination thereof. If no amicable resolution is reached, OPERATOR shall have five (5) calendar days from the meeting to respond to the annual report and contest the statements and findings therein by providing a written response to COUNTY which response shall be included as an exhibit to the final annual report.
OPERATOR will be evaluated on its ability to achieve the necessary operational and efficiency performance standards, adherence to established actions and overall performance of the Consolidated Regional E-911 Communications System.
FAILURE TO MEET PERFORMANCE STANDARDS (TRANSITION AND POST-
TRANSITION):
In the event a Standard is out of compliance in any month, the following shall occur:
(1) COUNTY shall issue a written Notice of Noncompliance to the OPERATOR.
Broward County Attachment A - Page 7 © Fitch & Associates Assessment of Broward County’s Regional E911 July 2016
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(2) OPERATOR shall provide to the COUNTY, a written Notice of Mitigating Circumstance(s) if any, within two (2) business days of the issuance of the Notice of Noncompliance. The Notice of Mitigating Circumstances shall include detailed information and documentation to support OPERATOR's position. For the purpose of this Agreement, a Mitigating Circumstance shall be defined as a natural or man-made incident, accident, disaster, or other environmental or situational anomaly that is unpredictable and, in the reasonable opinion of COUNTY, its occurrence causes an overwhelming and unusual emergency response that greatly exceeds the resources of the SYSTEM. (3) COUNTY shall review any Notice of Mitigating Circumstance(s) that was timely submitted to determine whether the OPERATOR's failure to meet any Standard was due to a Mitigating Circumstance(s). The COUNTY review shall take into account all Mitigating Circumstance(s) that were submitted and their impact on the issue of noncompliance for each Performance Standard. COUNTY shall exercise its discretion to arrive at a reasonable determination that shall be final.
(4) In the event COUNTY determines that the OPERATOR has established, to COUNTY's satisfaction, Mitigating Circumstances related to its failure to achieve a Standard, COUNTY, in collaboration with OPERATOR, shall develop a written action plan to address the noncompliance. The Mitigating Circumstance(s) shall be a factor in the development of the action plan. The COUNTY shall have final approval of all action plans. The action plan may include changes to processes, practices, and procedures and shall include time frames in which the actions must be completed. OPERATOR shall comply with and immediately implement the action plan within the time frames established therein. In the event that OPERATOR shall timely implement all the elements of the action plan to COUNTY's satisfaction, the Notice of Noncompliance subject to Mitigating Circumstances shall be rescinded in writing.
(5) In the event that a Notice of Mitigating Circumstances was not timely submitted by OPERATOR, or following a determination by COUNTY that Mitigating Circumstance(s) were not established, COUNTY, in collaboration with the Operator, shall develop a written action plan to address the noncompliance. The COUNTY shall have final approval of all action plans. The action plan may include changes to processes, practices and procedures and shall include time frames in which the actions must be completed. OPERATOR shall comply with and immediately implement the action plan developed by COUNTY and comply with the time frames established therein.
Broward County Attachment A - Page 8 © Fitch & Associates Assessment of Broward County’s Regional E911 July 2016
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(6) Compliance with an action plan shall not excuse OPERATOR from compliance with all Standards in a subsequent month.
(7) The written Notice of Noncompliance and the written Notice of Mitigating Circumstances shall be delivered by e-mail to the following e-mail addresses:
For County:
Rick Carpani [[email protected]], Director of Office of Communications Technology
For Operator:
Robert Pusins [[email protected]], Executive Director of Community Programs, and
Lisa Zarazinski, Lisa [[email protected]] , Director of Regional Communications
(8) In the event that the OPERATOR receives a Notice of Noncompliance for any three consecutive months (excluding any Notice of Noncompliance that was rescinded pursuant to the procedures in paragraph 4 above), the OPERATOR shall be deemed to be in breach and the Agreement shall be subject to termination as set forth in Article 7. In the event that COUNTY issues a notice of breach for noncompliance of the OPERATOR for any three consecutive months, the OPERATOR may cure the breach, if the breach is capable of cure, by performing any and all actions required to meet all Standards that were subject of the Notices of Noncompliance within thirty (30) calendar days from the date of notice of breach to COUNTY's satisfaction.
Notwithstanding the right to cure set forth in Article 7, in the event that the OPERATOR receives a Notice of Noncompliance for four months (excluding any Notice of Noncompliance that was rescinded pursuant to the procedures in paragraph 4 above), whether consecutive or not, in any twelve month period, this Agreement may be terminated upon not less than ten (10) days written notice for breach, without the right to cure.
Broward County Attachment C - Page 1 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
AttachmentC:CalculationofAnswerDelaysTR=911 IN=
IncomingIsEmpty
S0IsEmpty
E1IsEmpty
E2 E1–E2 AnsDel
0 0 – – – – blank1 0 – – – – blank0 1 – – – – blank1 1 1 – – – blank1 1 0 0 1 – E1-S01 1 0 1 0 – E2-S01 1 0 0 0 <0 E1-S01 1 0 0 0 >0 E2-S0
WithHang-UpsThelogicfordetermininganswerdelaysinvolvinghang-upsrequirestestingthecontentsoffivefields.Theseare:
TR: TrunkIN: IncomingS0: [CIM]ANIinterval,“Start”E1: [CIM]Disconnected,“End1”E2: CallConnected,“End2”
TheBooleanoutcomesofeachtestandthecorrespondinganswerdelaycalculationareindicatedinthefollowing6X8truthtable.Thecoderequiredtoimplementthistruthtableisasfollows:
Ans_Delay [hh:mm:ss.sss] = Let ([ var01 = If(Trunk = "911" and InComing = 1 ; 1 ; 0) ; var02 = not IsEmpty(CIM_ANI) ; var03 = not IsEmpty(CIM_Disconnected ) ; var04 = not IsEmpty(Call_Connected) ; var05 = CIM_Disconnected - CIM_ANI ; var06 = Call_Connected - CIM_ANI ; var07 = CIM_Disconnected - Call_Connected ; var08 = If ( var02 = 1 and var03 = 1 and var04 = 0 ; 1 ; 0 ) ; var09 = If ( var02 = 1 and var03 = 0 and var04 = 1 ; 1 ; 0 ) ; var10 = var02 * var03 * var04 ; var11 = If ( var10 = 1 and var07 < 0 ; 1 ; 0 ) ; var12 = If ( var10 = 1 and var07 > 0 ; 1 ; 0 ) ; var13 = Case ( var02 = 0 ; "" ; var08 = 1 ; var05 ; var09 = 1 ; var06 ; var11 = 1 ; var05 ; var12 = 1 ; var06 ; "" ) ] ; If ( var01 = 1 ; var13 ; "" ) ) /* If ( test=TRUE ; thenresultOne ; elseresultTwo )
Broward County Attachment C - Page 1 © Fitch & Associates Assessment of Broward County’s Regional E911 July 2016
Attachment D
Erlang Mathematics & Assumptions
Broward County Attachment D - Page 1 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
AttachmentD:ErlangMathematicsandAssumptions
HistoryAgnerKrarupErlangwasaDanishmathematician,statistician,andengineerwhoinventedthefieldof
telephonenetworksanalysiswhileworkingfortheCopenhagenTelephoneCompanyfrom1908through
1929.ThegoalofErlang’squeuinganalysesistodeterminehowmanyserviceprovidersshouldbemade
availabletosatisfyusers,withoutoverprovisioning.Mr.Erlangquantifiedthethree-cornered
relationshipbetweenrequestsforservice,numberofagents,andlatencyasshowninFigure1,below.
TheconceptsandmathematicsintroducedbyMr.Erlanghave
stoodthetestoftime.Inthemodernworld,thesemethodsare
usedtoanalyzequeuingprocessesinsystemsasdiverseas
shoppersusinggrocerystorecheckoutcashierstodatapacket
switchingthroughInternetroutersatmegahertzfrequencies.
ThearticleauthoredbyChromy,Misuth,andKavackyisaconciseintroductiontotheapplicationofthe
ErlangCformulatoanalysesofemergencyservicescallcenters.1
MathematicsForErlang’sanalysestoapplytoasystem,twoconditionsmustbemet:
§ Usersarrivemoreorlessatrandomintervals;
§ Usersreceiveexclusiveservicefromanyoneofagroupofagentswithoutpriorreservations
TheflowofcallsthroughE911centers,includingBroward’s,conformtotheserequirements.
ThereareseveralversionsofErlanganalysesdependingontheexactmodelofthetrafficflowing
throughthesystem.ThespecificmodelapplicabletotheBSO’sdispatchoperationshasuserseither
beingservedimmediately,orwaitinginqueueuntilacalltakerbecomesavailable.Thespecific
mathematicalembodimentoftheanalysisapplicabletotheBSOsystemisreferredtoastheErlang-C
equation.
Erlanganalysesmustbeconductedoveraselectedintervaloftime.Inthecaseofemergencyservice
communicationscentersexperiencingthenumberofcallsseenatBSOthisintervalismostappropriately
onehour.Littleinsightwouldbegainedbyviewingeachhouroftheyearasaspecialcase.Theneedis
fortheanalysttoconsolidateindividualhoursintogroupsthatpresentavalidpictureofthewaythe
systemfunctions.TheconsolidationprocessappropriatetoBSOhasbeendescribedaboveinthis
Report.
1
E.Chromy,T.Misuth,andM.Kavacky,2011,AdvancesinElectricalandElectronicEngineering,ISSN1804-3119.
Requests
AgentsLatency
Figure1.QueueingTheoryTriangle
Broward County Attachment D - Page 2 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
TheErlangCformulacalculatestheprobabilitythatanarrivingcallwillbedivertedtothewaitingqueue
ratherthanbeingservedimmediately.ThreecommonsenseparametersgointotheErlangCcalculation:
§ Theaveragearrivalrateofcallsduringthehoursbeingconsidered.
§ Theaveragelengthoftimethedispatcherspendsprocessingeachcall.
§ Thenumberofdispatchersonduty.
ForanErlanganalysis,theworkloadflowingthroughtheBSO’sdispatchoperationsmustbeexpressedin
unitsoferlangs,!.
! = $% Equation1 !:Workloadinunitsoferlangs
$:Averagecallarrivalrateincallsperhour %:Averagecall-processingtimeindecimalhourspercall
TheaveragecallarrivalrateandaveragecallprocessingtimesthatarerequiredtocalculateErlangsin
Equation1areextractedfromthehistoricComputerAidedDispatch(CAD)system,theIntradoVIPER
telephonyserver,andthewrittenreportsofradiousageperchannel.
Toavoidconfusion,thereadershouldbeadvisedthatmanyofthetimeparametersappearinginthe
tabulardatapresentedinthisreportwillbeformattedasdecimalhoursratherthanas
hours:minutes:seconds,hh:mm:ss.Forexample,15minutes,00:15:00,willappearas0.250hr.
Theprobabilitythatanarrivingcallwillbedivertedtothewaitingqueue,&',ratherthanbeingansweredimmediatelyiscalculatedfromtheexpansionoftheErlang-Cequation.
&' = ())!
))+(
(,,! -
())!
))+(
,.)+/,.0
Erlang-CEquation2
!:WorkloadinErlangsfromEqn1 1:Dispatchersondutyatworkstations
Discussionsofqueueingprocessesareoftentabulatedintermsofthreeadditionalparameters:
&2:Probabilitythatanincomingcallwillbeimmediatelyanswered.
3:Averageanswerdelay.Thetimeintervalthatacallinheldinqueue.
4:Averagenumberofcallswaitinginqueueforservice.
Broward County Attachment D - Page 3 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Oncetheprobabilitythatanarrivingcallwillbedivertedtothewaitingqueue,&',hasbeencalculatedusingEquation2,thenthesethreeadditionalparameterscanbecalculatedusingthealgebraic
transformationsinEquations3,4,and5.
&2 = 1 −&' Equation3
3 = 789:;< Equation4
4 = 78<:;< Equation5
VariablesPQ,N,andEaredefinedabove.
AbsolutelyrigorousapplicationofanErlang-Canalysisrequiresthatthreeadditionalconditionsbemet:
§ Thatcallersneverhangupwhilebeingheldinqueue.
§ Thatallcallsbeginandendwithinasingletimeinterval.
§ Thatcallersdonotcallbackafterhavinghungupwhileinqueue.
Whentheseconditionsarenotmet,aswillbethecaseintherealworld,thentheErlang-Cformula
predictsthatslightlymorecall-takersshouldbeusedthanarereallyneededtomaintainadesiredlevel
ofservice.Thus,theErlang-Canalysisisgenerallyviewedasprovidinganupperboundtotheneeded
numberofcall-takersrequiredtoserviceagivenflowofincomingtraffic.
WhilethislimitationofErlangCanalysisexists,inpractice,itresultsinanegligibleincreasetothe
numberofdispatcherspredictedforBSO’sdispatchoperations.Theflowofofferedtrafficthroughthe
BSOsystemismodestandthenumberofdispatchersrequiredismodest.Dispatcherscanbeaddedto
orsubtractedfromthesystemonlyinintegerincrements.Underthesecircumstances,incrementingthe
numberofdispatchersby+1willalwaysresultinsuchalargeincreaseinansweringprobabilitythatit
overwhelmsthepropensityofasimpleErlangCanalysistoslightlyincreasetherequirednumberof
dispatchers.
Workloads,StaffingandNon-LinearResponseAconcisepresentationofworkloadpatternsandnon-linearresponseofaqueueingsystemispresented
intheon-linePDFtitled,“CallCenterBasics”.2
Thefollowingisaparaphraseofportionsofthisarticle.
Anaïveapproachtocalculatingthenumberofagentsneededinacallcenteristodividethenumberof
callsexpectedperhourdividedbytheaveragelengthofacall.Forexample,if100callsarriveperhour
andtheaveragetimetoserviceacallis15minutes,thenitappearsthat25agentsshouldbeableto
servicetheworkload.Theflawinthismodelisthatcallsdonotarriveinanorderlyfashion,oneright
aftertheother.Callers,seekingservice,actindependentlyofeachother,andtheircallsarriveina
2
www.easyerlang.com/pdfs/call-center-basics.pdf(July15,2015)
Broward County Attachment D - Page 4 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
randompatternsurroundingtheaveragespacingbetweencalls.Likewise,theintervalrequiredbythe
agentstoprocesseachrequestforservicedisplaysarandompatternsurroundingitsaveragevalue.
Forcallcenters,thearrivalrateisbestdescribedbyamathematicalfunctioncalledaPoisson
distribution.Thecallprocessingintervalisbestdescribedbyamathematicalfunctioncalledan
Exponentialdistribution.Figures22and23illustratetheshapesofthesedistributions.
Figure22.PoissonDistributionofCallArrivalRates
Figure23.ExponentialDistributionofCallProcessingIntervals
Thestatisticalbehaviorsofthecallarrivalsandcallserviceintervalsguaranteesthatchangesinthe
numberofagentswillhaveanon-lineareffectonperformanceofthesystem.Inthishypothetical
example,anincreaseof10%instaffingwillnotresultina10%decreaseintheaverageanswerdelay.
Rather,theaverageanswerdelayshowsthebehaviorshowninFigure24.
00.00
0.05
0.10
0.15
0.20
0.25
1 2 3 4 5 6 7 8 9 10 11 151412 13
Calls per Hour
Prob
abilit
y
00.00
0.05
0.10
0.15
0.20
0.25
5 10 15 20Call Processing [min / call]
Prob
abilit
y
Broward County Attachment D - Page 5 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Table1:AverageAnswerDelayVersusNumberofAgents
Thepurposeofthisexampleistoemphasizethattheperformanceofaqueueingsystemchangesina
verynon-intuitivemannerwithrespecttochangesinbothstaffingandworkload.
Thedependenceofaverageanswerdelayonthenumberofdispatcherisapproximatelyhyperbolic.At
constantworkload,anincrementordecrementof±1dispatchercanresultinverymagnifiedorvery
compressedchangesinaverageanswerdelaysdependingonwhichendofthecurveinFigure3contains
theoperatingpointofthesystem.Thereisnosubstituteforrunningdetailedcalculations,usingdata
specifictothesystemunderconsideration,inordertoaccuratelypredictitsqueueingbehavior.
Insystemswithlargenumbersofagents,therelationshipbetweenaverageanswerdelaysandthe
numberofagentsondutyisapproximatelyacontinuousfunction.Thisrelationshipisverydifferentfor
smallsystems(Figure25).
Table2:AnswerDelaysandAgentsinSmallSystems
Therelationshipremainsapproximatelyhyperbolic,buttheaccessibleanswerdelaysbecomeastep
function.Thenumberofagentsondutycanonlybechangedinintegerincrementsordecrements.
16 17 18 190
100
200
300
400
500
20 21 22 23 24 25
600
Agents On DutyAn
swer
Del
ay [s
ec]
0 1 2 3 4 5 60
5
10
15
20
25
30
35
40
45
50
Agents
Answ
er D
elay
[sec
]
Broward County Attachment D - Page 2 © Fitch & Associates Assessment of Broward County’s Regional E911 July 2016
Attachment E
Quantitation of Workloads
Broward County Attachment E - Page 1 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Attachment E. Quantitation of Workloads
Intake Workstations The data table Call Detail Records captures all incoming traffic to the Intake workstations. Counts of emergency and administrative calls were taken from these records summed by hour of year and averaged by hour of day. Hang-ups and nuisance calls are included in these records. Counts were also taken from the Outgoing Phone Log, summed by hour of year and averaged by hour of the day. Depending on the model being calculated, these counts may be segregated by Central, North, and South PSAPs. The processing time is the summation of the intervals from the [Agent Connected] timestamp to the [Agent Disconnect] timestamp. Additional processing time is the summation of the durations of outgoing calls taken from the Outgoing Phone Log. These processing times were summed by hour of year and averaged by hour of the day. Depending on the model being calculated, these processing durations may be segregated by Central, North, and South PSAPs. For calculation of workloads at the consolidated Intake workstations, counts and processing durations for all three PSAPs were combined. Assignment & Radio Support Workstations The count of incidents at the LAW and FIRE Assignment workstations were taken from the CAD, summed by hour of year and averaged by hour of day. The duration of assignment processing was taken as the interval from the [Transmit] timestamp until the [Dispatch] timestamp. These processing times were summed by hour of year and averaged by hour of day. Depending on the model being calculated, these processing durations may be segregated by Central, North, and South PSAPs. FIRE and LAW assignments were tabulated separately. All radio traffic in the Broward system is recorded. Broward did not make these records available to the consultant. Consequently, the exact radio traffic associated with each specific incident could not be determined. The workaround was based on a year-end written summary titled “Talkgroups at Zone Summary 150101 – 151231.” This document summarized total air time on each of the FIRE and LAW dispatch channels for the various jurisdictions. It was possible to obtain an incident count from the CAD for each LAW and FIRE jurisdiction. Combining total annual air time with total annual incident counts per jurisdiction permitted calculation of an average amount of air time per incident for all of the FIRE and LAW jurisdictions. These results were stored by agency in a dedicated data table titled “Talkgroup Stats.” Summing these average air times per incident by hour of year and averaging by hour of day provided the best estimate of the contribution of radio traffic workloads to total workload at the Assignment & Radio Support workstations. Depending on the model being calculated, these workloads may be segregated by Central, North, and South PSAPs.
Broward County Attachment E - Page 2 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
ID Unit / FR Assign Workstation In Option 2, the CAD software has been upgraded with the ability to identify the unit(s) most appropriate for executing the response. The time interval for this identification process is assumed to be 1.5 seconds, based on FITCH’s experience with identification software in other large metropolitan systems. The recommended units are presented to the FR Assignment Dispatcher for review and notification. The manual review and notification is assumed to require 15 seconds, again, based on FI>TCH’s experience in other large metropolitan systems. FR msr Radio Workstation This workstation provides radio support for “multi-station response” incidents. These incidents comprise FIRE responses requiring the participation of units from more than one station. The average Time-on-Task for “msr” incidents in the Broward CAD is 00:24:52 [hh:mm:ss]. The radio support dispatcher at this workstation is assumed to be 100% dedicated to the incident for the first half of this interval ( 00:12:26 ), and 50% dedicated for the second half of the interval ( 00:06:13 ) for an average processing interval of 00:18:39 per msr incident. The function of this workstation is to provide tactical radio support on responses to complex FIRE incidents. Since crews do not require tactical radio support while loading to their apparatus, the latency used to model this workstation approximated the average chute interval experienced on these incidents.
FR ssr Radio Workstation This workstation provides radio support for “single station response” incidents. These incidents comprise emergency medical incidents plus the “simple” FIRE responses. The count of incidents was taken from the CAD, summed by hour of year, and averaged by hour of day. The workload was quantitated by multiplying the average count of incidents by the average duration of radio air time per incident as described in the section titled “Assignment & Radio Support Workstations”, above. In Option 2, the radio air time per incident was reduced to 60% of its current amount to reflect an increased use of MDTs compared to current practice.
Broward County Attachment F - Page 1 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
AttachmentF:SamplePhoneRecordandOutgoingPhoneLogTable1.SampleCDRPhoneRecord
Broward E911 Consolidated Communications SystemCall Detail Records Extended Format Begin Timestamp TimeDate
===== CDR BEGIN : 11/11/15 15:30:10.313 =====
0
===== CDR BEGIN : 11/11/15 15:30:10.313 ===== 00:00:00.000 [ TS] SYSTEM ID = broward 00:00:00.000 [ CIM] Incoming Call (ID: 911009-00291-20151111203010) Offered on Trunk 911009 00:00:02.269 [ CIM] ANI: (40)"9547295989" [VALID] PseudoANI: "" [NONE] 00:00:02.269 [ TS] Initial ALI Request for ANI : 9547295989 00:00:02.279 [ CIM] Call Presented 00:00:02.898 [VoIP] External Call-Identifier 911009-00291-20151111203010 00:00:03.100 [VoIP] Routing call QUEUE = 6023 00:00:03.309 [ PAS] Initial ALI Response received / ALI TYPE = 1 00:00:03.315 [VoIP] Routing call QUEUE = 6020 00:00:03.523 [ CIM] Call Connected 00:00:03.528 [VoIP] Routing call AGENT = 15002/2012 00:00:04.061 [ TCI] TRUNK = 911009 / LINE = 9 POS = 012 / STN = 2012 00:00:04.061 [ TCI] CALL CONNECTED BY AGENT = Adrian, Andrea/15002 ROLE = Central Call-Taker 00:00:04.061 [ TCI] From PSAP ID = 1 PSAP Name = Central 00:00:43.055 [ CIM] Tandem Transfer 00:00:44.552 [ TCI] Event Logged By POS = 012 / STN = 2012 KEY: TRANSFER SV: 77 LV:h,9547644357 00:00:44.552 [ TCI] agencyId: 471 agencyName: BROWARD COUNTY NON-EMERGENCYagencyTypeId: 9 agencyTypeName: Non-Emer 00:00:48.917 [ TCI] CALL RELEASED BY POS = 012 / STN = 2012 00:00:48.917 [ TCI] CALL DISCONNECTED BY AGENT = Adrian, Andrea/15002 ROLE = CentralCall-Taker 00:00:48.917 [ TCI] From PSAP ID = 1 PSAP Name = Central 00:00:50.743 [ CIM] Call Disconnected 00:00:50.753 [ CIM] Call Terminated 00:00:50.753 [ TS] Call Completed ===== Initial ALI ==== (954) 729-5989 15:30 11/11 8320 W SUNRISE BLVD PLANTATION FL 470 WPH2 SPRINT N SECTOR P# 729-5989 ALT# 954-816-8962 LEC:SPPCS WIRELESS CALL QUERY CALLER FOR LOCATION QUERY CALLER FOR PHONE # -080.256994 +26.162771 ===== CDR END =====
WIRELESSOrigin
11/11/2015 15:30:10.313
00:00:04.061 Agent Connected
15:30:10.31311/11/2015
CentralPSAP
911009Trunk
9548168962Phone_Number
-80.256994 Longitude26.162771 Latitude
00:00:48.917 Agent Disconnected
0Before
1,822
0 On-HoldOff-Hold0
0
0
ParkedUnparked
Char
00:00:03.523 Call_Connected
Caller Disconnects: After Supervision
Answer Delay
00:00:44.856 Agent Processsing
CDR Text Length
Mo Day DayName
Dayof Wk
Hourof Yr
Hr ofDay
11 11 Wed 4 15 7,5522015
Year
0TTY
44.856 sec
1.254
sec
15002Agent
2012 Station
Adrian, AndreaName
1.735
20.223
avg± sdsec
sec
11/11/2015 15:30:14.374 Agent_Connected_TS11/11/2015 15:30:59.23 Agent_Disconnected_TS
sec
00:00:02.269 [CIM] ANICaller Disconnects
11/11/2015 15:30:13.836 Call_Connected_TS
DNIS Alarm0
Call_Presented00:00:02.279
secsec
sec 90th95th
Broward County Attachment F - Page 2 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Table2.SampleofOutgoingPhoneLogs
Broward E911 Consolidated Communications SystemOutgoing Phone Logs 11/01/2015 - 01/31/2016
DateTimestampDialed Number ProcessingPSAP HoD
12/10/201512/10/2015 01:04:35Central 11.176(954) 279-0070 1 sec
12/10/201512/10/2015 01:06:25Central 10.188(954) 260-8290 1 sec
12/10/201512/10/2015 01:06:31South 3.436(954) 295-2251 1 sec
12/10/201512/10/2015 01:09:39North 756.561(800) 323-9949 1 sec
12/10/201512/10/2015 01:17:21South 2.206(954) 927-5287 1 sec
12/10/201512/10/2015 01:20:17Central 3.804(786) 487-7286 1 sec
12/10/201512/10/2015 01:24:00North 14.468(772) 626-7768 1 sec
12/10/201512/10/2015 01:25:02Central 258.527(786) 312-0238 1 sec
12/10/201512/10/2015 01:39:56Central 16.657(754) 423-5752 1 sec
12/10/201512/10/2015 01:45:40Central 38.065(954) 439-1070 1 sec
12/10/201512/10/2015 01:49:54South 7.559(718) 427-4308 1 sec
12/10/201512/10/2015 01:59:22South 6.804(754) 779-9183 1 sec
12/10/201512/10/2015 02:16:04Central 6.867(904) 236-2138 2 sec
12/10/201512/10/2015 02:16:31Central 32.045(954) 706-1753 2 sec
12/10/201512/10/2015 02:17:37South 480.740(786) 539-8293 2 sec
12/10/201512/10/2015 02:18:25North 57.829(772) 501-3443 2 sec
12/10/201512/10/2015 02:19:20Central 5.420(754) 322-8350 2 sec
12/10/201512/10/2015 02:19:34Central 46.076(754) 321-0161 2 sec
12/10/201512/10/2015 02:19:57South 4.558(786) 985-0380 2 sec
12/10/201512/10/2015 02:26:54North 8.784(772) 501-3443 2 sec
12/10/201512/10/2015 02:27:59South 2.232(954) 650-1660 2 sec
12/10/201512/10/2015 02:28:30North 33.352(954) 650-1660 2 sec
12/10/201512/10/2015 02:47:13South 93.104(954) 524-6991 2 sec
12/10/201512/10/2015 02:48:25Central 23.403(954) 235-9273 2 sec
12/10/201512/10/2015 02:48:28North 36.985(954) 971-7749 2 sec
12/10/201512/10/2015 02:57:32South 14.205(832) 335-7572 2 sec
12/10/201512/10/2015 03:18:51Central 306.468(954) 960-2463 3 sec
12/10/201512/10/2015 03:25:34South 4.157(954) 454-1472 3 sec
12/10/201512/10/2015 03:37:23Central 316.004(954) 268-4639 3 sec
12/10/201512/10/2015 03:42:15Central 2.145(912) 412-8662 3 sec
12/10/201512/10/2015 03:42:15Central 13.111(954) 245-2606 3 sec
12/10/201512/10/2015 03:52:41North 51.182(954) 609-4031 3 sec
12/10/201512/10/2015 03:55:45Central 397.942(561) 368-8462 3 sec
Broward County Attachment G - Page 1 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
AttachmentG:SampleRecordsformFIRE&LAWCADs&RadioStatisticsTable1.SampleRecordsfromLawCAD
Broward E911 Consolidated Communications SystemLAW Incident Records
12/10/2015
Date
13:01:45
Time
12 10 Thu 5 13 8,246
Mo Day DayName
Dayof Wk
Hourof Yr
Hr ofDay
4900 W OAKLAND PARK BLVD
04
AOA76
Rcvd_timeCreate_time
Arrvd_timeClosed_time
L04151210000721
Event_number
2
Dispatch_time
12/10/2015 13:00:35
12/10/2015 13:01:45
12/10/2015 13:06:10
12/10/2015 13:09:46
12/10/2015 13:59:28
Transmit_time 12/10/2015 13:02:23
CentralBSO
Code Disp_LocResponse_Agency
Incident_IDPriority Incident_Description
Lauderdale Lakes
00:53:18Time-on-Task
BSO-07-DISP
Radio_Chn
00:03:47Assign_proc
Avg Talk/Xmit/Rcv
Avg Talk/Incident
9.55251.42 secsec
9546245921
Caller Phone
12/10/2015 13:00:28.768
Xmit/Rcv's/ Incident
5.38 41.871
SupportDuration
68 sec
sec
4B6
Unit
Enroute_time 12/10/2015 13:06:12.4
CDR_Begin
12/10/2015 13:00:32.973Agent Connected
12/10/2015 13:08:48.92Agent Disconnected
Portal to CDR Data Table
12/10/2015 13:00:32.265Call_Connected
DispatchDuration
9.552 sec
12/10/2015 13:00:32.97312/10/2015 13:00:28.768 12/10/2015 13:00:32.265 12/10/2015 13:08:48.92
0
Dup'd
CDR_Begin Agent_ConnectedCall_Connected Agent_Disconnected
P2
P3
00:01:50.027Intake_proc00:00:02.027VIPER_spillover
00:01:10Rcvd_offset
Assign_workloadP2 / P3335P2/P3 Interval
3Index
1
23
4
335
143.792avg
sec
sec
Broward County Attachment G - Page 2 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Table2.SampleRecordfromFIRECAD
Broward E911 Consolidated Communications SystemLAW Incident Records
12/10/2015
Date
13:01:45
Time
12 10 Thu 5 13 8,246
Mo Day DayName
Dayof Wk
Hourof Yr
Hr ofDay
4900 W OAKLAND PARK BLVD
04
AOA76
Rcvd_timeCreate_time
Arrvd_timeClosed_time
L04151210000721
Event_number
2
Dispatch_time
12/10/2015 13:00:35
12/10/2015 13:01:45
12/10/2015 13:06:10
12/10/2015 13:09:46
12/10/2015 13:59:28
Transmit_time 12/10/2015 13:02:23
CentralBSO
Code Disp_LocResponse_Agency
Incident_IDPriority Incident_Description
Lauderdale Lakes
00:53:18Time-on-Task
BSO-07-DISP
Radio_Chn
00:03:47Assign_proc
Avg Talk/Xmit/Rcv
Avg Talk/Incident
9.55251.42 secsec
9546245921
Caller Phone
12/10/2015 13:00:28.768
Xmit/Rcv's/ Incident
5.38 41.871
SupportDuration
68 sec
sec
4B6
Unit
Enroute_time 12/10/2015 13:06:12.4
CDR_Begin
12/10/2015 13:00:32.973Agent Connected
12/10/2015 13:08:48.92Agent Disconnected
Portal to CDR Data Table
12/10/2015 13:00:32.265Call_Connected
DispatchDuration
9.552 sec
12/10/2015 13:00:32.97312/10/2015 13:00:28.768 12/10/2015 13:00:32.265 12/10/2015 13:08:48.92
0
Dup'd
CDR_Begin Agent_ConnectedCall_Connected Agent_Disconnected
P2
P3
00:01:50.027Intake_proc00:00:02.027VIPER_spillover
00:01:10Rcvd_offset
Assign_workloadP2 / P3335P2/P3 Interval
3Index
1
23
4
335
143.792avg
sec
sec
Broward County Attachment G - Page 3 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Table3.SampleRecordsfromRadioStatistics
TotalRadio
Duration[sec/yr]
RadioChannelAbbrev
RadioTraffic
Xmit/Rcv's
AverageTalk
Xmit/Rcv[sec]
IncidentCount
TotalTalk perIncident
[sec]
Broward E911 Consolidated Communications SystemTalkgroups at ZoneStatistics CY2015
TalkCount
perIncident
4,161,542BCF-D1 480,434 8.662 36,910 112.75 13.02
4,671,511BCF-D2 529,742 8.818 48,609 96.10 10.90
2,008,058BCF-D3 225,762 8.895 20,198 99.42 11.18
1,539,092BCF-D4 178,202 8.637 14,023 109.75 12.71
3,160,509BCF-D5 399,290 7.915 30,872 102.37 12.93
3,456,751BCF-D6 419,797 8.234 32,836 105.27 12.78
5,252,965FLF-DISP1 656,110 8.006 54,316 96.71 12.08
4,070,692BCF-D8 447,385 9.099 30,929 131.61 14.46
2,525,851BCF-D9 288,696 8.749 21,580 117.05 13.38
541,606BCL-COMM 58,333 9.285 14,940 36.25 3.90
6,571,478BSO-02-DISP 717,158 9.163 32,778 200.48 21.88
7,212,269BSO-03-DISP 792,390 9.102 27,162 265.53 29.17
4,794,358BSO-04-DISP 497,838 9.630 42,827 111.95 11.62
7,145,394BSO-05-DISP 696,625 10.257 73,975 96.59 9.42
7,364,307BSO-06-DISP 762,379 9.660 117,985 62.42 6.46
10,128,828BSO-07-DISP 1,060,432 9.552 196,973 51.42 5.38
7,975,457BSO-08-DISP 872,305 9.143 75,711 105.34 11.52
8,527,021BSO-10-DISP 1,004,798 8.486 74,434 114.56 13.50
14,618,781BSO-11-A1A2 1,605,483 9.106 123,425 118.44 13.01
8,310,381CKP-MAIN 916,167 9.071 77,097 107.79 11.88
1,058,964CSF-MAIN 125,578 8.433 10,590 100.00 11.86
16,514,932HW-P-A1A2 1,377,654 11.988 189,878 86.98 7.26
9,362,099PPP-MAIN 988,952 9.467 86,900 107.73 11.38
7,195,082SNP-DISP 825,080 8.720 79,207 90.84 10.42
251,695WMP-TAC-1 30,847 8.159 2,517 100.00 12.26
Broward County Attachment H - Page 1 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Attachment H. Calculation of Surges Theoretical Treatment Emergency services communications centers dispatch responses to defined geographic areas, the service jurisdiction. At a given hour of the day, and from day-to-day, the number of people in the service jurisdiction will be approximately the same. In turn, this condition leads to the historic observation that the number of requests for service will tend towards some daily average in that hour of the day. The next historic observation is that the number of requests in any particular day will vary above and below this long term average. As it turns out, the excursions to higher or lower numbers of requests really are random. The randomness of the excursions is very important because it makes the analyses of the flow of requests much simpler. Random processes are often characterized by statisticians using a “normal” distribution. A stylized example of a normal distribution is presented in Figure 1. Figure 1. Normal Distribution of Requests per Hour
The interpretation of this figure starts with the x-axis, which is the number of incidents per hour. Go to the vertical line at 65 incidents per hour, follow it up to the blue curve. The height of the curve at 65 incidents per hour gives the number of instances, the number of days in which exactly 65 incidents were experienced in the 1800 hour. The average number of incidents per hour is 100. There are exactly 40 days in which 100 incidents occurred in the 1800 hour. The distribution curve in Figure 1 has a width. The standard deviation, symbol σ, characterizes this width. In this example, the standard deviation is 25. The area under the normal curve from zero to the average is shaded green. The green area is one half the area under the curve. In the context of a dispatch center, the green area means
Broward County Attachment H - Page 2 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
that one day out of two, there will be 100 incidents, or fewer, in the 1800 hour. Conversely, one day out of two, there will be 100 incidents, or more, in the 1800 hour. The valuable of the standard deviation, σ, is that it allows the extraction of the size and frequency of surges from the normal distribution. Consider Figure 2 where the green area has been extended to the right as far as [average + 1.28 σ] which happens to be 132 incidents per hour. Figure 2. Normal Distribution Showing a One Day in Ten Surge.
The green area now comprises 90% of the area under the normal curve. In the context of a dispatch center, the green area means that nine days in ten there will be 132 incidents, or fewer, in the 1800 hour. Conversely, one day in ten there will be 132 incidents, or more, in the 1800 hour. In Figure 3, below, the green area has been extended further right to [average + 2.33 σ] or 158 incidents per hour. The green area now comprises 99% of the area under the normal curve. In the context of a dispatch center, the green area now means the ninety-nine days out of one hundred there will be 158 incidents, or fewer, in the 1800 hour. On one day out of one hundred, there will be 158 incidents, or more, in the 1800 hour.
Broward County Attachment H - Page 3 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Figure 3. Normal Distribution Showing a One Day in One Hundred Surge.
The preceding discussion shows the usefulness of the standard deviation to answer questions of surges in dispatch systems. Once a collection of random incident counts has been converted to an average and a standard deviation, it becomes possible to conveniently extract the frequency and sizes of surges from the original set of data, at least in theory. Real Example Figure 4, below, presents the number of incidents per hour experienced at a large metropolitan dispatch center at 1600 hours. One year’s worth of data is included in the histogram. As can be seen, the day-to-day variability is substantial with a minimum of 12 incidents per hour to a maximum of 50 incidents per hour.
Broward County Attachment H - Page 4 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Figure 4. Incident per Hour at 1600 Hours
The data in Figure 4 was then consolidated into Figure 5. The process of this consolidation is referred to as “binning”. All of the instances where 12 or 13 incidents per hour occurred were counted and the total placed in a “bin” labelled 12-13, and so forth. The outcome of this binning process results in the distribution presented in Figure 5, below. As can be seen, the envelope, or shape, of the distribution of incidents per hour derived from the real data is not as smooth as the distributions treated in the theoretical section above. Figure 5. Distribution of Incidents per Hour
0 30 60 90 120 150 180 210 240 270 300 330 3600
5
10
15
20
25
30
35
40
45
50
Day of Year
Inci
dent
s pe
r Hou
r
0 5 10 15 20 25 30 35 40 45 50 55 600
5
10
15
20
25
30
35
40
45
50
55
Incidents/Hour
Instances
Broward County Attachment H - Page 5 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Numerical methods were next used to calculate the normal distribution curve that most closely follows the contour of the real distribution. The calculated normal distribution is presented in Figure 6, below. Three specific surge limits are specified in Figure 6. The values of these Figure 6. Normal Distribution Most Closely Conforming Figure 5.
surge limits are presented in Table 1, below. The surge limits may also be discussed in terms of the percentile contributions to the area under the normal curve. Table 1. Surge Limits Derived from Figure 6.
Frequency Offset [σ ]
Incidents per Hour %-tile Average Increment Total One Day in 2 0.00 σ 27.62 0.00 27.62 50th One Day in 10 +1.28 σ 27.62 8.36 35.98 90th One Day in 30 +1.84 σ 27.62 12.02 39.64 97th One Day in 100 +2.33 σ 27.62 15.21 42.83 99th
In Figure 7, the calculated normal distribution overlays the distribution of real data.
0 5 10 15 20 25 30 35 40 45 50 55 600
5
10
15
20
25
30
35
40
45
50
55
Incidents/Hour
Instances
Avg = 27.62 & σ = 6.53
1.28 σ
1.84 σ
2.33 σ
Broward County Attachment H - Page 6 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Figure 7. Comparison of the Real Distribution to a Normal Curve.
As ‘lumpy” as the real distribution may appear, it is a respectable approximation of a precisely calculated normal curve. Surges calculated using the theoretical methods described in this section are a good approximation of reality.
0 5 10 15 20 25 30 35 40 45 50 55 600
5
10
15
20
25
30
35
40
45
50
55
Incidents/Hour
Instances
Avg = 27.62 & σ = 6.53
1.28 σ
1.84 σ
2.33 σ
Broward County Attachment I - Page 1 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Attachment I. Erlang Tables of Workstations Table 1, below, provides an index of Erlang Tables that describe the performance of the workstations comprising the three models of dispatch operations considered in this report. Table 1. Index to Erlang Tables and Models of Dispatch Operations
Figure Workstation Option 0 1 2
01# Central Intake X 02# North Intake X 03# South Intake X 04# Consolidated Intake X X 05# Central LAW Assign & Radio @ 1.00 Traffic X X X 06# Central FIRE Assign & Radio @ 1.00 Traffic X X 07# North LAW Assign & Radio @ 1.00 Traffic X X X 08# North FIRE Assign & Radio @ 1.00 Traffic X X 09# South LAW Assign & Radio @ 1.00 Traffic X X X 10# South FIRE Assign & Radio @ 1.00 Traffic X X 11# Consolidated LAW Assign & Radio @ 1.00 Traffic 12# Consolidated FIRE Assign & Radio @ 1.00 Traffic 13# Consolidated LAW Assign & Radio @ 0.60 Traffic 14# Consolidated FIRE Assign & Radio @ 0.60 Traffic 15# Consolidated FIRE Gatekeeper X 16# Consolidated FR msr Radio X 17# Consolidated FR ssr Radio @ 0.60 Traffic X
As indicated by the grey cells in Table 1, above, various workstations appear in more than one of the Options for the conduct of dispatch operations. In all of the Erlang tables below, the empirical adjustments of dispatcher Hours-OnTask by hour-of-day occurred in two stages. First, a workload surge experienced one day in ten, +1.28σ, was added to all hour-of-day. The number of dispatcher OnDuty by hour of day were adjusted so that the calculated latencies conformed to the FITCH operational targets. This number of dispatcher OnDuty by hour-of-day was retained, but the workloads were returned to their average values, +0.00σ. The statistics describing answer delays and probabilities of immediate answer reflect this design process in all models. The end result is a judicious “over-staffing” at all workstations. Stakeholder may decide that other surge levels and latencies should be built into the models. This certainly could be done. The value of these models is that they demonstrate a process that makes a quantitative connection between manpower deployed and the performance to be expected.
Broward County Attachment I - Page 2 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Table 2. Central Intake Workstation
ImmediateAnswer [ % ]
87665567999
10101010
10101211
9988
10
97.4897.3396.6098.0096.4496.0697.7393.6996.3893.9392.1493.7193.1193.1692.80
92.7492.1194.8895.8692.8294.4092.6494.08
92.16
Surge tested to +1.28 std dev at all hours of day.
Central Intake 1
63.7650.9640.5034.9231.5431.4042.0568.0584.9792.39
101.73
117.60124.32130.46132.68132.88138.77145.08125.20110.58102.88
90.1575.87
2.9782.4982.1141.8761.6331.6791.9293.0763.7494.2684.728
5.1835.1665.2925.5595.3165.5796.0125.0474.5354.1663.8853.613
00:0001:0002:0003:0004:0005:0006:0007:0008:0009:0010:0011:0012:0013:0014:0015:0016:0017:0018:0019:0020:0021:0022:0023:00
111.80 4.996
Hourof Day Σ Erlangs
21.3718.0914.1212.6711.8811.5317.2429.5737.0243.1550.92
52.0152.5953.9757.7550.1550.6750.7742.3533.7829.7128.5528.37
53.43
93.99
Req'd HrsOnTask
13.4810.82
8.507.476.886.828.87
15.6619.3822.0124.38
24.8426.2627.5526.0227.2425.0724.2222.2221.3619.5417.2115.95
25.27
Option 0 (Current Ops)2015Year Dispatch Model Workstation Name
90.86 3.95335.49 18.63
AverageErlangs
Hourly Averages
Hourly Averages
1.59
Ans Delay @
1.943.071.733.594.181.654.571.913.635.143.453.993.763.994.754.104.862.441.934.603.325.354.24
OnTask
Workstation Staffing & Performance
Weighted% Immed Ans
WeightedAns Delay
204 3.67
95 %-tile [sec]911 ADM Out
ADM Out911
0.00Surge
σ+Surge
Broward County Attachment I - Page 3 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Table 3. North Intake Workstation
ImmediateAnswer [ % ]
544444456667777
77777665
7
96.5895.7397.6697.9198.3297.9796.4295.8795.1292.7790.9294.7094.1294.1992.85
92.4793.3292.0294.5596.0194.5995.9094.19
92.91
Surge tested to +1.28 std dev at all hours of day.
North Intake 2
20.3415.2613.3611.57
9.7310.2914.3523.1828.2431.5735.55
42.5040.5942.4343.4243.0144.3847.7240.5134.4232.5428.2524.20
1.6161.2161.0080.9740.9130.9651.1481.7012.3162.6072.840
3.0123.0023.2033.1943.2623.1323.3342.9482.7262.3832.2131.882
00:0001:0002:0003:0004:0005:0006:0007:0008:0009:0010:0011:0012:0013:0014:0015:0016:0017:0018:0019:0020:0021:0022:0023:00
36.23 2.926
Hourof Day Σ Erlangs
22.2415.6312.8813.5011.7211.8317.4026.5338.8945.1648.27
49.7049.9655.0254.4856.5853.4654.8946.6140.7536.6732.4925.55
49.82
94.16
Req'd HrsOnTask
5.654.673.593.142.863.875.088.08
10.5710.8010.78
11.6811.1112.1613.1612.9711.2111.8711.35
9.809.328.286.99
11.05
Option 0 (Current Ops)2015Year Dispatch Model Workstation Name
29.74 2.27236.25 8.75
AverageErlangs
Hourly Averages
Hourly Averages
3.54
Ans Delay @
5.492.772.492.142.594.103.854.136.649.024.104.474.495.755.616.115.196.634.213.144.743.636.46
OnTask
Workstation Staffing & Performance
Weighted% Immed Ans
WeightedAns Delay
139 5.03
95 %-tile [sec]911 ADM Out
ADM Out911
0.00Surge
σ+Surge
Broward County Attachment I - Page 4 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Table 4. South Intake Workstation
ImmediateAnswer [ % ]
544444456777888
88887765
8
96.3394.7797.0098.6898.9998.6497.4995.8595.4196.3395.4894.7496.2396.1896.34
94.9394.5394.1796.8695.9196.5595.9294.98
96.57
Surge tested to +1.28 std dev at all hours of day.
South Intake 3
22.3916.2513.9812.1510.6311.8913.6122.5829.6334.1838.71
47.8447.7147.9647.9349.2550.0851.1244.5039.4036.8630.1726.02
1.6471.3011.0870.8520.7880.8591.0281.7032.2782.6742.808
3.2273.2363.2083.1643.4613.5323.5973.1072.7412.6372.2101.800
00:0001:0002:0003:0004:0005:0006:0007:0008:0009:0010:0011:0012:0013:0014:0015:0016:0017:0018:0019:0020:0021:0022:0023:00
42.59 2.920
Hourof Day Σ Erlangs
19.4016.4812.10
8.418.309.49
15.0327.2337.3043.7946.42
51.3750.6551.2544.3848.3646.9045.1837.2331.9829.7926.7722.99
45.10
95.86
Req'd HrsOnTask
8.256.575.294.174.174.084.388.36
10.1612.0213.61
15.5515.9616.1618.3818.2017.3816.1015.0414.2112.8410.33
9.75
14.93
Option 0 (Current Ops)2015Year Dispatch Model Workstation Name
32.81 2.32832.33 11.50
AverageErlangs
Hourly Averages
Hourly Averages
3.77
Ans Delay @
6.723.731.511.121.532.753.853.812.643.213.842.322.372.222.123.493.954.442.153.222.743.705.03
OnTask
Workstation Staffing & Performance
Weighted% Immed Ans
WeightedAns Delay
150 3.19
95 %-tile [sec]911 ADM Out
ADM Out911
0.00Surge
σ+Surge
Broward County Attachment I - Page 5 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Table 5. Consolidated Intake
ImmediateAnswer [ % ]
1110
98778
1012141415151516
1617161514131211
16
92.6393.6594.2093.5992.0291.0491.6390.8792.0693.2193.0493.5393.4693.4793.91
93.8894.2993.8293.5093.1092.6192.0791.55
93.89
Surge tested to +1.28 std dev at all hour of day.
Consolidated Intake 4
106.4982.4767.8458.6451.9053.5970.01
113.82142.84158.14175.99
207.93212.61220.85224.04225.14233.23243.91210.21184.40172.28148.58126.09
6.2405.0154.2083.7023.3353.5034.1056.4808.3439.549
10.375
11.42311.40511.70311.91712.04012.24312.94311.10210.002
9.1858.3087.295
00:0001:0002:0003:0004:0005:0006:0007:0008:0009:0010:0011:0012:0013:0014:0015:0016:0017:0018:0019:0020:0021:0022:0023:00
190.62 10.842
Hourof Day Σ Erlangs
63.0150.2039.1034.5931.9032.8549.6783.33
113.22132.11145.62
153.08153.20160.24156.61155.09151.03150.85126.18106.51
96.1787.8276.91
148.35
93.18
Req'd HrsOnTask
27.3822.0517.3814.7813.9114.7618.3332.1040.1144.8448.77
52.0853.3355.8857.5758.4053.6552.1848.6145.3741.7035.8232.68
51.26
Option 1, & 22015Year Dispatch Model Workstation Name
153.40 8.553104.07 38.87
AverageErlangs
Hourly Averages
Hourly Averages
1.77
Ans Delay @
1.491.471.842.673.192.302.642.201.561.941.561.821.781.371.471.531.212.111.731.852.062.362.54
OnTask
Workstation Staffing & Performance
Weighted% Immed Ans
WeightedAns Delay
301 1.83
5 %-tile [sec]911 ADM Out
ADM Out911
0.00Surge
σ+Surge
Broward County Attachment I - Page 6 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Table 6. Central LAW Assign & Radio
ImmediateAnswer [ % ]
333322334444445
55554444
5
83.6188.7393.0694.4782.7784.6294.1382.2786.5783.5682.2881.1381.0780.6287.43
86.6686.3786.7388.4084.6186.2187.5890.64
86.31
Surge tested to +1.28 std dev at all hours of day.
Central LAW Assign & Radio 5
1.4111.1430.9090.8230.7580.7010.8451.4851.9302.1922.321
2.4612.5182.5762.7172.6712.7102.6622.4642.0951.9591.8511.621
00:0001:0002:0003:0004:0005:0006:0007:0008:0009:0010:0011:0012:0013:0014:0015:0016:0017:0018:0019:0020:0021:0022:0023:00
2.454
Hourof Day Σ Erlangs
32.0126.5321.4719.1617.0215.5418.8533.6544.0449.9853.35
55.6657.0558.4160.3559.5659.2858.5254.5947.8745.4042.4337.00
55.76
85.65
Req'd HrsOnTask
314.60259.68203.74189.70174.25153.27181.63322.58416.34474.74508.71
530.95551.44560.91584.99575.07579.27563.94523.74451.34426.37398.92353.00
527.47
Option 0, 1, & 22015Year Dispatch Model Workstation Name
0.00 1.88742.64 409.44
AverageErlangs
Hourly Averages
Hourly Averages
4.39
Ans Delay @
2.531.401.055.755.141.205.102.843.984.565.375.405.662.262.642.522.642.542.043.542.932.541.71
OnTask
Workstation Staffing & Performance
Weighted% Immed Ans
WeightedAns Delay
92 3.37
95 %-tile [sec]LAW Radio
LAW Radio
0.00Surge
σ+Surge
Broward County Attachment I - Page 7 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Table 7. Central FIRE Assign & Radio
ImmediateAnswer [ % ]
211111122222222
22222222
2
96.5274.5576.8078.6080.1578.8674.7895.2392.7790.9989.5089.5289.2589.4889.59
89.6289.2589.4190.8591.5292.2693.5395.13
88.85
Surge tested to +1.28 std dev at all hour of day.
Central FIRE Assign & Radio 6
9.968.848.057.446.937.328.69
11.8515.0017.1418.79
19.0118.7218.5519.1418.3718.7218.5716.9616.3115.4513.9311.96
0.2870.2550.2320.2140.1990.2110.2520.3420.4360.4970.547
0.5550.5470.5440.5680.5430.5550.5500.5020.4790.4540.4080.347
00:0001:0002:0003:0004:0005:0006:0007:0008:0009:0010:0011:0012:0013:0014:0015:0016:0017:0018:0019:0020:0021:0022:0023:00
18.73 0.546
Hourof Day Σ Erlangs
89.00
Req'd HrsOnTask
108.5796.5687.7481.1575.5179.9994.39
129.07163.64186.62204.97
207.54204.27202.36208.99200.30204.37202.47185.08178.08168.45152.07130.68
204.29
Option 0 & 12015Year Dispatch Model Workstation Name
14.35 0.4190.00 156.55
AverageErlangs
Hourly Averages
Hourly Averages
0.18
Ans Delay @
2.972.632.372.152.342.970.250.410.530.640.640.660.640.630.700.640.670.650.550.490.440.360.26
OnTask
Workstation Staffing & Performance
Weighted% Immed Ans
WeightedAns Delay
42 0.83
5 %-tile [sec]E Radio
RadioE
0.00Surge
σ+Surge
Broward County Attachment I - Page 8 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Table 7. North LAW Assign & Radio
ImmediateAnswer [ % ]
222222224333433
33333332
3
85.4490.4493.3995.3596.4795.9493.1884.3698.1590.7089.3488.0395.2787.2086.48
85.4084.1184.4587.6089.7991.4292.8181.31
85.53
Surge tested to +1.28 std dev at all hours of day.
North LAW Assign & Radio 7
0.6750.5160.4130.3380.2900.3130.4210.7090.9391.0391.111
1.2571.2221.2601.3091.3161.3841.3661.2021.0871.0000.9230.803
00:0001:0002:0003:0004:0005:0006:0007:0008:0009:0010:0011:0012:0013:0014:0015:0016:0017:0018:0019:0020:0021:0022:0023:00
1.179
Hourof Day Σ Erlangs
15.3012.06
9.517.926.756.899.05
15.4420.1622.1623.55
26.0625.4626.1527.3727.2528.1127.9525.4923.3621.6420.1118.02
24.76
88.77
Req'd HrsOnTask
173.22136.58108.15
90.3376.7478.57
103.00174.54227.72250.42266.36
294.86287.74295.62309.37308.29318.32315.92288.02264.39245.19227.73204.19
280.08
Option 0, 1, & 22015Year Dispatch Model Workstation Name
0.00 0.92019.60 221.89
AverageErlangs
Hourly Averages
Hourly Averages
4.12
Ans Delay @
2.341.531.010.750.921.704.720.241.892.262.660.712.943.183.483.564.113.962.772.111.681.355.90
OnTask
Workstation Staffing & Performance
Weighted% Immed Ans
WeightedAns Delay
65 2.69
95 %-tile [sec]LAW Radio
LAW Radio
0.00Surge
σ+Surge
Broward County Attachment I - Page 9 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Table 8. North FIRE Assign & Radio
ImmediateAnswer [ % ]
111111111122222
22221111
2
85.7887.4988.9989.2289.6889.1487.1382.1977.4976.0897.1597.1797.1796.8997.05
97.1797.2297.2097.6578.0879.7581.7683.45
97.21
Surge tested to +1.28 std dev at all hours of day.
North FIRE Assign & Radio 8
4.654.123.613.523.343.534.195.967.517.948.51
8.488.908.608.438.508.398.427.707.316.736.085.40
0.1420.1250.1100.1080.1030.1090.1290.1780.2250.2390.257
0.2560.2700.2620.2540.2560.2540.2550.2320.2190.2020.1820.166
00:0001:0002:0003:0004:0005:0006:0007:0008:0009:0010:0011:0012:0013:0014:0015:0016:0017:0018:0019:0020:0021:0022:0023:00
8.45 0.256
Hourof Day Σ Erlangs
90.39
Req'd HrsOnTask
55.1448.8442.7741.6939.5541.8749.7070.6588.9894.08
100.92
100.51105.50101.99
99.97100.84
99.4699.8691.3386.7279.8472.1464.05
100.13
Option 0 & 12015Year Dispatch Model Workstation Name
6.59 0.2000.00 78.19
AverageErlangs
Hourly Averages
Hourly Averages
4.12
Ans Delay @
3.533.073.022.893.053.695.277.097.710.400.400.400.440.420.390.400.390.390.336.846.215.444.94
OnTask
Workstation Staffing & Performance
Weighted% Immed Ans
WeightedAns Delay
34 2.67
95 %-tile [sec]E Radio
RadioE
0.00Surge
σ+Surge
Broward County Attachment I - Page 10 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Table 9. South LAW Assign & Radio
ImmediateAnswer [ % ]
322222233444444
44444333
4
91.1781.8187.2190.1392.3892.8989.5591.2284.7192.2490.2488.4687.9087.6486.65
86.6086.4886.9589.2891.7884.1586.5088.65
85.80
Surge tested to +1.28 std dev at all hours of day.
South LAW Assign & Radio 9
1.0140.7870.6200.5260.4490.4310.5451.0111.3521.5021.651
1.8261.8461.9241.9931.9271.9371.9001.7221.5371.3821.2591.147
00:0001:0002:0003:0004:0005:0006:0007:0008:0009:0010:0011:0012:0013:0014:0015:0016:0017:0018:0019:0020:0021:0022:0023:00
1.783
Hourof Day Σ Erlangs
26.3921.6317.3914.9412.7111.9414.2225.0433.4636.6939.88
42.6843.3544.3346.6545.3445.0844.3841.4137.5333.4730.7528.82
42.24
88.02
Req'd HrsOnTask
245.61201.45160.85138.95116.90111.15133.58240.12317.68345.86376.05
402.38409.80421.44438.81426.75422.01418.72393.42356.79315.73288.85266.46
399.05
Option 0, 1, & 22015Year Dispatch Model Workstation Name
0.00 1.33632.51 306.18
AverageErlangs
Hourly Averages
Hourly Averages
1.74
Ans Delay @
5.533.372.391.781.662.771.763.741.281.732.202.392.452.783.042.762.842.671.951.364.053.192.49
OnTask
Workstation Staffing & Performance
Weighted% Immed Ans
WeightedAns Delay
78 2.56
95 %-tile [sec]LAW Radio
LAW Radio
0.00Surge
σ+Surge
Broward County Attachment I - Page 11 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Table 10. South FIRE Assign & Radio
ImmediateAnswer [ % ]
111111122222222
22222221
2
79.0881.8384.5284.7585.6284.3881.7697.3895.4494.1593.5493.3392.5293.1292.79
93.6793.7593.8894.6695.1996.0796.7576.14
93.19
Surge tested to +1.28 std dev at all hours of day.
South Assign FIRE & Radio 10
6.225.374.614.514.284.565.387.339.86
11.3111.95
13.1012.5212.7912.4711.9711.9011.7510.8510.27
9.148.267.10
0.2090.1820.1550.1530.1440.1560.1820.2460.3340.3850.408
0.4450.4230.4350.4200.4030.4000.3950.3650.3440.3070.2760.239
00:0001:0002:0003:0004:0005:0006:0007:0008:0009:0010:0011:0012:0013:0014:0015:0016:0017:0018:0019:0020:0021:0022:0023:00
12.32 0.415
Hourof Day Σ Erlangs
91.76
Req'd HrsOnTask
75.5265.3155.8654.9351.7255.6465.6288.66
119.78137.54145.27
159.31151.67155.40151.53145.35144.45142.23131.82124.43111.09
99.9386.25
149.49
Option 0 & 12015Year Dispatch Model Workstation Name
9.16 0.3090.00 111.20
AverageErlangs
Hourly Averages
Hourly Averages
7.08
Ans Delay @
5.974.914.834.515.026.000.400.740.981.101.131.301.181.251.161.061.051.020.870.780.620.508.38
OnTask
Workstation Staffing & Performance
Weighted% Immed Ans
WeightedAns Delay
40 1.95
95 %-tile [sec]E Radio
RadioE
0.00Surge
σ+Surge
Broward County Attachment I - Page 12 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Table 11. Consolidated LAW Assign & Radio @ 1.00 Traffic
ImmediateAnswer [ % ]
554433456777788
88977666
8
83.9488.5786.4289.7582.0682.9988.1083.4584.8487.0586.6086.3186.2288.3488.20
88.0988.0289.8386.3387.0784.6385.2586.69
88.03
Surge tested to +1.28 std dev at all hours of day.
Consolidated LAW Assign & Radio 11
3.1012.4461.9421.6871.4961.4451.8113.2054.2214.7345.083
5.5445.5865.7606.0205.9156.0325.9295.3884.7194.3414.0323.571
00:0001:0002:0003:0004:0005:0006:0007:0008:0009:0010:0011:0012:0013:0014:0015:0016:0017:0018:0019:0020:0021:0022:0023:00
5.416
Hourof Day Σ Erlangs
73.7060.2248.3742.0236.4734.3742.1274.1397.66
108.83116.78
124.40125.87128.89134.37132.15132.47130.85121.48108.77100.51
93.2883.85
122.76
86.82
Req'd HrsOnTask
733.43597.71472.74418.99367.89342.99418.20737.24961.75
1071.021151.12
1228.201248.981277.981333.181310.111319.601298.591205.181072.51
987.29915.50823.65
1206.60
2015Year Dispatch Model Workstation Name
0.00 4.14394.76 937.52
AverageErlangs
Hourly Averages
Hourly Averages
1.17
Ans Delay @
0.600.890.581.591.510.771.311.220.831.011.271.400.710.780.890.840.910.491.240.811.331.080.78
OnTask
Workstation Staffing & Performance
Weighted% Immed Ans
WeightedAns Delay
148 0.98
5 %-tile [sec]LAW Radio
LAW Radio
0.00Surge
σ+Surge
Broward County Attachment I - Page 13 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Table 12. Consolidated FIRE Assign & Radio @ 1.00 Traffic
ImmediateAnswer [ % ]
222222223333333
33333322
3
86.6189.0591.0091.6792.5091.6188.9882.4991.5289.1487.4087.2986.5686.8586.83
87.5987.4687.6489.5790.6492.1079.2383.00
86.81
Surge tested to +1.28 std dev at all hours of day.
Consolidated FIRE Assign & Radio 12
20.8318.3316.2715.4614.5515.4218.2725.1432.3636.3839.25
40.5940.1439.9540.0438.8439.0138.7435.5133.9031.3328.2724.47
0.6390.5610.4970.4740.4450.4760.5630.7660.9951.1211.212
1.2551.2401.2411.2431.2021.2091.1991.0991.0420.9630.8670.751
00:0001:0002:0003:0004:0005:0006:0007:0008:0009:0010:0011:0012:0013:0014:0015:0016:0017:0018:0019:0020:0021:0022:0023:00
39.49 1.218
Hourof Day Σ Erlangs
87.80
Req'd HrsOnTask
239.23210.71186.37177.77166.78177.50209.71288.38372.40418.24451.17
467.36461.44459.75460.49446.49448.27444.56408.23389.23359.38324.15280.99
453.91
2015Year Dispatch Model Workstation Name
30.10 0.9280.00 345.94
AverageErlangs
Hourly Averages
2.53
Ans Delay @
1.951.541.401.241.421.983.631.091.491.821.841.991.931.941.951.791.821.781.421.231.004.723.50
OnTask
Workstation Staffing & Performance
Weighted% Immed Ans
WeightedAns Delay
62 1.94
95 %-tile [sec]E Radio
RadioE
0.00Surge
σ+Surge
Broward County Attachment I - Page 14 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Table 13. Consolidated LAW Assign & Radio @ 0.60 Traffic
ImmediateAnswer [ % ]
554433356666667
77766655
7
89.5394.7092.8795.3089.2389.7184.1888.5488.3186.4585.5884.9384.7384.6987.57
87.3387.1587.2984.9986.5187.8183.9986.29
87.19
Surge tested to +1.28 std dev at all hours of day.
Consolidated LAW Assign rRadio 13
2.3441.8291.4541.2551.1171.0911.3802.4493.2343.6333.900
4.2814.3024.4484.6484.5684.6754.5944.1493.6163.3263.0912.721
00:0001:0002:0003:0004:0005:0006:0007:0008:0009:0010:0011:0012:0013:0014:0015:0016:0017:0018:0019:0020:0021:0022:0023:00
4.176
Hourof Day Σ Erlangs
73.7060.2248.3742.0236.4734.3742.1274.1397.66
108.83116.78
124.40125.87128.89134.37132.15132.47130.85121.48108.77100.51
93.2883.85
122.76
87.08
Req'd HrsOnTask
440.06358.62283.64251.39220.73205.79250.92442.34577.05642.61690.67
736.92749.39766.79799.91786.07791.76779.15723.11643.51592.37549.30494.19
723.96
2015Year Dispatch Model Workstation Name
0.00 3.17894.76 562.51
AverageErlangs
Hourly Averages
Hourly Averages
1.88
Ans Delay @
0.761.280.772.602.564.812.232.122.903.474.264.624.642.532.842.712.932.794.172.852.294.222.96
OnTask
Workstation Staffing & Performance
Weighted% Immed Ans
WeightedAns Delay
131 3.05
95 %-tile [sec]LAW Radio
LAW Radio
0.00Surge
σ+Surge
Broward County Attachment I - Page 15 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Table 14. Consolidated FIRE Assign & Radio @ 0.60 Traffic
ImmediateAnswer [ % ]
222222222222222
22222222
2
93.4194.7395.7496.0896.5096.0494.6791.0986.4983.8181.8881.7880.9881.2881.20
82.0581.8882.0784.2185.4687.0889.0791.33
81.18
Surge tested to +1.28 std dev at all hours of day.
Consolidated FIRE Assign rRadio 14
20.8318.3316.2715.4614.5515.4218.2725.1432.3636.3839.25
40.5940.1439.9540.0438.8439.0138.7435.5133.9031.3328.2724.47
0.4130.3630.3210.3070.2880.3080.3650.4940.6430.7260.785
0.8130.8040.8060.8070.7800.7850.7790.7130.6750.6240.5610.486
00:0001:0002:0003:0004:0005:0006:0007:0008:0009:0010:0011:0012:0013:0014:0015:0016:0017:0018:0019:0020:0021:0022:0023:00
39.49 0.788
Hourof Day Σ Erlangs
85.66
Req'd HrsOnTask
143.54126.43111.82106.66100.07106.50125.82173.03223.44250.95270.70
280.42276.87275.85276.29267.89268.96266.74244.94233.54215.63194.49168.59
272.35
2015Year Dispatch Model Workstation Name
30.10 0.6010.00 207.56
AverageErlangs
Hourly Averages
1.09
Ans Delay @
0.840.670.610.540.620.861.542.623.363.953.974.244.154.204.213.913.983.923.262.892.482.001.51
OnTask
Workstation Staffing & Performance
Weighted% Immed Ans
WeightedAns Delay
48 3.00
95 %-tile [sec]E Radio
RadioE
0.00Surge
σ+Surge
Broward County Attachment I - Page 16 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Table 15. Consolidated FIRE Gatekeeper
ImmediateAnswer [ % ]
111111112222222
22222211
2
90.4591.6092.5492.9193.3392.9391.6388.4898.9998.7398.5498.5298.4498.4798.49
98.5798.5598.5798.7998.8999.0587.0488.79
98.48
Surge tested to +1.28 std dav at all hours of day.
Gatekeeper FIRE 15
20.8318.3316.2715.4614.5515.4218.2725.1432.3636.3839.25
40.5940.1439.9540.0438.8439.0138.7435.5133.9031.3328.2724.47
0.0950.0840.0750.0710.0670.0710.0840.1150.1480.1670.180
0.1860.1840.1830.1830.1780.1790.1780.1630.1550.1440.1300.112
00:0001:0002:0003:0004:0005:0006:0007:0008:0009:0010:0011:0012:0013:0014:0015:0016:0017:0018:0019:0020:0021:0022:0023:00
39.49 0.181
Hourof Day Σ Erlangs
96.41
Req'd HrsOnTask
Option 22015Year Dispatch Model Workstation Name
30.10 0.1380.00 0.00
AverageErlangs
Hourly Averages
Hourly Averages
5.06
Ans Delay @
4.403.863.663.423.654.386.240.260.330.390.390.410.400.400.400.380.380.380.320.290.257.146.06
OnTask
Workstation Staffing & Performance
Weighted% Immed Ans
WeightedAns Delay
38 1.64
95 %-tile [sec]E
E
0.00Surge
σ+Surge
Broward County Attachment I - Page 17 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Table 16. Consolidated FR msr Radio
ImmediateAnswer [ % ]
222222233333333
34433333
3
91.3993.5894.9495.0796.0195.1591.7497.3393.6489.0188.8188.1489.2188.4987.73
90.6196.9096.6991.4292.8794.2496.2898.04
89.06
Surge tested to +1.28 std dev at all hours of day.
FR msr Radio 16
1.561.311.141.121.001.111.521.982.813.633.66
3.603.723.843.623.363.533.603.222.962.702.251.76
0.4840.4060.3540.3490.3100.3460.4720.6150.8751.1281.139
1.1181.1561.1951.1261.0441.0981.1201.0010.9200.8380.7000.546
00:0001:0002:0003:0004:0005:0006:0007:0008:0009:0010:0011:0012:0013:0014:0015:0016:0017:0018:0019:0020:0021:0022:0023:00
3.78 1.174
Hourof Day Σ Erlangs
91.99
Req'd HrsOnTask
Option 22015Year Dispatch Model Workstation Name
2.62 0.8130.00 0.00
AverageErlangs
Hourly Averages
Hourly Averages
184.62
Ans Delay @
130.93100.00
97.1776.8495.31
175.7736.4297.31
190.95195.42211.13186.52203.01221.02189.84156.09
34.7637.34
139.59111.49
86.6052.5725.91
OnTask
Workstation Staffing & Performance
Weighted% Immed Ans
WeightedAns Delay
67 137.07
95 %-tile [sec] tac
tac
0.00Surge
σ+Surge
Broward County Attachment I - Page 18 © Fitch & Associates Assessment of Broward County’s Regional E911 December 2016
Table 17. Consolidated FR ssr Radio @ 0.60 Traffic
ImmediateAnswer [ % ]
222222222222222
22222222
2
95.9496.7897.4297.6497.8997.6396.8394.3691.4489.8788.4888.3487.6588.0188.14
88.5088.5388.7390.1490.7891.9193.1494.57
88.02
Surge tested to +1.28 std dev at all hours of day n t is mo el air time on t e ra io c annels as een re ce to % of c rrent sage increase ata transfers ia mo ile ata terminals.
FR ssr Radio 17
0.3130.2750.2440.2320.2190.2330.2730.3770.4820.5350.579
0.6060.5950.5900.5940.5790.5780.5720.5260.5040.4660.4220.369
00:0001:0002:0003:0004:0005:0006:0007:0008:0009:0010:0011:0012:0013:0014:0015:0016:0017:0018:0019:0020:0021:0022:0023:00
0.584
Hourof Day Σ Erlangs
90.95
Req'd HrsOnTask
132.58116.79103.45
98.5392.7998.52
115.20159.47203.91225.91245.07
255.93251.38249.36251.06244.88244.57241.85222.53213.52197.32178.87156.39
246.83
Option 22015Year Dispatch Model Workstation Name
0.00 0.4480.00 189.45
AverageErlangs
Hourly Averages
Hourly Averages
0.20
Ans Delay @
0.160.120.110.100.110.160.300.480.590.690.700.760.730.720.730.690.690.670.570.520.450.370.28
OnTask
Workstation Staffing & Performance
Weighted% Immed Ans
WeightedAns Delay
48 0.53
5 %-tile [sec]Radio
Radio
0.00Surge
σ+
++++++++++++++++++++++++
Surge
METRIC Count Average TARGETTARGET
COMPLIANCE
P1CallAnswerTime-BusyHourof1800hrs.(NENA56-005)
90%Within10Seconds
P1CallAnswerTime-NumberofDaysMeetingBusyHourPerformance
AllDaysinMonth
P1CallAnswerTime-All911Calls(NENA56-005)95%Within20
Seconds
P1CallAnswerTime-All911Calls(NFPA1221-2016)95%Within15
Seconds
P1CallAnswerTime-All911Calls(NFPA1221-2016)99%Within40
Seconds
P1CallAnswerTime-All911Calls(StateofFlorida)90%Within10
Seconds
P1CallAnswerTime-AlarmLines95%Within15
Seconds
P1CallAnswerTime-AlarmLines99%Within40
Seconds
TransfertoSecondaryPSAP(NFPA1221-2016)95%Within30
Seconds
P2EMSCallForServiceProcessingTime-Delta&EchoCallsOnly
90%Within70Seconds
P2LawEnforcementCallForServiceProcessingTime-Priority1&2CallsOnly
Report90th%-Nospecifictarget
P3EMSCallForServiceProcessingTime-Delta&EchoCallsOnly
90%Within20Seconds
P3LawEnforcementCallForServiceProcessingTime-Priority1&2CallsOnly
Report90th%-Nospecifictarget
P2/P3EMS/SpecializedCallForServiceProcessingTime(NFPA1221-2016)
90%Within90Seconds
P2/P3EMS/SpecializedCallForServiceProcessingTime(NFPA1221-2016)
99%Within120Seconds
RECOMMENDEDMONTHLYPERFORMANCEMEASURES
P2/P3FireCallForServiceProcessingTime(NFPA1221-2013)
80%Within60Seconds
P2/P3FireCallForServiceProcessingTime(NFPA1221-2016)
90%Within64Seconds
P2/P3FireCallForServiceProcessingTime(NFPA1221-2016)
95%within106Seconds
P2/P3EMSCallForServiceProcessingTime-Delta&EchoCallsOnly
90%Within90Seconds
P2/P3LawEnforcementCallForServiceProcessingTime-Priority1&2CallsOnly
Report90th%-Nospecifictarget
P4(newlydefined)EMSTurnoutTimes-Delta&EchoCallsOnly(NFPA1710-2016)
Report90th%-Nospecifictarget
P5(newlydefined)EMS&FireTravelTimes-Delta&EchoCallsOnly(NFPA1710-2016)
Report90th%-Nospecifictarget
P5(newlydefined)LawEnforcementTravelTimes-Priority1&2CallsOnly
Report90th%-Nospecifictarget
EMDCaseEntryCompliance 95%
EMDTotalComplainceRate 90%
EMDQualityAssurance-CasesReviewed 1%
NOTES:
Busyhourdefinedas1800-1900hrs.