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98-371Council File # //1 �37f ORtG1�fAl. Gxeen Sheet # ��3�� RESOLUTION 2 ( �/) �ITY�O� SAINT PAUL, MINNESOTA Presented By Referred To Committee: Date 1 WHEREAS, the 1495 Mivuesota Legislature passed legislation that encouraged z participation in a new 800 MHZ region-wide hunked radio system which is being built for use a by State agencies and established a May 23, 1947 deadline for submitting local plans to the 4 Metropolitan Radio Boazd; and 6 WHEREAS, ttris legislation required all metropolitan counties to undertake a plam�ing � process to ensure coordination of radio systems; and 9 WI3EREAS, the Metropolitan Radio Board, established in the 19951egislation, has elected io official representarion for Saint Paul and has been working with the 5taxe, Hennepin Counry ii and Minneapolis to develop a request for proposals for the fust phase of the backbone ia infrastructure for a region-wide public safety radio system that must also accommodate future is users in the remaining six counries and the City of Saint Paui; and 14 is WHEREAS, an independent consultant's analysis far the Metropolitan Radio Board i6 concludes that the cost far Saint Paul and Ramsey County to independently develop and i� implement a plan will be higher than a joint effort; and is i9 WAEREAS, the City of Saint Paul has been working with Ramsey County on a local plan zo and each requested an extension to the deadline to ciarify information regarding current and z i future availability of radio channels to public safety efforts; and 22 2 s WHEREAS, submitting a joint pian with Ramsey County does not commit Saint Paul to 24 implementing a 800 MHZ radio system or assutniug any costs of such implementation; now a s therefore be it 26 2� RESOLVED, the City of Saint Paul endorses the report's three recommendations: as 1) Ramsey County should not migrate to the regiona1800 MHZ at the present time, but should z9 act to preserve the option of migrating to the region-wide 800 MHZ radio system in the future so by requesting that the Metropolitan Radio Board secure the channels set aside for Ramsey si County; Z) the City of Saint Paul should commit to jointly plan with the County for a single s2 county-wide system; and 3) the Ramsey County/Saint PauULoca1 Government Public Safety as Radio Communicafions 5tudy Committee continue to meet at least every s'vc months to monitor 34 progress of the region-wide radio system and address issues of funding, governance, ss implementation, user fees, access, time lines and replacement of equipment; and Page 1 of 2 98�37/ 36 RESOLVED, that the City of Saint Paul approves the joint development and submittal a� with Ramsey County of a local radio plan regarding a regionai radio system to the Metropolitan sa Radio Board with the understanding that such plan carries no real or implied commitment to ss implementation by the City; and ao al RE50LVED, that the City's elected representative on the Metropolitan Radio Board az officially designate Lieutenant Dick Dugan to serve as their non-voting aitemate to the Board. ORIGINAl� Page 2 of 2 Requested by Department of: I�YI ax UR t (JF'F� C P By: .�'-� Form Approved by City Attorney By: • r By: - - t —, r Approved by Mav D�te� �� 4 Apgroved, by ; ayor £�SUbmission to B y' � �/ l/ � 1 _'" ` BY Adopted by Council: Date Adoption Certi£ied by Council Secretary N°_ 52337 98�-3 �I Mayor Coleman's Office )NTACT PERSON 8 PHONE Chuck Armstrong 266-8530 TOTAL # OF SIGNA7URE PAGES 4-28-98 I GREEN SHEET � DEPARTMENT OIRECiOR FOR � CIT'ARORNEY BVDGET DIRECTOF _ (� MAYOR (OR ASS�S7AN'n (CLIP ALL LOCATIONS FOR SIGNATURE) INITIAUDATE � C�NCOUNC�L � CITY CLFRK � FIN. 8 MGT SEAVICES DIR � Approval of resolution by which Council approves City participation with Ramsey County in developing joint plan for 800 MHZ system. or _ PIANNING CAMMISSION _ CIVI� SERVICE _ C�e CAMMITfEE _ _ STAFf _ _ DISTii1CTCOURT _ SUPPOFTS WNIC}i COUNCIL O&IECTIVE> PERSONAL SEHVICE CONTRACTS MUST ANSWEP TFfE FOLLOWING �UEST�ON3: 1. Has this personHirm ever worketl unde� a contrect for ihis tlepartment? YES NO 2. Has this pers9ntlum ever been a city employee? YES NO 3. Does fhis pe�sonttirm possess a skUl rrot normally possessetl by any current cily employee? YES NO Ezplain eli yes answera on seperate sheet enE attaeh to green sheet INITIATING PqOBLEM, ISSUE. OPPORNNITV (W1ro, What When, 4Yhere. Why�' By state law, the City must submit an implementation plan for participation in the Statewide 800 NIIiZ radio system. The City has elected to de"velop this plan jointly with Ramsey County. ADVANTPGES IF APPROVEO: The City will remain eligible to participate (without being committed to implementation in any form) in the Statewide system. She City's joint implementation with Ramsey County represents the most practical and cost-effective approach, if the City chooses to move ahead with participation in the Statewide system. None IFNOTAPPROVED: The City forecloses future opportunity to participate in the Statewide 8Q� MIiZ system. �i9Elt��'+4 �i�'"e4.'�°'u°CPl vG^�v9' ' t ' _: , ,: � _.. �OTAL AMOUNT OF TRANSACTION 5 COST/REVENUE BUDGETED(CIRCLE ONE) VES NO N�A A 'UNDIfdGSOURCE N � A ACTIVITYNUMBER N�A � �� � WANCIAi INfORfFAT10N: (EXPIAfN) � �r�C�c(� G'CRSro , �kaCe:�.S 3�l�/`t�� 9�-37t Ramsey County � . 800 MHz Radio Communications Plan Ramsey County Manager's Office February 1998 Report of the Ramsey CountylSt. Paui/Locai Government Public Safety Radio C�mmunication Study Committee �^ r ��'�f� � Table of Contents Introduction Background Driving Forces Current Status What Other Counfies have done Case Studies Analysis of Alternative Options &00 MHz Options Recommendations axid Policy Issues Glossary Page 2 Page 4 Page 5 Page 7 Page 10 Page 11 Page 13 Page 15 Page 16 Page 19 9� Introduction Corrununication is an essential tool for all public safety agencies in Ramsey County. Dispatchers need to communicate with Police Officers, Fire Fighters and Deputies in the field to identify location, description of emergency, the people involved and whether additional help is required. The front line responders also communicate with each other to coordinate their approach and give warnings. Today, most of this communication takes place through two-way radio systems. Police and Fire vehicles (as well as Parks and Public Works vehicles), have radios. These are called 'Mobile' radios. Some Police Officers also carry 'Portable' radios, which have battery packs and allow the Officer to communicate even when away from their vehicle. All these radios send and receive sound over the airwaves. Each agency operates their radio system at a discrete 'frequency' of 'channel', just like a radio station operates at a frequency. Generally, only that agency has access to the frequency (although scanners allow others to receive the sound signals and listen to the conversation). When one agency needs to communicate with another, they must switch Eo a shared state-wide emergency frequency or'patch' together through a common link, like a dispatcher. Municipalities are licensed to use radio frequencies based on the usape expected by Ehe different city departments. A typical municipal govemment may have one or more 'channeis' each occupying between 15 and 25 kilohertz (kHz) on the frequency spectrum. - Sometimes a frequency is shared by different agencies within the same geoo aphic area. With a shared frequency, only the agencies sharing it can use that channel and when a conversation is taking place, all other conversations must wait until the first conversation is finished and the channel becomes clear (like having only one phone line in the multi-person office). The Metropolitan Radio Board has been created to build a region-wide radio system at 800 MHz on the frequency band. The regional system is funded by the State for use by the State Patrol, Minnesota Department of Transportation and the Metropolitan Council. 'Ihe region-wide system will be a'trunked' system. To trunk channels means that all channels are shared and available to all the governmental agencies in a given area. All radios used for a conversation are automatically switched by a computer to whatever channei is available. It is similar to a PBX system used in hotels, where each hotel room appears to have its own phone line, but the whole hotel has only a few phone lines. Such a spstem is feasible because individuals have sma11 tune slots during which they need a phone line or in this case a radio channel. With a trunked system rather than each agency operating its o�i�n radio system, there would be one large system shared by all agencies. Trunking allows op:imal use o; the lunited Rnmsey County 800 MHz Plan - Z frequency spectrum and increased flexibility for inter-agency communication, but requires a great deal of coordination between a11 participating agencies and requires significant upfront expenses. In the region-wide system, agencies wilI be assigned a certain number of 'talk groups'. A talk group is a pre-designed set of radio users that can communicate at any given time. Because all agencies share the same frequencies, talk groups can be across agencies, departments and organizations. The number of talk groups that will be available is many times the number of channels currently available. The regional system has two computer switching centers connected by fiber optic cable and multiple transmitter sites located across nine counties. (See Diagram 1, below.) Transmitter sites are connected by microwave links to aliow radios in one part of the region to communicate wiEh others in another part of the region. Diagram 1: Praposed Regional sites and Microtivave Iinks Rnmsey Couniy 800 MHz Plan - 3 �� ' � � A frunked system could also uiilize current technologies known as simulcast and digital modulation. Simulcast and digital modulation allow coverage over a larger area, improved signal quality and more secure communication. In the future, all or nearly all, mobile radio transmission will be digital (discrete signal pulses} because band narrowing can not be accomplished with analog (continuous signal) technology. A trunked system also offers limited telephone interconnect, which allows users to place and receive telephone calls from their radio. Backgraund In 199�, the Legislature required all metropolitan counties to undertake a planning process to ensure coordination of radio systems and encourage participarion in the new 800 MHz region- wide digital trunked radio system. While the region-wide system meets State needs, it is not sufficient by itself to allow agencies in Ramsey County to have effective communication. For instance, the State Patrol functions out of doors, on the highways. Police and Fire agencies need radios that work inside buildings. The covnty *n,�ould need to supplement the region-wide system with a county sub- system of transmitters, linked by microwave to each other and to the regional transmifters to allow indoor use of radios. All metropolitan counties are being asked to develop specific plans for how they would build, finance, manage and operate their own county sub-system in cooperation with the new state system. Participation in the region-wide system is not required of local agencies, but they cannot }oin until their county plan has been approved by the Metropolitan Radio Board (MRB). In July of 1995, Ron Vegemast Engineering presented to the Board cost estimates for the infrastructure for various 800 MHz layouts. The Ramsey County Board of Commissioners authorized the crearion of the Ramsey CountyJSt. Paul/Local Govemment Public Safety Radio Communication Study Committee to prepare ehe plan. Ramsey CounEy 800 MHz Plan - 4 Forces The following identify the context for this effort. FCC Refarming In June of 1995, the Federal Commtuiication Commission {FCC) issued an order (92-235) to "re£arni' radio channels. T'his order affects all users of licensed frequencies be2ow 512 MHz, which includes Public Safety agencies in Ramsey County. The order has two components. First, the fiCC intends to narrow channels and has required that necv radios be capable of operating at narrower channels. Secondiy, the FCC is holding a number of frequencies at the $OO levei for public safety agencies so those agencies can migrate to 800 MHz. The MIZB controls these frequencies in the metro area and has dedicated 21 channeis for Ramsey County at the 800 MHz level(13 for St. Pau1 and 8 for the County). Through wholesale migration of public safety channels, a metropolitan region can easily 'tntnk' their channeis. Technologv Benefits Current radio systems are based on very old design, similar to a singie teIephone line for an entire office. When a conversation is taking pIace, all other conversations must wait until the first conversation is fuushed and fhe charulel becomes clear. Trunked radio systems, like that being discussed, more effectively use limited radio channels through the employment of microprocessors. Priorifization permits the system to automatically atlocate channeis based on system use and user prioriry. Adding digital modulation to a trunked systern makes use of the IaEest technology and supports many new features that would benefit public safety. One example is 'encryption', where the signal can't be understood so people outside the system can't listen in to conversations. Availabilitv for expansion While not many agencies in Ramsey are in immediate need for additional channels, increased data and voice communication wili require additional channeIs. New communication technologies are creating private sector demand for many new channels. The FCC has reacted to this demand by narrowing channels, thereby doubling the number of channels availabie once other agencies either migrate to 800 MHz or purchase narrow band equipment. In April of 1997, the FCC aiso proposed taking a section of UHF television channels and ficensing them to public safety agencies for radio communication. Ca ito al eauipment replacement Much of the equipment throughout the county is old and needs replacement in the near future, even if no enhancement or changes occur to the overall system. Hand held radios are replaced an average of every five years. As equipment is replaced, a decision needs to be made whether to invest in a trunked system now or to update existing equipment but stay with the current basic technologt� and system design. Ramsey County 800 Milz Ptan - 5 Problems with the current s, s� tem Unlike some other areas of the metropolitan region, Ramsey Counfy is not experiencing severe stress on its existing radio communicaiion systems. However, a majority of agencies have had probiems such as delays, crowded channels, poor coverage and interference. There is lunited ability to communicate directly or conveniently between agencies. For example, at an accident scene, police, fire and medical cannot even talk with each other via radio. There are some emergency and mutual aid channels available but they are severely limited because they were designed for specific uses. MINSE� is used only for car to car police communication and is available statewide. MII�TWIN is for communication between 911 Public Safety Answering Points (PSAP) in the event of a local disaster. Both of these are VHE. The Metro Emergency Channel is a UHF channel for police vehicles in Ramsey and Hennepin only. These shared channels are designed for emergency use only and if"used routinely, would defeat the limited purpose of the channels and limit availability in the case of a major emergency. These channels �vill continue to be available to agencies that migrate to the regiona180flMHz system. With the state creating a region-wide 800 MHz backbone system and the FCC ordered narrowing of currently used channel frequencies in the near future, these pressures have created a �vindow of opportunity rather than a problem that needs to be resolved. This affects the discussion, analysis and timing of implementation. State financed backbone The state has approved financing for the regional backbone system, and MnDot, the State Patrol, Minneapolis and Hennepin County wili al1 be converting to 800 MHz upon completion of the regional backbone. Ramsey County has the option of utilizing the regional backbone system to directly communicate throughout the region. The cost of to the county of building an 800 MHz system is reduced if the county joins the regional system, because the county system can use some of the regional towers. If the county doesn't take part in the regional system, suburban municipalides by law are excluded from joining the regional system (Although the County preserves the right to join at a later time). In the most recent legislative session, as part of the tax bill, the legisiature granted a sales tax exemption for the sale of products or services used for construction, operation, maintenance, and enhancement of the backbone system. State planning rec�uirement Under state law, the county is required to submit a plan to the Metropolitan Radio Board for county-wide radio communications. A draft report was sent from Ramsey Cou�ty. Due to delays at the regional level, no information was available on actual bids for equipment for the regionai backbone, nor have access fees for county connection to the backbone been determined. A11 cost information in this report is based on preliminary estimates and no local govemment should or is being asked to make a finai decision before bids for the backbone are received at the regional level, Ramsey County 800 MHz Plan - 6 Current Status The County Manager's Offzce - as authorized by the County Board - created a Ramsey County/St. Pau1/Local Government Public Safety Radio Communication Study Committee and invited representatives fram all local governments in Ramsey Courety, as weIl as Ramsey Medical Center, and the Universiry of Mirulesota to work on the committee. Two surveys were reviewed to determine the current status of radio communication needs, one from 1992 and the other administered by the committee in 1996. Both were self reported and based on generaI perceptions. Neither required the respondent to report actual data demonstrating problems. In 1992, Bernie Ebstein and Associates of Chicago was on contract with the Metropolitan Council to anaIyze options for the design of a regionwide radio system. Information was collected about existing radio systems, problems of these systems and system needs of agencies. Information was collected from 26 public agencies;l3 public safety agencies and 13 non-public safety. Public agencies which use radios to communicate were asked if their current communications system was generally adequate. Fifty-four percent indicated their current system was inadequate. However, public safety agencies were more likely to indicate the system was inadequate. Poor Coverage Crowded Channels Interference . User Discipline Unreliabte Equipment Not Enough Radios Excessive Downtime Lack of Features Ofher ri'umber ot Respondents 1942 Survey Ramsey Counh/ 800 MHz Ptan - 7 Communication Problems cg_� Agencies were asked to identify the'u top three current system problems. The most common problems were poor coverage, crowded channels and interference. Poor coverage was the primary issue for public safety agencies. Of those agencies that responded, 65% required direct unit to unit communicaiions among different agencies, and 29% required relay through dispatchers. Interagency communications are needed only occasionally by non- public safety agencies. One-third of public safety agencies need interagency communications regularly and half need it occasionally. Nearly all public safety agencies expressed a need for mutual aid. - The most frequently identified features that public safety agencies desire are access to data communication and coverage inside buildings. Currently, licensed frequencies are mainly used for transferring a person's vaice. Recent technology allows the wireless transfer of data and mam� agencies believe this would be very helpful in their duhes. Public Safety agencies have a higher desire far many features. 1946 Survey by the CommiEtee The study committee also utilized an informal survey of all Ramsey County agencies and determined that the situation had not changed much from the earlier study. The 1996 survey was distributed to 40 county and municipal departments. Thirty-two were returned. Most agencies cantinue ta have needs that are not addressed by the current system. Fourteen of the 19 agencies responding to the question share frequencies. Almost half experience delays (ivaiting for the channel to be clear of other conversations) and one-fourth had delays that presented a safety problem. Twelve agencies anticipate needing at least one mor�2 channel, seven agencies will need two or more. Three agencies specified the need for data transmission channels. When it comes to interagency communications,l7 agencies idenrified other agencies with �vhich they need to communicate. Thirteen identified agencies outside their govemmental organization, and a number identified agencies outside Ramsey County. New coliaborative arrangements like the Gang Task Force (Ramsey County, St. Paul, Minneapolis and Hennepin w�ili be working together) will increase the need for interagency communications. Ramsey Caunty 800 MHz Plan - 8 Current Communication Status Share Frequencies Expezience belays Serious deiays Need additional Channels Inter-agency Communication Number of Respondents 1996 Survey Important criteria for migration to 800 MHz includes compatibility with existing systems and other neighboring agencies, foliou�ed closely by price/costs vs. benefits, and distribution of user costs. Other criteria mentioned were avoidance of shared frequencies, irnproved coverage and feafures, greater capacity> and fiexibility. The main concem with 800 MHz is funding. Respondents are unclear what the benefits of it are. The high capital investrnent along with unknown maintenance cosfs and uncertainty about how capital costs will be allocated were all mentioned specifically. Other major concerns are the system capacity/mterference/availability, sen�ice agreements, management or control over the system, future expandability and timing with outside agencies. Based on the response it is estimated that there are at Ieast 3,167 mobile and portabie radios, ahout 250 of which operate at 800 MHz. There were 115 base stations and repeaters identified, with at least 7 operating at 800 MHz. These 800 MHz systems are not trunked. Most of the stations are over 7 years old, with a lifespan of 15 years. About 3/4 of the mobile radios are over five years old w•ith a Iifespan of between 5 and 15 years. Portables are generalIy newer hut a majorit}� are stiil ocer 5 years old. The Sheriff's system has the oldest stations. Ramsey Coicnty 800 MHz Plan - 9 � 8 1b 24 32 Current Status Conclusion5 While there are not severe stresses on the current radio communications systems in Ramsey County, a majority of agencies stated that Eheir radio system was inadequate in 1992. Within five years the county-wide need for additional channels and updated equipment will be significant. While there is a desire for some of the new features of a digital trunked system, the need for new channels will be easily met by refarming and the recent proposal to increase channels allocated to public safety. The increase in channels may a11ow agencies currently sharing frequencies to have separate channels which eliminate delayed access. WhaE other Counties have done Hennepin County joined the regional system and is part of the regional Request Por Proposal " (RFP). They have had a gzoup working on this issue for many years. Dakota Counry's proposal (prepared by W.M. Montgomery and Associates) recommended the county wait and review the issue again in the year 2000. An ongoing team will meet a couple of times a year to review progress of the regional system. Washington County has hired W.M. Montgomery to prepare their plan. If they join the regional system, they would not do so unti12001 or 2002. Anoka Counry also hired a consultant - Ronald Vegemast Engineering - and the Board of Commissioners has recently approved the recommendation to join the regionai system in 2003. Scott County is still working on their plan with assistance from W.M. Montgomery, but likely won't be joining the system in the near future. The Scott County Sheriff has publicly opposed joining the regional system. The Carver County Board has approved a recommendation to join the regaonal system as soon as possible. Ramsey County &00 MHz Ptan -10 Case Studies Communicafion between police and other emergency response units and sometimes even between two different police units can be very difficult under the currenE system. There are several reasons for this including: 1. Some of the police departments in the County operafe on V�� radios and others operate on UF� radio. These iwo different frequencies cannot talk to each other except through a relay station of dispatch center that keeps bott� entities on the line and "patches their calls together" across the different frequencies or even serves as human translator taking messages from one and delivering them to the other and then relaying responses back and forth. A reai exampie of this is a case that involved the North St. Paul Police and the Maplewood Police - both dispatched by Maplewood - and the Sheriff s Department during a recent burglary. !t was an eariy morning and North St. Pau( requested a Canine Squad from the Sheriffs Office. There was a burgfary in progress in a strip mall and tFie suspect was hiding inside one of the buildings. 7he only channel they had in common was MINSEF (Statewide Police Emergency} on their VHF portable radios. Maplewood Dispatch did not have access to M(NSEF. Maplewood Dispatch did have access to the County Co-op Channel, a UHF frequency. !n the buifding, Sheriffs Deputies could not hear the dispatcher on MINSEF, but Mapiewood Dispatch couid hear the officers on a scanner. To facilitate communication befween the units on the scene and the Maplewood Dispatch Center, Ramsey County Dispatch Center connected fhe Ramsey County Co-op equipment to tfie MINSEF � equipment so the Maplewood Qispatch could talk to the field units and listen to them on the scanner. T'his fied up a repeater and base station at the Ramsey County SherifFs Office along with a UHF control station and a scanner in Maplewood Dispatch for about three hours. Witfi the county-wide 800 MHz trunked radio system this situation could have been handied by assigning al! units on the scene to a common talk group and allowing both dispatch centers access to it. While this situation does not appear to be a crisis, the same difficulties would have occuned in the case of an emergency, murder or kidnapping, The system then wouid not be able to handle any second event or escalation of the first event because of the limitations in the system. 2. Even accommodations that have been made for the differences in radio frequencies and commurcications systems have limitafions. Ramsey County 800 MHz Pian - I I Q� � �J� � A real example is that the Ramsey County Sheriff's Office has placed two radios 9n each squad car. One works with municipal police depariments and the other operates on the same frequencies as the St. Paul police. The two radios allow quick communication while in the car. However, if an officer needs to get out of the car or to proceed on foot there is no effective way to maintain communication across these communication differences. In the case of a coordinated effort between two deparhnents, coordination is lost at critical times. If an officer is in pursuit on foot and is relying on back-up or coordinaEion from a deparEment whose radio operates on different frequencies, commtuucation can be seriously harmed or delayed as the dispatcher needs Yo take over the communication control or both departments switch to a shared emergency channei - used by all other agencies in the state. However, even this use of a shared channel if it is open accomplishes only police to police communication or fire to fire communication. The emergency systems do not aliow for inter-agency communication or coordination of responses and action across different professional responders. Another specific example of how this 3nter-agency communication can reduce efiectiveness and safety of police during duty is a recent White Bear Lake incident. A White Bear Lake Police officer spofted a truck towing fwo snowmobiles that matched fhe description of a some that had been reported stolen a few days before. The officer foilowed them down Highway 61 while confirming the identity of the sleds with White Bear Lake Dispatch. The truck had three passengers, so the officer needed a backup, but by then was entering 5t. Paui. Without direct contact with St. Paul squads, the officer had to get reports from the dispatch as to where the backups were. Eventuaily they showed up and together the officers apprehended the suspects. Once again, no hGrm resul:ed from the radio system. However, had the circumstances been more serious or the situation more complex or turned violent, the risk and consequences could have been very serious for all involved. For example, significant communications problems occurred in some we11 publicized emergencies. YVhile rare, these large scale emergencies demonstrate reai life communication problems that can occur a regular basis. When the Federal Building in Oklahoma City was bombed, public safety personnel needed to use 'nu�ners' to communicate wich one another. In the World Trade Center bombing, firefighters searching for victims cauaht between floors could not communicate by radio with police officers on the level below. Lastly, in the Oakland Hills, Califomia fires in 1991, radio communications were nearly hopelessly jammed because of the multiple agencies responding. Ramsey County 800 MHz Ptan - Z2 Analysis of Alternative t�ptions Three aItematives to 800 MHz were e�,lored by the study commitEee; i} trunking existing channels, 2) using reteased frequencies from other agencies, and 3) status quo evolving to narrow band. These alternatives were commented on by the Metropolitan Radio Board's Technical Advisory Committee. Trunking of e�cistin frec�uencies Since trunking is the most significant difference between the er.isting and proposed systems, a migration to 80D MEiz is not necessary. This alternative wouid have agencies in the county combine their own channels and run them in a fully coordinated system so that any agency could use any channel. Another option would be that all agencies in the county could 'pool' their existing frequencies but not trunk them. Advantaoes The prirnary advantage is that some agencies could keep their currenE frequencies and radios, (at least until the manufacturers stop producing current'wider' band radios) while communication between agencies in the county would be easier and more direcE Ehan is currently available. Disadvantaees There are two disadvantages to trunking existing channels. First is the cost. To trunk existing frequencies �vould require a new system with high capital cost similar to that associated with trunked SOD MHz. Second is the continued incompatibility with agencies outside the county. A combined system would have to use either UFiF ar VI� channeis and some agencies woutd have to change their equipment from one band to the other. Trunking simply would not work unless agencies build a combined sysfem. In addition, at least three frequencies are needed to tnmk and there are only two agencies - Ramsey County and 5t. Paul - that cunently have that many. However, if the FCC allows agencies to utilize the 'refarmed' half of their current channe2, the number of contiguous channels increases and trunking existing analog channels might work. Recommendation The study committee recommends that if a trunked system is planned, a review of the trunking existing channels shouid be considered. However, if the costs are ciose to those for joinina the regional system, the advantages of joining the regional system probabIy outweigh the additional costs. Use of Released Frec�uencies As agencies in other counties convert to 800 MHz, the frequencies that they operate on currently m�a ,.v become availabie. Ramsey County agencies which need additional channels could pian to reques; zccess to those frequencies. ftamsey Count� 800 MHz Plan -13 Advanta�es Some infrastnzcture costs would be incurred, but probably less than 80� MHz- New radios would still be purchased, but based on a replacement schedule. If the released channels were at UHF and the agency that acquired them was VF�, a whole new system would be needed. It could be possible that agencies that release frequencies would also sell their equipment, eliminating the need for purchase of new equipment. Some oE these frequencies have already been ticensed to new users. Disadvantatres There is a deb ee of uncertainty that other agencies wi11 release their Erequencies. Those agencies which will mia ate first have the hiohest need for additional channels and may have other uses for the current channels,. There has been talk at the rea onallevel that the released frequencies might be trunked into a regional data communication system. However, if the frequencies are not used, the FCC will reassio them. There is little likelihood that agencies will migrate to 800 MHz simultaneously so only a few released frequencies may be available at any given time. Without some idea of what frequencies wili be available and when, county-wide planning for using released frequencies wi11 be very difficult. In addition, new forms of communication technalogy will continue to increase demand for additional frequencies. T'his option does not resolve the problems with the current systems. Refarming will still require new technology capable of operating at narrower frequencies. Agencies which choose this option will continue to have cross-functional communication problems with otl:er agencies. Recommendation This option does not address the primary need for improved inter-agency communi�arion in Ramsey County. The study commictee recommends that agencies in Ramsey County not plan their future radio communications based on released frequencies. Status Ouo Evolving to Narrow Band Existing radios and transmitters do not have the capability to operate on the narrower bands. The FCC order 92-235 requires new equipment to be desio ed capable cf narrow band operation. Once this new equipment is available, a large market for current �vide band equipment may not exist. Mia arion to proa essively narrower bands is likely to happen because these economic forces. Advantaees As long as replace_ment equipment is available at the current bandwidth, the county can continue to operate at existing frequencies and may be able to use adjacent refarmed channels. Ramsey County 800 MHz Pian -14 DisadvantageG As manufacturers phase out existing equipment, the purchase of new radios and transmitters which can operate at narrower bands will still be required at substantial expense. It is not known what these zadios wil2 cost compared to replacement of current radios. Some feahues such as interagency talk groups and private intra-agency communications associated with digital trunkulg are not likeiy to be possible. Agencies which choose this option iviil continue to have compatibility problems with othex agencies both in the county and in surrounding areas. Cost implications A Ramsey Couniy Sheriff`s proposal in 1996 estimated the cost of repIacirig their curmnt technology with radios capable of narrow band transmission at 51.3 million. For a1I the pubIic safety agencies in Ramsey Co�.utty to purchase new rac3ios and transmitters would cost between $2.2 million and �29 miIiion. Recommendation The study committee recommends that status quo continue to be a possibiLity for non- public safety agencies where interoperability may not be as unportant a feature. If use of adjacent refarmed channels is possible, then this option becomes more advantageous. 800 MHz Options The study committee reviewed multiple options for implementizig a digital irunked 800 NIFiz system 4n Ramsey County, each with separa4e op�ions for system sharing, financing the backbone and supplying nser agencies w•ith radio equipment. Sharing of the Sub-System Ronaid Vegemast Engineermg, Inc. developed five different options tor a Ramsey County 800 MHz radio system. These options were presented to the County Board of Commissioners on July 11,1995. Option A) Ramsey County, St. Paul and other local govemmenes - joint system separate from the reo onal system. Estimated Cost for the infrastructure: $11,768,062. Opfion B} Ramsey County, St. Paul and other local govemments - jo;nt system in the reo onal sysfem. Estimated Cost for the infrastructure: �7,696,6$0. Option C) Ramsey County and other local govemments, without St. Paul - separate from the rea onal system. Estimated Cost for the infrastructure: $7,906,4—"_&. Option D) Ramsey County and other Iocal govemments, without St. Pau1- in the regional sys�em. Estirrzated CosE for the infrastructure; �5,gpg,626. Ramsey Coun[y 8Q0 MHz Pian - IS �8 - 3 '� 1 Option E) Ramsey County, without St. Paul or other local govemments - in the regional system. Estimated Cost for the infrastruciure: $4,669,556. Adv� s The benefits of joining the regional system inciude: locai use of regional towers, use of regional backup system confrollers, and the ability to communicate with state and metro agencies and other local govemments both inside and outside Ramsey County which join the regional system. 'The cosc to the County for a digital trunked radio system are lower and the capacity higher for both the County and the regional system if the County joins the regional system. The same dynamic exists if Ramsey County municipalities choose not to join the county system. if Ramsey County joins the regional system but municipalities don't join, the county would continue to provide VHF access. Disadvantaees The primary disadvantage to the County of migrating to 800 MHz is the cost. Cost implications Cost estimates for mobile and portable radios range from $2,625 to �h,850. Submitted reports, including Hennepin's, have used $3,000 per radio as an estimate. Using $3,0�0 as the estimate, the cost to Ramsey County o£ converting all its radios to 800 MHz is $1.7 million; to convert only the Sheriff's O#fice and Emergency Services would cost $1.4 Million. For radios and infrastructure, the cost to convert all agencies is estimated at beEween $17 miliion and $21 million. RecommendaEions and Policy Issues to Consider Three recommendations have been agreed to by committee members: 1) Ramsey County should not migrate to the regiona1800 MHz system at the present time, but the County should at least act to preserve the option of migrating to the regional system in the fuhzre. Eventuaily, a move to 800 MF�z may be inevitable. It would be wise of the County to preserve the 800 MF3z channels currently held for its use by the MRB. 2) St. Paul should join fihe county and regional system if they migrate to 800 MHz. Although St. Paul could create its own system under state statute, the committee recommends they do not build their own system. The overall cost to county taxpayers of building a digital trunked system would be mininiized by designing and building a single county-wide sub-system as part af the regional system. 3) The co;nmittee should meet every six months to get updates on the progress of the regionai system and reo�iew the acival costs, implementation issues and experiences at the regional level. The committee should use the information to make a recommendation Ramsey County 800 MHz Plan - 26 about joining the regional system by the year 2000 when the 800 MHz channels held for Ramsey County but controlled by the MRB are reviewed regarding their usage. Policy Issues to Consider The CounEy Board must decide whether to commit county reso�uces to build a county-wide trunked radio system at 800 MHz. If the county does not take part in the regionat 800 MHz system at this time, suburban municipalities are excluded by statute from jouung the regianai system and are financially unable to build their own separate system. If the caunty does decide to build a new system sometime in the future, there will be a number of policy issues to consider. These include: I. Fundin� alternatives Five options for funding the system have been discussed by fhe committee: a) The first option is Ramsey County buIlds the county sub-spstem. b) The second option is the Mefropolitan Radio Board builds the county sub-system, in addition to the region-wide backbone. c) The third option is to create a joint powers board among user agencies in the county which wonld jointly build the backbone system. d) A fourth option is to have a private/public partnership f�utd the county sub-system. This oprion could use low in{erest rates from the govemment with private risk exposure and lease back to avoid high public capital costs. e) The fina2 option is to create a public utility. A utility would allow close regulation and oversight of a non-govemmental entity, but would allow financing to be spread out over benefiting agencies. II. Depending on how the funding is established, the goveming structure must give user agencies a voice in how the system is operated. Municipal represenfatives on the committee have asked that even if Ramsey County finances the system, a goveming board be created with represenEatives from user agencies. Other questions include composition and authority of a goveming board as weli as maintenance and management of the system. Ramsey County 800 MHz Plan -17 III. Im�lementation Questions remain regarding the speed of migration and the degree of coordination in purchasing, building and maintaining portable radios and transmitters throughout the county. N. r fe Will user agencies be charged for accessing the system? If so, upon what will the charges be. based? What will be the relationship between the county system and the regional system? Will the county be charged fees to access the regional system and how will the charges be determined? V. Cost sharine How will the �apital costs be apportioned? VI. Access All eligible users must be advised of the plan and have an opportunity to participate. Eligible users includes school buses, veterinarians and doctors and the physically disabled. Since not ail the eligible users are even known, how should the county comply with the law? The Metrapolitan Radio Board representative has suggested a public hearing or comment period before a final report is completed. VII. Timeline When should Ehe system be impiemented? What is a reasonable capital inveshnent schedule? Hotiv long will it take to complete the construction and implementation of the new system? Ramsey CounEy 800 MHz Ptan - 78 Glossary of Terms Amplitude Modulation (AM}: modulation in which the ampIitude of the wave is varied to produce the signal. Analog signal: a signal thaF has a continuous nature rather than a pulsed or discrete nature. Channel: A path (specified band of frequencies) for conveying of electromagnetic signaIs, usually distinguished from other paralleI paths. T7igital Modu�ation: a modnlation that is pulsed or discrete in nature rather than continuous nature. Digital Signal: a signal in which discrete steps are used to represent information. Encryption: To converE plain text into unuitelligibie forms. Frequency: The number of oscIllations per unit time of a radio wave. Frequency Modulation (FM): Modulation in which the instantaneous frequency of a sine wave is caused to depart from the center frequency in proportion to the value of the signal. Interconnect: The capability of connecting mobile and portable radios to the pubiic switched telephone network so that teIephone call can be originated and received using the radio. Interoperabilty: The abilify of different systems to provide seroices to and accept services from other systems and to use the services to enable them to operate effectively together. In layman terms, the ability of different agencies to communicate directly with each other through their two- way radios on a regular basis. MHz (MegaHertz): Hertzs measures the length of a radio wave osciIlation. A MegaHertz is a unit of radio freguency equal to one thousand cycles, or oscillations, per second. Mutual aid charuieis: Special channels set aside for communicarion between agencies who don't routinely communicate directIy but may need to during a disaster or a large event. SCADA (Supervisory Control and Data Acquisition}; A radio system to monitor and control mechanized activity at remote sites. Examples of uses are sewage pumping stations, water Ievels in storage tanks and waming sirens. Spectrum: the range of frequencies of from zero to infinity. UHP (Ultra High Frequency): A band of radio frequencies falling between 300 and 300Q Hertz. �'T-IF (Very High Frequency): A band of radio frequencies falling befween 30 and 300 MegaHertz. �g-3� I Appendix A Current interagency communications (from T996 survey) Falcon Heights Fire mith F.H. Police Maplewood Fire with State PaErol, all Ramsey Fire DeparEments Maplewood Police, with Sfate Patrol, Washington and Rnmsey Sheriff, DNR, St. Pau1, Qakdale WBL, Cottage Grove, NorEh St. PAUI, Newport and St. Paul Park Police, area Fire and EMS services Mounds View Fire wiEh Mutual Aid, Anokn County,locaI police New Brighton Fire wzEh at1 Ramsey Co. Fire, Fridley, St. Anthony and Mounds View/BlainejSLP Fire New Brighfon Police with atI Rumsey Police, Columbia Heights, FridIey, and St. AnEhony Police, State Patrot, EMS (HealthSpan), alt New Brighton Departmenfs New Brighton Public Works with ail New Brighfon Bepartments, surrounding municipat Pubtic Works and Ramsey Public Works Ramsey County Emergency Services with police, fire, EMS, Public Works and Emergency Manngement Agencies in and surrounding Rnmsey County Ramsey County Property Management with internal departments Sheriff, with St. Paul, White Bear Lake, and Maplewood Police, State Patrol and adjatenE agencies Roseville Police with Sheriff and nei,ghboring agencies St. Paul Police, with att neighboring jurisdictions and State Patrol St. Paul Public Works, wifh other agencies St. Paui Water Utility wiEh Fire deparfinents Shoreview Pubiic Works with neighboring Pubtic Works and Police White Bear Lake Police with Ramsey Co. Sheri/'f, Washington Co. Sheriff, Anoka Ca. Sheriff, Maplewood Police, State Pafrot, LVhite Bear Fire White Bear Town with Sheriff, County Public Works, White Bear Lake Public Works and various other Appendix B Mailing List for the Study Committee B:ian Fritsznger, City of Arden Hills Paul Malone, City of Arden Hills Susan Hoyt, City of Falcon Heights Fritz Magnuson, City of Gem Lake Tim Cruikshank, City of Lauderdate Joel Hanson, City of Little Canada Craig Dawson, City of Maplewood Chuck Whiting, City of Mounds View John Kelly, City of New Brighton Nancy Rozycki, City of North Oaks Dan Scott, City of North St. Paul Steve Sarkozy, City of Roseville Terry Schwerm, City of Shoreview Jerry Morri, Vadnais Heights Fire Department Mark Sather, City of White Bear Lake James MoelIer, City of CNhite Bear Lake BiII Short, White Bear Towns� David McElyea, University of Minnesota Police Dave Zick, North St. Paul Police Harry Lyon, Jr., North St. Paul City Council Tim Butler, St. PauI Fire Deparhnent Dave Huisenga, St. PauI Fire Department Howard Honmann, St. Paut Police Department Dazwin Lookingbill, County Attorney Joe Polski, St. Paul PoIice Gary Koliman, Sheriff's Office Dick Dornbusch, Sheriff's Office Dave 4Valtz, St. Paui/Ramsey Medical Center Wayne Neison, Met Council $i11 Hughes, Ramsey County Emergency Services BiII Conter, Ramsey County Emergency Services Nick Ganas, Ramsey County 8udget & Accounting Jon WaIsh, Ramsey County Public Works Pat O'Malley, Ramsey County Property Management Dan Suess, Ramsey County Property Management Bazbara Raye, Ramsey County Policy and Planning Jim Theurer, Ramsey County Policy and Planning Resources Phone intervie�ti �ti•ith Gary� Therkeison, Communications Officer, City of Eden Prarie. Phone interview t�•ith Jear, Guthrie, Communications supervisor, City of Bloomington. Phone intenriecr c� itn Communications Officer, Fulton County Sheriff s Office. Council File # //1 �37f ORtG1�fAl. Gxeen Sheet # ��3�� RESOLUTION 2 ( �/) �ITY�O� SAINT PAUL, MINNESOTA Presented By Referred To Committee: Date 1 WHEREAS, the 1495 Mivuesota Legislature passed legislation that encouraged z participation in a new 800 MHZ region-wide hunked radio system which is being built for use a by State agencies and established a May 23, 1947 deadline for submitting local plans to the 4 Metropolitan Radio Boazd; and 6 WHEREAS, ttris legislation required all metropolitan counties to undertake a plam�ing � process to ensure coordination of radio systems; and 9 WI3EREAS, the Metropolitan Radio Board, established in the 19951egislation, has elected io official representarion for Saint Paul and has been working with the 5taxe, Hennepin Counry ii and Minneapolis to develop a request for proposals for the fust phase of the backbone ia infrastructure for a region-wide public safety radio system that must also accommodate future is users in the remaining six counries and the City of Saint Paui; and 14 is WHEREAS, an independent consultant's analysis far the Metropolitan Radio Board i6 concludes that the cost far Saint Paul and Ramsey County to independently develop and i� implement a plan will be higher than a joint effort; and is i9 WAEREAS, the City of Saint Paul has been working with Ramsey County on a local plan zo and each requested an extension to the deadline to ciarify information regarding current and z i future availability of radio channels to public safety efforts; and 22 2 s WHEREAS, submitting a joint pian with Ramsey County does not commit Saint Paul to 24 implementing a 800 MHZ radio system or assutniug any costs of such implementation; now a s therefore be it 26 2� RESOLVED, the City of Saint Paul endorses the report's three recommendations: as 1) Ramsey County should not migrate to the regiona1800 MHZ at the present time, but should z9 act to preserve the option of migrating to the region-wide 800 MHZ radio system in the future so by requesting that the Metropolitan Radio Board secure the channels set aside for Ramsey si County; Z) the City of Saint Paul should commit to jointly plan with the County for a single s2 county-wide system; and 3) the Ramsey County/Saint PauULoca1 Government Public Safety as Radio Communicafions 5tudy Committee continue to meet at least every s'vc months to monitor 34 progress of the region-wide radio system and address issues of funding, governance, ss implementation, user fees, access, time lines and replacement of equipment; and Page 1 of 2 98�37/ 36 RESOLVED, that the City of Saint Paul approves the joint development and submittal a� with Ramsey County of a local radio plan regarding a regionai radio system to the Metropolitan sa Radio Board with the understanding that such plan carries no real or implied commitment to ss implementation by the City; and ao al RE50LVED, that the City's elected representative on the Metropolitan Radio Board az officially designate Lieutenant Dick Dugan to serve as their non-voting aitemate to the Board. ORIGINAl� Page 2 of 2 Requested by Department of: I�YI ax UR t (JF'F� C P By: .�'-� Form Approved by City Attorney By: • r By: - - t —, r Approved by Mav D�te� �� 4 Apgroved, by ; ayor £�SUbmission to B y' � �/ l/ � 1 _'" ` BY Adopted by Council: Date Adoption Certi£ied by Council Secretary N°_ 52337 98�-3 �I Mayor Coleman's Office )NTACT PERSON 8 PHONE Chuck Armstrong 266-8530 TOTAL # OF SIGNA7URE PAGES 4-28-98 I GREEN SHEET � DEPARTMENT OIRECiOR FOR � CIT'ARORNEY BVDGET DIRECTOF _ (� MAYOR (OR ASS�S7AN'n (CLIP ALL LOCATIONS FOR SIGNATURE) INITIAUDATE � C�NCOUNC�L � CITY CLFRK � FIN. 8 MGT SEAVICES DIR � Approval of resolution by which Council approves City participation with Ramsey County in developing joint plan for 800 MHZ system. or _ PIANNING CAMMISSION _ CIVI� SERVICE _ C�e CAMMITfEE _ _ STAFf _ _ DISTii1CTCOURT _ SUPPOFTS WNIC}i COUNCIL O&IECTIVE> PERSONAL SEHVICE CONTRACTS MUST ANSWEP TFfE FOLLOWING �UEST�ON3: 1. Has this personHirm ever worketl unde� a contrect for ihis tlepartment? YES NO 2. Has this pers9ntlum ever been a city employee? YES NO 3. Does fhis pe�sonttirm possess a skUl rrot normally possessetl by any current cily employee? YES NO Ezplain eli yes answera on seperate sheet enE attaeh to green sheet INITIATING PqOBLEM, ISSUE. OPPORNNITV (W1ro, What When, 4Yhere. Why�' By state law, the City must submit an implementation plan for participation in the Statewide 800 NIIiZ radio system. The City has elected to de"velop this plan jointly with Ramsey County. ADVANTPGES IF APPROVEO: The City will remain eligible to participate (without being committed to implementation in any form) in the Statewide system. She City's joint implementation with Ramsey County represents the most practical and cost-effective approach, if the City chooses to move ahead with participation in the Statewide system. None IFNOTAPPROVED: The City forecloses future opportunity to participate in the Statewide 8Q� MIiZ system. �i9Elt��'+4 �i�'"e4.'�°'u°CPl vG^�v9' ' t ' _: , ,: � _.. �OTAL AMOUNT OF TRANSACTION 5 COST/REVENUE BUDGETED(CIRCLE ONE) VES NO N�A A 'UNDIfdGSOURCE N � A ACTIVITYNUMBER N�A � �� � WANCIAi INfORfFAT10N: (EXPIAfN) � �r�C�c(� G'CRSro , �kaCe:�.S 3�l�/`t�� 9�-37t Ramsey County � . 800 MHz Radio Communications Plan Ramsey County Manager's Office February 1998 Report of the Ramsey CountylSt. Paui/Locai Government Public Safety Radio C�mmunication Study Committee �^ r ��'�f� � Table of Contents Introduction Background Driving Forces Current Status What Other Counfies have done Case Studies Analysis of Alternative Options &00 MHz Options Recommendations axid Policy Issues Glossary Page 2 Page 4 Page 5 Page 7 Page 10 Page 11 Page 13 Page 15 Page 16 Page 19 9� Introduction Corrununication is an essential tool for all public safety agencies in Ramsey County. Dispatchers need to communicate with Police Officers, Fire Fighters and Deputies in the field to identify location, description of emergency, the people involved and whether additional help is required. The front line responders also communicate with each other to coordinate their approach and give warnings. Today, most of this communication takes place through two-way radio systems. Police and Fire vehicles (as well as Parks and Public Works vehicles), have radios. These are called 'Mobile' radios. Some Police Officers also carry 'Portable' radios, which have battery packs and allow the Officer to communicate even when away from their vehicle. All these radios send and receive sound over the airwaves. Each agency operates their radio system at a discrete 'frequency' of 'channel', just like a radio station operates at a frequency. Generally, only that agency has access to the frequency (although scanners allow others to receive the sound signals and listen to the conversation). When one agency needs to communicate with another, they must switch Eo a shared state-wide emergency frequency or'patch' together through a common link, like a dispatcher. Municipalities are licensed to use radio frequencies based on the usape expected by Ehe different city departments. A typical municipal govemment may have one or more 'channeis' each occupying between 15 and 25 kilohertz (kHz) on the frequency spectrum. - Sometimes a frequency is shared by different agencies within the same geoo aphic area. With a shared frequency, only the agencies sharing it can use that channel and when a conversation is taking place, all other conversations must wait until the first conversation is finished and the channel becomes clear (like having only one phone line in the multi-person office). The Metropolitan Radio Board has been created to build a region-wide radio system at 800 MHz on the frequency band. The regional system is funded by the State for use by the State Patrol, Minnesota Department of Transportation and the Metropolitan Council. 'Ihe region-wide system will be a'trunked' system. To trunk channels means that all channels are shared and available to all the governmental agencies in a given area. All radios used for a conversation are automatically switched by a computer to whatever channei is available. It is similar to a PBX system used in hotels, where each hotel room appears to have its own phone line, but the whole hotel has only a few phone lines. Such a spstem is feasible because individuals have sma11 tune slots during which they need a phone line or in this case a radio channel. With a trunked system rather than each agency operating its o�i�n radio system, there would be one large system shared by all agencies. Trunking allows op:imal use o; the lunited Rnmsey County 800 MHz Plan - Z frequency spectrum and increased flexibility for inter-agency communication, but requires a great deal of coordination between a11 participating agencies and requires significant upfront expenses. In the region-wide system, agencies wilI be assigned a certain number of 'talk groups'. A talk group is a pre-designed set of radio users that can communicate at any given time. Because all agencies share the same frequencies, talk groups can be across agencies, departments and organizations. The number of talk groups that will be available is many times the number of channels currently available. The regional system has two computer switching centers connected by fiber optic cable and multiple transmitter sites located across nine counties. (See Diagram 1, below.) Transmitter sites are connected by microwave links to aliow radios in one part of the region to communicate wiEh others in another part of the region. Diagram 1: Praposed Regional sites and Microtivave Iinks Rnmsey Couniy 800 MHz Plan - 3 �� ' � � A frunked system could also uiilize current technologies known as simulcast and digital modulation. Simulcast and digital modulation allow coverage over a larger area, improved signal quality and more secure communication. In the future, all or nearly all, mobile radio transmission will be digital (discrete signal pulses} because band narrowing can not be accomplished with analog (continuous signal) technology. A trunked system also offers limited telephone interconnect, which allows users to place and receive telephone calls from their radio. Backgraund In 199�, the Legislature required all metropolitan counties to undertake a planning process to ensure coordination of radio systems and encourage participarion in the new 800 MHz region- wide digital trunked radio system. While the region-wide system meets State needs, it is not sufficient by itself to allow agencies in Ramsey County to have effective communication. For instance, the State Patrol functions out of doors, on the highways. Police and Fire agencies need radios that work inside buildings. The covnty *n,�ould need to supplement the region-wide system with a county sub- system of transmitters, linked by microwave to each other and to the regional transmifters to allow indoor use of radios. All metropolitan counties are being asked to develop specific plans for how they would build, finance, manage and operate their own county sub-system in cooperation with the new state system. Participation in the region-wide system is not required of local agencies, but they cannot }oin until their county plan has been approved by the Metropolitan Radio Board (MRB). In July of 1995, Ron Vegemast Engineering presented to the Board cost estimates for the infrastructure for various 800 MHz layouts. The Ramsey County Board of Commissioners authorized the crearion of the Ramsey CountyJSt. Paul/Local Govemment Public Safety Radio Communication Study Committee to prepare ehe plan. Ramsey CounEy 800 MHz Plan - 4 Forces The following identify the context for this effort. FCC Refarming In June of 1995, the Federal Commtuiication Commission {FCC) issued an order (92-235) to "re£arni' radio channels. T'his order affects all users of licensed frequencies be2ow 512 MHz, which includes Public Safety agencies in Ramsey County. The order has two components. First, the fiCC intends to narrow channels and has required that necv radios be capable of operating at narrower channels. Secondiy, the FCC is holding a number of frequencies at the $OO levei for public safety agencies so those agencies can migrate to 800 MHz. The MIZB controls these frequencies in the metro area and has dedicated 21 channeis for Ramsey County at the 800 MHz level(13 for St. Pau1 and 8 for the County). Through wholesale migration of public safety channels, a metropolitan region can easily 'tntnk' their channeis. Technologv Benefits Current radio systems are based on very old design, similar to a singie teIephone line for an entire office. When a conversation is taking pIace, all other conversations must wait until the first conversation is fuushed and fhe charulel becomes clear. Trunked radio systems, like that being discussed, more effectively use limited radio channels through the employment of microprocessors. Priorifization permits the system to automatically atlocate channeis based on system use and user prioriry. Adding digital modulation to a trunked systern makes use of the IaEest technology and supports many new features that would benefit public safety. One example is 'encryption', where the signal can't be understood so people outside the system can't listen in to conversations. Availabilitv for expansion While not many agencies in Ramsey are in immediate need for additional channels, increased data and voice communication wili require additional channeIs. New communication technologies are creating private sector demand for many new channels. The FCC has reacted to this demand by narrowing channels, thereby doubling the number of channels availabie once other agencies either migrate to 800 MHz or purchase narrow band equipment. In April of 1997, the FCC aiso proposed taking a section of UHF television channels and ficensing them to public safety agencies for radio communication. Ca ito al eauipment replacement Much of the equipment throughout the county is old and needs replacement in the near future, even if no enhancement or changes occur to the overall system. Hand held radios are replaced an average of every five years. As equipment is replaced, a decision needs to be made whether to invest in a trunked system now or to update existing equipment but stay with the current basic technologt� and system design. Ramsey County 800 Milz Ptan - 5 Problems with the current s, s� tem Unlike some other areas of the metropolitan region, Ramsey Counfy is not experiencing severe stress on its existing radio communicaiion systems. However, a majority of agencies have had probiems such as delays, crowded channels, poor coverage and interference. There is lunited ability to communicate directly or conveniently between agencies. For example, at an accident scene, police, fire and medical cannot even talk with each other via radio. There are some emergency and mutual aid channels available but they are severely limited because they were designed for specific uses. MINSE� is used only for car to car police communication and is available statewide. MII�TWIN is for communication between 911 Public Safety Answering Points (PSAP) in the event of a local disaster. Both of these are VHE. The Metro Emergency Channel is a UHF channel for police vehicles in Ramsey and Hennepin only. These shared channels are designed for emergency use only and if"used routinely, would defeat the limited purpose of the channels and limit availability in the case of a major emergency. These channels �vill continue to be available to agencies that migrate to the regiona180flMHz system. With the state creating a region-wide 800 MHz backbone system and the FCC ordered narrowing of currently used channel frequencies in the near future, these pressures have created a �vindow of opportunity rather than a problem that needs to be resolved. This affects the discussion, analysis and timing of implementation. State financed backbone The state has approved financing for the regional backbone system, and MnDot, the State Patrol, Minneapolis and Hennepin County wili al1 be converting to 800 MHz upon completion of the regional backbone. Ramsey County has the option of utilizing the regional backbone system to directly communicate throughout the region. The cost of to the county of building an 800 MHz system is reduced if the county joins the regional system, because the county system can use some of the regional towers. If the county doesn't take part in the regional system, suburban municipalides by law are excluded from joining the regional system (Although the County preserves the right to join at a later time). In the most recent legislative session, as part of the tax bill, the legisiature granted a sales tax exemption for the sale of products or services used for construction, operation, maintenance, and enhancement of the backbone system. State planning rec�uirement Under state law, the county is required to submit a plan to the Metropolitan Radio Board for county-wide radio communications. A draft report was sent from Ramsey Cou�ty. Due to delays at the regional level, no information was available on actual bids for equipment for the regionai backbone, nor have access fees for county connection to the backbone been determined. A11 cost information in this report is based on preliminary estimates and no local govemment should or is being asked to make a finai decision before bids for the backbone are received at the regional level, Ramsey County 800 MHz Plan - 6 Current Status The County Manager's Offzce - as authorized by the County Board - created a Ramsey County/St. Pau1/Local Government Public Safety Radio Communication Study Committee and invited representatives fram all local governments in Ramsey Courety, as weIl as Ramsey Medical Center, and the Universiry of Mirulesota to work on the committee. Two surveys were reviewed to determine the current status of radio communication needs, one from 1992 and the other administered by the committee in 1996. Both were self reported and based on generaI perceptions. Neither required the respondent to report actual data demonstrating problems. In 1992, Bernie Ebstein and Associates of Chicago was on contract with the Metropolitan Council to anaIyze options for the design of a regionwide radio system. Information was collected about existing radio systems, problems of these systems and system needs of agencies. Information was collected from 26 public agencies;l3 public safety agencies and 13 non-public safety. Public agencies which use radios to communicate were asked if their current communications system was generally adequate. Fifty-four percent indicated their current system was inadequate. However, public safety agencies were more likely to indicate the system was inadequate. Poor Coverage Crowded Channels Interference . User Discipline Unreliabte Equipment Not Enough Radios Excessive Downtime Lack of Features Ofher ri'umber ot Respondents 1942 Survey Ramsey Counh/ 800 MHz Ptan - 7 Communication Problems cg_� Agencies were asked to identify the'u top three current system problems. The most common problems were poor coverage, crowded channels and interference. Poor coverage was the primary issue for public safety agencies. Of those agencies that responded, 65% required direct unit to unit communicaiions among different agencies, and 29% required relay through dispatchers. Interagency communications are needed only occasionally by non- public safety agencies. One-third of public safety agencies need interagency communications regularly and half need it occasionally. Nearly all public safety agencies expressed a need for mutual aid. - The most frequently identified features that public safety agencies desire are access to data communication and coverage inside buildings. Currently, licensed frequencies are mainly used for transferring a person's vaice. Recent technology allows the wireless transfer of data and mam� agencies believe this would be very helpful in their duhes. Public Safety agencies have a higher desire far many features. 1946 Survey by the CommiEtee The study committee also utilized an informal survey of all Ramsey County agencies and determined that the situation had not changed much from the earlier study. The 1996 survey was distributed to 40 county and municipal departments. Thirty-two were returned. Most agencies cantinue ta have needs that are not addressed by the current system. Fourteen of the 19 agencies responding to the question share frequencies. Almost half experience delays (ivaiting for the channel to be clear of other conversations) and one-fourth had delays that presented a safety problem. Twelve agencies anticipate needing at least one mor�2 channel, seven agencies will need two or more. Three agencies specified the need for data transmission channels. When it comes to interagency communications,l7 agencies idenrified other agencies with �vhich they need to communicate. Thirteen identified agencies outside their govemmental organization, and a number identified agencies outside Ramsey County. New coliaborative arrangements like the Gang Task Force (Ramsey County, St. Paul, Minneapolis and Hennepin w�ili be working together) will increase the need for interagency communications. Ramsey Caunty 800 MHz Plan - 8 Current Communication Status Share Frequencies Expezience belays Serious deiays Need additional Channels Inter-agency Communication Number of Respondents 1996 Survey Important criteria for migration to 800 MHz includes compatibility with existing systems and other neighboring agencies, foliou�ed closely by price/costs vs. benefits, and distribution of user costs. Other criteria mentioned were avoidance of shared frequencies, irnproved coverage and feafures, greater capacity> and fiexibility. The main concem with 800 MHz is funding. Respondents are unclear what the benefits of it are. The high capital investrnent along with unknown maintenance cosfs and uncertainty about how capital costs will be allocated were all mentioned specifically. Other major concerns are the system capacity/mterference/availability, sen�ice agreements, management or control over the system, future expandability and timing with outside agencies. Based on the response it is estimated that there are at Ieast 3,167 mobile and portabie radios, ahout 250 of which operate at 800 MHz. There were 115 base stations and repeaters identified, with at least 7 operating at 800 MHz. These 800 MHz systems are not trunked. Most of the stations are over 7 years old, with a lifespan of 15 years. About 3/4 of the mobile radios are over five years old w•ith a Iifespan of between 5 and 15 years. Portables are generalIy newer hut a majorit}� are stiil ocer 5 years old. The Sheriff's system has the oldest stations. Ramsey Coicnty 800 MHz Plan - 9 � 8 1b 24 32 Current Status Conclusion5 While there are not severe stresses on the current radio communications systems in Ramsey County, a majority of agencies stated that Eheir radio system was inadequate in 1992. Within five years the county-wide need for additional channels and updated equipment will be significant. While there is a desire for some of the new features of a digital trunked system, the need for new channels will be easily met by refarming and the recent proposal to increase channels allocated to public safety. The increase in channels may a11ow agencies currently sharing frequencies to have separate channels which eliminate delayed access. WhaE other Counties have done Hennepin County joined the regional system and is part of the regional Request Por Proposal " (RFP). They have had a gzoup working on this issue for many years. Dakota Counry's proposal (prepared by W.M. Montgomery and Associates) recommended the county wait and review the issue again in the year 2000. An ongoing team will meet a couple of times a year to review progress of the regional system. Washington County has hired W.M. Montgomery to prepare their plan. If they join the regional system, they would not do so unti12001 or 2002. Anoka Counry also hired a consultant - Ronald Vegemast Engineering - and the Board of Commissioners has recently approved the recommendation to join the regionai system in 2003. Scott County is still working on their plan with assistance from W.M. Montgomery, but likely won't be joining the system in the near future. The Scott County Sheriff has publicly opposed joining the regional system. The Carver County Board has approved a recommendation to join the regaonal system as soon as possible. Ramsey County &00 MHz Ptan -10 Case Studies Communicafion between police and other emergency response units and sometimes even between two different police units can be very difficult under the currenE system. There are several reasons for this including: 1. Some of the police departments in the County operafe on V�� radios and others operate on UF� radio. These iwo different frequencies cannot talk to each other except through a relay station of dispatch center that keeps bott� entities on the line and "patches their calls together" across the different frequencies or even serves as human translator taking messages from one and delivering them to the other and then relaying responses back and forth. A reai exampie of this is a case that involved the North St. Paul Police and the Maplewood Police - both dispatched by Maplewood - and the Sheriff s Department during a recent burglary. !t was an eariy morning and North St. Pau( requested a Canine Squad from the Sheriffs Office. There was a burgfary in progress in a strip mall and tFie suspect was hiding inside one of the buildings. 7he only channel they had in common was MINSEF (Statewide Police Emergency} on their VHF portable radios. Maplewood Dispatch did not have access to M(NSEF. Maplewood Dispatch did have access to the County Co-op Channel, a UHF frequency. !n the buifding, Sheriffs Deputies could not hear the dispatcher on MINSEF, but Mapiewood Dispatch couid hear the officers on a scanner. To facilitate communication befween the units on the scene and the Maplewood Dispatch Center, Ramsey County Dispatch Center connected fhe Ramsey County Co-op equipment to tfie MINSEF � equipment so the Maplewood Qispatch could talk to the field units and listen to them on the scanner. T'his fied up a repeater and base station at the Ramsey County SherifFs Office along with a UHF control station and a scanner in Maplewood Dispatch for about three hours. Witfi the county-wide 800 MHz trunked radio system this situation could have been handied by assigning al! units on the scene to a common talk group and allowing both dispatch centers access to it. While this situation does not appear to be a crisis, the same difficulties would have occuned in the case of an emergency, murder or kidnapping, The system then wouid not be able to handle any second event or escalation of the first event because of the limitations in the system. 2. Even accommodations that have been made for the differences in radio frequencies and commurcications systems have limitafions. Ramsey County 800 MHz Pian - I I Q� � �J� � A real example is that the Ramsey County Sheriff's Office has placed two radios 9n each squad car. One works with municipal police depariments and the other operates on the same frequencies as the St. Paul police. The two radios allow quick communication while in the car. However, if an officer needs to get out of the car or to proceed on foot there is no effective way to maintain communication across these communication differences. In the case of a coordinated effort between two deparhnents, coordination is lost at critical times. If an officer is in pursuit on foot and is relying on back-up or coordinaEion from a deparEment whose radio operates on different frequencies, commtuucation can be seriously harmed or delayed as the dispatcher needs Yo take over the communication control or both departments switch to a shared emergency channei - used by all other agencies in the state. However, even this use of a shared channel if it is open accomplishes only police to police communication or fire to fire communication. The emergency systems do not aliow for inter-agency communication or coordination of responses and action across different professional responders. Another specific example of how this 3nter-agency communication can reduce efiectiveness and safety of police during duty is a recent White Bear Lake incident. A White Bear Lake Police officer spofted a truck towing fwo snowmobiles that matched fhe description of a some that had been reported stolen a few days before. The officer foilowed them down Highway 61 while confirming the identity of the sleds with White Bear Lake Dispatch. The truck had three passengers, so the officer needed a backup, but by then was entering 5t. Paui. Without direct contact with St. Paul squads, the officer had to get reports from the dispatch as to where the backups were. Eventuaily they showed up and together the officers apprehended the suspects. Once again, no hGrm resul:ed from the radio system. However, had the circumstances been more serious or the situation more complex or turned violent, the risk and consequences could have been very serious for all involved. For example, significant communications problems occurred in some we11 publicized emergencies. YVhile rare, these large scale emergencies demonstrate reai life communication problems that can occur a regular basis. When the Federal Building in Oklahoma City was bombed, public safety personnel needed to use 'nu�ners' to communicate wich one another. In the World Trade Center bombing, firefighters searching for victims cauaht between floors could not communicate by radio with police officers on the level below. Lastly, in the Oakland Hills, Califomia fires in 1991, radio communications were nearly hopelessly jammed because of the multiple agencies responding. Ramsey County 800 MHz Ptan - Z2 Analysis of Alternative t�ptions Three aItematives to 800 MHz were e�,lored by the study commitEee; i} trunking existing channels, 2) using reteased frequencies from other agencies, and 3) status quo evolving to narrow band. These alternatives were commented on by the Metropolitan Radio Board's Technical Advisory Committee. Trunking of e�cistin frec�uencies Since trunking is the most significant difference between the er.isting and proposed systems, a migration to 80D MEiz is not necessary. This alternative wouid have agencies in the county combine their own channels and run them in a fully coordinated system so that any agency could use any channel. Another option would be that all agencies in the county could 'pool' their existing frequencies but not trunk them. Advantaoes The prirnary advantage is that some agencies could keep their currenE frequencies and radios, (at least until the manufacturers stop producing current'wider' band radios) while communication between agencies in the county would be easier and more direcE Ehan is currently available. Disadvantaees There are two disadvantages to trunking existing channels. First is the cost. To trunk existing frequencies �vould require a new system with high capital cost similar to that associated with trunked SOD MHz. Second is the continued incompatibility with agencies outside the county. A combined system would have to use either UFiF ar VI� channeis and some agencies woutd have to change their equipment from one band to the other. Trunking simply would not work unless agencies build a combined sysfem. In addition, at least three frequencies are needed to tnmk and there are only two agencies - Ramsey County and 5t. Paul - that cunently have that many. However, if the FCC allows agencies to utilize the 'refarmed' half of their current channe2, the number of contiguous channels increases and trunking existing analog channels might work. Recommendation The study committee recommends that if a trunked system is planned, a review of the trunking existing channels shouid be considered. However, if the costs are ciose to those for joinina the regional system, the advantages of joining the regional system probabIy outweigh the additional costs. Use of Released Frec�uencies As agencies in other counties convert to 800 MHz, the frequencies that they operate on currently m�a ,.v become availabie. Ramsey County agencies which need additional channels could pian to reques; zccess to those frequencies. ftamsey Count� 800 MHz Plan -13 Advanta�es Some infrastnzcture costs would be incurred, but probably less than 80� MHz- New radios would still be purchased, but based on a replacement schedule. If the released channels were at UHF and the agency that acquired them was VF�, a whole new system would be needed. It could be possible that agencies that release frequencies would also sell their equipment, eliminating the need for purchase of new equipment. Some oE these frequencies have already been ticensed to new users. Disadvantatres There is a deb ee of uncertainty that other agencies wi11 release their Erequencies. Those agencies which will mia ate first have the hiohest need for additional channels and may have other uses for the current channels,. There has been talk at the rea onallevel that the released frequencies might be trunked into a regional data communication system. However, if the frequencies are not used, the FCC will reassio them. There is little likelihood that agencies will migrate to 800 MHz simultaneously so only a few released frequencies may be available at any given time. Without some idea of what frequencies wili be available and when, county-wide planning for using released frequencies wi11 be very difficult. In addition, new forms of communication technalogy will continue to increase demand for additional frequencies. T'his option does not resolve the problems with the current systems. Refarming will still require new technology capable of operating at narrower frequencies. Agencies which choose this option will continue to have cross-functional communication problems with otl:er agencies. Recommendation This option does not address the primary need for improved inter-agency communi�arion in Ramsey County. The study commictee recommends that agencies in Ramsey County not plan their future radio communications based on released frequencies. Status Ouo Evolving to Narrow Band Existing radios and transmitters do not have the capability to operate on the narrower bands. The FCC order 92-235 requires new equipment to be desio ed capable cf narrow band operation. Once this new equipment is available, a large market for current �vide band equipment may not exist. Mia arion to proa essively narrower bands is likely to happen because these economic forces. Advantaees As long as replace_ment equipment is available at the current bandwidth, the county can continue to operate at existing frequencies and may be able to use adjacent refarmed channels. Ramsey County 800 MHz Pian -14 DisadvantageG As manufacturers phase out existing equipment, the purchase of new radios and transmitters which can operate at narrower bands will still be required at substantial expense. It is not known what these zadios wil2 cost compared to replacement of current radios. Some feahues such as interagency talk groups and private intra-agency communications associated with digital trunkulg are not likeiy to be possible. Agencies which choose this option iviil continue to have compatibility problems with othex agencies both in the county and in surrounding areas. Cost implications A Ramsey Couniy Sheriff`s proposal in 1996 estimated the cost of repIacirig their curmnt technology with radios capable of narrow band transmission at 51.3 million. For a1I the pubIic safety agencies in Ramsey Co�.utty to purchase new rac3ios and transmitters would cost between $2.2 million and �29 miIiion. Recommendation The study committee recommends that status quo continue to be a possibiLity for non- public safety agencies where interoperability may not be as unportant a feature. If use of adjacent refarmed channels is possible, then this option becomes more advantageous. 800 MHz Options The study committee reviewed multiple options for implementizig a digital irunked 800 NIFiz system 4n Ramsey County, each with separa4e op�ions for system sharing, financing the backbone and supplying nser agencies w•ith radio equipment. Sharing of the Sub-System Ronaid Vegemast Engineermg, Inc. developed five different options tor a Ramsey County 800 MHz radio system. These options were presented to the County Board of Commissioners on July 11,1995. Option A) Ramsey County, St. Paul and other local govemmenes - joint system separate from the reo onal system. Estimated Cost for the infrastructure: $11,768,062. Opfion B} Ramsey County, St. Paul and other local govemments - jo;nt system in the reo onal sysfem. Estimated Cost for the infrastructure: �7,696,6$0. Option C) Ramsey County and other local govemments, without St. Paul - separate from the rea onal system. Estimated Cost for the infrastructure: $7,906,4—"_&. Option D) Ramsey County and other Iocal govemments, without St. Pau1- in the regional sys�em. Estirrzated CosE for the infrastructure; �5,gpg,626. Ramsey Coun[y 8Q0 MHz Pian - IS �8 - 3 '� 1 Option E) Ramsey County, without St. Paul or other local govemments - in the regional system. Estimated Cost for the infrastruciure: $4,669,556. Adv� s The benefits of joining the regional system inciude: locai use of regional towers, use of regional backup system confrollers, and the ability to communicate with state and metro agencies and other local govemments both inside and outside Ramsey County which join the regional system. 'The cosc to the County for a digital trunked radio system are lower and the capacity higher for both the County and the regional system if the County joins the regional system. The same dynamic exists if Ramsey County municipalities choose not to join the county system. if Ramsey County joins the regional system but municipalities don't join, the county would continue to provide VHF access. Disadvantaees The primary disadvantage to the County of migrating to 800 MHz is the cost. Cost implications Cost estimates for mobile and portable radios range from $2,625 to �h,850. Submitted reports, including Hennepin's, have used $3,000 per radio as an estimate. Using $3,0�0 as the estimate, the cost to Ramsey County o£ converting all its radios to 800 MHz is $1.7 million; to convert only the Sheriff's O#fice and Emergency Services would cost $1.4 Million. For radios and infrastructure, the cost to convert all agencies is estimated at beEween $17 miliion and $21 million. RecommendaEions and Policy Issues to Consider Three recommendations have been agreed to by committee members: 1) Ramsey County should not migrate to the regiona1800 MHz system at the present time, but the County should at least act to preserve the option of migrating to the regional system in the fuhzre. Eventuaily, a move to 800 MF�z may be inevitable. It would be wise of the County to preserve the 800 MF3z channels currently held for its use by the MRB. 2) St. Paul should join fihe county and regional system if they migrate to 800 MHz. Although St. Paul could create its own system under state statute, the committee recommends they do not build their own system. The overall cost to county taxpayers of building a digital trunked system would be mininiized by designing and building a single county-wide sub-system as part af the regional system. 3) The co;nmittee should meet every six months to get updates on the progress of the regionai system and reo�iew the acival costs, implementation issues and experiences at the regional level. The committee should use the information to make a recommendation Ramsey County 800 MHz Plan - 26 about joining the regional system by the year 2000 when the 800 MHz channels held for Ramsey County but controlled by the MRB are reviewed regarding their usage. Policy Issues to Consider The CounEy Board must decide whether to commit county reso�uces to build a county-wide trunked radio system at 800 MHz. If the county does not take part in the regionat 800 MHz system at this time, suburban municipalities are excluded by statute from jouung the regianai system and are financially unable to build their own separate system. If the caunty does decide to build a new system sometime in the future, there will be a number of policy issues to consider. These include: I. Fundin� alternatives Five options for funding the system have been discussed by fhe committee: a) The first option is Ramsey County buIlds the county sub-spstem. b) The second option is the Mefropolitan Radio Board builds the county sub-system, in addition to the region-wide backbone. c) The third option is to create a joint powers board among user agencies in the county which wonld jointly build the backbone system. d) A fourth option is to have a private/public partnership f�utd the county sub-system. This oprion could use low in{erest rates from the govemment with private risk exposure and lease back to avoid high public capital costs. e) The fina2 option is to create a public utility. A utility would allow close regulation and oversight of a non-govemmental entity, but would allow financing to be spread out over benefiting agencies. II. Depending on how the funding is established, the goveming structure must give user agencies a voice in how the system is operated. Municipal represenfatives on the committee have asked that even if Ramsey County finances the system, a goveming board be created with represenEatives from user agencies. Other questions include composition and authority of a goveming board as weli as maintenance and management of the system. Ramsey County 800 MHz Plan -17 III. Im�lementation Questions remain regarding the speed of migration and the degree of coordination in purchasing, building and maintaining portable radios and transmitters throughout the county. N. r fe Will user agencies be charged for accessing the system? If so, upon what will the charges be. based? What will be the relationship between the county system and the regional system? Will the county be charged fees to access the regional system and how will the charges be determined? V. Cost sharine How will the �apital costs be apportioned? VI. Access All eligible users must be advised of the plan and have an opportunity to participate. Eligible users includes school buses, veterinarians and doctors and the physically disabled. Since not ail the eligible users are even known, how should the county comply with the law? The Metrapolitan Radio Board representative has suggested a public hearing or comment period before a final report is completed. VII. Timeline When should Ehe system be impiemented? What is a reasonable capital inveshnent schedule? Hotiv long will it take to complete the construction and implementation of the new system? Ramsey CounEy 800 MHz Ptan - 78 Glossary of Terms Amplitude Modulation (AM}: modulation in which the ampIitude of the wave is varied to produce the signal. Analog signal: a signal thaF has a continuous nature rather than a pulsed or discrete nature. Channel: A path (specified band of frequencies) for conveying of electromagnetic signaIs, usually distinguished from other paralleI paths. T7igital Modu�ation: a modnlation that is pulsed or discrete in nature rather than continuous nature. Digital Signal: a signal in which discrete steps are used to represent information. Encryption: To converE plain text into unuitelligibie forms. Frequency: The number of oscIllations per unit time of a radio wave. Frequency Modulation (FM): Modulation in which the instantaneous frequency of a sine wave is caused to depart from the center frequency in proportion to the value of the signal. Interconnect: The capability of connecting mobile and portable radios to the pubiic switched telephone network so that teIephone call can be originated and received using the radio. Interoperabilty: The abilify of different systems to provide seroices to and accept services from other systems and to use the services to enable them to operate effectively together. In layman terms, the ability of different agencies to communicate directly with each other through their two- way radios on a regular basis. MHz (MegaHertz): Hertzs measures the length of a radio wave osciIlation. A MegaHertz is a unit of radio freguency equal to one thousand cycles, or oscillations, per second. Mutual aid charuieis: Special channels set aside for communicarion between agencies who don't routinely communicate directIy but may need to during a disaster or a large event. SCADA (Supervisory Control and Data Acquisition}; A radio system to monitor and control mechanized activity at remote sites. Examples of uses are sewage pumping stations, water Ievels in storage tanks and waming sirens. Spectrum: the range of frequencies of from zero to infinity. UHP (Ultra High Frequency): A band of radio frequencies falling between 300 and 300Q Hertz. �'T-IF (Very High Frequency): A band of radio frequencies falling befween 30 and 300 MegaHertz. �g-3� I Appendix A Current interagency communications (from T996 survey) Falcon Heights Fire mith F.H. Police Maplewood Fire with State PaErol, all Ramsey Fire DeparEments Maplewood Police, with Sfate Patrol, Washington and Rnmsey Sheriff, DNR, St. Pau1, Qakdale WBL, Cottage Grove, NorEh St. PAUI, Newport and St. Paul Park Police, area Fire and EMS services Mounds View Fire wiEh Mutual Aid, Anokn County,locaI police New Brighton Fire wzEh at1 Ramsey Co. Fire, Fridley, St. Anthony and Mounds View/BlainejSLP Fire New Brighfon Police with atI Rumsey Police, Columbia Heights, FridIey, and St. AnEhony Police, State Patrot, EMS (HealthSpan), alt New Brighton Departmenfs New Brighton Public Works with ail New Brighfon Bepartments, surrounding municipat Pubtic Works and Ramsey Public Works Ramsey County Emergency Services with police, fire, EMS, Public Works and Emergency Manngement Agencies in and surrounding Rnmsey County Ramsey County Property Management with internal departments Sheriff, with St. Paul, White Bear Lake, and Maplewood Police, State Patrol and adjatenE agencies Roseville Police with Sheriff and nei,ghboring agencies St. Paul Police, with att neighboring jurisdictions and State Patrol St. Paul Public Works, wifh other agencies St. Paui Water Utility wiEh Fire deparfinents Shoreview Pubiic Works with neighboring Pubtic Works and Police White Bear Lake Police with Ramsey Co. Sheri/'f, Washington Co. Sheriff, Anoka Ca. Sheriff, Maplewood Police, State Pafrot, LVhite Bear Fire White Bear Town with Sheriff, County Public Works, White Bear Lake Public Works and various other Appendix B Mailing List for the Study Committee B:ian Fritsznger, City of Arden Hills Paul Malone, City of Arden Hills Susan Hoyt, City of Falcon Heights Fritz Magnuson, City of Gem Lake Tim Cruikshank, City of Lauderdate Joel Hanson, City of Little Canada Craig Dawson, City of Maplewood Chuck Whiting, City of Mounds View John Kelly, City of New Brighton Nancy Rozycki, City of North Oaks Dan Scott, City of North St. Paul Steve Sarkozy, City of Roseville Terry Schwerm, City of Shoreview Jerry Morri, Vadnais Heights Fire Department Mark Sather, City of White Bear Lake James MoelIer, City of CNhite Bear Lake BiII Short, White Bear Towns� David McElyea, University of Minnesota Police Dave Zick, North St. Paul Police Harry Lyon, Jr., North St. Paul City Council Tim Butler, St. PauI Fire Deparhnent Dave Huisenga, St. PauI Fire Department Howard Honmann, St. Paut Police Department Dazwin Lookingbill, County Attorney Joe Polski, St. Paul PoIice Gary Koliman, Sheriff's Office Dick Dornbusch, Sheriff's Office Dave 4Valtz, St. Paui/Ramsey Medical Center Wayne Neison, Met Council $i11 Hughes, Ramsey County Emergency Services BiII Conter, Ramsey County Emergency Services Nick Ganas, Ramsey County 8udget & Accounting Jon WaIsh, Ramsey County Public Works Pat O'Malley, Ramsey County Property Management Dan Suess, Ramsey County Property Management Bazbara Raye, Ramsey County Policy and Planning Jim Theurer, Ramsey County Policy and Planning Resources Phone intervie�ti �ti•ith Gary� Therkeison, Communications Officer, City of Eden Prarie. Phone interview t�•ith Jear, Guthrie, Communications supervisor, City of Bloomington. Phone intenriecr c� itn Communications Officer, Fulton County Sheriff s Office. Council File # //1 �37f ORtG1�fAl. Gxeen Sheet # ��3�� RESOLUTION 2 ( �/) �ITY�O� SAINT PAUL, MINNESOTA Presented By Referred To Committee: Date 1 WHEREAS, the 1495 Mivuesota Legislature passed legislation that encouraged z participation in a new 800 MHZ region-wide hunked radio system which is being built for use a by State agencies and established a May 23, 1947 deadline for submitting local plans to the 4 Metropolitan Radio Boazd; and 6 WHEREAS, ttris legislation required all metropolitan counties to undertake a plam�ing � process to ensure coordination of radio systems; and 9 WI3EREAS, the Metropolitan Radio Board, established in the 19951egislation, has elected io official representarion for Saint Paul and has been working with the 5taxe, Hennepin Counry ii and Minneapolis to develop a request for proposals for the fust phase of the backbone ia infrastructure for a region-wide public safety radio system that must also accommodate future is users in the remaining six counries and the City of Saint Paui; and 14 is WHEREAS, an independent consultant's analysis far the Metropolitan Radio Board i6 concludes that the cost far Saint Paul and Ramsey County to independently develop and i� implement a plan will be higher than a joint effort; and is i9 WAEREAS, the City of Saint Paul has been working with Ramsey County on a local plan zo and each requested an extension to the deadline to ciarify information regarding current and z i future availability of radio channels to public safety efforts; and 22 2 s WHEREAS, submitting a joint pian with Ramsey County does not commit Saint Paul to 24 implementing a 800 MHZ radio system or assutniug any costs of such implementation; now a s therefore be it 26 2� RESOLVED, the City of Saint Paul endorses the report's three recommendations: as 1) Ramsey County should not migrate to the regiona1800 MHZ at the present time, but should z9 act to preserve the option of migrating to the region-wide 800 MHZ radio system in the future so by requesting that the Metropolitan Radio Board secure the channels set aside for Ramsey si County; Z) the City of Saint Paul should commit to jointly plan with the County for a single s2 county-wide system; and 3) the Ramsey County/Saint PauULoca1 Government Public Safety as Radio Communicafions 5tudy Committee continue to meet at least every s'vc months to monitor 34 progress of the region-wide radio system and address issues of funding, governance, ss implementation, user fees, access, time lines and replacement of equipment; and Page 1 of 2 98�37/ 36 RESOLVED, that the City of Saint Paul approves the joint development and submittal a� with Ramsey County of a local radio plan regarding a regionai radio system to the Metropolitan sa Radio Board with the understanding that such plan carries no real or implied commitment to ss implementation by the City; and ao al RE50LVED, that the City's elected representative on the Metropolitan Radio Board az officially designate Lieutenant Dick Dugan to serve as their non-voting aitemate to the Board. ORIGINAl� Page 2 of 2 Requested by Department of: I�YI ax UR t (JF'F� C P By: .�'-� Form Approved by City Attorney By: • r By: - - t —, r Approved by Mav D�te� �� 4 Apgroved, by ; ayor £�SUbmission to B y' � �/ l/ � 1 _'" ` BY Adopted by Council: Date Adoption Certi£ied by Council Secretary N°_ 52337 98�-3 �I Mayor Coleman's Office )NTACT PERSON 8 PHONE Chuck Armstrong 266-8530 TOTAL # OF SIGNA7URE PAGES 4-28-98 I GREEN SHEET � DEPARTMENT OIRECiOR FOR � CIT'ARORNEY BVDGET DIRECTOF _ (� MAYOR (OR ASS�S7AN'n (CLIP ALL LOCATIONS FOR SIGNATURE) INITIAUDATE � C�NCOUNC�L � CITY CLFRK � FIN. 8 MGT SEAVICES DIR � Approval of resolution by which Council approves City participation with Ramsey County in developing joint plan for 800 MHZ system. or _ PIANNING CAMMISSION _ CIVI� SERVICE _ C�e CAMMITfEE _ _ STAFf _ _ DISTii1CTCOURT _ SUPPOFTS WNIC}i COUNCIL O&IECTIVE> PERSONAL SEHVICE CONTRACTS MUST ANSWEP TFfE FOLLOWING �UEST�ON3: 1. Has this personHirm ever worketl unde� a contrect for ihis tlepartment? YES NO 2. Has this pers9ntlum ever been a city employee? YES NO 3. Does fhis pe�sonttirm possess a skUl rrot normally possessetl by any current cily employee? YES NO Ezplain eli yes answera on seperate sheet enE attaeh to green sheet INITIATING PqOBLEM, ISSUE. OPPORNNITV (W1ro, What When, 4Yhere. Why�' By state law, the City must submit an implementation plan for participation in the Statewide 800 NIIiZ radio system. The City has elected to de"velop this plan jointly with Ramsey County. ADVANTPGES IF APPROVEO: The City will remain eligible to participate (without being committed to implementation in any form) in the Statewide system. She City's joint implementation with Ramsey County represents the most practical and cost-effective approach, if the City chooses to move ahead with participation in the Statewide system. None IFNOTAPPROVED: The City forecloses future opportunity to participate in the Statewide 8Q� MIiZ system. �i9Elt��'+4 �i�'"e4.'�°'u°CPl vG^�v9' ' t ' _: , ,: � _.. �OTAL AMOUNT OF TRANSACTION 5 COST/REVENUE BUDGETED(CIRCLE ONE) VES NO N�A A 'UNDIfdGSOURCE N � A ACTIVITYNUMBER N�A � �� � WANCIAi INfORfFAT10N: (EXPIAfN) � �r�C�c(� G'CRSro , �kaCe:�.S 3�l�/`t�� 9�-37t Ramsey County � . 800 MHz Radio Communications Plan Ramsey County Manager's Office February 1998 Report of the Ramsey CountylSt. Paui/Locai Government Public Safety Radio C�mmunication Study Committee �^ r ��'�f� � Table of Contents Introduction Background Driving Forces Current Status What Other Counfies have done Case Studies Analysis of Alternative Options &00 MHz Options Recommendations axid Policy Issues Glossary Page 2 Page 4 Page 5 Page 7 Page 10 Page 11 Page 13 Page 15 Page 16 Page 19 9� Introduction Corrununication is an essential tool for all public safety agencies in Ramsey County. Dispatchers need to communicate with Police Officers, Fire Fighters and Deputies in the field to identify location, description of emergency, the people involved and whether additional help is required. The front line responders also communicate with each other to coordinate their approach and give warnings. Today, most of this communication takes place through two-way radio systems. Police and Fire vehicles (as well as Parks and Public Works vehicles), have radios. These are called 'Mobile' radios. Some Police Officers also carry 'Portable' radios, which have battery packs and allow the Officer to communicate even when away from their vehicle. All these radios send and receive sound over the airwaves. Each agency operates their radio system at a discrete 'frequency' of 'channel', just like a radio station operates at a frequency. Generally, only that agency has access to the frequency (although scanners allow others to receive the sound signals and listen to the conversation). When one agency needs to communicate with another, they must switch Eo a shared state-wide emergency frequency or'patch' together through a common link, like a dispatcher. Municipalities are licensed to use radio frequencies based on the usape expected by Ehe different city departments. A typical municipal govemment may have one or more 'channeis' each occupying between 15 and 25 kilohertz (kHz) on the frequency spectrum. - Sometimes a frequency is shared by different agencies within the same geoo aphic area. With a shared frequency, only the agencies sharing it can use that channel and when a conversation is taking place, all other conversations must wait until the first conversation is finished and the channel becomes clear (like having only one phone line in the multi-person office). The Metropolitan Radio Board has been created to build a region-wide radio system at 800 MHz on the frequency band. The regional system is funded by the State for use by the State Patrol, Minnesota Department of Transportation and the Metropolitan Council. 'Ihe region-wide system will be a'trunked' system. To trunk channels means that all channels are shared and available to all the governmental agencies in a given area. All radios used for a conversation are automatically switched by a computer to whatever channei is available. It is similar to a PBX system used in hotels, where each hotel room appears to have its own phone line, but the whole hotel has only a few phone lines. Such a spstem is feasible because individuals have sma11 tune slots during which they need a phone line or in this case a radio channel. With a trunked system rather than each agency operating its o�i�n radio system, there would be one large system shared by all agencies. Trunking allows op:imal use o; the lunited Rnmsey County 800 MHz Plan - Z frequency spectrum and increased flexibility for inter-agency communication, but requires a great deal of coordination between a11 participating agencies and requires significant upfront expenses. In the region-wide system, agencies wilI be assigned a certain number of 'talk groups'. A talk group is a pre-designed set of radio users that can communicate at any given time. Because all agencies share the same frequencies, talk groups can be across agencies, departments and organizations. The number of talk groups that will be available is many times the number of channels currently available. The regional system has two computer switching centers connected by fiber optic cable and multiple transmitter sites located across nine counties. (See Diagram 1, below.) Transmitter sites are connected by microwave links to aliow radios in one part of the region to communicate wiEh others in another part of the region. Diagram 1: Praposed Regional sites and Microtivave Iinks Rnmsey Couniy 800 MHz Plan - 3 �� ' � � A frunked system could also uiilize current technologies known as simulcast and digital modulation. Simulcast and digital modulation allow coverage over a larger area, improved signal quality and more secure communication. In the future, all or nearly all, mobile radio transmission will be digital (discrete signal pulses} because band narrowing can not be accomplished with analog (continuous signal) technology. A trunked system also offers limited telephone interconnect, which allows users to place and receive telephone calls from their radio. Backgraund In 199�, the Legislature required all metropolitan counties to undertake a planning process to ensure coordination of radio systems and encourage participarion in the new 800 MHz region- wide digital trunked radio system. While the region-wide system meets State needs, it is not sufficient by itself to allow agencies in Ramsey County to have effective communication. For instance, the State Patrol functions out of doors, on the highways. Police and Fire agencies need radios that work inside buildings. The covnty *n,�ould need to supplement the region-wide system with a county sub- system of transmitters, linked by microwave to each other and to the regional transmifters to allow indoor use of radios. All metropolitan counties are being asked to develop specific plans for how they would build, finance, manage and operate their own county sub-system in cooperation with the new state system. Participation in the region-wide system is not required of local agencies, but they cannot }oin until their county plan has been approved by the Metropolitan Radio Board (MRB). In July of 1995, Ron Vegemast Engineering presented to the Board cost estimates for the infrastructure for various 800 MHz layouts. The Ramsey County Board of Commissioners authorized the crearion of the Ramsey CountyJSt. Paul/Local Govemment Public Safety Radio Communication Study Committee to prepare ehe plan. Ramsey CounEy 800 MHz Plan - 4 Forces The following identify the context for this effort. FCC Refarming In June of 1995, the Federal Commtuiication Commission {FCC) issued an order (92-235) to "re£arni' radio channels. T'his order affects all users of licensed frequencies be2ow 512 MHz, which includes Public Safety agencies in Ramsey County. The order has two components. First, the fiCC intends to narrow channels and has required that necv radios be capable of operating at narrower channels. Secondiy, the FCC is holding a number of frequencies at the $OO levei for public safety agencies so those agencies can migrate to 800 MHz. The MIZB controls these frequencies in the metro area and has dedicated 21 channeis for Ramsey County at the 800 MHz level(13 for St. Pau1 and 8 for the County). Through wholesale migration of public safety channels, a metropolitan region can easily 'tntnk' their channeis. Technologv Benefits Current radio systems are based on very old design, similar to a singie teIephone line for an entire office. When a conversation is taking pIace, all other conversations must wait until the first conversation is fuushed and fhe charulel becomes clear. Trunked radio systems, like that being discussed, more effectively use limited radio channels through the employment of microprocessors. Priorifization permits the system to automatically atlocate channeis based on system use and user prioriry. Adding digital modulation to a trunked systern makes use of the IaEest technology and supports many new features that would benefit public safety. One example is 'encryption', where the signal can't be understood so people outside the system can't listen in to conversations. Availabilitv for expansion While not many agencies in Ramsey are in immediate need for additional channels, increased data and voice communication wili require additional channeIs. New communication technologies are creating private sector demand for many new channels. The FCC has reacted to this demand by narrowing channels, thereby doubling the number of channels availabie once other agencies either migrate to 800 MHz or purchase narrow band equipment. In April of 1997, the FCC aiso proposed taking a section of UHF television channels and ficensing them to public safety agencies for radio communication. Ca ito al eauipment replacement Much of the equipment throughout the county is old and needs replacement in the near future, even if no enhancement or changes occur to the overall system. Hand held radios are replaced an average of every five years. As equipment is replaced, a decision needs to be made whether to invest in a trunked system now or to update existing equipment but stay with the current basic technologt� and system design. Ramsey County 800 Milz Ptan - 5 Problems with the current s, s� tem Unlike some other areas of the metropolitan region, Ramsey Counfy is not experiencing severe stress on its existing radio communicaiion systems. However, a majority of agencies have had probiems such as delays, crowded channels, poor coverage and interference. There is lunited ability to communicate directly or conveniently between agencies. For example, at an accident scene, police, fire and medical cannot even talk with each other via radio. There are some emergency and mutual aid channels available but they are severely limited because they were designed for specific uses. MINSE� is used only for car to car police communication and is available statewide. MII�TWIN is for communication between 911 Public Safety Answering Points (PSAP) in the event of a local disaster. Both of these are VHE. The Metro Emergency Channel is a UHF channel for police vehicles in Ramsey and Hennepin only. These shared channels are designed for emergency use only and if"used routinely, would defeat the limited purpose of the channels and limit availability in the case of a major emergency. These channels �vill continue to be available to agencies that migrate to the regiona180flMHz system. With the state creating a region-wide 800 MHz backbone system and the FCC ordered narrowing of currently used channel frequencies in the near future, these pressures have created a �vindow of opportunity rather than a problem that needs to be resolved. This affects the discussion, analysis and timing of implementation. State financed backbone The state has approved financing for the regional backbone system, and MnDot, the State Patrol, Minneapolis and Hennepin County wili al1 be converting to 800 MHz upon completion of the regional backbone. Ramsey County has the option of utilizing the regional backbone system to directly communicate throughout the region. The cost of to the county of building an 800 MHz system is reduced if the county joins the regional system, because the county system can use some of the regional towers. If the county doesn't take part in the regional system, suburban municipalides by law are excluded from joining the regional system (Although the County preserves the right to join at a later time). In the most recent legislative session, as part of the tax bill, the legisiature granted a sales tax exemption for the sale of products or services used for construction, operation, maintenance, and enhancement of the backbone system. State planning rec�uirement Under state law, the county is required to submit a plan to the Metropolitan Radio Board for county-wide radio communications. A draft report was sent from Ramsey Cou�ty. Due to delays at the regional level, no information was available on actual bids for equipment for the regionai backbone, nor have access fees for county connection to the backbone been determined. A11 cost information in this report is based on preliminary estimates and no local govemment should or is being asked to make a finai decision before bids for the backbone are received at the regional level, Ramsey County 800 MHz Plan - 6 Current Status The County Manager's Offzce - as authorized by the County Board - created a Ramsey County/St. Pau1/Local Government Public Safety Radio Communication Study Committee and invited representatives fram all local governments in Ramsey Courety, as weIl as Ramsey Medical Center, and the Universiry of Mirulesota to work on the committee. Two surveys were reviewed to determine the current status of radio communication needs, one from 1992 and the other administered by the committee in 1996. Both were self reported and based on generaI perceptions. Neither required the respondent to report actual data demonstrating problems. In 1992, Bernie Ebstein and Associates of Chicago was on contract with the Metropolitan Council to anaIyze options for the design of a regionwide radio system. Information was collected about existing radio systems, problems of these systems and system needs of agencies. Information was collected from 26 public agencies;l3 public safety agencies and 13 non-public safety. Public agencies which use radios to communicate were asked if their current communications system was generally adequate. Fifty-four percent indicated their current system was inadequate. However, public safety agencies were more likely to indicate the system was inadequate. Poor Coverage Crowded Channels Interference . User Discipline Unreliabte Equipment Not Enough Radios Excessive Downtime Lack of Features Ofher ri'umber ot Respondents 1942 Survey Ramsey Counh/ 800 MHz Ptan - 7 Communication Problems cg_� Agencies were asked to identify the'u top three current system problems. The most common problems were poor coverage, crowded channels and interference. Poor coverage was the primary issue for public safety agencies. Of those agencies that responded, 65% required direct unit to unit communicaiions among different agencies, and 29% required relay through dispatchers. Interagency communications are needed only occasionally by non- public safety agencies. One-third of public safety agencies need interagency communications regularly and half need it occasionally. Nearly all public safety agencies expressed a need for mutual aid. - The most frequently identified features that public safety agencies desire are access to data communication and coverage inside buildings. Currently, licensed frequencies are mainly used for transferring a person's vaice. Recent technology allows the wireless transfer of data and mam� agencies believe this would be very helpful in their duhes. Public Safety agencies have a higher desire far many features. 1946 Survey by the CommiEtee The study committee also utilized an informal survey of all Ramsey County agencies and determined that the situation had not changed much from the earlier study. The 1996 survey was distributed to 40 county and municipal departments. Thirty-two were returned. Most agencies cantinue ta have needs that are not addressed by the current system. Fourteen of the 19 agencies responding to the question share frequencies. Almost half experience delays (ivaiting for the channel to be clear of other conversations) and one-fourth had delays that presented a safety problem. Twelve agencies anticipate needing at least one mor�2 channel, seven agencies will need two or more. Three agencies specified the need for data transmission channels. When it comes to interagency communications,l7 agencies idenrified other agencies with �vhich they need to communicate. Thirteen identified agencies outside their govemmental organization, and a number identified agencies outside Ramsey County. New coliaborative arrangements like the Gang Task Force (Ramsey County, St. Paul, Minneapolis and Hennepin w�ili be working together) will increase the need for interagency communications. Ramsey Caunty 800 MHz Plan - 8 Current Communication Status Share Frequencies Expezience belays Serious deiays Need additional Channels Inter-agency Communication Number of Respondents 1996 Survey Important criteria for migration to 800 MHz includes compatibility with existing systems and other neighboring agencies, foliou�ed closely by price/costs vs. benefits, and distribution of user costs. Other criteria mentioned were avoidance of shared frequencies, irnproved coverage and feafures, greater capacity> and fiexibility. The main concem with 800 MHz is funding. Respondents are unclear what the benefits of it are. The high capital investrnent along with unknown maintenance cosfs and uncertainty about how capital costs will be allocated were all mentioned specifically. Other major concerns are the system capacity/mterference/availability, sen�ice agreements, management or control over the system, future expandability and timing with outside agencies. Based on the response it is estimated that there are at Ieast 3,167 mobile and portabie radios, ahout 250 of which operate at 800 MHz. There were 115 base stations and repeaters identified, with at least 7 operating at 800 MHz. These 800 MHz systems are not trunked. Most of the stations are over 7 years old, with a lifespan of 15 years. About 3/4 of the mobile radios are over five years old w•ith a Iifespan of between 5 and 15 years. Portables are generalIy newer hut a majorit}� are stiil ocer 5 years old. The Sheriff's system has the oldest stations. Ramsey Coicnty 800 MHz Plan - 9 � 8 1b 24 32 Current Status Conclusion5 While there are not severe stresses on the current radio communications systems in Ramsey County, a majority of agencies stated that Eheir radio system was inadequate in 1992. Within five years the county-wide need for additional channels and updated equipment will be significant. While there is a desire for some of the new features of a digital trunked system, the need for new channels will be easily met by refarming and the recent proposal to increase channels allocated to public safety. The increase in channels may a11ow agencies currently sharing frequencies to have separate channels which eliminate delayed access. WhaE other Counties have done Hennepin County joined the regional system and is part of the regional Request Por Proposal " (RFP). They have had a gzoup working on this issue for many years. Dakota Counry's proposal (prepared by W.M. Montgomery and Associates) recommended the county wait and review the issue again in the year 2000. An ongoing team will meet a couple of times a year to review progress of the regional system. Washington County has hired W.M. Montgomery to prepare their plan. If they join the regional system, they would not do so unti12001 or 2002. Anoka Counry also hired a consultant - Ronald Vegemast Engineering - and the Board of Commissioners has recently approved the recommendation to join the regionai system in 2003. Scott County is still working on their plan with assistance from W.M. Montgomery, but likely won't be joining the system in the near future. The Scott County Sheriff has publicly opposed joining the regional system. The Carver County Board has approved a recommendation to join the regaonal system as soon as possible. Ramsey County &00 MHz Ptan -10 Case Studies Communicafion between police and other emergency response units and sometimes even between two different police units can be very difficult under the currenE system. There are several reasons for this including: 1. Some of the police departments in the County operafe on V�� radios and others operate on UF� radio. These iwo different frequencies cannot talk to each other except through a relay station of dispatch center that keeps bott� entities on the line and "patches their calls together" across the different frequencies or even serves as human translator taking messages from one and delivering them to the other and then relaying responses back and forth. A reai exampie of this is a case that involved the North St. Paul Police and the Maplewood Police - both dispatched by Maplewood - and the Sheriff s Department during a recent burglary. !t was an eariy morning and North St. Pau( requested a Canine Squad from the Sheriffs Office. There was a burgfary in progress in a strip mall and tFie suspect was hiding inside one of the buildings. 7he only channel they had in common was MINSEF (Statewide Police Emergency} on their VHF portable radios. Maplewood Dispatch did not have access to M(NSEF. Maplewood Dispatch did have access to the County Co-op Channel, a UHF frequency. !n the buifding, Sheriffs Deputies could not hear the dispatcher on MINSEF, but Mapiewood Dispatch couid hear the officers on a scanner. To facilitate communication befween the units on the scene and the Maplewood Dispatch Center, Ramsey County Dispatch Center connected fhe Ramsey County Co-op equipment to tfie MINSEF � equipment so the Maplewood Qispatch could talk to the field units and listen to them on the scanner. T'his fied up a repeater and base station at the Ramsey County SherifFs Office along with a UHF control station and a scanner in Maplewood Dispatch for about three hours. Witfi the county-wide 800 MHz trunked radio system this situation could have been handied by assigning al! units on the scene to a common talk group and allowing both dispatch centers access to it. While this situation does not appear to be a crisis, the same difficulties would have occuned in the case of an emergency, murder or kidnapping, The system then wouid not be able to handle any second event or escalation of the first event because of the limitations in the system. 2. Even accommodations that have been made for the differences in radio frequencies and commurcications systems have limitafions. Ramsey County 800 MHz Pian - I I Q� � �J� � A real example is that the Ramsey County Sheriff's Office has placed two radios 9n each squad car. One works with municipal police depariments and the other operates on the same frequencies as the St. Paul police. The two radios allow quick communication while in the car. However, if an officer needs to get out of the car or to proceed on foot there is no effective way to maintain communication across these communication differences. In the case of a coordinated effort between two deparhnents, coordination is lost at critical times. If an officer is in pursuit on foot and is relying on back-up or coordinaEion from a deparEment whose radio operates on different frequencies, commtuucation can be seriously harmed or delayed as the dispatcher needs Yo take over the communication control or both departments switch to a shared emergency channei - used by all other agencies in the state. However, even this use of a shared channel if it is open accomplishes only police to police communication or fire to fire communication. The emergency systems do not aliow for inter-agency communication or coordination of responses and action across different professional responders. Another specific example of how this 3nter-agency communication can reduce efiectiveness and safety of police during duty is a recent White Bear Lake incident. A White Bear Lake Police officer spofted a truck towing fwo snowmobiles that matched fhe description of a some that had been reported stolen a few days before. The officer foilowed them down Highway 61 while confirming the identity of the sleds with White Bear Lake Dispatch. The truck had three passengers, so the officer needed a backup, but by then was entering 5t. Paui. Without direct contact with St. Paul squads, the officer had to get reports from the dispatch as to where the backups were. Eventuaily they showed up and together the officers apprehended the suspects. Once again, no hGrm resul:ed from the radio system. However, had the circumstances been more serious or the situation more complex or turned violent, the risk and consequences could have been very serious for all involved. For example, significant communications problems occurred in some we11 publicized emergencies. YVhile rare, these large scale emergencies demonstrate reai life communication problems that can occur a regular basis. When the Federal Building in Oklahoma City was bombed, public safety personnel needed to use 'nu�ners' to communicate wich one another. In the World Trade Center bombing, firefighters searching for victims cauaht between floors could not communicate by radio with police officers on the level below. Lastly, in the Oakland Hills, Califomia fires in 1991, radio communications were nearly hopelessly jammed because of the multiple agencies responding. Ramsey County 800 MHz Ptan - Z2 Analysis of Alternative t�ptions Three aItematives to 800 MHz were e�,lored by the study commitEee; i} trunking existing channels, 2) using reteased frequencies from other agencies, and 3) status quo evolving to narrow band. These alternatives were commented on by the Metropolitan Radio Board's Technical Advisory Committee. Trunking of e�cistin frec�uencies Since trunking is the most significant difference between the er.isting and proposed systems, a migration to 80D MEiz is not necessary. This alternative wouid have agencies in the county combine their own channels and run them in a fully coordinated system so that any agency could use any channel. Another option would be that all agencies in the county could 'pool' their existing frequencies but not trunk them. Advantaoes The prirnary advantage is that some agencies could keep their currenE frequencies and radios, (at least until the manufacturers stop producing current'wider' band radios) while communication between agencies in the county would be easier and more direcE Ehan is currently available. Disadvantaees There are two disadvantages to trunking existing channels. First is the cost. To trunk existing frequencies �vould require a new system with high capital cost similar to that associated with trunked SOD MHz. Second is the continued incompatibility with agencies outside the county. A combined system would have to use either UFiF ar VI� channeis and some agencies woutd have to change their equipment from one band to the other. Trunking simply would not work unless agencies build a combined sysfem. In addition, at least three frequencies are needed to tnmk and there are only two agencies - Ramsey County and 5t. Paul - that cunently have that many. However, if the FCC allows agencies to utilize the 'refarmed' half of their current channe2, the number of contiguous channels increases and trunking existing analog channels might work. Recommendation The study committee recommends that if a trunked system is planned, a review of the trunking existing channels shouid be considered. However, if the costs are ciose to those for joinina the regional system, the advantages of joining the regional system probabIy outweigh the additional costs. Use of Released Frec�uencies As agencies in other counties convert to 800 MHz, the frequencies that they operate on currently m�a ,.v become availabie. Ramsey County agencies which need additional channels could pian to reques; zccess to those frequencies. ftamsey Count� 800 MHz Plan -13 Advanta�es Some infrastnzcture costs would be incurred, but probably less than 80� MHz- New radios would still be purchased, but based on a replacement schedule. If the released channels were at UHF and the agency that acquired them was VF�, a whole new system would be needed. It could be possible that agencies that release frequencies would also sell their equipment, eliminating the need for purchase of new equipment. Some oE these frequencies have already been ticensed to new users. Disadvantatres There is a deb ee of uncertainty that other agencies wi11 release their Erequencies. Those agencies which will mia ate first have the hiohest need for additional channels and may have other uses for the current channels,. There has been talk at the rea onallevel that the released frequencies might be trunked into a regional data communication system. However, if the frequencies are not used, the FCC will reassio them. There is little likelihood that agencies will migrate to 800 MHz simultaneously so only a few released frequencies may be available at any given time. Without some idea of what frequencies wili be available and when, county-wide planning for using released frequencies wi11 be very difficult. In addition, new forms of communication technalogy will continue to increase demand for additional frequencies. T'his option does not resolve the problems with the current systems. Refarming will still require new technology capable of operating at narrower frequencies. Agencies which choose this option will continue to have cross-functional communication problems with otl:er agencies. Recommendation This option does not address the primary need for improved inter-agency communi�arion in Ramsey County. The study commictee recommends that agencies in Ramsey County not plan their future radio communications based on released frequencies. Status Ouo Evolving to Narrow Band Existing radios and transmitters do not have the capability to operate on the narrower bands. The FCC order 92-235 requires new equipment to be desio ed capable cf narrow band operation. Once this new equipment is available, a large market for current �vide band equipment may not exist. Mia arion to proa essively narrower bands is likely to happen because these economic forces. Advantaees As long as replace_ment equipment is available at the current bandwidth, the county can continue to operate at existing frequencies and may be able to use adjacent refarmed channels. Ramsey County 800 MHz Pian -14 DisadvantageG As manufacturers phase out existing equipment, the purchase of new radios and transmitters which can operate at narrower bands will still be required at substantial expense. It is not known what these zadios wil2 cost compared to replacement of current radios. Some feahues such as interagency talk groups and private intra-agency communications associated with digital trunkulg are not likeiy to be possible. Agencies which choose this option iviil continue to have compatibility problems with othex agencies both in the county and in surrounding areas. Cost implications A Ramsey Couniy Sheriff`s proposal in 1996 estimated the cost of repIacirig their curmnt technology with radios capable of narrow band transmission at 51.3 million. For a1I the pubIic safety agencies in Ramsey Co�.utty to purchase new rac3ios and transmitters would cost between $2.2 million and �29 miIiion. Recommendation The study committee recommends that status quo continue to be a possibiLity for non- public safety agencies where interoperability may not be as unportant a feature. If use of adjacent refarmed channels is possible, then this option becomes more advantageous. 800 MHz Options The study committee reviewed multiple options for implementizig a digital irunked 800 NIFiz system 4n Ramsey County, each with separa4e op�ions for system sharing, financing the backbone and supplying nser agencies w•ith radio equipment. Sharing of the Sub-System Ronaid Vegemast Engineermg, Inc. developed five different options tor a Ramsey County 800 MHz radio system. These options were presented to the County Board of Commissioners on July 11,1995. Option A) Ramsey County, St. Paul and other local govemmenes - joint system separate from the reo onal system. Estimated Cost for the infrastructure: $11,768,062. Opfion B} Ramsey County, St. Paul and other local govemments - jo;nt system in the reo onal sysfem. Estimated Cost for the infrastructure: �7,696,6$0. Option C) Ramsey County and other local govemments, without St. Paul - separate from the rea onal system. Estimated Cost for the infrastructure: $7,906,4—"_&. Option D) Ramsey County and other Iocal govemments, without St. Pau1- in the regional sys�em. Estirrzated CosE for the infrastructure; �5,gpg,626. Ramsey Coun[y 8Q0 MHz Pian - IS �8 - 3 '� 1 Option E) Ramsey County, without St. Paul or other local govemments - in the regional system. Estimated Cost for the infrastruciure: $4,669,556. Adv� s The benefits of joining the regional system inciude: locai use of regional towers, use of regional backup system confrollers, and the ability to communicate with state and metro agencies and other local govemments both inside and outside Ramsey County which join the regional system. 'The cosc to the County for a digital trunked radio system are lower and the capacity higher for both the County and the regional system if the County joins the regional system. The same dynamic exists if Ramsey County municipalities choose not to join the county system. if Ramsey County joins the regional system but municipalities don't join, the county would continue to provide VHF access. Disadvantaees The primary disadvantage to the County of migrating to 800 MHz is the cost. Cost implications Cost estimates for mobile and portable radios range from $2,625 to �h,850. Submitted reports, including Hennepin's, have used $3,000 per radio as an estimate. Using $3,0�0 as the estimate, the cost to Ramsey County o£ converting all its radios to 800 MHz is $1.7 million; to convert only the Sheriff's O#fice and Emergency Services would cost $1.4 Million. For radios and infrastructure, the cost to convert all agencies is estimated at beEween $17 miliion and $21 million. RecommendaEions and Policy Issues to Consider Three recommendations have been agreed to by committee members: 1) Ramsey County should not migrate to the regiona1800 MHz system at the present time, but the County should at least act to preserve the option of migrating to the regional system in the fuhzre. Eventuaily, a move to 800 MF�z may be inevitable. It would be wise of the County to preserve the 800 MF3z channels currently held for its use by the MRB. 2) St. Paul should join fihe county and regional system if they migrate to 800 MHz. Although St. Paul could create its own system under state statute, the committee recommends they do not build their own system. The overall cost to county taxpayers of building a digital trunked system would be mininiized by designing and building a single county-wide sub-system as part af the regional system. 3) The co;nmittee should meet every six months to get updates on the progress of the regionai system and reo�iew the acival costs, implementation issues and experiences at the regional level. The committee should use the information to make a recommendation Ramsey County 800 MHz Plan - 26 about joining the regional system by the year 2000 when the 800 MHz channels held for Ramsey County but controlled by the MRB are reviewed regarding their usage. Policy Issues to Consider The CounEy Board must decide whether to commit county reso�uces to build a county-wide trunked radio system at 800 MHz. If the county does not take part in the regionat 800 MHz system at this time, suburban municipalities are excluded by statute from jouung the regianai system and are financially unable to build their own separate system. If the caunty does decide to build a new system sometime in the future, there will be a number of policy issues to consider. These include: I. Fundin� alternatives Five options for funding the system have been discussed by fhe committee: a) The first option is Ramsey County buIlds the county sub-spstem. b) The second option is the Mefropolitan Radio Board builds the county sub-system, in addition to the region-wide backbone. c) The third option is to create a joint powers board among user agencies in the county which wonld jointly build the backbone system. d) A fourth option is to have a private/public partnership f�utd the county sub-system. This oprion could use low in{erest rates from the govemment with private risk exposure and lease back to avoid high public capital costs. e) The fina2 option is to create a public utility. A utility would allow close regulation and oversight of a non-govemmental entity, but would allow financing to be spread out over benefiting agencies. II. Depending on how the funding is established, the goveming structure must give user agencies a voice in how the system is operated. Municipal represenfatives on the committee have asked that even if Ramsey County finances the system, a goveming board be created with represenEatives from user agencies. Other questions include composition and authority of a goveming board as weli as maintenance and management of the system. Ramsey County 800 MHz Plan -17 III. Im�lementation Questions remain regarding the speed of migration and the degree of coordination in purchasing, building and maintaining portable radios and transmitters throughout the county. N. r fe Will user agencies be charged for accessing the system? If so, upon what will the charges be. based? What will be the relationship between the county system and the regional system? Will the county be charged fees to access the regional system and how will the charges be determined? V. Cost sharine How will the �apital costs be apportioned? VI. Access All eligible users must be advised of the plan and have an opportunity to participate. Eligible users includes school buses, veterinarians and doctors and the physically disabled. Since not ail the eligible users are even known, how should the county comply with the law? The Metrapolitan Radio Board representative has suggested a public hearing or comment period before a final report is completed. VII. Timeline When should Ehe system be impiemented? What is a reasonable capital inveshnent schedule? Hotiv long will it take to complete the construction and implementation of the new system? Ramsey CounEy 800 MHz Ptan - 78 Glossary of Terms Amplitude Modulation (AM}: modulation in which the ampIitude of the wave is varied to produce the signal. Analog signal: a signal thaF has a continuous nature rather than a pulsed or discrete nature. Channel: A path (specified band of frequencies) for conveying of electromagnetic signaIs, usually distinguished from other paralleI paths. T7igital Modu�ation: a modnlation that is pulsed or discrete in nature rather than continuous nature. Digital Signal: a signal in which discrete steps are used to represent information. Encryption: To converE plain text into unuitelligibie forms. Frequency: The number of oscIllations per unit time of a radio wave. Frequency Modulation (FM): Modulation in which the instantaneous frequency of a sine wave is caused to depart from the center frequency in proportion to the value of the signal. Interconnect: The capability of connecting mobile and portable radios to the pubiic switched telephone network so that teIephone call can be originated and received using the radio. Interoperabilty: The abilify of different systems to provide seroices to and accept services from other systems and to use the services to enable them to operate effectively together. In layman terms, the ability of different agencies to communicate directly with each other through their two- way radios on a regular basis. MHz (MegaHertz): Hertzs measures the length of a radio wave osciIlation. A MegaHertz is a unit of radio freguency equal to one thousand cycles, or oscillations, per second. Mutual aid charuieis: Special channels set aside for communicarion between agencies who don't routinely communicate directIy but may need to during a disaster or a large event. SCADA (Supervisory Control and Data Acquisition}; A radio system to monitor and control mechanized activity at remote sites. Examples of uses are sewage pumping stations, water Ievels in storage tanks and waming sirens. Spectrum: the range of frequencies of from zero to infinity. UHP (Ultra High Frequency): A band of radio frequencies falling between 300 and 300Q Hertz. �'T-IF (Very High Frequency): A band of radio frequencies falling befween 30 and 300 MegaHertz. �g-3� I Appendix A Current interagency communications (from T996 survey) Falcon Heights Fire mith F.H. Police Maplewood Fire with State PaErol, all Ramsey Fire DeparEments Maplewood Police, with Sfate Patrol, Washington and Rnmsey Sheriff, DNR, St. Pau1, Qakdale WBL, Cottage Grove, NorEh St. PAUI, Newport and St. Paul Park Police, area Fire and EMS services Mounds View Fire wiEh Mutual Aid, Anokn County,locaI police New Brighton Fire wzEh at1 Ramsey Co. Fire, Fridley, St. Anthony and Mounds View/BlainejSLP Fire New Brighfon Police with atI Rumsey Police, Columbia Heights, FridIey, and St. AnEhony Police, State Patrot, EMS (HealthSpan), alt New Brighton Departmenfs New Brighton Public Works with ail New Brighfon Bepartments, surrounding municipat Pubtic Works and Ramsey Public Works Ramsey County Emergency Services with police, fire, EMS, Public Works and Emergency Manngement Agencies in and surrounding Rnmsey County Ramsey County Property Management with internal departments Sheriff, with St. Paul, White Bear Lake, and Maplewood Police, State Patrol and adjatenE agencies Roseville Police with Sheriff and nei,ghboring agencies St. Paul Police, with att neighboring jurisdictions and State Patrol St. Paul Public Works, wifh other agencies St. Paui Water Utility wiEh Fire deparfinents Shoreview Pubiic Works with neighboring Pubtic Works and Police White Bear Lake Police with Ramsey Co. Sheri/'f, Washington Co. Sheriff, Anoka Ca. Sheriff, Maplewood Police, State Pafrot, LVhite Bear Fire White Bear Town with Sheriff, County Public Works, White Bear Lake Public Works and various other Appendix B Mailing List for the Study Committee B:ian Fritsznger, City of Arden Hills Paul Malone, City of Arden Hills Susan Hoyt, City of Falcon Heights Fritz Magnuson, City of Gem Lake Tim Cruikshank, City of Lauderdate Joel Hanson, City of Little Canada Craig Dawson, City of Maplewood Chuck Whiting, City of Mounds View John Kelly, City of New Brighton Nancy Rozycki, City of North Oaks Dan Scott, City of North St. Paul Steve Sarkozy, City of Roseville Terry Schwerm, City of Shoreview Jerry Morri, Vadnais Heights Fire Department Mark Sather, City of White Bear Lake James MoelIer, City of CNhite Bear Lake BiII Short, White Bear Towns� David McElyea, University of Minnesota Police Dave Zick, North St. Paul Police Harry Lyon, Jr., North St. Paul City Council Tim Butler, St. PauI Fire Deparhnent Dave Huisenga, St. PauI Fire Department Howard Honmann, St. Paut Police Department Dazwin Lookingbill, County Attorney Joe Polski, St. Paul PoIice Gary Koliman, Sheriff's Office Dick Dornbusch, Sheriff's Office Dave 4Valtz, St. Paui/Ramsey Medical Center Wayne Neison, Met Council $i11 Hughes, Ramsey County Emergency Services BiII Conter, Ramsey County Emergency Services Nick Ganas, Ramsey County 8udget & Accounting Jon WaIsh, Ramsey County Public Works Pat O'Malley, Ramsey County Property Management Dan Suess, Ramsey County Property Management Bazbara Raye, Ramsey County Policy and Planning Jim Theurer, Ramsey County Policy and Planning Resources Phone intervie�ti �ti•ith Gary� Therkeison, Communications Officer, City of Eden Prarie. Phone interview t�•ith Jear, Guthrie, Communications supervisor, City of Bloomington. Phone intenriecr c� itn Communications Officer, Fulton County Sheriff s Office.