report to the governor and vt general assembly

JANUARY 2008

REPORT TO THE GOVERNOR

AND

VT GENERAL ASSEMBLY

By

The Enhanced 9-1-1 Board 94 State Street

Montpelier, VT 05620-6501 802-828-4911

800-342-4911 (VT only) 802-828-5779 (TTY)

THIS PAGE INTENTIONALLY LEFT BLANK

Report to the Governor – January 2008 1

TABLE OF CONTENTS

EXECUTIVE SUMMARY......................................................................................................................................3

Statewide System Operations.................................................................................................................................3 National Recognition .............................................................................................................................................3 Status of PSAPs .....................................................................................................................................................3 Changes to the System ...........................................................................................................................................4 Estimated Cost to Operate the System ...................................................................................................................4 Emerging Issues .....................................................................................................................................................4

2007 OVERVIEW ....................................................................................................................................................7

IT/Network Performance .......................................................................................................................................7 9-1-1 Call Statistics by Town.................................................................................................................................8 Database Performance..........................................................................................................................................14 GIS/Mapping Performance ..................................................................................................................................14 PSAP and 9-1-1 Call-taker Performance .............................................................................................................15 9-1-1 Call-taker Training and Certification .........................................................................................................15

ONGOING ISSUES................................................................................................................................................17

Addressing ...........................................................................................................................................................17 Multi-Line Telephone Systems ............................................................................................................................17 Wireless Carriers..................................................................................................................................................17 Local Number Portability (LNP) .........................................................................................................................18 Wireless Number Portability (WNP) ...................................................................................................................18 Voice over the Internet (VoIP).............................................................................................................................18 Stand-Alone and Redundant/Alternative Pathway...............................................................................................19 ADA Compliance.................................................................................................................................................19

NEXT GENERATION E9-1-1 ..............................................................................................................................21

Why Did We Change the Vermont E9-1-1 System?............................................................................................21 Highlights of the New 9-1-1 System....................................................................................................................22 Estimated Cost to Operate the System .................................................................................................................24

APPENDIX A – ENHANCED 9-1-1 PROGRAM OVERVIEW .......................................................................27

System Configuration...........................................................................................................................................27 Disaster Recovery Contingency Plan...................................................................................................................27 Network Performance ..........................................................................................................................................27 Database Performance..........................................................................................................................................28 Changes to the Existing System Configuration....................................................................................................28 9-1-1 Call-taker Training .....................................................................................................................................28 PSAP Accountability ...........................................................................................................................................29 Telecommunications Industry Accountability (LECs, CLECs, Wireless Carriers and VoIP Service Providers)29 Privately Owned Telephone Systems (PBX, Centrex and other private multi-line telephone systems)..............29 Vermont’s Emergency Response Agencies .........................................................................................................30 ADA Compliance.................................................................................................................................................30 Medical Quality of Care.......................................................................................................................................30 Conclusion ...........................................................................................................................................................31

APPENDIX B – 9-1-1 SYSTEM STATISTICS – 2007 ......................................................................................33

APPENDIX C – ENS FOR THE STATE OF VERMONT.................................................................................39


EXECUTIVE SUMMARY

Statewide System Operations

The E9-1-1 Board is charged with designing, installing, and overseeing the operation of statewide Enhanced 9-1-1 service. System performance benchmarks are based on nationally accepted standards. The Board fulfills its responsibilities by maintaining and auditing its technical network, databases, Public Safety Answering Point (PSAP) and 9-1-1 call-taker components of the system; by providing an ongoing training and certification program for 9-1-1 call-takers; by maintaining the statewide Enhanced 9-1-1 GIS database; mapping new coordinates when necessary; and by engaging in a variety of other activities designed to ensure the reliability and integrity of the system. Network audits demonstrate that the system meets or exceeds established performance parameters. Database audits show acceptable accuracy rates for telephone subscriber information, and we resolve issues daily with the Board’s service provider, telecommunications companies and Vermont’s cities and towns. Many private and central office-based multi-line telephone systems (PBX/CENTREX) are still not providing the level of service to their end users required by law. Many individual Vermonters and Vermont businesses are eliminating their land line telephone service and switching to wireless or Voice over Internet Protocol (VoIP). This trend impacts the Enhanced 9-1-1 system. Our PSAPs received 182,860 9-1-1 calls in the past twelve months, answered them on average within 7 seconds, and concluded the transaction after pre-arrival instructions by transferring the caller to an appropriate dispatch point in just over 2 minutes. Approximately 47% of these calls originated from cell phones.

National Recognition

The Enhanced 9-1-1 Board continues to receive national recognition for its vision, leadership, and accomplishments:

• The State of Vermont deployed the first statewide, IP-based E9-1-1 system in the nation in 2007. This groundbreaking use of next-generation technology positions the State well for the challenges of emergency response in the 21st century.

• The Vermont E9-1-1 system has been featured twice in the last 12 months in a national magazine published by a standard-setting body of the 9-1-1 industry.

• In addition to magazine publications, Vermont’s E9-1-1 program has been featured in newspaper, radio and television media.

• Our database department received an award, on behalf of the Vermont E9-1-1 Board, for its outstanding efforts in the GIS field. The Environmental Systems Research Institute, Inc. (ESRI), the largest GIS software developer in the world, named our program as one of the best in the industry.

Status of PSAPs

The Board oversees ten 9-1-1 PSAPs. This number will be reduced by two in 2008. The PSAPs are currently located at the Springfield Police Department, the Hartford Police Department, the Montpelier Police Department, the Lamoille County Sheriff’s Office, the Saint Albans Police Department, the Shelburne Police Department, and the State Police Barracks at Williston, Rutland, Rockingham and Derby. The PSAPs are geographically dispersed and represent the wish of the legislature at the inception of E9-1-1 in Vermont for a state/local partnership. Because it is spread out, the E9-1-1 system is able to pull its highly trained employees from the Vermont workforce in most every geographic area of the state. The system also will never be compromised by natural or human-caused disasters, including weather events and pandemics that could effectively negate PSAP operations at concentrated points during critical times of emergency response.


Changes to the System

The past year saw major changes to Vermont’s 9-1-1 system. The Board took bids on a next generation system that is based on internet protocol rather than standard telephone line switching. This shift was necessary due to both developments in the 9-1-1 industry in general and because our current contract and equipment had reached end-of-life stage. Cut-over for the new system took place on February 22, 2007 after a brief period of additional support from Verizon in the past calendar year. The new system enables greater flexibility with wireless and internet-based communication technologies, which have already gained significant market share and will be predominant in the future. Now that the new system is fully deployed, the E9-1-1 Board is re-engineering the way calls are fed into the system. The Board expects to realize significant savings on trunk lines and circuit costs, both of which must be purchased from the owners of telecommunications infrastructure. The Board is also reducing its complement of PSAPs, while retaining the critical mass of available call-taker seats that is a function of our State’s population, as well as population fluctuations caused by the millions of tourists who travel through our State every year. The Board will maintain readiness while seeking to reduce costs wherever possible. Estimated Cost to Operate the System

The General Assembly appropriated to the Enhanced 9-1-1 Board the amount of $3,356,610 for FY08. The appropriation covers provisioning of the statewide network, databases, PSAP equipment and maintenance, training of all 9-1-1 call-takers at the designated PSAPs in Vermont, and the staff necessary to administer all aspects of the statewide system. Operating expenditures reflect debt servicing for the new system, as well as increased costs for trunks and circuits which are obtained from Verizon, which owns the infrastructure over which our system receives calls. Verizon also seeks to impose charges never previously seen or levied for certain database obligations, but those charges are currently the subject of a dispute before the Vermont Public Service Board (PSB). The Board is closely monitoring these developments and strenuously advocating against what it regards as excessive and unnecessary charges. The Enhanced 9-1-1 Board subsidizes PSAPs hosted by the Department of Public Safety (DPS) with an appropriation from the Vermont Universal Service Fund (USF). This appropriation is a partial subsidy to help defray costs associated with DPS’s 9-1-1 call-taking activities that are conducted in tandem with its dispatch services. The Board plans to offer a partial subsidy to all its PSAPs in recognition of expanded call-taking duties that should level the demand on PSAPs that have historically taken the majority of system calls. This balancing of the E9-1-1 system will ensure more equitable distribution of 9-1-1 calls among the various PSAPs.

Emerging Issues

We continue to monitor the effects of regulatory change and new technologies on Enhanced 9-1-1. By participating in dockets before the PSB and the Federal Communications Commission (FCC), we educate regulators and telecommunications carriers and help establish policies and processes that both facilitate competition and preserve the reliability of our Enhanced 9-1-1 service. The emergence and rapid development of VoIP communications and the abandonment of wire line communications for wireless communications are market realities that impact our system more and more. We are monitoring these developments closely and working proactively to ensure that the public continues to have access to Enhanced 9-1-1 service no matter what type of telecommunications service they use. Another concern is the potential erosion of the USF as more subscribers abandon land lines for wireless or VoIP solutions.


Compliance with state statutes, Board rules, and federal guidelines continues to burden the E9-1-1 Board. As noted above, one great challenge is ensuring that anyone using a PBX/CENTREX, such as the State of Vermont’s system, to make a 9-1-1 call is doing so on a 9-1-1 compliant phone system. Just as telephone companies must constantly update their technology and databases so that subscribers can be located quickly when they make a 9-1-1 call, so must PBX/CENTREX hosts ensure the same level of safety. Maintaining vigilance on these issues represents a major undertaking for the E9-1-1 Board. We are also engaged in rulemaking at the PSB level. This effort is to ensure that there exists some redundant pathway out of a given calling area in the event a natural or manmade disaster isolates that area. In some areas that could include a technological option; in other more remote areas it could include public information. When isolation happens, oftentimes a caller hears a dial tone that enables them to dial within their calling area, yet they cannot dial into the 9-1-1 system. The confusion that results can cost a life.


2007 OVERVIEW

IT/Network Performance

The following statistics are for the period 1 January 2007 to 31 December 2007*:

• Total 9-1-1 Calls Received 182,860

• Total Cellular 9-1-1 Calls Received 85,036 (approximately 46.5% of total)

• Total Abandoned 9-1-1 Calls 17,340 (approximately 9% of total)

• Average Time to Answer 07 (seconds)

• Average Call Time 02:07 (minutes; seconds)

This represents a decrease in overall call volume from last year. The time it takes for 9-1-1 call-takers to answer incoming calls increased slightly. Since overall call volumes have decreased, the increase in the time to answer calls is likely due to staffing issues at the PSAP level. Analysis of the system’s performance shows that the Enhanced 9-1-1 system has performed within established benchmarks. Detailed statistics per town and per type of wireless phone are included on the following pages. A breakdown of calls per PSAP and Class of Service is included in Appendix B. *Please note: The number of calls for each town is broken down by Phase 1 wireless, Phase 2 wireless, and Non-wireless. There are two numbers given for each type of call, as well as for the totals:

• February 22, 2007 – December 31, 2007 – This is the actual number of calls taken on the new system from the date we cut over to the new system to the end of 2007.

• Full Year (Extrapolated) – This number estimates total calls for the year by dividing the 2/22 – 12/31 value by 312 (the number of days between 2/22 and 12/31) to arrive at a calls-per-day average, and then multiplying that average by 365.

Please note also: There is a row at the bottom titled “No ALI/Out of State.” These are calls that could not be associated with any town for a variety of reasons:

• The call transferred in over the 800 number from out of state (MA, NH, NY, PQ,) or from an organization

that accessed our 800 number (OnStar earlier in the year, etc.)

• The call was a wireless call that did not include any ALI information.

• The call was from an initialized cell phone, TracFone, etc.

• The call was from a landline that was not found in the database.

Phase 1 wireless calls locate at the tower, instead of the actual call location. This will skew the numbers to towns that have towers. Conversely, towns without towers will not have any Phase 1 wireless calls and therefore lower wireless call numbers.


9-1-1 Call Statistics by Town

Wireless Total Non-Wireless

Phase 1 Phase 2 Totals

Towns

2/22 -

12/31 Full Year (Extrapolated)

% of

total

2/22 -


2/22 -


2/22 -


2/22 -


Addison 100 117 0.06% 100 117 0 0 0 0

Albany 71 83 0.05% 71 83 0 0 0 0

Alburgh 816 955 0.52% 314 367 279 326 223 261 502 587

Andover 57 67 0.04% 57 67 0 0 0 0

Arlington 415 485 0.27% 322 377 57 67 36 42 93 109

Athens 44 51 0.03% 44 51 0 0 0 0

Averill 2 2 0.00% 2 2 0 0 0 0

Bakersfield 110 129 0.07% 110 129 0 0 0 0

Baltimore 9 11 0.01% 9 11 0 0 0 0

Barnard 94 110 0.06% 94 110 0 0 0 0

Barnet 450 526 0.29% 125 146 190 222 135 158 325 380

Barre City 2680 3135 1.71% 1681 1967 615 719 384 449 999 1169

Barre Town 1840 2153 1.18% 740 866 574 672 526 615 1100 1287

Barton 827 967 0.53% 503 588 170 199 154 180 324 379

Belvidere 23 27 0.01% 23 27 0 0 0 0

Bennington 4112 4811 2.63% 2334 2730 981 1148 797 932 1778 2080

Benson 119 139 0.08% 119 139 0 0 0 0

Berkshire 159 186 0.10% 159 186 0 0 0 0

Berlin 1408 1647 0.90% 723 846 305 357 380 445 685 801

Bethel 204 239 0.13% 204 239 0 0 0 0

Bloomfield 25 29 0.02% 25 29 0 0 0 0

Bolton 875 1024 0.56% 103 120 276 323 496 580 772 903

Bradford 420 491 0.27% 415 485 2 2 3 4 5 6

Braintree 107 125 0.07% 107 125 0 0 0 0

Brandon 1105 1293 0.71% 668 781 231 270 206 241 437 511

Brattleboro 4714 5515 3.02% 2261 2645 1194 1397 1259 1473 2453 2870

Bridgewater 164 192 0.10% 105 123 26 30 33 39 59 69

Bridport 67 78 0.04% 67 78 0 0 0 0

Brighton 314 367 0.20% 200 234 53 62 61 71 114 133

Bristol 532 622 0.34% 406 475 58 68 68 80 126 147

Brookfield 619 724 0.40% 132 154 214 250 273 319 487 570

Brookline 34 40 0.02% 34 40 0 0 0 0

Brownington 114 133 0.07% 114 133 0 0 0 0

Brunswick 6 7 0.00% 6 7 0 0 0 0

Buel’s Gore 3 4 0.00% 3 4 0 0 0 0

Burke 852 997 0.55% 135 158 468 548 249 291 717 839

Burlington 13664 15985 8.74% 6148 7192 3419 4000 4097 4793 7516 8793

Cabot 145 170 0.09% 130 152 2 2 13 15 15 18

Calais 164 192 0.10% 164 192 0 0 0 0

Cambridge 625 731 0.40% 440 515 109 128 76 89 185 216

Canaan 92 108 0.06% 92 108 0 0 0 0

Castleton 1925 2252 1.23% 542 634 747 874 636 744 1383 1618




Towns

2/22 -


% of

total

2/22 -


2/22 -


2/22 -


2/22 -


Cavendish 166 194 0.11% 166 194 0 0 0 0

Charleston 138 161 0.09% 138 161 0 0 0 0

Charlotte 554 648 0.35% 229 268 141 165 184 215 325 380

Chelsea 180 211 0.12% 180 211 0 0 0 0

Chester 574 672 0.37% 313 366 142 166 119 139 261 305

Chittenden 296 346 0.19% 109 128 59 69 128 150 187 219

Clarendon 1121 1311 0.72% 251 294 412 482 458 536 870 1018

Colchester 3725 4358 2.38% 1576 1844 1113 1302 1036 1212 2149 2514

Concord 131 153 0.08% 131 153 0 0 0 0

Corinth 134 157 0.09% 134 157 0 0 0 0

Cornwall 62 73 0.04% 62 73 0 0 0 0

Coventry 268 314 0.17% 124 145 84 98 60 70 144 168

Craftsbury 103 120 0.07% 103 120 0 0 0 0

Danby 192 225 0.12% 147 172 21 25 24 28 45 53

Danville 252 295 0.16% 191 223 45 53 16 19 61 71

Derby 1064 1245 0.68% 750 877 208 243 106 124 314 367

Dorset 571 668 0.37% 261 305 187 219 123 144 310 363

Dover 464 543 0.30% 222 260 136 159 106 124 242 283

Dummerston 144 168 0.09% 144 168 0 0 0 0

Duxbury 63 74 0.04% 63 74 0 0 0 0

E Haven 19 22 0.01% 19 22 0 0 0 0

E Montpelier 188 220 0.12% 188 220 0 0 0 0

Eden 162 190 0.10% 162 190 0 0 0 0

Elmore 79 92 0.05% 79 92 0 0 0 0

Enosburgh 493 577 0.32% 461 539 9 11 23 27 32 37

Essex 3742 4378 2.39% 1398 1635 1049 1227 1295 1515 2344 2742

Fair Haven 463 542 0.30% 463 542 0 0 0 0

Fairfax 907 1061 0.58% 316 370 251 294 340 398 591 691

Fairfield 123 144 0.08% 123 144 0 0 0 0

Fairlee 865 1012 0.55% 164 192 416 487 285 333 701 820

Fayston 118 138 0.08% 107 125 7 8 4 5 11 13

Ferdinand 4 5 0.00% 4 5 0 0 0 0

Ferrisburgh 500 585 0.32% 234 274 101 118 165 193 266 311

Fletcher 92 108 0.06% 92 108 0 0 0 0

Franklin 173 202 0.11% 173 202 0 0 0 0

Georgia 689 806 0.44% 290 339 171 200 228 267 399 467

Glover 123 144 0.08% 123 144 0 0 0 0

Goshen 16 19 0.01% 16 19 0 0 0 0

Grafton 78 91 0.05% 76 89 2 2 0 2 2

Granby 7 8 0.00% 7 8 0 0 0 0

Grand Isle 235 275 0.15% 235 275 0 0 0 0

Granville 56 66 0.04% 56 66 0 0 0 0

Greensboro 76 89 0.05% 76 89 0 0 0 0

Groton 123 144 0.08% 123 144 0 0 0 0




Towns

2/22 -


% of

total

2/22 -


2/22 -


2/22 -


2/22 -


Guildhall 22 26 0.01% 22 26 0 0 0 0

Guilford 160 187 0.10% 160 187 0 0 0 0

Halifax 88 103 0.06% 88 103 0 0 0 0

Hancock 76 89 0.05% 76 89 0 0 0 0

Hardwick 334 391 0.21% 334 391 0 0 0 0

Hartford 3609 4222 2.31% 1633 1910 1079 1262 897 1049 1976 2312

Hartland 255 298 0.16% 255 298 0 0 0 0

Highgate 432 505 0.28% 374 438 28 33 30 35 58 68

Hinesburg 376 440 0.24% 376 440 0 0 0 0

Holland 68 80 0.04% 68 80 0 0 0 0

Hubbardton 61 71 0.04% 61 71 0 0 0 0

Huntington 118 138 0.08% 118 138 0 0 0 0

Hyde Park 306 358 0.20% 306 358 0 0 0 0

Ira 26 30 0.02% 26 30 0 0 0 0

Irasburg 105 123 0.07% 105 123 0 0 0 0

Isle La Motte 76 89 0.05% 76 89 0 0 0 0

Jamaica 139 163 0.09% 137 160 1 1 1 1 2 2

Jay 496 580 0.32% 90 105 275 322 131 153 406 475

Jericho 573 670 0.37% 429 502 81 95 63 74 144 168

Johnson 654 765 0.42% 417 488 78 91 159 186 237 277

Killington 1525 1784 0.98% 296 346 672 786 557 652 1229 1438

Kirby 16 19 0.01% 16 19 0 0 0 0

Landgrove 15 18 0.01% 15 18 0 0 0 0

Leicester 154 180 0.10% 141 165 4 5 9 11 13 15

Lemington 16 19 0.01% 16 19 0 0 0 0

Lincoln 101 118 0.06% 101 118 0 0 0 0

Londonderry 440 515 0.28% 232 271 120 140 88 103 208 243

Lowell 77 90 0.05% 77 90 0 0 0 0

Ludlow 910 1065 0.58% 419 490 282 330 209 245 491 574

Lunenburg 187 219 0.12% 187 219 0 0 0 0

Lyndon 1332 1558 0.85% 723 846 294 344 315 369 609 712

Maidstone 22 26 0.01% 22 26 0 0 0 0

Manchester 1284 1502 0.82% 745 872 266 311 273 319 539 631

Marlboro 86 101 0.06% 86 101 0 0 0 0

Marshfield 164 192 0.10% 164 192 0 0 0 0

Mendon 144 168 0.09% 144 168 0 0 0 0

Middlebury 2040 2387 1.31% 777 909 701 820 562 657 1263 1478

Middlesex 938 1097 0.60% 90 105 388 454 460 538 848 992

Middletown Spr 61 71 0.04% 61 71 0 0 0 0

Milton 2201 2575 1.41% 680 796 654 765 867 1014 1521 1779

Monkton 475 556 0.30% 118 138 161 188 196 229 357 418

Montgomery 582 681 0.37% 224 262 183 214 175 205 358 419

Montpelier 2832 3313 1.81% 1459 1707 624 730 749 876 1373 1606




Towns

2/22 -


% of

total

2/22 -


2/22 -


2/22 -


2/22 -


Moretown 506 592 0.32% 118 138 145 170 243 284 388 454

Morgan 50 58 0.03% 50 58 0 0 0 0

Morristown 1832 2143 1.17% 788 922 567 663 477 558 1044 1221

Mt Holly 182 213 0.12% 182 213 0 0 0 0

Mt Tabor 88 103 0.06% 27 32 35 41 26 30 61 71

New Haven 243 284 0.16% 92 108 61 71 90 105 151 177

Newark 85 99 0.05% 85 99 0 0 0 0

Newbury 607 710 0.39% 253 296 216 253 138 161 354 414

Newfane 199 233 0.13% 199 233 0 0 0 0

Newport City 1166 1364 0.75% 806 943 231 270 129 151 360 421

Newport Town 169 198 0.11% 169 198 0 0 0 0

N Hero 115 135 0.07% 115 135 0 0 0 0

Northfield 1189 1391 0.76% 655 766 250 292 284 332 534 625

Norton 32 37 0.02% 32 37 0 0 0 0

Norwich 458 536 0.29% 332 388 53 62 73 85 126 147

Orange 98 115 0.06% 98 115 0 0 0 0

Orwell 360 421 0.23% 93 109 143 167 124 145 267 312

Panton 53 62 0.03% 53 62 0 0 0 0

Pawlet 179 209 0.11% 179 209 0 0 0 0

Peacham 94 110 0.06% 94 110 0 0 0 0

Peru 282 330 0.18% 71 83 121 142 90 105 211 247

Pittsfield 50 58 0.03% 50 58 0 0 0 0

Pittsford 333 390 0.21% 308 360 13 15 12 14 25 29

Plainfield 169 198 0.11% 147 172 2 2 20 23 22 26

Plymouth 87 102 0.06% 87 102 0 0 0 0

Pomfret 74 87 0.05% 74 87 0 0 0 0

Poultney 504 590 0.32% 477 558 5 6 22 26 27 32

Pownal 421 493 0.27% 366 428 47 55 8 9 55 64

Proctor 195 228 0.12% 194 227 0 1 1 1 1

Putney 390 456 0.25% 227 266 79 92 84 98 163 191

Randolph 1348 1577 0.86% 567 663 448 524 333 390 781 914

Reading 64 75 0.04% 64 75 0 0 0 0

Readsboro 122 143 0.08% 122 143 0 0 0 0

Richford 692 810 0.44% 585 684 45 53 62 73 107 125

Richmond 1039 1215 0.66% 275 322 333 390 431 504 764 894

Ripton 62 73 0.04% 62 73 0 0 0 0

Rochester 186 218 0.12% 186 218 0 0 0 0

Rockingham 512 599 0.33% 495 579 17 20 0 17 20

Roxbury 65 76 0.04% 65 76 0 0 0 0

Royalton 932 1090 0.60% -210 -246 640 749 502 587 1142 1336

Rupert 68 80 0.04% 68 80 0 0 0 0

Rutland City 6575 7692 4.21% 3185 3726 1901 2224 1489 1742 3390 3966

Rutland Town 526 615 0.34% 521 610 2 2 3 4 5 6

Ryegate 335 392 0.21% 46 54 120 140 169 198 289 338




Towns

2/22 -


% of

total

2/22 -


2/22 -


2/22 -


2/22 -


St Albans City 3127 3658 2.00% 1457 1705 876 1025 794 929 1670 1954

St Albans Town 2315 2708 1.48% 938 1097 739 865 638 746 1377 1611

St George 104 122 0.07% -38 -44 114 133 28 33 142 166

St Johnsbury 2249 2631 1.44% 1991 2329 98 115 160 187 258 302

Salisbury 178 208 0.11% 140 164 18 21 20 23 38 44

Sandgate 43 50 0.03% 43 50 0 0 0 0

Saxtons River 61 71 0.04% 61 71 0 0 0 0

Searsburg 14 16 0.01% 14 16 0 0 0 0

Shaftsbury 585 684 0.37% 252 295 202 236 131 153 333 390

Sharon 642 751 0.41% 111 130 284 332 247 289 531 621

Sheffield 54 63 0.03% 54 63 0 0 0 0

Shelburne 991 1159 0.63% 795 930 86 101 110 129 196 229

Sheldon 200 234 0.13% 200 234 0 0 0 0

Shoreham 116 136 0.07% 116 136 0 0 0 0

Shrewsbury 107 125 0.07% 107 125 0 0 0 0

S Burlington 5929 6936 3.79% 2431 2844 1268 1483 2230 2609 3498 4092

S Hero 376 440 0.24% 203 237 74 87 99 116 173 202

S Newfane 1 1 0.00% 1 1 0 0 0 0

S Royalton 466 545 0.30% 466 545 0 0 0 0

S Ryegate 60 70 0.04% 60 70 0 0 0 0

Springfield 2391 2797 1.53% 1175 1375 604 707 612 716 1216 1423

Stamford 60 70 0.04% 60 70 0 0 0 0

Stannard 30 35 0.02% 30 35 0 0 0 0

Starksboro 184 215 0.12% 147 172 18 21 19 22 37 43

Stockbridge 90 105 0.06% 90 105 0 0 0 0

Stowe 1812 2120 1.16% 796 931 547 640 469 549 1016 1189

Strafford 95 111 0.06% 95 111 0 0 0 0

Stratton 189 221 0.12% 91 106 65 76 33 39 98 115

Sudbury 43 50 0.03% 43 50 0 0 0 0

Sunderland 125 146 0.08% 124 145 1 1 0 1 1

Sutton 107 125 0.07% 107 125 0 0 0 0

Swanton 1348 1577 0.86% 828 969 345 404 175 205 520 608

Thetford 436 510 0.28% 238 278 114 133 84 98 198 232

Tinmouth 57 67 0.04% 57 67 0 0 0 0

Topsham 111 130 0.07% 111 130 0 0 0 0

Townshend 169 198 0.11% 169 198 0 0 0 0

Troy 177 207 0.11% 177 207 0 0 0 0

Tunbridge 94 110 0.06% 94 110 0 0 0 0

Underhill 249 291 0.16% 249 291 0 0 0 0

Vergennes 733 858 0.47% 369 432 181 212 183 214 364 426

Vernon 236 276 0.15% 236 276 0 0 0 0

Vershire 79 92 0.05% 79 92 0 0 0 0

Victory 7 8 0.00% 7 8 0 0 0 0




Towns

2/22 -


% of

total

2/22 -


2/22 -


2/22 -


2/22 -


Waitsfield 446 522 0.29% 211 247 114 133 121 142 235 275

Walden 84 98 0.05% 84 98 0 0 0 0

Wallingford 318 372 0.20% 204 239 48 56 66 77 114 133

Waltham 30 35 0.02% 30 35 0 0 0 0

Wardsboro 109 128 0.07% 91 106 13 15 5 6 18 21

Warren 328 384 0.21% 192 225 64 75 72 84 136 159

Warren’s Gore 1 1 0.00% 1 1 0 0 0 0

Washington 94 110 0.06% 94 110 0 0 0 0

Waterbury 2328 2723 1.49% 645 755 677 792 1006 1177 1683 1969

Waterford 139 163 0.09% 107 125 17 20 15 18 32 37

Waterville 63 74 0.04% 63 74 0 0 0 0

Weathersfield 317 371 0.20% 317 371 0 0 0 0

Wells 263 308 0.17% 148 173 63 74 52 61 115 135

W Fairlee 86 101 0.06% 86 101 0 0 0 0

W Haven 25 29 0.02% 25 29 0 0 0 0

W Rutland 1145 1340 0.73% 297 347 441 516 407 476 848 992

W Windsor 97 113 0.06% 97 113 0 0 0 0

Westfield 104 122 0.07% 68 80 15 18 21 25 36 42

Westford 119 139 0.08% 119 139 0 0 0 0

Westminster 275 322 0.18% 275 322 0 0 0 0

Westmore 106 124 0.07% 66 77 20 23 20 23 40 47

Weston 72 84 0.05% 72 84 0 0 0 0

Weybridge 44 51 0.03% 44 51 0 0 0 0

Wheelock 150 175 0.10% 50 58 62 73 38 44 100 117

Whiting 21 25 0.01% 21 25 0 0 0 0

Whitingham 183 214 0.12% 183 214 0 0 0 0

Williamstown 802 938 0.51% 387 453 175 205 240 281 415 485

Williston 3311 3873 2.12% 1156 1352 936 1095 1219 1426 2155 2521

Wilmington 663 776 0.42% 289 338 187 219 187 219 374 438

Windham 37 43 0.02% 37 43 0 0 0 0

Windsor 2222 2599 1.42% 411 481 973 1138 838 980 1811 2119

Winhall 107 125 0.07% 107 125 0 0 0 0

Winooski 1636 1914 1.05% 867 1014 524 613 245 287 769 900

Wolcott 112 131 0.07% 112 131 0 0 0 0

Woodbury 70 82 0.04% 70 82 0 0 0 0

Woodford 203 237 0.13% 67 78 60 70 76 89 136 159

Woodstock 655 766 0.42% 404 473 175 205 76 89 251 294

Worcester 81 95 0.05% 81 95 0 0 0 0

No ALI/ Out of State 7070 8271 4.52% 6559 7673 314 367 197 230 511 598

GRAND

TOTALS 156307 182860 83617 97819 36401 42585 36289 42452 72690 85036

% of total 100.00% 53.50% 23.29% 23.22% 46.50%


Database Performance

All towns have completed address notification. Two hundred and fifty-four (254) towns have databases whose accuracy is 98% or higher. Three (3) towns have databases whose accuracy is under 98% (Norton, Victory and Wells). There are four (4) towns that do not have telephone access lines, but have completed address notification (Avery’s Gore, Lewis, Somerset and Warner’s Grant). There are 328 records in the ALI Database that have been designated as “Private Citizen”. This means that when a 9-1-1 call is received from that telephone number the call-taker will see the customer name as “Private Citizen”. The Board offers all telephone customers the ability to have a special code in the Enhanced 9-1-1 database for certain permanent disabilities. The ALI database has 1,286 records with one or more disability designations.

• LSS Life Support System 86

• MI Mobility Impaired 524

• B Blind 231

• DHH Deaf & Hard of Hearing 464

• TTY Teletypewriter 37

• SI Speech Impaired 138

• DD Developmentally Disabled 325 Total 1,805

Most ALI discrepancies (database errors that become evident when a 9-1-1 call-taker attempts to verify the information on his/her screen) continue to be caused by the telephone companies' internal service order processes or by a town’s failure to fulfill its database responsibilities.

GIS/Mapping Performance

During 2007, the GIS department successfully upgraded to the ARCGIS 9.2 platform. This upgrade has given us much greater control, efficiency and accuracy in accomplishing our mission to add GIS (Mapping) updates from municipalities and integrate GPS fieldwork required to update and maintain the map-displays located at each PSAP. Using this platform with our new network we were able to implement “Transactional Replication.” Transactional Replication, using various GIS programs, enables us to push only the new GIS updates out to PSAPs instead of the entire GIS database, thus increasing the frequency and speed of updates, reducing network traffic, and minimizing or eliminating impact on the call-takers. The following numbers reflect GIS updates & fieldwork for 2007:

• 45,245 site edits completed

• 918 road name edits completed

• 23,743 road segments added or updated

• 282 municipalities visited (including cities, villages, townships, and unorganized gores & grants)

• 8,160 sites were verified and assigned x,y coordinates using GPS Due to the new system upgrade we were unable to accurately report GIS discrepancies – disparities between 9-1-1 database information and telephone records reported to the Board – through August 2007. From September – December 2007, 244 GIS discrepancies were reported to the GIS department. Of that number, 202 have been resolved. We are working toward reconciling all outstanding discrepancies.


PSAP and 9-1-1 Call-taker Performance

The Enhanced 9-1-1 Board oversees ten PSAPs. They are located at the Springfield Police Department, the Hartford Police Department, the Montpelier Police Department, the Lamoille County Sheriff’s Office, the Saint Albans Police Department, the Shelburne Police Department, and the State Police Barracks at Williston, Rutland, Rockingham, and Derby. Board oversight includes monitoring PSAP and 9-1-1 call-taker performance. The Board must ensure that the public receives the same level of service no matter which PSAP answers their call. To that end, the Board’s staff reviews a random sample of 9-1-1 calls for each PSAP weekly. Overall, Vermont’s 9-1-1 call-takers maintained compliance with the E9-1-1 Board’s call-handling standards although the level of compliance in some PSAPs was measurably lower in 2007 than in 2006. We continue to work closely with all PSAPs to ensure that the 9-1-1 services provided to the public meet national professional standards and are delivered in a consistent and uniform manner statewide. PSAPs continue to be slow to provide us with their Disaster Recovery Contingency Plans (DRCP) as required by the E9-1-1 Board’s regulations. Since September 11th, 2001, it is more important than ever that each PSAP have and routinely test a DRCP. Having a DRCP is a basic legal requirement incumbent upon all PSAPs. Each PSAP committed to meeting this requirement in a formal Memorandum of Agreement with the E9-1-1 Board. Every professional emergency communications center in the nation has a DRCP and routinely exercises it. The DRCP for the statewide E9-1-1 system is inherent in its design, which ensures that all 9-1-1 calls that make it into the system get answered. The Board needs to do its part to ensure short- and long-term PSAP operations in the event they must evacuate their facilities. PSAPs must meet these basic obligations, a challenge the Board takes very seriously. 9-1-1 Call-taker Training and Certification

Board oversight includes administering an ongoing 9-1-1 call-taker training and certification program. A complete overview of the curriculum may be found in Appendix A. The Board’s staff provides all training except emergency medical pre-arrival care, and some of the continuing education classes. In calendar year 2007, twenty-four classes were held to train new call-takers and enhance the skills of veteran communications staff. The training schedule for 2007 is listed below.

Date Course Date Course

Jan 29 – 31 Call-Taker Recertification Sep 7 High Risk! Mar 28 – 30 Call-Taker Recertification Sep 28 – 30 Call-Taker Recertification Apr 2 - 6 40 Hr Call-Taker Certification Oct 12 Trains, Planes, and Automobiles Apr 10 & 11 Equipment Training (2 days) Oct 29 – Nov 2 40-Hour Call-Taker Certification Apr 12 & 13 Equipment Training (2 days) Nov 6 & 7 Equipment Training (2 days) Apr 13 Mentor Recertification Nov 8 & 9 Equipment Training (2 days) Apr 20 Critical Incident Stress Management Nov 16 Mentor Recertification May 7 – 9 Mentor Certification Nov 28 – 30 Call-Taker Recertification May 22 Vermont Domestic Violence Dec 14 xTrakker 9-1-1 Call Handling Jun 4 – 6 Call-Taker Recertification Jun 18 – 22 40 Hour Call-Taker Certification Jun 26 & 27 Equipment Training (2 days) Jun 28 & 29 Equipment Training (2 days) Jul 10 & 11 Equipment Training (2 days) Jul 24 & 25 Equipment Training (2 days)


ONGOING ISSUES

Addressing

For citizens to receive the full benefits of Enhanced 9-1-1 service, continued attention must be given to certain details at the local level. Staff is currently working with communities to reconcile discrepancies between the addresses in the ALI database and the GIS database. Addresses in both these databases need to be in synch in order for the map display to work effectively. Some communities need to follow the established procedures for maintaining the data. In some areas, citizens still have not posted their house numbers, making it harder for police, fire, and emergency medical service providers to locate them in an emergency. Some neighborhoods still have a confusing mixture of old and new numbers. Towns must enforce their local ordinances. Local emergency responders need to inform the Board immediately of changes to their service jurisdictions or dispatching arrangements because those changes have an impact on the 9-1-1 system and 9-1-1 call processing. PSAPs that become aware of addressing or database issues need to follow the established procedures diligently so the Board can correct the problems. Multi-Line Telephone Systems

As previously noted, many PBX, CENTREX and key telephone systems are not providing the level of service to their end users required by law. Although we are a small staff, we continue to work proactively with multi-line telephone system owners, telecommunications carriers, and vendors. The cost of retrofitting some older private telephone system equipment is prohibitive for many smaller businesses, making it difficult for them to comply. However, that is not the case for most large enterprises. We have much work to do to ensure that these types of systems conform to statutory requirements. We will focus on the State of Vermont’s telephone system, which is a challenge because the frequent moving of state offices and employees creates the need to constantly update the database necessary to pinpoint the location of a 9-1-1 call made from a State office. Also the State of Vermont’s telephone system still needs to incorporate precise location information for all the telephone lines associated with the Waterbury Complex. Progress has been slow as an accurate inventory of all the telephone lines and their locations is tedious and time consuming.

Wireless Carriers

Wireless carrier interconnection with the Enhanced 9-1-1 system has a variety of tasks, issues, technical requirements and challenges. For example, every cell tower has to be “addressed,” assigned one or more pseudo ANIs (pANIs), incorporated into the ALI and GIS databases, and its Radio Frequency (RF) footprint analyzed and mapped so that each sector can be programmed to route calls to the appropriate PSAP. This process occurs on an ongoing basis each time a carrier builds and activates a new tower, or changes its technology. Since each wireless carrier uses different technology, close coordination between the Board’s staff, the wireless carrier, and its various vendors is essential to a successful outcome. All five wireless carriers (Verizon Wireless, Sprint/Nextel, T-Mobile, Unicel and US Cellular) have completed implementation of wireless Phase II Enhanced 9-1-1. This means that wireless calls are capable of providing a call back number, the address of the tower that processed the wireless 9-1-1 call, as well as the latitude and longitude coordinate location of the caller. It is important to note that the accuracy of the coordinate is based on several factors: type of wireless handset used by the wireless caller, the type of wireless location technology used by the wireless carrier, the number of towers located within the proximity of the wireless 9-1-1 call, and environmental conditions.


AT & T Mobility plans to offer service in Vermont, but will only be Phase I compliant by the end of the first quarter of 2008. This is due to the limited number of towers that AT & T will initially deploy in Vermont, which will inhibit the capability of providing latitude and longitude information with their wireless 9-1-1 calls. More and more customers are abandoning their wire line telephone service for wireless service. As wireless phones are by nature mobile, they are not associated with one fixed location or address; a 9-1-1 caller using a wireless phone could be calling from anywhere. Customers need to be aware that while switching from a wire line phone to a wireless phone may be more convenient and economical, they will have sacrificed the provision of a reliable fixed address during a 9-1-1 call for location information that may only provide a general direction that is not always specific enough for delivery of emergency services.

Local Number Portability (LNP)

LNP allows phone subscribers to maintain the same phone number when they change carriers. LNP is designed to conserve a dwindling supply of available telephone numbers and area codes. LNP poses ongoing challenges for most of the Competitive Local Exchange Carriers (CLECs). Recent ALI Database reports indicate that the number of service order fallout due to LNP has dropped to 15% of the errors as compared to April 2006 when it was 21% of the service order fallout errors. Database errors are generated when the donor company does not unlock the telephone record so the recipient company can port it. The Enhanced 9-1-1 Board requires ported telephone customer records to be unlocked and successfully migrated before they can be inserted or deleted from the ALI Database. Failure on the part of the incumbent telephone companies and CLECs to resolve this problem constitutes a major compliance issue that affects the quality of service, i.e., has public safety ramifications.

Wireless Number Portability (WNP)

WNP enables customers to migrate from their wire line service to a wireless service and vice versa, or to switch from one wireless carrier to another without changing their phone number. WNP became available in Vermont in May 2004. As with LNP, improper porting could hinder the delivery of Enhanced 9-1-1 service to someone who calls for help. In addition, customers that give up their wire line telephone service and “go wireless,” have given up access to reliable Enhanced 9-1-1 service.

Voice over the Internet (VoIP)

VoIP, which stands for Voice over Internet Protocol, is a technology that allows customers to make telephone calls using a broadband Internet connection instead of a regular (or analog) phone line. Some services using VoIP may only allow calls to other people using the same service, but others may allow calls to anyone who has a telephone number - including local, long distance, mobile, and international numbers. Also, while some services only work over a computer or a special VoIP phone, other services allow use of a traditional phone through an adaptor. Unlike regular telephone service, VoIP customers did not have Enhanced 9-1-1 service until the FCC ordered VoIP providers to provide Enhanced 9-1-1 service in orders issued in May 2005, which required that Enhanced 9-1-1 service be provided. As the number of VoIP providers in the United States able to comply with the order increases, the Board contractually requires any VoIP providers doing business in Vermont to provide a very high standard of service within the requirements of the FCC order. We are continuing to work closely with the VoIP service providers to implement solutions that provide VoIP customers in Vermont with the same level of Enhanced 9-1-1 service that the rest of the public receives. The Board requires all VoIP carriers wishing to do business in Vermont to execute a contract with the Board that obligates them to recognize the highest standards for VoIP, in recognition of the FCC Order.


Stand-Alone and Redundant/Alternative Pathway

“Stand-alone” occurs when a calling area is isolated for any reason, e.g., digging up a phone line, a tree falling, vehicle hitting a pole, or any other number of potential accidents. Sometimes when this happens a particular town cannot call outside of its calling area, but can still hear a dial tone when trying to make a call. This impacts that town’s ability to dial 9-1-1. If someone needs to call 9-1-1 during a stand-alone situation they will hear a dial tone, dial 9-1-1, but get a fast-busy signal. This is not an unusual occurrence. In 2007, there were numerous instances of stand-alone caused by phone company central office (CO) isolation of varying duration; in 2006, there were at least twelve instances of “stand-alone.” In most cases, although 9-1-1 service is interrupted, a caller is still able to dial a local seven-digit number in order to reach a local responder. In many rural areas, however, those responders may not be available 24/7. The problem involves the way calls are routed through central switching offices (CO) controlled by telephone companies. Some CO calling areas have a 24-hour dispatch point directly connected to it, but where this is not the case things are more problematic. In those cases, there is nowhere to send the 9-1-1 calls without an alternative to the phone system. There are solutions to this problem. A cellular connection could be used. Johnson is an example of an area where this would work. There are areas in Johnson that are serviced by the Johnson CO switch that have a clear view of cellular antennas serviced by the Morrisville CO. An alternate route could be directed through a cellular connection to a number not served by the Johnson CO, which would then route to the Lamoille County Sheriff’s Office PSAP. Similarly, this could be accomplished with cable or other non-telco based broadband connection. A CO with access to a cable provider could establish a broadband cable connection and run VoIP over the connection. The alternate route would then be configured to use this connection. Calls from the isolated CO would take the fourth route over the cable infrastructure out of the isolated area where they could be routed to a PSAP. The Board is currently engaged in a rulemaking process with the Public Service Board (PSB) and is asking for a redundant or alternative pathway for calls in isolated situations, where a technology solution is feasible. In the case of places where technology is not feasible, the solution could be as simple as some kind of requirement whereby the subscribers in a given area are instructed as to the availability of some local seven-digit number in the event that area is isolated from the 9-1-1 system. Another possible solution is a different type of busy signal during stand-alone, or a message that would inform the caller of the situation when the system sensed a stand-alone, isolating event. Any kind of solution requires the cooperation of every telecommunications carrier and necessitates a PSB Rule to force participation and compliance. ADA Compliance

We have established a good working relationship with advocates from the deaf and hard-of-hearing communities. A deaf advocate teaches the deaf awareness and communication segment of our basic training course and helps coordinate the volunteer network that makes TTY test calls to the PSAPs. Use of the TTY has greatly diminished as the deaf community embraces technologies like Instant Messaging, Blackberry devices and video conferencing. The Next Generation 9-1-1 system currently in place gives us a greater opportunity to accept additional types of communications. The goal is to ensure that 9-1-1 call-takers can communicate effectively with deaf and hard-of-hearing callers, which is a requirement of the Americans with Disabilities Act (ADA).


NEXT GENERATION E9-1-1

Why Did We Change the Vermont E9-1-1 System?

The year 2006 witnessed a fundamental change in the technology driving the 9-1-1 system. Our system provider Verizon announced in September of 2005 that it would not support our current system beyond calendar year 2006, which was merely 15 months away. The 9-1-1 Board was therefore presented with an enormously complicated problem. The first question was whether Verizon had any technical solutions to offer the State of Vermont, in light of its stated intent to cease supporting our system. In the event Verizon did not, the second question was what the Board could do to fulfill its statutory duty in light of the impending demise of its 9-1-1 system. It should be noted that the 9-1-1 industry was standing at the threshold of next generation technology that would move 9-1-1 systems from standard wire line telephony, circuit switching, and telephone company-controlled call routing to technologies based on internet protocols. These technologies put more control in the hands of the system owner and are generally easier to manipulate, change or upgrade. The Board invited Verizon representatives and subcontractors to its offices to discuss next generation technology and what Verizon could offer the State of Vermont as its 9-1-1 system reached obsolescence. Verizon could not offer any new, IP-based technologies at that time. The only alternative Verizon offered was more outdated technology that would likely be obsolete before any upgrade was complete. After consultation with staff and Board members, the Board made the decision to engage in the bid process for a new E9-1-1 system. Six months before the last contract extension took effect with Verizon, the Board had requested, and was approved by the Administration for, a three-year term for that extension. Verizon, as previously noted, granted only 15 months. The Board intended to request information (RFI), formulate system design criteria, issue a request for proposal (RFP), review bids, select a vendor, and deploy the new system over the course of that three year term. Instead, we began the RFI/RFP bid/deployment process in November of 2005, issued the RFP at the end of January 2006, selected a successful bidder by May, and began deployment in July, all with the December 31, 2006 contract expiration deadline in mind. Although this tight timeframe was not ideal for a project of this scope, Verizon gave us no choice.

The Board requested proposals for a forward-looking E9-1-1 system that takes advantage of recent advances in technology. These advances included:

• Convergence of voice, data and graphics

• Robust IP networks such as those that support e-commerce

• Open systems, as opposed to more costly proprietary systems

• Advanced wireless services beyond simple cellular service

• Vehicle Telematics, including the ability to transmit data to a responder vehicle

• Third Generation Cellular In deploying the new 9-1-1 system, the Board used available technology to offer service which exceeds what is available today. We recognize that networks which support billions of dollars of transactions daily (i.e., ATM machines) can also provide the reliability necessary for 9-1-1 service in a cost effective manner. By using technologies that are tried and proven in the commercial sector, the Board hopes to gain many of the benefits that have been realized by businesses when transitioning from proprietary and often hardware-based


legacy systems to open systems based upon commoditized components and accepted open standards. Some of the benefits we are seeking include:

• Lower technician call-out

• Access to an abundance of well-trained technical staff

• Increased reliability

• Flexibility to accommodate changing requirements

• Resiliency, survivability

• Ability to easily integrate new technology

Highlights of the New 9-1-1 System

Vermont’s new 9-1-1 system is both flexible and scalable. A blizzard may be raging in the Southern part of the state while the skies are clear in the North. An inflexible 9-1-1 system impedes the ability to balance the load among the available call-takers. Population growth is not even throughout the state. PSAPs need to be able to grow or shrink easily. We currently have a purpose-built, dedicated IP network which is the best way to accommodate both current and future needs. A network based on internet protocols (IP) can provide the resiliency that a 9-1-1 system requires. In the IP environment, our new system is now located in E9-1-1 Board controlled space. We have two data centers, geographically located in the eastern part of the state and in the central part of the state. Each emergency calling data center, or ECDC, houses one cabinet of equipment that forms the core of the system. This equipment is co-located with other systems having similar security requirements in a larger facility, with card-swipe security access to Board personnel. The data centers have the appropriate auxiliary power and environmental infrastructure to support “five-nines” (99.999) or better up-time. The data centers include the equipment to translate incoming 9-1-1 calls into VoIP calls, and then route them to the appropriate PSAP. They also include the ALI database, mapping, management information system, call logging, and system administration equipment. Either data center has the ability to support the entire 9-1-1 system. In the event of a catastrophic failure in one data center, all PSAPs remain functional. Redundant communication links between the two centers allow them to function as a single entity. Each PSAP contains redundant equipment and utilizes redundant communication links to connect it to each data center. PSAPs are able to remain operational in the event of a failure to any data center. This is a fundamental fail-safe feature of an IP-based system. The network can use diverse facilities for data communication. This may include landline, dark fiber, State- owned microwave, cable, satellite or wireless. The failure of any single entity will not result in the failure of the 9-1-1 system. All aspects of the system are designed so that there is no downtime for scheduled maintenance. Security is built into every layer of the network. Network access control restricts use of the 9-1-1 network to authorized devices. Authentication and access controls are centralized in some form of AAA (Authentication, Authorization, Accounting) server. The network access controls are able to control access based on conditions such as current anti-virus signatures. All data will be encrypted while in transit and in storage. A firewall allows for highly controlled VPN access into the system from the internet. Initially this would be used for system support. In the future it may allow VoIP 9-1-1 calls into the system, bypassing the traditional PSTN. It could also be configured to allow outbound access to a limited number of internet sites, such as a poison control center. There were ten PSAPs active in 2007, with the number of fully staffed call-taker positions reduced from 2006 by four to 30. That number is per national standards of call-takers per capita, with additional positions factored in to account for population fluctuations. Our system did not lose four positions. Instead, they were relocated to the


Board’s offices to provide both a realistic training environment, as well as the capability of adding call-takers during extreme emergencies. The new system design is depicted below. It is important to note that everything within the IP “Cloud” belongs to the State of VT. The State controls the selective routing of its 9-1-1 calls and can adjust call flow to any of its PSAPs at will.

Flexibility in call routing with an IP-based system will allow the Board to configure the network to allow each PSAP to work independently, be dedicated to a single area, or be part of a larger “virtual PSAP” where a single PSAP extends beyond the physical boundaries of a single building. A virtual PSAP is therefore one which may not have to recognize physical boundaries, as the need may dictate. There could be one or many virtual PSAPs. Virtual PSAPs could co-exist with dedicated PSAPs, and would eliminate the need for the current scenario of having one default PSAP. Reconfiguration will be easily accomplished, for example, to dedicate additional call-takers to handle cellular calls during a snowstorm. Scenarios can be pre-configured to allow for easy implementation.


PSAPs should not be consolidated in one or two locations. Katrina and 9-11 demonstrated the value in dispersing 9-1-1 call-taking functions. A major snowstorm on top of one consolidated PSAP could mean zero 9-1-1 capability, and the same scenario in a two-PSAP environment could mean half the capability at a time when the system is inundated with calls. The IP environment will allow for cost-effective dispersal, which means disaster survivability. The Board has the option to bring maintenance of the ALI database in-house. To streamline the administration of the database and mapping, the ALI database will be map-centered. Changes to the ALI database will be reflected in the mapping and vice versa. A map-centered call-handling solution will present call-takers with much more information, in an easily usable format. The system will be able to easily incorporate new technologies as they become available The new system is built from the ground up with interoperability in mind. Strict adherence to standards allows the 9-1-1 system to participate in a larger system, if needed. For example, in the event of a Katrina-like event in the Northeast, the Vermont Enhanced 9-1-1 system would be able to interact and support emergency services in neighboring states. In addition, the system will be capable of pushing vital information out to responder vehicles if they are properly equipped with mobile computers. Today, this is becoming increasingly common among local and state law enforcement, and other emergency responders in Vermont. The system will support an emergency notification system (ENS); also sometimes referred to as “reverse 9-1-1” (see Appendix C). An area can be defined on a map and all phone numbers in the area can be exported to a list of a pre-recorded message sent to them via a phone call. The ENS system should be able to differentiate between fax, data and voice lines, dropping the data lines and delivering the message as a fax for fax lines. Call-prompting and automatic response capability will be supported. The ENS feature will be available in the spring of 2008 and will only be used by agreement with the E9-1-1 Board in order to protect the privacy of telecommunications subscribers. The Board currently has a Memorandum of Understanding executed with Vermont Emergency Management for the use of ENS, as well as the capability to execute the ENS feature at the Board’s offices or any of its PSAPs. The E9-1-1 Board cut-over to the new system on February 22, 2007, after a brief period of additional support from Verizon in the current calendar year. Vermont has the distinction of being the first statewide, end-to-end IP-based 9-1-1 system in the nation.

The cut-over to the new system came with the typical difficulties attendant to any change in technology. The Board determined that the most responsible option was to go to bid on a new system and this was done with the Administration’s support and approval (see above). Our new system contractor is microDATA 9-1-1, a company located in St. Johnsbury, Vermont. It had previously contracted with the Board to supply its geographic information system software, as well as to map the state of Vermont prior to the first iteration of the state’s E9-1-1 system in 1998. The bid we selected for Vermont’s new system represented the best technology as well as the best price for the public.

Estimated Cost to Operate the System

The Board has maintained a level funded budget for several years. We received a 35% increase in our budget for FY08. This increase funds the yearly payment to amortize the new system purchase and installations costs, regulated tariff charges set by the Public Service Board, and trunk lines and circuits, both which were previously included as part of the Verizon contract. Verizon is seeking to levy, and the Board is disputing, additional charges that relate to the daily updating of telephone subscriber records in the Board’s database. By using a contractor, we have been able to accommodate a complex, statewide system without commensurately growing our level of staffing. Now that we have achieved full implementation, we are reviewing system


components to determine whether it is feasible from a business standpoint to bring certain functions in-house, such as database management. We are also currently reconfiguring our trunk and circuit architecture, as well as our PSAP footprint, in order to achieve greater efficiencies. We seek to more equitably distribute call load among fewer PSAPs over fewer trunk lines, thereby maximizing the benefit of our improved technology and lessening the call-taking burden on specific PSAPs. As previously noted, the Board currently subsidizes the call-taking operations at some of its PSAPs. These subsidized PSAPs bear the burden of the majority of 9-1-1 calls. The Board wants to balance the call “catchment” areas of all the PSAPs comprising the system, requiring the unsubsidized PSAPs to bear more of the call load than they traditionally have. This increased local responsibility requires Board subsidy. We can make this happen, thereby achieving a truly statewide E9-1-1 system with participation commensurate with the number of call-taker seats at a given PSAP. Any system reconfiguration will involve reallocation of resources, whether technical or financial. It should be noted that Verizon could not accommodate the trunk and circuit architecture we requested within the time constraints under which we deployed our new system in 2006/2007, resulting in higher costs for our system. Although it was time-expedient that we adopt the Verizon trunk architecture then, we are now nearing the end of that initial trunk and circuit contract and see significant savings through changing the type of lines we use (analog to digital), as well as the mileage involved in transmission. Proper sizing of the system is like obtaining sufficient insurance, and the E9-1-1 system is effectively the only universal health, life and property insurance we have. System capacity is a function of population, fluctuations thereof, risk, and technical capability. Vermont has 30 active and 4 reserve call-taker positions serving the needs of 620,000 Vermonters, and multiple millions of visitors each year traversing its roads and interstates, and crossing its international boundary. We are appropriately sized for a state with our population and tourist impact, and we can maintain readiness while realizing cost savings by reconfiguring PSAPs and call flow.


APPENDIX A

Enhanced 9-1-1 Program Overview

Every aspect of Vermont’s Enhanced 9-1-1 service is governed by a comprehensive set of standards and best practices. System design and performance standards are based on nationally accepted standards and best practices for E9-1-1 systems, including those established by the FCC’s Network Reliability Council, SIA, ASTM and ANSI standards. The Board is the sole governmental authority responsible for statewide Enhanced 9-1-1. This responsibility includes ensuring compliance with Enhanced 9-1-1 laws, regulations, standards, policies and procedures. The goal is to ensure that people who call 9-1-1 receive the same level of service no matter which PSAP answers their call, and no matter whether they receive service from a LEC, CLEC, privately owned multi-line telephone service, wireless carrier, or Voice over Internet Protocol (VoIP) provider. Thus, the Board’s oversight includes every aspect of Enhanced 9-1-1 service and involves numerous stakeholders. System Configuration

The major components of the statewide system design are redundant, fault tolerant and geographically diverse. The telephone network in and out of the state-operated PSAP in Williston is further diversified to protect it from failure. An automatic sequence for default routing ensures that every 9-1-1 call is answered. The overall program is designed to ensure system reliability and service quality. Disaster Recovery Contingency Plan

Vermont’s Enhanced 9-1-1 system design includes a Disaster Recovery Contingency Plan. Elements of that Plan include:

• A pre-programmed, automatic sequence for alternate and default routing to ensure that every 9-1-1 call is answered;

• Assignment of federal Telecommunications Service Restoration Priority (TSP) identification numbers to each Enhanced 9-1-1 circuit to ensure priority restoration of service in the event of a service interruption;

• A statewide Wide Area Network (WAN) that links all PSAPs to a central hub where PSAP data are archived and where the PSAP portion of the E9-1-1 network is administered.

• Individual PSAP Disaster Recovery Contingency Plans, including back up communications. As detailed in the main report, none of the PSAPs have finalized their internal DRCPs.

Network Performance

System reliability and service quality require daily, active surveillance of network performance. The E9-1-1 system has the capability for real-time tracking of 9-1-1 call processing statewide. The Board, and its system provider, can generate custom reports to facilitate historical and statistical analysis of the system’s operation.


Database Performance

System reliability and service quality require ongoing maintenance, auditing, and improvement to the system databases. There are five different databases in the Vermont Enhanced 9-1-1 system:

1. Master Street Address Guide database (MSAG) 2. Emergency Service Zone/Emergency Service Number database (ESZ/ESN) 3. Selective Routing database (SR) 4. Automatic Location Identification database (ALI) 5. Geographic Information System database (GIS)

Proper oversight of database quality includes:

• Coordination with seven incumbent LECs;

• Coordination with six active CLECs;

• Coordination with six active wireless carriers;

• Coordination with two VoIP providers;

• Coordination with 540+ PBXs;

• Coordination with ten Primary PSAPs;

• Coordination with approximately 411 emergency response agencies and their respective dispatching services;

• Coordination with 261 participating municipalities;

• Mapping new roads and structures;

• Routine auditing of system data to ensure data integrity and quality;

• An internal, automated system for auditing the processes that affect database quality.

Changes to the Existing System Configuration

System reliability is always considered in developing procedures for making any change to the system:

• The Board must review and approve any major changes to the system recommended by its staff.

• A detailed Method of Procedure (MOP) must be approved by the Board’s system provider and the Board's staff before any change to the system, no matter how small, can be made.

9-1-1 Call-taker Training

System reliability and service quality include 9-1-1 training. The Board’s comprehensive Enhanced 9-1-1 Training Program includes:

• Basic call-handling skills and pre-arrival instructions for Police, Fire and Medical Emergencies;

• Annual CPR Certification;

• Hazardous Materials Level I awareness;

• A continuing education requirement of sixteen hours each year;

• A Mentor Certification program for internal PSAP peer support (additional training and certification is required for Mentors);

• 9-1-1 Call-taker re-certification every three years;

• Equipment operations, including the call-handling hardware and software, Mapped ALI and ancillary


equipment such as printers and logging recorders;

• Specialized training for PSAP Administrators and Supervisors;

• Training Bulletins as needed.

PSAP Accountability

System reliability and service quality include oversight of PSAP operations and 9-1-1 call-taker performance. The program includes:

• A PSAP Operating Manual governing call-handling procedures;

• Periodic review of the PSAP Operating Procedures Manual with input from PSAP personnel and Board members;

• Enforcement of relevant Enhanced 9-1-1 laws, the Technical and Operational Standards for Vermont Enhanced 9-1-1, the PSAP Operating Procedures Manual, and other rules, policies and procedures;

• Ongoing call reviews for each PSAP;

• Remedial training administered as needed;

• De-certification as needed;

• Operation of a Help Desk for reporting troubles with call-answering equipment;

• Ongoing training on equipment;

• Monitoring of PSAP performance (real time and historical).

Telecommunications Industry Accountability (LECs, CLECs, Wireless Carriers and VoIP Service

Providers)

System reliability and service quality require the Board to work closely with each telecommunications company operating in Vermont to ensure compliance with relevant Enhanced 9-1-1 statutes, regulations, policies and procedures. The program includes:

• Staying informed of PSB activities that authorize new telecommunications service providers;

• Intervening in PSB dockets to ensure that Enhanced 9-1-1 issues are addressed;

• Staying current with FCC Orders and regulatory activities that impact 9-1-1;

• Intervening in FCC dockets to ensure that Enhanced 9-1-1 issues are addressed;

• Establishing formal liaisons with each telecommunications carrier;

• Managing CLEC interconnections;

• Managing wireless carriers’ Enhanced 9-1-1 implementations as mandated by the 1996 Federal Telecommunications Act and associated FCC Orders and Regulations;

• Managing ALI database development and maintenance;

• Managing Central Office upgrades and conversions;

• Auditing network and database performance against established benchmarks;

• Enforcing performance standards;

• Participating in the development of Enhanced 9-1-1 tariffs.

Privately Owned Telephone Systems (PBX, Centrex and other private multi-line telephone systems)

System reliability and service quality require the Board to ensure that approximately 540 private telephone system owners comply with relevant Enhanced 9-1-1 statutes, regulations, policies and procedures. This is necessary


because these systems pose challenges for Enhanced 9-1-1. The law requires privately owned telephone systems to provide their users with the same level of Enhanced 9-1-1 service as regular telephone users have. The oversight program includes:

• Ongoing review of individual PBX switches and Centrex systems for compliance;

• Technical assistance, consultation and education;

• Coordination with telephone companies that provide PBX and Centrex systems to their customers.

Vermont’s Emergency Response Agencies

System reliability and service quality require the Board to maintain close working relationships with some 411 law enforcement, fire and emergency medical response and dispatching agencies serving Vermont. This includes:

• Making reasonable efforts to meet their technological needs;

• Responding to their feedback regarding how PSAPs handle 9-1-1 calls;

• Maintaining the Emergency Service Zone and Emergency Service Number databases to reflect the constant changes in emergency service provider geographic jurisdictions, telephone numbers, dispatching arrangements, etc.;

• Educating them on the need to notify the Board of ESZ and ESN changes immediately.

ADA Compliance

System reliability and service quality extend to people who use TTY devices to get access to the service:

• The system’s technical design is compliant with ADA requirements for the deaf;

• The system accommodates Hearing Carry Over (HCO) and Voice Carry Over (VCO) for people with those particular communication needs;

• Procedures for ongoing TTY practice with PSAP personnel have been implemented in conjunction with the deaf and hard of hearing communities. This helps 9-1-1 call-takers to maintain fluency in the written form of American Sign Language (ASL) and thereby provide the same level of service to deaf callers as to hearing callers.

Medical Quality of Care

System reliability and service quality include meeting the standard of pre-arrival care established by Vermont’s emergency medical community. To meet this need, the Board utilizes the services of an emergency medical physician to advise on these standards.

• The physician serves as Medical Advisor to the Enhanced 9-1-1 Board on medical policy, medical call-handling procedures and pre-arrival instructions;

• The physician helps the Board ensure proper 9-1-1 call-taker performance on calls for emergency medical assistance;

• The physician is available to mentor and guide PSAP personnel on matters relating to calls for emergency medical assistance.


Conclusion

The Vermont Enhanced 9-1-1 Board’s ongoing program includes oversight of every aspect of Enhanced 9-1-1 service and involves numerous stakeholders. The Board is responsible for ensuring compliance with Enhanced 9-1-1 laws, regulations, standards, policies and procedures. The Board is responsible for ensuring that people who call 9-1-1 receive the same level of service no matter which PSAP answers their call, and whether they receive service from a LEC, CLEC, privately owned telephone service, wireless carrier or VoIP provider carrier. Oversight covers:

• The statewide Enhanced 9-1-1 network, including components located out-of-state;

• Five Enhanced 9-1-1 system databases;

• Ten Primary PSAPs and professional qualifications of affiliated personnel;

• Seven Local Exchange Carriers (LEC, wire line telephone companies);

• Approximately twenty-two Competitive Local Exchange Carriers (CLEC; six of them are active);

• Six wireless/cellular providers;

• Two VoIP Providers;

• Over 540 Private Branch Exchanges (PBX, private telephone switches);

• Over 411 emergency response agencies and affiliated personnel (local police, sheriffs, Vermont State Police, fire and emergency medical departments);

• Administration of the Vermont Enhanced 9-1-1 Call-taker Training and Certification Program;

• Coordination with Vermont’s deaf and hard of hearing communities;

• Administration of the Enhanced 9-1-1 Mentor Training and Certification Program;

• Conformance with Enhanced 9-1-1 law, regulations, policies and procedures;

• Administration of the Medical Quality Assurance Program;

• 261 participating municipalities and their affiliated Enhanced 9-1-1 committees.


APPENDIX B

9-1-1 System Statistics – 2007

This report breaks down the operational statistics, by PSAP, for the period from system cut-over on 2/22/07 through the end of the year. For each PSAP this report shows the total calls for the PSAP and the percentage of the system total. It then displays the breakdown between wire line and wireless, and between residential, business, cellular, and abandoned. The average length of a 9-1-1 call and the average time to answer a call are displayed at the end of the row for each PSAP. The stacked bar graph graphically portrays the call distribution between PSAPs and between wireless and wire line call types. The pie chart shows the breakdown of calls by class of service for the entire period.

Rep

ort to the Governor – Jan

uary 2008

35

Calls by PSAP

Total

Wire line

Non-Wire line

Residential

Business

Cellular

Abandoned

Average times

PSAP

Count

%

Count

%

Count

%

Count

%

Count

%

Count

%

Count

%

Duration Answer

Derby

16591

10.61%

9805

59.1%

6652

40.1%

7276

43.9%

2529

15.2%

6652

40.1%

2071

12.5%

02:52.0

00:07.0

Hartford

3664

2.34%

1695

46.3%

1952

53.3%

1086

29.6%

609

16.6%

1952

53.3%

509

13.9%

01:53.0

00:08.0

Lam

oille

5336

3.41%

3021

56.6%

2289

42.9%

2045

38.3%

976

18.3%

2289

42.9%

955

17.9%

01:51.0

00:08.0

Montpelier

3454

2.21%

2083

60.3%

1356

39.3%

1185

34.3%

898

26.0%

1356

39.3%

528

15.3%

01:59.0

00:09.0

Rock

ingham

21806

13.95%

11412

52.3%

10246

47.0%

8135

37.3%

3277

15.0%

10246

47.0%

2796

12.8%

02:21.0

00:08.0

Rutlan

d

31519

20.16%

16651

52.8%

14631

46.4%

12037

38.2%

4614

14.6%

14631

46.4%

4554

14.4%

01:53.0

00:08.0

St. A

lban

s 1538

0.98%

1335

86.8%

192

12.5%

897

58.3%

438

28.5%

192

12.5%

182

11.8%

01:43.0

00:08.0

Shelburne

2838

1.82%

1620

57.1%

1199

42.2%

1106

39.0%

514

18.1%

1199

42.2%

449

15.8%

02:57.0

00:08.0

Springfield

1751

1.12%

1056

60.3%

681

38.9%

777

44.4%

279

15.9%

681

38.9%

291

16.6%

02:20.0

00:07.0

Williston

67810

43.38%

27223

40.1%

34878

51.4%

17745

26.2%

9478

14.0%

34878

51.4%

8334

12.3%

02:22.0

00:05.0

System

156307 100.00% 75901 48.6% 74076 47.4% 52289 33.5% 23612 15.1% 74076 47.4% 20669 13.2%

02:17.0 00:07.0

Rep


uary 2008

36

Rep


uary 2008

37

Rep


uary 2008

38


APPENDIX C

xNotifier: ENS for the State of Vermont

Description:

xNotifier is a Windows-based outbound notification system with the capabilities to contact subscribers via geographic proximity or call list. Authorized personnel use this tool as a means to inform and advise affected individuals in the event of emergency situations. Example scenarios may include but are not limited to:

• SWAT team deployment; citizens to shelter in homes

• Pollutant / hazardous material spill in water source; citizens to use alternative water

• Dangerous wildlife at large in populated area (bear); citizens to shelter in homes

• Rolling utility black outs due to severe weather; citizens to find alternate shelter

• Flash floods; citizens to climb to higher ground

• Bomb threat / mud slides / forest fire / avalanche warnings; citizens to evacuate

• Felon at large in populated area; citizens to shelter in homes and report suspicious activity

Data:

The reverse notification system works in conjunction with the xT911 and xALI DBMS system for the state of Vermont. Geocoded data originates from the E9-1-1 ALI database, which is updated daily by telcos, CLECs, Wireless carriers, VOIP carriers, and independents with service orders. These telephone records are then geocoded by address to a map for outbound calling purposes. All E9-1-1 records for the state of Vermont are included in this data set. Contacts may also be built and categorized into standing call lists. These identify specific individuals and the means by which they should be contacted (i.e.: wire line phone, cell, pager, email). A combination of identified call recipients (call list or mapped polygon) and an outbound message are the necessary components for a notification launch.

Event Launch Types:

1-Geographic / polygon launch: This event is map or location driven. Event boundary parameters may be drawn at the time of launch as a polygon on the map display, or an address or intersection may be selected for launch to phone lines within an adjustable radius. A single event may be made up of multiple polygons. 2-Call list launch: These are used for specific identified contacts and may utilize notification devices such as wire line phones, wireless phones, pagers, faxes, and email. These may be stand alone call lists, or they may be geocoded to associated points (schools, for example). Messaging:

1-Voice recording: A voice recording may be stored in advance or at the time of launch to be associated to the selected notification recipients. These may be stored / archived for documentation.


2-Text to speech: A message may be typed into the UI to be delivered to notification recipients. This is used for emails, faxes, pagers, and TDD/TTY. Reports:

Reports are available online during the event and post-event. These will provide status on a particular event (in progress, completed), identify a summary of the event (how many calls were picked up by notification recipients, how many recipients didn’t pick up, were busy, etc), and identify the TNs and addresses of recipients of an event. Outbound Calling: Calling Strategy consists of a configured number of retry attempts and interval between attempts. Call prioritization will default to recipients from the center of the polygon to the extents of the polygon. This may be altered to reflect calling prioritization based from a user-designated point. Call list participants may also be prioritized with indications of High, Medium, or Low calling order. Calling capacity is reflective of the number of ports purchased per PSAP. This is subsidized by the use Capacity on Demand for large event types.

Permissions:

System Access: Events are launched and canceled by users with administrative xTrakker access. Users are authenticated upon logon and provided the appropriate permissions based on the associated PSAP. This includes access to specific call lists, message recordings, and message scripts. SOPs: As the geographic data is originated from the E911 database, citizen privacy issues shall apply. The system should not be used for events other than qualified emergency notifications. The State of Vermont will be responsible for determining the correct individuals for the following authorizations:

• Parameters for utilizing a reverse notification

• Who authorizes system use / launch

• Who defines the affected area / determines event type to be launched

• Who creates / records the message to be sent to recipients

report to the governor and vt general assembly

Documents