HomeMy WebLinkAbout1985-01-29; City Council; 8041; Proposal for Purchase & Installation for Computer>CARLSBAD - AGEND/QILL
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PROPOSAL FOR PURCHASE AND INSTALLATION FOR
COMPUTER AIDED DISPATCH (CAD) SYSTEM
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RECOMMENDED ACTION:
This is an informational item and no Council action is required at this time.
Council will be asked to include $300,000 in the FY 1985-86 CIP budget at the CIP
meeting of January 29, 1985. The CAD system is also part of the master plan being
prepared by the Arthur Young Company for the City's information system planning.
ITEM EXPLANATION
The CIP allocates expenditures of $100,000 in 1986-87 and $150,000 in 1987-88
for an Automated Police Information System (CAD and Management Information System)
for the police and fire departments.
A CAD feasibility study recently completed by the City's communications consultant
recommends purchase and installation of a CAD system concurrent with completion
of the public safety facility in July 1986. The CAD study indicated that the
department is currently understaffed in communications personnel to provide an
optimum service level. The problem will remain until we move to the new facility
simply because there is no room to facilitate additional personnel required with
the current manual system. Once we are in the new facility, a CAD system will
ultimately reduce personnel requirements over a manual system. In fact, the cost
recovery for a CAD system is approximately one year, based on the assumption the
City would provide staff required for a manual system to provide equal service
levels. A CAD system will provide benefits to the police and fire departments
and to the citizens in terms of faster response time to emergencies, maintaining
necessary records, officer safety and reduction of human error. A CAD system will
be mandatory in the event consolidated dispatch services with area fire departments
occurs. Should joint fire dispatch occur, personnel costs will be reduced to the
extent the member agencies participate.
The installation of automated systems in manual environments can be disrupting
to existing processes, procedures and social structures. Therefore, the planned
move into the new facility, in itself a disruptive though positive effect, would
be the ideal time to introduce a CAD system into the organization.
FISCAL IMPACT
Three hundred thousand dollars will include purchase and installation of the CAD
hardware and software. Council will be asked to approve the inclusion of this
project in the CIP budget session on January 29, 1985.
EXHIBITS
1. Report detailing the benefits and operation of a Computer Aided Dispatch system.
2. Feasibility Study
COMPUTER AIDED DISPATCHING
FOR THE
POLICE AND FIRE SERVICES
OF THE CITY OF CARLSBAD
JANUARY 14, 1985
PREPARED FOR
VINCENT D. JIMNO
CHIEF OF POLICE
BY
GEORGE F. SUTTLE
LIEUTENANT
***"
BACKGROUND
This report has been prepared as a synopsis of the information provided by the
police department's communication consultant concerning the feasibility of a
Computer Aided Dispatch system for the police and fire department.
COMPUTER AIDED DISPATCH
Computer Aided Dispatch (CAD) is a computer based procedure which reduces the
workload of the dispatch operators by automating much of the complaint taking
and dispatch process. For example, the computer system maintains the status
of incidents and resources, recommends units for dispatch and performs address
verification.
Upon receiving a call for service the operator enters the information provided
by the citizen directly into the computer. The computer then begins an address
verification search to assure that the location is a valid address within the
city. Then a duplicate incident search is conducted to compare the address
against past police or fire activities at that location. The computer then
assigns the incident a number, time stamps it and recommends which unit to
respond. In the case of multiple calls, the computer also prioritizes the
incident based upon criteria established by the department. The dispatcher
then assigns the unit to the incident by voice communication. During the
duration of the incident the computer updates the status of the unit and in-
cident based upon what the operator enters into the system. The computer will
also automatically warn the operator if the unit has not checked in with the
dispatcher in a reasonable amount of time. When an incident is concluded the
computer prepares a log of the incident and files the information for later
analysis through a management information system.
The result is a new dimension in efficiency for the incident entry and the
dispatching process. The faster transfer of information between the complaint
operator and the dispatcher naturally results in less processing time from the
time units arrive at the scene. Moreover, by improving the information available
to field units, as well as transmitting it to them faster, officer safety is
greatly increased.
Additionally, the improvement in the quality of service to the public and the
more efficient use of personnel may lead to a subsequent reduction in the cost
of providing police and fire services. The CAD system also allows a great amount
of additional workload (such as additional fire dispatch services) without im-
pacting personnel.
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COMPUTER AIDED DISPATCH BENEFITS
INCREASED EFFICIENCY
- Reduce paper work
- Eliminate legibility problems
- Improve information transfer
- Reduce clerical functions
- Automate data processing input
IMPROVE SERVICE TO THE PUBLIC
- Faster information to the field
- Efficient deployment and routing
- Automatic address verification
- Control and management of unit status
- Improve response time and accuracy
PROVIDE FOR OFFICER SAFETY
- Unit timers
- Faster information
- Premise data available
- External computer access
PROVIDE MANAGEMENT INFORMATION
- Instantaneous and constant status data available
- Automatic briefing report data available
- Analysis of calls, responses and crimes
FEASIBILITY
The feasibility study completed by the communications consultant describes the
technical aspects of a CAD system for Carlsbad in detail. In essence, the report
describes the present communications system in terms of its deficiencies.
The present system is a manual one which is currently operating below recommended
staffing levels. This is due to the fact that the current physical environment
cannot accept additional personnel. As a result, personnel are operating beyond
their efficient capacities. Consequently, queue times for both telephone
answering and radio dispatch are longer than accepted norms. This in turn results
in longer response times to citizen calls for service. In addition, there has
been an increase in manual processes which are necessary to get the job done.
These factors have resulted in the need for the study to determine methods to
improve operations.
After considerable study, the consultant has determined that three basic improve-
ments in the system will establish the optimum operating program. These are:
1. Develop a new communications center (already planned).
2. Bring staffing levels to proper levels.
3. Develop a Computer Aided Dispatch system.
4. Separate clerical functions from dispatch and streamline paper processes
(already underway).
CAD DEFICIENCIES
While it is generally recognized that CAD systems are beneficial, it should
be pointed out that there are potential problems with them as well. Probably
the most associated problem with CAD is the initial Capital Outlay to purchase
a system. Cost recovery of a CAD system usually takes years depending upon
growth factors in the individual agency. The other problem is the reliance
upon CAD once it has been established. While CAD systems are generally effective
ninety-five to ninety-eight percent of the time, operators and field personnel
become extremely reliant upon the system and sometimes have difficulty returning
to a manual system during down time of the CAD. This can usually be remedied
by proper training.
FISCAL CONSIDERATIONS
In the case of the City of Carlsbad, the consultant found that a CAD system
would recover its capital outlay in approximately one year. This is based on
the assumption that the City would otherwise provide the personnel levels to
operate a manual system efficiently. Over a period of 15 years the estimated
total cost savings in personnel would be $1,295,000.
CONCLUSION
Many cities throughout the United States have invested in Computer Aided Dispatch
systems. Some Southern California agencies that operate CAD systems are:
San Diego Police Department
San Diego Sheriff's Department
Costa Mesa Police Department
Orange Police Department
Redondo Beach Police Department
Huntington Beach Police Department
All agencies report that the systems they are using meet their needs and are
more efficient than their previous manual systems.
The staff of the Carlsbad Police and Fire Departments have reviewed the CAD
study and in their professional opinions, the development of a CAD system for
the City of Carlsbad will greatly enhance the operational capabilities of
emergency services in the city and will greatly reduce future expenditures to
continually upgrade the system periodically. Since the new public safety center
is being developed it would be the most opportune and cost effective time to
incorporate a CAD system into the new communications system.
J****.
RG 259
October 1984
FEASIBILITY STUDY
FOR A
COMPUTER AIDED DISPATCH SYSTEM
FOR THE
POLICE AND FIRE DEPARTMENTS
OF THE CITY OF CARLSBAD
Prepared by:
Henry L. Richter, Ph.D., PE
RICHTER GROUP
178 West Longden Avenue
Arcadia, CA 91006
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1 A 1 II E 21 £25^EN^S
1 . EXECUTIVE SUMMARY 1
2. SCOPE OP THE STUDY 6
3. DESCRIPTION OP CARLSBAD POLICE DEPARTMENT 6
4. DESCRIPTION OP CARLSBAD FIRE DEPARTMENT 8
5. COMPUTER AIDED DISPATCHING 10
5-1. Call-Por-Service (CFS) Answering 11
5.2. Radio dispatching 11
5.2.1. GPS control 11
5.2.2. Field Unit Request Control 11
5.2.3. Unit Status Control 11
5.3. Access to Other Computer Systems 12
5.4. Operational Supervision 12
5«5* Information Management 12
5.6. System-Wide Applications 13
5.6.1. General Applications 13
5.6.2. Law Enforcement applications 13
5.6.3* Fire applications 13
5.6.4. Public Service Department Applications 13
6. CAD SYSTEM ADVANTAGES AND BENEFITS 13
7. CAD PROBLEMS 16
8. THE NEED FOR STATISTICAL INFORMATION 17
9. CURRENT ORGANIZATIONAL SYSTEMS CONCLUSIONS 17
10. STUDY METHODOLOGY 18
11. INTEGRATION INTO DEPARTMENTAL DATA PROCESSING REQUIREMENT.25
12. RECOMMENDATIONS 26
1 . FIRE AND POLICE YEARLY COMMUNICATIONS VOLUME
2. CALLS FOR SERVICE BUSY HOUR VOLUME
3. RADIO TRAFFIC BUSY HOUR VOLUME
4. MANUAL AND AUTOMATED SYSTEMS CALLS FOR SERVICE - CASE ONE
5. MANUAL AND AUTOMATED SYSTEMS CALLS FOR SERVICE - CASE TWO
6. RADIO TRAFFIC SERVICE TIME RELATIONSHIPS
7. RADIO TRAFFIC - MANUAL DISPATCH CASE ONE
8. RADIO TRAFFIC - MANUAL DISPATCH CASE TWO
9. RADIO TRAFFIC - CAD DISPATCH CASE ONE
10. RADIO TRAFFIC - CAD DISPATCH CASE TWO
11. PEAK SHIFT POSITION REQUIREMENTS
12. TOTAL POSITION REQUIREMENTS
13- CAD AND MANUAL SYSTEM COSTS
14. MANUAL AND CAD CUMULATIVE COSTS - CASE ONE
15. MANUAL AND CAD YEARLY COST COMPARISON - CASE ONE
16. CASE ONE AND CASE TWO YEARLY COST COMPARISON
17. CAD SYSTEM EQUIPMENT COSTS
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CITY OP CARLSBAD COMPUTER AIDED DISPATCH FEASIBILITY STUDY
1 . EXECUTIVE SUMMARY
This is a report to the City of Carlsbad on the feasibility of a
Computer aided dispatch system for the Police and Fire departments.
At the request of the City two separate cases are studied;
- case one is a dispatch system for the Police and Fire Departments,
and
- case two is a dispatch system for the Police and three Fire
Departments, Carlsbad, Oceanside, and Vista.
The information for the case two analysis is based upon a report done
for the City by Hughes, Heiss, & Associates.
Data was gathered from City, Police, and Fire operations, both from
files and from personal observation. The data gathered was used to
characterize the dispatch process in terms of comparison with the norm
of comparable cities and from the standpoint of present effectiveness.
This data was then extrapolated into the future based on the historic
and projected growth of the City of Carlsbad.
The objective of the study was to examine the cost and operational
effectiveness of adding a CAD system to the City's joint Police-Fire
dispatch center. This process is developed in the body of this
report. There are hard dollar savings to be realized, soft dollar
savings to be realized, and various enhancements of operational
effectiveness .
A CAD system can do an equal to superior job compared with a manual
dispatch system with only 60$ to 70% of the staff. In the City of
Carlsbad over the next 1 5 years this equates to 95 fewer staff-year
positions (one person for one year) with a CAD than a non-CAD system
in case one, and 171 fewer staff-year positions in case two. The use
of a CAD system will also reduce the requirement for additional radio
frequencies, a major area of cost elimination. Soft or indirect
dollars savings will also be made in terms of the better utilization
of field staff time and the elimination of many routine tasks.
The study further documented that as Carlsbad grows, a CAD system will
be a necessity to provide timely and effective response and dispatch
services. At times, the present dispatch arrangement is operating at
saturation. Although a new radio channel has recently been added and
the primary station converted to repeater operation, the system has
presently hit practical limits, and any increase in workload will
manifest itself in a degradation of services provided.
The present system degradation during peak periods has presented the
City with a requirement to add substantial numbers of additional staff
and radio equipment, or expended funds on a CAD system to improve the
efficiency of existing personnel. This study documents that a
decision to implement a CAD system will be cost recovered in
approximately one year by reducing requirements for additional staff.
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CITY OP CARLSBAD COMPUTER AIDED DISPATCH FEASIBILITY STUDY
Because the present dispatch operation is overloaded at busy times and
is totally dependent on manual production of records, the data
collected is sparse and inaccurate. First of all, this provides a
very poor base for use by the departmental management for planning and
control. Secondly, an analysis of CAD feasibility and benefits based
on this data will not represent a true picture of the situation.
Computer-aided dispatch systems offer major support for resolving two
specifically identified problem areas:
1 - The dispatch environment is now overloaded. The rapid growth has
exceeded the ability of the current system to meet the needs of
the public and the field officers. Peak loading periods result in
excessive delays in the public attempting to gain telephone access
to the Departments and to slow responses to field officer needs.
The dispatchers have insufficient information or the necessary
aids to provide adequate service to the field; officers who are
already busy with field activities often have to provide direction
to dispatchers for items which are traditionally available in CAD
systems. This is particularly true in the Fire Department
situation.
2 - Managements' knowledge of dispatch system performance is seriously
limited. The current statistical information is notably
inaccurate and was specifically rejected by the Richter Group as
being adequate for this study.
The direct statistical information gathered by the Richter Group
was incomplete; it was not within the range expected of
organizations of this size. Discussions with the Department staff
confirmed the inaccuracy of the current manual data gathering
process, and experienced-based factors were used for the
projection analysis.
It is a very significant concern that both the human and technical
resources are presently showing symptoms of limitations at busy times.
The system performance will only grow worse as population and workload
increases. There is presently no relief in sight for the current
facility or staff. Expansion into the new facility with a manual
dispatch system will only provide minimal short-term and temporary
relief.
The characteristics and usefulness of CAD systems are described in the
body of this report. CAD systems provide dispatchers a variety o:
predictable decision recommendations, including unit assignment.
verification of street addresses, and rapid retrieval of critical
information, such as hazardous location information. The on-goir^
dispatch processes are accurately recorded by the computer syster
allowing detailed and timely analysis of performance levels, including
loading conditions by time of day, calls for service, dispatcl
response times, and the like.
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CITY OF CARLSBAD COMPUTER AIDED DISPATCH FEASIBILITY STUDY
The use of computers to control the flow of the dispatch information
allows more rapid processing of activities than is possible with a
manual system. The growth rates anticipated in the City of Carlsbad
will require substantial increases in the dispatch system
capabilities. Some capabilities can be added through increase of
staff or purchase of equipment. Others cannot, such as the simple
acquisition of more radio channels.
The primary benefit of a CAD system is automating the dispatch
process. The secondary benefit is the capture of accurate statistics
and data from field operations. All of the timing and a variety of
other information from calls for service are automatically recorded in
the CAD memory, and can be processed to provide a wide variety of
management information. This same information is then available to
City management for planning, budgetary, and other control purposes.
Workload analysis can be made, response time analysis can be made, and
the management will have accurate and clear facts upon which to
control City and departmental operations.
Examination of the current dispatching environment provided the basis
for findings and projections resulting in the conclusions presented in
this report. The City of Carlsbad presents a somewhat unusual
environment with the exceptional projected compounded population
growth rate of 1%. The effect of this growth is readily apparent in
the review of the Police and Fire Departments. In both cases, the
overwhelming management concern was the absence of adequate
information for in-depth resource allocation analysis and detailed
trend projections. Both organizations are quite aware that they
essentially react to problems as they arise and they acknowledge that
they have inadequate tools to do longer term planning. They desire to
be proactive rather than reactive in their management approach, but
have insufficient management information to accomplish this goal.
Based on examination of the present dispatch activities and a
projection into the future using available growth statistics and
tempered by the Richter Group knowledge of dispatch practices, a
staffing projection was made for the next fifteen years. The figures
are graphic in demonstrating the efficiencies which may be obtained
through the use of a CAD system. A comparison table follows:
TOTAL DISPATCH STAFF REQUIREMENTS 1985 - 2000 (PERSON-YEARS)
MANUAL DISPATCH AUTOMATED DISPATCH
CASE 1 319.2 224.2
CASE 2 444.6 ' 273«6
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'CITY OP CARLSBAD COMPUTER AIDED DISPATCH FEASIBILITY STUDY
These values are "based upon the delivery of equal levels of servico
which, in real situations, will not occur for the common reason:
organizations rarely fund positions at the time the need is
identified; months or years normally pass before relief actually
arrives and it turns out to be inadequate for the later situation.
The consequence of remaining within a manual dispatching environment
will be seriously overloaded radio frequencies and poor response times
to citizens needs. During peak hours, the law enforcement officers
presently do not have sufficient radio time to support field-initiated
investigative activities, thus relegating the patrol force to
essentially responding to called-for services. The crime repression
and apprehension function of the patrol force will be seriously
inhibited and will result in long-term negative impacts on the
community.
The practical reality of manual versus CAD supported dispatch systems
is that with a manual system, the organization will continue to
provide an increasingly lower level of service. * As performance
becomes worse, the potential for inadequate response to emergency
situations increases. A CAD system will allow this deterioration to
be reversed and controlled. Although not consistent, there is a clear
trend in case law toward holding government organizations responsible
for adequate response in areas of public safety concerns. Long tertn
considerations must account for the possible financial consequences of
adverse legal awards in the event deteriorated communications systems
negatively impacted support to either the employees (field officers)
or the public.
It has been the experience of many departments both small and large
that when CAD is established, not only does the increased efficiency
require less dispatch staff but the efficiency of field officers is
greatly enhanced. A common statistic is that perhaps fifteen percent
of a field officer's time is freed up for doing police work instead of
paperwork. With a staff the size of Carlsbad Police Department, this
can be equivalent to another couple officers in the field now ?rid more
later on. In addition, the ability to obtain management information
data helps the effectiveness of departmental and City management in
controlling and planning the resources necessary to respond to the
needs of the citizens of Carlsbad.
A number of recommendations are made in this report and these are
presented in brief form here.
1 - It is recommended that the City of Carlsbad proceed with the
implementation of a CAD supported radio dispatch system as part of
a comprehensive master plan, and that the CAD system be
implemented as part of moving into the new public safety center.
The police department has already prepared a future growth master
plan analysis which would be the correct place for such an effort.
The positive impacts on only the dispatch staff requirements
clearly demonstrate the functional and economic benefits from this
systems support. As shown in this report, the payback period for
a CAD is about one year!
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CITY OF CARLSBAD COMPUTER AIDED DISPATCH FEASIBILITY STUDY
Based upon the service level projections provided with this
report, it is documented that the implementation of a CAD system
is overdue. The installation of automated systems in manual
environments can be disruptive to existing processes, procedures,
and social structures. Therefore, the planned move into a new
building, itself a disruptive though positive effect, would be the
ideal time to introduce a CAD system into the organization. The
employees will be prepared for new processes and the anticipation
of all the positive benefits would be at an optimum point.
2 - It is recommended that the City of Carlsbad plan on the
implementation of mobile digital radio equipment in field vehicles
by the early 1990's. The trend lines of radio activity indicate
major areas of growth which will require frequency spectrum and
staff support. Much of this growth, particularly unit status
information, can be much more efficiently processed (both in terms
of frequency spectrum and staff) by computer supported digital
communications equipment.
3 - It is recommended that the City of Carlsbad separate the records
clerk functions from the radio dispatching function. The present
work load of the radio dispatchers inhibits their necessary
attention to the records functions thereby introducing errors and
inefficiencies in this critical area. The skill level of these
two functions is incompatible and salary differences based upon
job descriptions are found in other organizations. As staff
growth continues, direct salary benefits will accrue to the city
by separating the job descriptions.
4 - It is recommended that the CAD system specification developed by
the City include a fully redundant system with the second system
being used for various records and management information system
support; the secondary system will provide backup to the primary
CAD computer system.
5 - It is recommended that the City of Carlsbad proceed with current
plans to develop the ARJIS criminal investigative support
capabilities and the data processing support of the City's
computer.
6 - It is recommended that the City of Carlsbad consider the
development of a comprehensive data processing master plan for the
public safety agencies in association with the decision to proceed
with a CAD system. A coherent and prioritized plan for
development of the various operational and management information
systems (MIS) will allow the current options that involve the use
of two computer systems, the inclusion of a CAD computer option,
and the development of low priced desktop computer system.
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'CITY OP CARLSBAD COMPUTER AIDED DISPATCH FEASIBILITY STUDY
2. SCOPE .OF THE STUDY
The purpose of this project is to explore the feasibility of a
computer aided dispatch (CAD) system to support the radio dispatching
function of the police and fire departments of the City of Carlsbad.
This report is intended to identify those factors which can be
addressed by a CAD system and identify specific items of measurement
which demonstrateably support the case for or against the decision.
Two specific factors, system performance and system staff costs, are
documented within this criteria. Numerous other factors which bear on
the decision but which do not have specific weighting criteria (such
as identified cost) are discussed.
The city has employed Hughes, Heiss & Associates to perform a
feasibility study on the joining of the Fire Departments of Carlsbad,
Oceanside, and Vista. This study examines two separate public safety
dispatch system options; case one is only the fire and police
departments of the city, and case two is the city police department
and the three fire departments identified in the Hughes, Heiss &
Associates study.
3- DESCRIPTION OF CARLSBAD POLICE DEPARTMENT
The Police Department is an organization of approximately 74
personnel, supported by a reserve unit of 14 persons, headed by the
Chief of Police, Vince Jimno. It is organized along classical lines
with three divisions, Technical Services and Field Services each
commanded by a Captain, and Investigative Services commanded by a
Lieutenant.
It is responsible for providing all police services to the City of
Carlsbad and its population slightly exceeding 40,000. The City of
Carlsbad is notable in the fact that it is reflecting a compound
growth rate of approximately 1% yearly.
The Technical Services Division contains the Communications and
Records unit, and thus has the largest civilian group within the
Department, sixteen people. This staff is responsible for operating
the dispatching center for both Fire and Police, providing all records
services, and acting as administrative staff as required for preparing
statistical reports, special studies, etc.
The dispatching function recorded approximately 20,500 police calls
for service and 2000 fire calls for service in 1983. The rate of
police calls is approximately 0.6 per citizen per year, a somewhat low
rate in the experience of the Richter Group staff.
Radio dispatching is accomplished from two console positions located
in a partially walled off section of the administrative area.
The Investigative Services Division is primarily responsible for
followup, investigation, and criminal filing of crimes committed
within the City.
CITY OP CARLSBAD COMPUTER AIDED DISPATCH FEASIBILITY STUDY
The Field Services Division is responsible for the criminal patrol and
traffic activity of the Department and responds to calls for service
plus initiating direct field activities.
Most of the criminal activity report forms used by the Department are
San Diego County's Automated Regional Justices Information System
(ARJIS) forms. The use of these particular forms allow for greater
ease of data input by clerks who daily key the data in to the ARJIS
computer system.
The automated systems which are available to the Department consist of
ARJIS, a warrant system maintained by the San Diego County Marshall, a
city owned Hewlett Packard model 3000 system, and numerous State and
Federal law enforcement systems available via the California Law
Enforcement Telecommunications System (CLETS).
The ARJIS system receives the majority of the data processing efforts
of the Department as all reports, crimes and arrests, are entered into
this system. While ARJIS is basically an investigative support
system, it does provide automated criminal statistical reports for the
criminal portion of BCS (Bureau of Criminal Statistics - California
Department of Justice, UCR (Uniform Crime Reports - FBI) requirements
and tabular statistical reports for each participating agency. The
required state arrest reports are prepared manually.
The ARJIS system is regional in scope, is operated through San Diego
County and as such, does not try to meet the unique and custom
reporting requirements of the member organizations.
ARJIS reflects, in its own way, an example of aggressive, well managed
automated systems encouraging their clientele to increase their leve
of knowledge and use of the automated information. The organizational
maturity is reflected in steadily increasing usage rates both in the
area of arrests (up from 5$ to 2J>% in four years) and crime clearances
(up from 1 3$ to 36;* in four years).
A significant and on-going problem with ARJIS is the quality of the
data input to the system. There is an average of 3.5 errors for each
entered transaction (i,e, a crime report, arrest report, or
supplemental report). While many of the errors are insignificant (a
missing data field), other are much more significant such as reporting
the wrong crime.
The major source of errors reported to the police department is based
upon rejection of entire transactions. Errors in accepted
transactions are not commonly found.
A very recent detailed audit report indicates that is approximately
29$ of the input reports have errors, 21$ of the clearances have
errors, and 16$ of the input stolen property have errors. While the
sample was quite select and thus statistically suspect, the valid
conclusion which can be drawn is that ARJIS suffers from an
unacceptably high error rate.
CITY OF CARLSBAD COMPUTER AIDED DISPATCH FEASIBILITY STUDY
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A review of the quarterly report of this group reflect continued
„ documentation and efforts to correct the deficiency. While the
reasons for the data validation problem are varied, there are at least
* three reasons which appear at the end user level. One is the turnover
of personnel and subsequent on-going training problems, two is errors
* induced by the officers when they write the report, and the third is
* the absence of more extensive on-line computer data editing checks.
* The input process requires a clerk to daily gather up the various
m reports and enter them into the system via an interactive CRT located
in the administrative area. Since there are a wide variety of report
,w forms, the task of training and controlling the quality of data input
is substantial.
It is also noted that the system uses different transaction charge
"* rates between the prime and off-time hours.
„««
The Carlsbad city computer system contains programs for various city
functions. There is an expectation that the Communications and
Records unit will obtain a terminal for access and that various file
** storage programs will be added. This will also provide access to a
word processing system.
* 4. DESCRIPTION OF CARLSBAD FIRE DEPARTMENT
m The Fire Department is an organization of approximately 52 personnel
« staffing three stations. Its complement of three engine companies and
one paramedic unit responds to approximately 2000 calls for service
•m per year.
* The administrative staff consists of 3 battalion Chiefs and two
Captains (Training and Fire Marshall).
« The tasks of fire prevention and inspection are performed by both the
individual stations and personnel assigned exclusively to this
*" function. The records of the inspections are maintained at the
^ respective stations.
« The inspection process involves both physical site inspection and
mailing forms to businesses to fill out and return. The department
* fire inspection form utilized a narrative format.
Because of the current volume of work, there is no attempt to
* centrally control the inspection process or required followups.
Currently, the quality of this effort is a function of the
*« professionalism of each station captain.
Training is handled at each station where the records are also
„ maintained. The records are by individual; totals are prepared
manually.
CITY OF CARLSBAD COMPUTER AIDED DISPATCH FEASIBILITY STUDY
The city bills for paramedic and medical transportation services. The
rate is based upon cost information gathered manually. The most
recent effort required a captain's time commitment for two weeks.
The staff is generally unable to address long term planning or
implement management control systems because of inadequate time to
either implement them or to follow up on them.
The Department is responsible for building plan checking for
conformance to fire codes.
The Department maintains run books which are located on each engine.
These contain area maps, run card listings, and hydrant locations.
There are wall maps in each of the three fire stations and the
dispatch area which are maintained by the Fire Department.
Planned road closures are reported by the Police Department who issue
the permits.
The checking of hazardous material location is done during the normal
inspection process. No formal list of hazardous areas is maintained.
The City does not have a fire permit system. At the present time, the
Fire Department does not have the staff to support such an
administrative task or to supervise such a system.
Fire pre-plans are the responsibility of each station and may or may
not be up to date. The tasks of developing pre-planning and
inspections are separate processes. The Department is in the process
of developing and implementing a new pre-plan format.
The street index system is on the City's word processing system
allowing for easy updating. The index is quite limited in the
information provided to the dispatchers. It is common for the
dispatchers to ask the Captain for instruction in various fire
situations.
The equipment inventory is maintained on each piece of equipment and
is periodically verified. The paramedic equipment, particularly the
drugs, are closely controlled and verified.
The City computer is used to support a small part of a weed abatement
program which is included on the Tax Bills.
This study has reviewed a report by Hughes, Heiss & Associates which
explored the feasibility of establishing a three city joint fire
dispatch system for Carlsbad, Oceanside, and Vista. Many of the
statistics developed by Hughes, Heiss & Associates study were used as
a basis for this CAD feasibility study.
•m
wCITY OF CARLSBAD COMPUTER AIDED DISPATCH FEASIBILITY STUDY
5. COMPUTER AIDED DISPATCHING
Computer Aided Dispatch systems offer a number of operational
* capabilities which are determined by the requirements of each agency,
the funds available to support the CAD, and the use of off-the-shelf
» or custom software programs. Without a detailed analysis of the
a specific requirements of the City of Carlsbad, a definitive
description of a CAD meeting the City's needs cannot be provided.
„ However, a general description of CAD systems is provided to aid the
reader in understanding how and why the emergency service agencies can
* benefit from such applications.
*" CAD systems use digital data processing equipment to automate the
M dispatch center operations. It would, however, be an error to view a
CAD as a data processing application. Rather, a CAD should be
<• considered a process control application. The difference between the
two terms is significant. Data processing systems provide service to
*" users based upon service standards within the machine and
traditionally share the computational power with many different users.
*" A process control system provides service to the user based upon the
«« demand of the user (i.e.,the press of a keyboard switch). There are
essential technical differences in the method of designing these two
*• approaches to providing service and significant differences in
m performance.
,„ Although providing automation, a CAD system can only assist the human
emergency service command and control personnel. CAD performs simple,
*" routine, repetitive tasks, stores and retrieves information at high
^ speed, and uses a CRT to display both stored data and information
*" entered at the keyboard.
Mi
The basic operational processes of a CAD begin with a call-for-service
'•*• (Fire, Police, or Emergency Medical) being entered into the system
^ through keyboard and display equipment. The CAD is then responsible
for processing the activity through the entire dispatch process
m according to a predetermined set of rules in a very rapid manner.
Various levels of "intelligence" are applied by verifying the input
m data (such as confirming the address) and making sure the input data
is possible, such as an alpha character being entered in a number-onlym field or the range of the entry exceeding possible levels.
m
CAD systems are available with a wide range of options for software
«• and hardware. The software options offer both levels of
m "intelligence" and various capabilities desired by a given agency.
Common in this area are the information files which support the
,„ system, such as geofiles and hazard files. An example of city unique
applications may be a railroad train schedule to advise the Carlsbad
* fire dispatchers of blocked access to certain parts of the City. The
hardware includes such items as single or redundant computers, the
•* amount of physical storage, remote printers, particularly for fire
m stations, and the use of mobile digital communications terminal (MDT)
equipment in the vehicles. MDT's range from simple status button
<• boxes providing one way communications to sophisticated two-way
keyboard or touch screen communication devices.
10
/#***:
CITY OP CARLSBAD COMPUTER AIDED DISPATCH FEASIBILITY STUDY
A CAD system may be viewed as the sum of its individual components,
which from a functional point of view are described as:
5.1. Call-For-Service (GPS) Answering.
This is the beginning step in the entire process, and in-fact, is
often the beginning step in a long trail of police and fire
involvement with the activity. Within the larger criminal justice
processes, automation at this point in the system can pay compounded
benefits throughout the long process.
5.2. Radio dispatching.
This is viewed by the activities:
5.2.1. CPS control.
This process involves assigning and sending the activity to the field
unit(s) and blending this activity with the multitude of on-going
tasks of the both the dispatcher and the field units. Since the CAD
provides recommended equipment for dispatching, human review and
approval is implied in this activity. Ready knowledge of both call
and equipment status is required to accurately do this task and
various "information lists" and status messages allow the dispatcher
to instantaneously have available far more information than could be
maintained manually or in human memory. The CAD supports the control
process through automatic call prioritization. for presentation to the
dispatcher. In advanced systems with extensive use of mobile digital
equipment, this may become more of a review task. In traditional CAD
systems, this is a key point of command and control.
5.2.2. Field Unit Request Control.
Field units present a wide variety of requests to the dispatcher
ranging from sophisticated mutual aid call-up demands to simple status
advisories. These activities must be performed rapidly "because the
volume is normally high. CAD systems allow many of the tasks to be
accomplished with one or two keystrokes often requiring less than a
second. Information requests from other computer systems, most
notably the Department of motor vehicle systems, can result in major
and critical information being returned in seconds of the request by a
dispatcher action requiring only a one or two seconds.
5.2.3. Unit Status Control.
The management of available field resources is a continual and
mandatory task of the dispatcher. This process is key to the
utilization of the field staff, subsequent response time to calls-for-
service, and potentially the safety of the field personnel.
Inadequate management and control of this factor can ultimately result
in the City unnecessarily hiring additional personnel to meet desired
service levels. Computer aided tracking and recording of this
critical data greatly enhances control of this process.
OCITY OF CARLSBAD COMPUTER AIDED DISPATCH FEASIBILITY STUDY
5.3. Access to Other Computer Systems.
The job done by modern law enforcement officers requires rapid access
to large amounts of data on a national level. Extensive expenditures
have been made supporting this need and are identified by such names
as NCIC (National Crime Information Center) and the various California
Department of Justice and California Department of Motor Vehicle
systems. Both the safety and quality of decision making of the field
officers are enhanced by better access to these systems. Local
jurisdictions equally build systems in support of the emergency
service agencies which needs have rapid access from by field staff.
Of particular note is pre-fire plans. Officers familiar with their
district usually have documentation and knowledge of these plans, but
support units often must get guidance from the fire-ground commander
who is extremely busy with other critical tasks. CAD systems allow
dispatchers quick and reliable access to this information so they can
provide improved support to the field officers.
5»4« Operational Supervision.
Supervision of the dispatch process activities is a necessary
organizational task. Staff which process the individual calls-for-
service and field unit requests cannot be expected to maintain on-
going awareness of system performance; their task is to deal with
details not overall processes or trends. Equally, they often do not
have the experience to address unusual events which are the trademark
of the emergency service community. Supervision must have on-going
knowledge of activities and ability to quickly take over situations as
events dictate. CAD systems provide both on-line summary information
about the on-going operations of the system and the ability to
instantly inject command and control decisions.
5«5• Information Management.
The information needs of a dispatch environment may be viewed from two
applications, operational and management.
Operational needs are defined as information which describes on-going
activities, such as the number of calls, the average and range of
dispatch times by priority, etc. This is used to regulate and direct
on-going operations, such as determining shift hours to provide the
best coverage. Depending upon requirements of individual agencies,
the operational reports may include both daily activity logs and
individual officer activity logs. CAD systems offer excellent
operational level information reporting capabilities. It is possible
the written reports required of officers may be limited to arrest and
crime reports with all activity reports being computer generated.
Management information needs are defined as the intelligent analysis
of the operational information, possibly combining information from
several sources, allowing knowledge of trends, impact of variables or.
each other, etc,. These reports generally identify what resource is
producing what product at what cost. This may be the basis for re-
12
^CITY OF CARLSBAD COMPUTER AIDED DISPATCH FEASIBILITY STUDY
directing existing resources to more important organizational
priorities or identifying the need for additional resources. CAD
systems can provide a major data source for development of the
management information systems.
5.6. System-Wide Applications
The five processes described share common access to a variety of CAD
information files which greatly enhance the ability of both the
dispatch and field personnel to make better informed decisions. While
these may be developed as needed by each agency, there are several
traditional applications, including:
5.6.1. General Applications
Unit status information
Call-for-Service status information
Recommendation of units for dispatching and backup
Support agencies (fire or police) responsible for each address
Telephone numbers required by dispatch personnel
Geofile information
5*6.2. Law Enforcement applications
History of prior calls at an address
Hazardous location (address) warnings
Business addresses
Alarm history
Crime broadcasts
CLETS data base access
5.6.3. Fire applications
Run Card listings
Equipment resource listings
Water location and status
Pre-Fire plans
Hazardous location (address) warnings
Links to fire inspection systems
5.6.4. Public Service Department Applications
Call out lists
Equipment inventories
Street and utility information
6. CAD SYSTEM ADVANTAGES AND BENEFITS
Generally, the biggest advantage of a CAD system is that performs many
of the routine information storage and presentation tasks which are so
burdensome with manual systems. The speed and error checking allow
- More rapid processing of messages
- More accurate processing of message
13
CITY OP CARLSBAD COMPUTER AIDED DISPATCH FEASIBILITY STUDY
- More timely and accurate information
The input of data into "formats" which, while similar to manual forms,
is faster, easily readable, and allows the computer to perform various
checks for accuracy. \
The computer's speed allows use of information files which would be
prohibitively time consuming in a manual system, such as geofile
address checking, hazard file checks, and pre-plan checks.
In law enforcement applications, access to CLETS (and through CLETS to
NCIC) is greatly enhanced both in terms of easier input and
integration into the system processes. The CAD presents data input
formats as part of the normal dispatch work flow eliminating the
requirement to go to a different terminal system with awkward and slow
formatting requirements. The operator types the data into a screen
format, the computer edits the data for basic accuracy and formats it
for transmission to the state systems. The result of this more ready
access is:
- better utilization of criminal justice systems, thus increasing the
quantity of recovered property, vehicle information, wanted persons
data, drivers' license information and officer safety.
- Gains access to other computer systems using the screen format to
input data thereby increasing the efficiency of clerical personnel.
- Provides direct interfacing with other city and county systems.
A notable aspect of a CAD system is that a call-for-service cannot be
"forgotten," laid aside, misplaced, or otherwise subjected to some of
the hazards found with manual operations. Another is that excessive
response times will be obvious as soon as the next operational status
report is reviewed.
Multiple agencies may share a single CAD system yet enjoy the
advantage of single ownership. Records are maintained separately, and
management reports can be based upon the input of a single agency or a
multi-organization operation.
Specific operational benefits which may be expected from a CAD are:
- Increased productivity for police patrol units. More efficient use
of radio air time allows field officers more ready access to
information sources in needed to accomplish their tasks. The use of
mobile digital equipment enhances this concept. Daily work sheets
can be produced by the computer eliminating this manual effort from
the officer's tasks.
- Rapid and simple access to information bases such as wanted persons,
vehicles, and property as well as the Department of Motor Vehicle's
automobile and driver's license records. This results in increased
officer safety and increased percentage of law violators who are
apprehended. Police access to law enforcement data banks may
• o'CITY OP CARLSBAD COMPUTER AIDED DISPATCH FEASIBILITY STUDY
increas.e by 1000 percent with the implementation of such ready
access; stolen vehicle recoveries will go up, warrant arrests will
go up, more serialized stolen property will be recovered, and
registration violations will be apprehended; all because access to
the data sources is convenient.
- Decrease in emergency service response time. Manual systems become
increasingly less efficient as volume increases; there is more
paperwork and busier dispatchers, less attention is paid to
paperwork-flow, and dispatchers tend to finish one incident and let
others wait, rather than handling multiple calls simultaneously.
- Elimination of hand written dispatching forms.
- Reduction or errors in the call-for-service entry and dispatching
process, particularly as it applies to addresses in other
jurisdictions, hard to spell streets, streets with similar names,
and handwriting difficulties. A geofile validates the street names
and provides the dispatcher a list of similar streets for correct
selection.
- Highly visible, accurate, and up-to-the-second monitoring of
individual unit status and assignment history, resulting in:
— Better management of police patrol unit time and assignment, with
reduction of overtime requirements and enhancement of officer
safety.
— Increased officer safety because of automatic excessive-time-on-
call alerts.
— Improved management of field responses to meet needs for specific
areas and times.
— Improved depth and accuracy for operational and management
information systems.
Mobile digital communications devices for police and fire applications
have become quite advanced in recent years. Although the cost-
effectiveness of the more sophisticated devices may be questionable,
the decline costs of this equipment and the need to place more and
more information on physically limited frequency spectrum clearly
suggest this technology will ultimately be common in the emergency
services.
CAD provides the first step in the development of mobile digital
communications, including status and automatic identification
techniques. Printers in fire stations, direct updating of fire
apparatus and public safety vehicle status and direct inquiry devices
in police vehicles all require computerized control; CAD systems
perform these functions.
15
,CITY OF CARLSBAJT^COMPUTER AIDED DISPATCH FEASIBILITY STUDY
7. CAD PROBLEMS
Although CAD systems offer benefits, they also present potential
problems. One is cost (capital expenditure, conversion, and
maintenance) and the other is operational reliance. Once an
organization becomes committed to automated support, it can lose its
ability to function in a manual mode. For example, can one imagine
the Internal Revenue Service trying to process todays tax forms
without the support of computer systems?
To be useful, CAD benefits must offset costs and implementation
problems must be solved. CAD dispatch center policies and procedures
will grow increasingly more dependent upon the system and upon those
responsible for the technical operation of the system. Such
dependence upon continuous system operation generally mandates
redundant equipment and backup procedures.
CAD systems may be designed to operate with a single computer and to
rely on manual processes for backup. Single systems provide 95 to 98
percent reliability and normally are only out of operation for planned
maintenance. But systems do fail and program maintenance requires
that the system be turned off for hours at a time. Redundant
computers provide 99-97 percent reliability (program maintenance is
done with the backup computer).
A major consideration in determining the requirement for a redundant
CAD system is the ability of the staff to cope with short term manual
system operations. The growth rates which are projected for the
Carlsbad system suggest that the staffing levels required for a CAD
system will be notably less than that required for a manual system.
This means that during system failures, the service level of the
dispatch system will degrade. For example, in 1990 CAD staffing
levels operating in a manual environment will have service response
times three times greater than a CAD supported system.
Operator training is an important consideration among all agencies,
and most critical in CAD operations. Automated systems require a more
rigorous and disciplined operating environment, thus better training
and operational control. The average level of training for emergency
service dispatchers traditionally is not very good. This area of
concern must be continually addressed by all organizations. Present
training primarily occurs on the job, a process which experienced
field officers often feel unnecessarily endangers them.
A CAD system offers the ability to train off-line with pre-established
scripts which cause the trainee to use the equipment as if the
activity were real. The computer system controls the screen displays
and prompts the dispatcher-trainee for information. These systems are
normally implemented on backup computer systems. Multiple levels of
training can be established ranging from the new-hire beginning level
to refresher courses for experienced personnel.
16
C 'CITY OF CARLSBAITCOMPUTER AIDED DISPATCH FEASIBILITY STUDY
8. THE NEED FOR STATISTICAL INFORMATION
Emergency service agencies are subject to a unique conflict of
demands. Proposition 13-type budgetary restrictions severely
challenge traditional budgeting techniques and operating practices.
Unfortunately, fiscal frugality has neither suppressed demands for
service nor population growth levels; nor has it reduced the
complexity of organizational management. In the past, emergency
service agencies traditionally have had a fair degree of success with
the emotional bargaining position of the "safety of the citizens will
suffer without this" approach to personnel and equipment funding.
Since the Proposition 13 limitations, this approach has failed to be
successful in many jurisdictions. The funding sources demand
articulate and measurable judgement criteria.
The conflict between increasing service demands and declining
resources must be resolved by increasing the effectiveness and
productivity of existing resources. In high growth environments such
as those facing the City of Carlsbad, it will be impossible to meet
all of the perceived needs. A rational selection process must be used
to determine which services will produce the greatest benefit at the
least cost.
The process of increasing productivity and calculating the cost of
individual performance is a proven science and this information is
essential in dealing with the conflict between increasing needs and
stable (or declining) resources. California emergency service
agencies are in an era in which budgets are based on well-documented
evidence and ranking of needs rather than emotional appeals. For the
foreseeable future, the ability to document hard evidence and to
present it to legislative bodies may well mark the difference between
marginal and meaningful budgetary success.
Increasing productivity depends on increasing employee effectiveness
and restructuring job descriptions to ensure that sufficient employee
time is allocated to do jobs properly. Small productivity gains
multiplied throughout the organization over several years can produce
major cost offsets and improved service levels. The small
improvements allow the department to accept new or different task
requirements (which are the inevitable result of modern democratic
society) with fewer personnel than would otherwise have been needed.
Accurate, reliable, and timely information about organizational
activity allows such changes to be analyzed and integrated into the
job flows with minimal staff addition or overtime requirements.
9- CURRENT ORGANIZATIONAL SYSTEMS CONCLUSIONS
Both the police and fire departments are suffering the effects of
rapid growth which have extended them beyond both their organizational
structures and control systems. They are dependent upon manually
prepared statistical reports which are both expensive to prepare, not
timely to management needs, and inaccurate to an unknown degree.
Management is forced to delegate tasks to line staff without the
ability to maintain central control and thus have limited performance
feedback capability.
,CITY OP CARLSBAD*COMPUTER AIDED DISPATCH FEASIBILITY STUDY
Management tends to deal with daily problems without a full
recognition of cause and effect relationships and has very limited
ability to provide preventive management direction of offset predicted
problems. The resources of the organizations, both dollars and staff,
are expended without substantial ability to measure their effect,
particularly in any sophisticated sense. Those effects which can be
measured, reported crime rates and fires, are not measured in a timely
manner, traditionally being prepared for yearly reports. The ARJIS
documentation suggests some concern for the accuracy of reported crime
rates.
While a CAD system is designed to support a radio dispatching system
and not be a management information system (MIS), much of the activity
of interest to the departments initially passes through the dispatch
system. Consequently, a CAD can provide information to an MIS system
for analysis or directly provide information within those areas where
all activities occur within the CAD. This linking arrangement is most
notable with several fire department systems such as a fire inspection
system and the dispatch hazard file which advises responding personnel
of potential areas of risk. For this reason, it is common to enhance
CAD systems with directly applicable support functions. These are
done on a case by case basis where the total requirements of the
departments and the dispatching system needs are considered and
merged.
The current absence of substantial operational and MIS systems
support, particularly in the fire department, suggest a CAD system
requirement providing several supporting functions in addition to the
dispatch processing. The police department, however, should consider
directing its support requirements toward the current city computer
system or a separate system specifically designed for such functions.
The numbers of activities provided by the police department is the
basis for this consideration.
10. STUDY METHODOLOGY
The methodology used in this study was to identify those
organizational trends which could be considered reliable, perform a
mathematical and experience based analysis of these, and identify
conclusions which resulted. Unfortunately, the present manual
processing and intensive work loads of both the police and fire
prohibit obtaining extensive directly gathered information.
Specifically, the published rate of police calls for service received
from the public is approximately 20,000 per year. This equates to
approximately 0.6 calls per year from each citizen in the city. The
experience of the Richter Group staff is that this is unusually low.
Detailed conversations with the P.D. dispatching staff documented that
in fact, many calls for service are not logged due to the work load
that mandates attention to the important tasks, providing information
to responding units, rather than maintaining statistical logs.
t CITY OP CARLSBAD COMPUTER AIDED DISPATCH FEASIBILITY STUDY
Equally, the manual process of tabulating the information is subject
to a wide variety of errors. The conclusion was that these numbers
are so inherently flawed that they would be inadequate for use in
planning and projection purposes. Consequently, the Richter Group
used an experience based 0.8 calls per year per citizen as the
planning number for the trend projections. Actual experience
indicates this number traditionally ranges from 0.7 to 1 .3 calls per
year per citizen.
The planning numbers for the Fire Department are much more accurate
(basically because they are too small for a large error rate to be
introduced) and direct numbers were used from the Hughes Heiss and
Associates Study. These were revised only in terms of the population
growth numbers. The Chief of Police provided more recent projection
numbers from the San Diego County Association of Governments (SANDAG).
The Fire response rates developed by Hughes Heiss and Associates were
used directly without modification.
The population and call for service rates resulted in a series of
dispatching system trend line projections for the two separate cases
requested by the City, the city police and fire departments, and the
city police combined with the three fire departments considered in the
Hughes Heiss and Associates study; Carlsbad, Oceanside, and Vista.
Attachment 1 reflects the yearly volumes of calls for service and
radio communications messages anticipated based upon the described
assumptions. As can be seen, the impact of the multiple fire
departments is minimal in terms of the increased calls for service,
but the radio traffic impact is substantial, increasing the volume
approximately 30$ over the two city agencies. This is an unusual
condition in combined police and fire dispatch systems and requires
recognition in terms of staffing for peak hour considerations.
Trends were converted into hypothetical peak hour loading rates for
both calls for service (CFS) and radio traffic. These were developed
based upon the heaviest shift, which in the case of Carlsbad is DaT-
shift. The purpose of this is to identify the trends for both manual
and automated dispatch systems both relative to one another and
relative to time. The trends were not projected for the other two
shifts because they would only present the same trend results. The
formula used was (((yearly volume/365) 0.4)2/8)2. This formula takes
an average day within the year, assumes 40$ of the traffic will occur
on the busy shift; assumes the busier days will have volumes twice the
yearly average; and assumes the busy hour within the shift will be
twice the average of the 8 hour period. Attachments 2 and 3 provide
the results of these calculations.
It can be seen that there is a clear predominance toward considering
busy hour periods in these calculations rather than using average
rates. This is because in joint fire and police systems they may both
produce heavy activity levels simultaneously with each requiring major
commitments of dispatching resources. A single department, while
generating substantial activity in peak periods, tends to be limited
by radio frequency space and field personnel. Multiple emergencies
tend to become self limiting in dispatch resource demands because ol
19
"CITY OF CARLSBAD COMPUTER AIDED DISPATCH FEASIBILITY STUDY
these restrictions. Two or more separate public safety agencies (such
as the multiple fire departments of case two) can each demand a full
commitment of dispatch resources, thus a need to plan more for the
worst case resource demand period and less for the average.
The busy hour rates of traffic were used to calculate predicted
service and delay times based upon queuing theory mathematics which
have been the basis of telephone company planning analysis for many
years. Practical experience suggests that the arrival rate of public
safety communications traffic is very similar to telephone company
traffic, differing only by time of day peaks rather than in the basic
pattern of arrival. A basic element of these equations is that they
are exponential in nature. This is, doubling the work load of an
operator does not double the wait times of the calling parties; it may
have little effect or great effect depending where on the activity
curve of the operator the doubling occurs. This effect can be readily
seen on the attachment graphs.
Two separate queuing analysis outputs were generated, one for the
calls for service and one for the radio traffic. These are notably
different in their processing and the impact on staffing is different.
Calls for service are processed as they come in. The computer program
assumes that each call is processed to completion before another is
answered; in fact routine calls are often interrupted to answer the
next call to determine if it is an emergency or not. This is a level
of inaccuracy in the CFS queuing predictions. Radio calls are
processed on the basis of their priority, both those received from the
telephone position and from the radio frequency.
The radio position assumes two levels of message processing, priority
and routine. For the purposes of this study, the definition of
priority messages were those traditionally considered emergency and
those which must be processed quickly by the dispatcher or they will
be forgotten, such as status messages, license place check requests,
etc. An experience based factor of 40$ of the dispatcher's messages
were considered priority for this study.
The analysis was done for each of the two cases:
(1 ) Carlsbad City Police and Fire Departments and
(2) the city departments plus joint fire departments.
Both manual and computer aided dispatch system analysis was provided
for both cases. The performance difference between the manual and
automated systems was, again, based upon the experience of the Richter
group staff. The service times chosen as the basis for this analysis
were:
- 80 seconds to process manual system calls for service.
- 50 seconds to process for CAD system calls for service.
The difference is based upon the longer time to hand write dispatch
cards and physically pass them to the dispatch position.
20
« CITY OF CARLSBAD**COMPUTER AIDED DISPATCH FMSIBILITY STUDY
- 20 seconds to process manual system radio dispatch transmissions.
- 13 seconds to process CAD system radio dispatch transmissions.
The average is based upon all types of radio traffic ranging from
status messages which take only a couple of seconds to warrant checks
which may take in excess of one minute. Again, these numbers were
selected from the staff experience.
Other basic assumptions which are part of this study were:
- The call and population trends are straight line; that is , do not
have significant peaks and valleys. In fact, history is never
straight line in its development and as such, the conclusions must
be accepted as planning guidelines for the future scope of the
issues to be faced rather than as absolute predictions.
- The call for service rate of 0.8 per citizen per year was not
varied; it can be predicted that this is not a stable variable. The
results will be modified by the actual rate.
- That the dispatching systems, both manual and automated, will not
implement technological aids other than those currently in use.
Again, reality suggests that numerous technological support aids
will be implemented over the next 15 years, particularly in the area
of mobile digital communications devices, all of which will greatly
reduce the voice communication requirement. The implementation of
mobile digital terminal systems require computer support.
- The major factor of radio frequency availability must be recognized
in the projected staffing numbers. At the present time, it is
extremely difficult to obtain additional public safety radio
frequencies and it may be physically impossible to improve a
degraded level of service because additional radio frequencies
simply cannot be obtained. While future availability may change,
this is not a likely event and will probably always be a serious
radio system limitation. Thus, any review of the hypothesized
future staffing requirements must recognize this outside limitation.
The practical reality of manual versus CAD supported dispatch systems
is that staff and frequency limitations are rarely remedied at the
time deficiencies are identified; the organization continues providing
an increasingly lower level of service. As performance becomes worse,
the potential for inadequate response to emergency situations
increases. There is a clear (though not consistent) trend in case law
toward holding government organizations responsible for adequate
response in areas of public safety concerns. Long term considerations
must account for the possible financial consequences of adverse legal
awards in the event deteriorated communications systems negatively
impacted support to either the employees (field officers) or the
public.
21
'CITY OP CARLSBAD COMPUTER AIDED DISPATCH FEASIBILITY STUDY
Attachments 4 and 5 are, for each of the two cases, the predicted
wait times for manual and CAD systems with one and two person staff
levels. A 12 second average wait time was chosen as the worst level
of service before another telephone position would be staffed; the
city could, of course, chose any level of service desired.
Attachment 6 provides a picture of the typical relationship of wait
times between routine and priority radio traffic. The level of
service at which additional radio dispatchers were recommended in this
study was based upon a priority message wait time average of 2
seconds. It can be seen that the routine call wait times at this
level are not significantly greater than the priority calls. Two
seconds was chosen because experience suggests that beyond this time,
additional radio traffic will result in earlier messages being
forgotten by the dispatcher (i.e. status messages or license plate
check requests) and the impact on the field unit attempting to gain
access to air time is unacceptably risky in emergency situations.
Attachments 7 and 8 indicate the manual dispatch system wait times for
priority radio traffic in each of the two cases. Again, the 2 second
wait time was selected as the service level at which additional
dispatchers should be added.
Attachments 9 and 10 indicate CAD wait times for priority radio
traffic in each of the two cases.
Attachment 11 provides the summary staffing requirements (based upon
the assumed service levels) for the two cases for manual and CAD
systems for the busy shift. This is the basis for the subsequent
projections. Examination of the telephone position staff levels may
look stange, they are almost consistent at two positions for 15 years.
The explanation is found in attachment 5 which depicts the staff
required for any service time level. As can be seen, one person is
unable to meet the service levels while two persons are able to
provide a high level of response. Lap shifts based upon real loads to
make better use of personnel would be used to actually address this
situation. That detail level of analysis is beyond the scope of this
feasibility study. The conclusion of this report is not altered by
the actual practices which will be used to staff positions which
slightly exceed the abilility of one person but are substantially
beyond the requirement for two full time staff.
Attachment 12 depicts the total position requirements for manual and
CAD dispatch systems for case one and case two. The fractional staff
numbers are due to the staff calculation formula described in this
paragraph. As described in the above paragraph, actual practice would
handle this fractional requirement in several possible ways including
overtime, reduced service levels for short periods, use of lap shifts
for the peak periods, etc. Again, the conclusion of this study is not
altered by actual personnel scheduling practices which would be
* applied to any system, CAD or manual. The assumptions used to develop
the projections were:
•m
22
CITY OP CARLSBAD COMPUTER AIDED DISPATCH FEASIBILITY STUDY
- two shifts staffed at the level of attachment 11, days and evenings
- one shift staffed at 1 /2 the level of attachment 11, early mornings
- Relief staffing calculated at 0.52 times the position requirement:
— Assume 48 weeks production per employee per year (two weeks
vacation, two weeks sick) with 8 hour work days equals 240
productive days per year. 240 multiplied by 0.52 equals 365 days.
- Basic cost of a CAD at $300,000, yearly maintenance at $30,000, and
complete replacement in 1995 at $300,000
It is recognized that efficient management could probably reduce the
staff levels somewhat through the use of proper overlap shift
scheduling and the reduction of staffing on consistently less busy
days which could be identified through the CAD management information.
These assumptions produce a suggested total staff requirement of:
- Case One, 319-2 employee years for a manual system and 224-2
employee years for an CAD system, and
- Case Two, 444-6 employee years for a manual system and 273-6
employee years for a CAD system.
It must be emphasized again that there are many factors which make
these conclusions, particularly to the year 2000, subject to
considerable interpretive caution. Notwithstanding these limitations,
a legitimate conclusion which may be drawn is that a CAD supported
radio system may require 60$ to 70$ the staff of a manual radio system
for equal levels of service.
In order to view the potential costs associated with these
projections, a a non-inflation factored cost of $25,000 per employee
year was chosen and a CAD system cost of $300,000 plus $30,000 per
year maintenance was selected. Refer to Attachment 17 for a typical
cost breakdown of a CAD system this size. A CAD replacement cost of
$300,000 was also considered mandatory in 1995- The results were:
- Case One, a manual system will require $7,980,000 in staff cost
versus $6,685,000 for a CAD system, a savings of $1,295,000.
- Case two, a manual system will require $11,115,000 in staff cost
versus $7,920,000 for a CAD system, a savings of $3,195,000.
Attachment 13 provides the extended cost information based upon the
above criteria.
23
CITY OP CARLSBAD COMPUTER AIDED DISPATCH FEASIBILITY STUDY
Attachment 14 graphs the total costs for a manual and CAD system and
the difference in case one over 15 years. Two separate conclusions
may "be drawn:
1 - Projected 15 year staff savings based upon the above assumptions
approximate $1,295,000, and
2 - The period of cost recovery of a $300,000 CAD system is
approximately one year. This is based upon an assumption the City
will otherwise provide the staff required for a manual system to
provide equal service levels.
Attachment 15 provides a graph of the cost difference of the above
scenario on a year by year basis.
It is again noted that these cost figures reflect only staff and CAD
equipment costs. The radio frequency and console requirements which
must be provided in a manual system are not documented since they are
beyond the scope of this study and are needed regardless of the
selected system.
Attachment 16 graphs the cost difference between case one and case two
without consideration of the CAD equipment required by the agencies in
case two. Thus, to reflect an actual system, the cost difference line
must be increased by the cost of the support equipment for the
additional fire departments. While this level of detail is beyond the
scope of this report, it is estimated to be in the range between
$35,000 and $50,000.
The interpretation of this data which may more closely reflect reality
is somewhat different than simple dollar comparisons. Two factors
will prohibit the theoretical scenario from occurring:
- Funding for positions and equipment is rarely done at the time it is
needed; the process usually starts when the problem has become
apparent and implementation is months or years after the need iz
formalized, and
- radio frequency limitations will prohibit the expansion of the radio
system to meet to demands.
The more likely scenario is that manual system service levels will
degrade to a point where they are seriously inadequate, resulting in
the organization constantly attempting to deal with the
"communications crises". The result will be short term attempts at
resolving the situation which may or may not be based upon a basic
understanding of the problem. Major expenses may result from this
effort producing, over the years, a patch-quilt result of ineffective
but expensive short term efforts.
24
c
'CITY OP CARLSBAD COMPUTER AIDED DISPATCH FEASIBILITY STUDY
Field personnel will adapt to the situation by not doing certain types
of work during peak loading periods, such as checking for stolen cars,
checking serialized property to see if it is stolen, checking field
suspects for outstanding warrants, etc. They will essentially
relegate their activities to responding to calls for service and
inhibit their self-initiated activities.
The lack of definitive operational and management information will
cause the Departments to continue in the manner documented .by this
report, being unable to satisfactorily document their work load demand
or the service level of the personnel. Performance measures that are
obtained will be done at the cost of manual tabulations and the
response will not be timely. Problems will be recognized when they
become a crisis.
Managements' ability to provide direction and request resources to
meet predictable problems will be seriously impaired. The City
Council will be asking for information either in regard to citizen
problems and queries or to support staff and equipment requests and
getting incomplete and to some unknown degree, inaccurate, responses.
The Departments will expend substantial labor efforts attempting to
gather the information.
1 1 . INTEGRATION INTO DEPARTMENTAL DATA PROCESSING REQUIREMENTS
The current DP support systems, particularly for the Fire Department,
are notably lacking. While the small operations which described these
organizations several years ago allowed management to know what was
going on either by manually prepared information or "seat of the
pants" analysis, the current volume of activities has outgrown this
approach. In light of the documented growth patterns which reflect
the future for the city, rational resource management based upon
specific facts will return major dividends in both cost and
performance over the next 15 years. The potential staff requirements
indicated in this study suggest dispatching staff costs will be in the
range of 4 to 8 million dollars over 15 years. The total fire and
police budgets over this same period will be many times more and
demonstrates the order of magnitude of dollar cost for the
departments. Small percentages of savings over this period due to
efficiencies based on accurate information about organizational
resource commitments and obligations will be in the order of hundreds
of thousands, if not millions of dollars.
CAD systems offer significant support in the area of call for service
and field activity statistics. Defined as operational support
systems, these include such things as numbers of activities by time,
amount of time spent and location by officer/unit on specific
functions, response times, etc. Management information systems
requiring intelligent analysis of many variables are traditionally
beyond the scope of CAD systems. The multitude of factors which
belong in many MIS questions are often not found in the CAD system
(such as employee discipline history) and good analysis programs are
demanding of computer resources which are critical to a successful CAD
system.
w
CITY OP CARLSBAD COMPUTER AIDED DISPATCH FEASIBILITY STUDY
As previous described, a CAD is a process control system and should
not be used as a data processing application unless the computer
capabilities are available. The size of the Carlsbad system required
to support the Carlsbad public safety organizations will likely
prohibit joint dispatch and data processing activities on the same
computer. A computer should be dedicated to each task. Attempting to
mix other tasks, particularly if they are computer intensive, would be
inappropriate.
12. RECOMMENDATIONS
1 - It is recommended that the City of Carlsbad proceed with the
implementation of a CAD supported radio dispatch system as part of
a comprehensive master plan, and that the CAD system be
implemented as part of moving into the new public safety center.
The police department has already prepared a future growth master
plan analysis which would be the correct place for such an effort.
The positive impacts on only the dispatch staff requirements
clearly demonstrate the functional and economic benefits from this
systems support.
Based upon the service level projections provided with this
report, it is documented that the implementation of a CAD system
is overdue. The installation of automated systems in manual
environments can be disruptive to existing processes, procedures,
and social structures. Therefore, the planned move into a new
building, itself a disruptive though positive effect, would be the
ideal time to introduce a CAD system into the organization. The
employees will be prepared for new processes and the anticipation
of all the positive benefits would be at an optimum point.
2 - It is recommended that the City of Carlsbad plan on the
implementation of mobile digital radio equipment in field vehicles
by the early 1990's. The trend lines of radio activity indicate
major areas of growth which will require frequency spectrum and
staff support. Much of this growth, particularly unit status
information, can be much more efficiently processed (both in terms
of frequency spectrum and staff) by computer supported digital
communications equipment.
3 - It is recommended that the City of Carlsbad separate the records
clerk functions from the radio dispatching function. The present
work load of the radio dispatchers inhibits their necessary
attention to the records functions thereby introducing errors and
inefficiencies in this critical area. The skill level of these
two functions is incompatible and salary differences based upon
job descriptions are found in other organizations. As staff
growth continues, direct salary benefits will accrue to the city
by separating the jobs.
i
4 - It is recommended that the CAD system specification developed by
the City include a fully redundant system with the second system
being used for various records and management information system
support; the secondary system will provide backup to the primary
CAD computer system.
26
CITY OP CARLSBAD COMPUTER AIDED DISPATCH FEASIBILITY STUDY
5 - It is recommended that the City of Carlsbad proceed with current
plans to develop the ARJIS criminal investigative support
capabilities and the data processing support of the City's
computer.
6 - It is recommended that the City of Carlsbad consider the
development of a comprehensive data processing master plan for the
public safety agencies in association with the decision to proceed
with a CAD system. A coherent and prioritized plan for
development of the various operational and management information
systems (MIS) will allow the current options that involve the use
of two computer systems, the inclusion of a CAD computer option,
and the development of low priced desktop computer system.
27
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FRE AND POLCE COMMUNICATIONS
YEARLY VOLUME
600000 -r
500000-T
400000
300000
200000
100000
1980 1985 1990 1995
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PD/JFD RADIO
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1985 1990 1995
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ATTACHMENT 11
PEAK 3HIPT POSITION REQUIREMENTS
MANUAL DISPATCH SYSTEM
1985 6 7 8 9 1990 1 23456789 2000 TOTAL
2 22222 2222222222 32
2 23333 3333444444 52
TOTAL 84
PD/JPD TEL 222222 2223333333 39
PD/JPD RADIO 4 44444 4555566666 78
TOTAL 117
COMPUTER AIDED DISPATCH SYSTEM
1985 6 7 8 9 1990 1 23456789 2000 TOTAL
PD/PD TEL 1 122222222222222 30
PD/PD RADIO 1 1122 2 222222222 2 29
TOTAL 59
PD/JPD TEL 2 22222 2222222222
PD/JPD RADIO 2 2222 2 223333333 3
32
40
TOTAL 72
1985
1986
1987
1988
19891990
19911992
1993
1994
1995
1996
1997
1998
1999
2000
TOTAL
19851986
19871988
19891990
19911992
1993
1994
19951996
19971998
1999
2000
TOTAL
ATTACHMENT 12
TOTAL POSITION REQUIREMENTS
MANUAL DISPATCH SYSTEM
PD/FD PD/Joint FD
TELEPHONE
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
121 .6
'TELEPHONE
3.8
3-8
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
114
RADIO TOTAL
7.6
7.6
11.4
11.4
11 .4
11.4
11.4
11.4
11.4
11.415.2
15.2
15.2
15.2
15.2
15.2
197.6
COMPUTER
PD/FD
RADIO
3.8
3.8
3-8
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
110.2
15.2
15.2
19
19
19
19
19
19
19
19
22.8
22.8
22.8
22.8
22.8
22.8
319.2
AIDED
TOTAL
7.6
7.6
11.415.2
15-2
15.2
15.2
15.2
15.2
15-2
15.2
15.2
15.2
15.2
15.2
15.2
224.2
TELEPHONE RADIO
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
11.4
11.4
11.4
11.4
11.4
11.4
11.4
148.2
DISPATCH
15.2
15-2
15-2
15.2
15.2
15.2
15.2
19
19
19
19
22.8
22.8
22.8
22.8
22.8
296.4
SYSTEM
PD/Joint
TELEPHONE RADIO
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
121.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
7.6
11.4
11.4
11.4
11.4
11.4
11.4
11.4
11.4
152
TOTAL
22.8
22.8
22.8
22.8
22.8
22.8
22.8
26.6
26.6
30.4
30.4
34.2
34.2
34.2
34.2
34.2
444.6
FD
TOTAL
15.2
15.2
15.2
15.2
15.2
15-2
15.2
15.2
19
19
19
19
19
19
19
19
273-6
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41
ATTACHMENT 13
MANUAL DISPATCH SYSTEM COSTS (000'a dollars)
PD/FD P_D/Joint FD
TOTAL TELEPHONE RADIO TOTAL
1985
1986
1987
1988
1989
1990
19911992
1993
1994
1995
1996
1997
1998
1999
2000
TOTAL 3040
TELEPHONE
190
190
190
190
190
190
190
190
190
190
190
190
190
190
190
190
RADIO
190
190
285
285
285
285
285
285
285
285
380
380
380
380
380
380
4940
380
380
475
475
475
475
475
475
475
475
570
570
570
570
570
570
7980
TELEPHONE
190
190
190
190
190
190
190
190
190
285
285
285
285
285
285
285
RADIO
380
380
380
380
380
380
380
475
475
475
475
570
570
570
570
570
3705 7410
570
570
570
570
570
570
570
665
665
760
760
855
855
855
855
855
11115
The CAD total costs include an initial system cost of $300,000 in
1985, $300,000 replace costs in 1995, and $30,000 maintenance per
year.
COMPUTER AIDED DISPATCH SYSTEM COSTS (OOO's dollars)
PD/FD PD/Jgint FD
1985
1986
19871988
19891990
19911992
1993
1994
19951996
19971998
1999
2000
TOTAL 2850
TELEPHONE
95
95
190
190
190
190
190
190
190
190
190
190
190
190
190
190
RADIO
95
95
95190
190190
190
190
190
190
190
190
190
190
190
190
2755
TOTAL
520
220
315
410
410
410
410
410
410
410
710
410
410
410
410
410
6685
TELEPHONE
190
190
190
190
190
190
190
190
190
190
190
190
190
190
190
190
RADIO
190
190
190
190
190
190
190
190
285
285
285
285
285
285
285
285
3040 3800
TOTAL
710
410
410
410
410
410
410
410
505
505
805
505
505
505
505
505
7920
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ATTACHMENT 17
These cost factors are developed from generic system components which
would be capable of providing the system and growth capabilities
identified in the City of Carlsbad. A detail systems requirement
study would be required to identify detail equipment requirements,
numbers, and costs. Funding for this system can be accomplished by a
variety of methods, including direct purchase, lease, lease/purchase,
etc. These options could be explored in detail as part of a request
for proposal process and the city would not be required to commit to
any action without a full understanding of all options and complete
costs.
CATEGORY COST
Primary computer, storage and programming $243*000
(geofile and CLETS interface)
Peripherals $25*000
(Modems and console equipment)
Local Terminals $20,000
(6 input CRTs, 2 printers, 4 monitors)
Remote Terminals $12,000
(3 input CRTs, 3 printers)
$300,000
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YEARLY COST COMPARISON - MANUAL
. SINGLE VS JOINT FD AND PD
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750
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