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HomeMy WebLinkAboutMINUTES - 05132003 - D2 0 D,Z TO: BOARD OF SUPERVISORS CONTRA 4,g _ COSTA ' Mkti - FROM: Jahn Sweeten, County Administrator COUNTY DATE: May 13, 2003 SUBJECT: PUBLIC SAFETY RADIO SYSTEM UPGRADE -- SUPPLEMENTAL INFORMATION SPECIFIC REQUEST(S) OR RECOMMENDATION(S) & BACKGROUND AND JUSTIFICATION RECOMMENDATION(S): APPROVE the cost allocation for financing the recommended$5.225 million in short-term improvements to the County public safety radio system noted in Attachment A. ACKNOWLEDGE the general approach described herein for developing a multi-agency mechanism to design, finance and manage the implementation and maintenance of a long-term, state-of-the art public safety radio system serving the County, other public agencies in the County, and other agencies that may wish to participate in the system. APPROVE the recommendations contained in the report first appearing on your Board's agenda May 6, 2002 (Attachment C). BACKGROUND/REASONtS) FOR RECOMMENDATION'S): During discussion of recommendations regarding short-term and long-term improvements to the County's public safety radio system on May 6, 2003, the Board asked for(a)details regarding the allocation of costs for the short-term improvements, and (b)a general description of the approach contemplated for development of a multi-agency approach to the design, financing and management of the implementation and maintenance of the recommended long-term system improvement. CONTINUED ON ATTACHMENT: YES SIGNATURE: AaC RECOMMENDATION OF COUNTY ADMINISTRATOR RECO NDATION F BOARD COMMITTEE APPROVE OTHER SEGNATURE{S) ACTION OF BOARD ON Mao 13. 2003 APPROVED AS RECOMMENDED x OTHER VOTE OF SUPERVISORS UNANIMOUS{ABSENT 1 HEREBY CERTIFY THAT THIS IS A TRUE AND CORRECT COPY OF AN AYES: NOES: ACTION TAKEN AND ENTERED ASSENT: ABSTAIN: ON MINUTES OF THE BOARD OF SUPERVISORS ON THE DATE SHOWN. DISTR Cr III SEAT VACANT ATTESTED_ = 13, 2(103 JOHN SWEETEN,CLERK OF THE BOARD OF SUPERVISORS AND COUNTY Administrator By �� S� DEPUTY CLERK Contact: Scott Tandy cc: CAO Financing Short lean Improvements. Costs for this upgrade, which total $5.225 million, include $528,000 for tabor and engineering, and $4.697 million for various capital/equipment improvements and acquisitions. The portion of the improvements that address potential failure points in the existing system will be financed over a period of ten years. The balance of the debt-financed improvements will be financed over a five-year period. Labor and Engineering Costs. The costs include approximately $528,000 of up-front "pay-as-you-go"costs for labor and engineering. These costs, which are not appropriate for debt financing, include the following: $100,000 Addition of 2 VHF Channels 200,000 VHF Simulcasting 28,000 VHF System Coverage Improvements 2004000 Replacement of Low-Band Radio system $528,000 Total These costs are allocated to Contra Costa Fire District and five County departments as follows: $228,000 Sheriff's Office 100,000 Contra Costa Fire District 58,000 Public Works Department 46,000 Animal Services Department 38,000 Health Services Department 32,000 General Services Department 26.000 Building inspection Department $528,000 Total Capita!/Equipment Costs. The remaining project improvement cost of$4.697 million relates to the equipment/capital cost portion of various improvements: $3,060,000 Elimination of Potential Failure Points and Interoperability Improvements 219,000 Addition of 2 VHF Channels 650,000 VHF Simulcasting 170,000 Mobile Data Terminals 598,000 Replace Low-Band Radio System $4,697,000 Total Annual debt service costs will be approximately$769,000. These capital/equipment debt service costs are allocated based on channel usage, frequency usage and equipment usage; along with specific radio and hardware requirements specific to each agency. These cost allocations are identified in Attachment A. For the Board's information, Attachment B lists all system users, along with each agency's share of microwave system site maintenance. Within the Sheriff's Office approximately ten percent of the Sheriff's radio usage is attributable to contract cities. That amount has been incorporated into contract city charge schedules by the Sheriff. Multi A +endDeI n Financing_ and Management of Long-term S stem Replacement. As noted in prior reports to the Board, the development of a long-term, state-of-the-art replacement for the existing public safety radio system is anticipated to cost$40 million to$60 million. Such a project is beyond the capacity of the County alone to finance. Because many public agencies in the region will benefit from the existence of such a system, it is possible that other agencies may be interested in jointly designing,, financing and maintaining a replacement system. Indeed, such an approach is underway in Marin, where 23 public agencies have come together to form the Marin Emergency Radio Authority(MERA) for just this purpose. This is the approach that has been recommended by Federal Engineering, the consultant firm that has reviewed our existing system capacity and need's. Page 2 of 3 We do not know how this collaborative effort will play out. We have met twice with the Public Managers Association to discuss the concept, and the PMA endorsed the County's decision to engage Federal Engineering to survey the needs of public agencies that might have an interest in partnering in this effort. The County has been engaged in preliminary discussions within the context of the City-County Relations Committee of the Mayors Conference regarding ways in which the County and the cities in Contra Costa can collaborate to better serve the public. The radio system project is a premier example of such a collaborative approach. The effort to form a multi-agency forum to address the public safety radio system needs of the region will require a combination of technical expertise, and intergovernmental cooperation and effort. With the Board's approval, the County Administrator will take steps to identify the appropriate staffing resources necessary to move this process forward. When those resource needs are identified, Board authority and direction will be requested. The anticipated multi-agency approach will undoubtedly involve policy oversight and management oversight components, along with a technical advisory component. It is anticipated that a viable multi-agency structure-- be it a joint powers authority or some other structure—will take anywhere from 18 to 24 months to assemble, and perhaps longer. The bottom line for the County is that in order to be successful, the approach must address the fundamental needs of the Sheriff and the County's dependent fire districts. The challenge will be to achieve that objective while simultaneously addressing the needs of each of the partnering agencies that may have an interest in becoming a part of the new system. Page 3 of 3 ATTACHMENT A ANNUAL DEBT SERVICE COSTS FOR CAPITAL/EQUIPMENT IMPROVEMENTS Annul Debt °/oAnnual Debt Customers Service Service COUNTY DEPARTMENTS Animal Services $ 37,662 5% Building Inspection $ 25,067 3% Communit y.WarningSystem $ 3,963 1% Consolidated Fire $ 184,992 24°l0 Emergency MedicalServices $ 39,628 5% General Services $ 45,374 6% Health Services $ 32,105 4% Public Works $ 63,$79 8% Sheriff $ 273,603 36% SUBTOTAL $ 705,773 92°l PUBLIC AGENCIES AC Transit $ 18,387 2%fl AAAQCD $ 4,438 . 1% Contra Costa Water District $ 41438 ` 1% East Ba Regional Park Dist. $ 15;851 2% Sar: Ramon Valley Fire $ 13,317 2% SUBTOTAL1 $ 56,431 7% PRIVATE COMPANIES � —^ AMR. .. $ 4, 1 PG&E $ 2,537 0n/0 SUBTOTAL $ 5,975 1% CsRAND TOTAL $ 769,17$ 100% Attachment A.xis ATTACHMENT B MICROWAVE SITE MAINTENANCE Annual %Annual Maintenances Maintenance Customers Pee Fee COUNTY DEPARTMENTS Animal Services 7,631 1.12% Building Inspection _ 7,631 1.12% Community Warning_-g System � 43,482 1 6.38% Consolidated Fire 34,646 5.08% Courts _ — — 2,430 0.36% EmergencyEmergengy Medical Services � — 2601 3.90% Flood Control 8,1851 1.24°l0 General Services 11,468 1.68% Health Services 8,627 1.27% Office Of Emergency Serviceo 1,407 0.21% Public Works 7,376 , 1.08% Sheriff ~62,058 9.11% SUBTOTAL � 221,542 32.51% PUBLIC AGENCIES _ — AC Transit 20,926 4.39% Alameda Coupe 2,686 0.39% BAAQC© � 3,581 0.53% BART _ 199,681 2.89% Cal Trans _ 7,531 1.11% Central Sanitary Hist. 2,302 0.34% CHP _94_,254 ~� 13.83% Contra Costa Water District ` 101,345 1.52% East Bay MUD _ � 5,243 ' _0.77%� East Bay Regional Park i3 sfi. 45,189 _6.63% Golden Cate Bridge t3 stri!g 18,416 � 2.70% Mosquito Abatement District 3,297 0.48% Mt. Diablo School District 3,95.1 0.58% PittsburgPp__, 3,965 '— 0.58% Sari Raman Vaiigy Fixe 7,418 1.09% State Office of E'mer. Svc. 1,790 0.26% Tri DeltaTransit 3,951 0.58% SUBTOTAL 263,525 38.66°J'a PRIVATE COMPANIES _ 3A5,102 _Y 0.75% AMR � 6,353 .� 0.93"/0 Cellone 122,77318.01%o ©enalect 5,485 : 0.80% r &E 55,760 8.18% inet 1,023 0.15%0AL 196,495 28.83°I, i GRANt3 TE3TAL — 681,663 1oo.O /* Attachment B.xts ATTACHMENT C � TO: ` BOARD OF SUPERVISORS Contra Y John Sweeten, County Administrator 1 Cola OATS: May 6, 2003 Courty SUBJECT: PUBLIC SAFETY RADIO SYSTEM UPGRADE AND STRATEGIC REPLACEMENT PLAN FOR THE FUTURE SPECIFIC REOUEST(5)7a RECONMENOATION(S)&BACKGROUND AND JUSTIFICATION ffegOMENDATIONS• 1. ACKNOWLEDGE completion of the Public Safety Radia Master Flan and Final Report by Federal Engineering, Inc., of Fairfax, Virginia. 2. AUTHORIZE the County Administrator to pursue improvements to the existing County microwave infrastructure and radio system to ensure that radio communications will operate effectively for the next six years and DIRECT the County Administrator to utilize a combination of existing appropriations and new lease revenue bonds to finance these improvements. 3. DIRECT the County Administrator to develop a strategy to replace the existing County radio system by 2008 with a new system utilizing 700 MHZ radio channels or other available state-of-the-art technology. 4. ACKNOWLEDGE that the Office of the Sheriff is one of the primary users of law enforcement emergency communications and DIRECT the County Administrator consult with the Office of the Sheriff and other public agencies to determine the feasibility and additional actions needed for the long terra replacement radio system. 5. AUTHORIZE County Administrator to take necessary steps to secure the staff resources to proceed with the next phase of planning and design for a 700 MHZ or other available state-of-the-art radio system. CONTINUED ON ATTACHMENT; YES SIGNATURE; RECOMMENDATION OF COUNTY ADMINISTRATOR RECOMMENDATION OF BOARD COMMITTEE APPROVE OTHER SIGNATURES ACTION OF BOARD ON APPROVED AS RECOMMENDED OTHER VOTE OF SUPERVISORS I HEREBY CERTIFY THAT THIS IS A TRUE UNANIMOUS(ABSENT ) AND CORRECT COPY OF AN ACTION TAKEN AYES: NOES: AND ENTERED ON THE MINUTES OF THE BOARD ABSENT: ABSTAIN: OF SUPERVISORS ON THE DATE SHOWN. ATTESTED Contact; John Sweeten, Clerk of the Board of cc: See Page 4 Supervisors and County Administrator BY DEPUTY -....11.1................................................................................................................................................................................................................. .......................................... ....... 6. DIRECT the County Administratorto pursuethefeasibilityof creating a Public Radio Authority and Radio Board composed of multiple users to provide governance structure, funding authority, and unified participation in regulatory proceedings to obtain 700MHz radio channels. 7. AUTHORIZE the County Administrator to explore funding options for a new system, including but not limited to a surcharge on telephone bills for 911 emergency service which may require new legislation,federal grants and/or other voter-approved taxes. FINANCIAL IMPACT: Costs,through 2006,for upgrading the microwave infrastructure,including the elimination of potential failure points, are estimated at$3.060 million. Costs to provide a temporary solution for the existing radio system are estimated at$2.165 million. These two projects are essential to keeping the County systems operational, while a replacement system is planned, financed and installed by 2008. Costs for a long-term system replacement beyond 2008 could be as high as$40 to$60 million due to the extraordinary expenses of new equipment,acquisition of additional tower sites and addressing environmental issues. The allocation of costs for this new system will depend on the ultimate number of users in this new radio system. REASON FOR RECOMMENDATIONS AND BACKGRO NQ: U The existing public safety radio communication system used by the Office of the Sheriff and other County agencies is over 25 years old and has long been plagued by poor performance with regard to issues of capacity,inadequate coverage,interference and lack of interoperability with other emergency response agencies. The County must take steps to ensure a reliable radio system to protect the health and safety of the citizens of Contra Costa County in both the immediate and long-term future. CONSEQUENCES OF NEGATIVE ACTION: The existing public safety radio communications system will be unable to provide reliable communications forpublic safetyernergency personnel and mayfall during an emergency. BACKGROUND: The Office of the Sheriff and the Department of Information Technology have done a commendable job of mitigating shortcomings of the existing system given limited fiscal resources. Prior studies have outlined these inadequacies and have discussed the feasibility of other approaches,such as a trunked 800 MHZ system,VHF simulcast system and other types of radio technology. What has been lacking is a comprehensive county-wide inventory of current communications assets, a needs assessment, and a communications master plan that could serve not only the County and municipalities, but also fire districts and other agencies in the region. This comprehensive approach could increase the potential for public agency participation and governance while maximizing resources. The County Administrator has discussed this problem and opportunity with the Public Managers Association,which supported the County's plan to issue a RequestFor Proposal(RFP)to identify a consultant that could competently proceed with the required needs assessments, inventory, and master plan for a regional public safety radio communication system. On January 15, 2002, the Board of Supervisors awarded a contract to complete a radio system asset inventory, needs assessment and master plan to Federal Engineering, Inc. of Fairfax,Virginia, The County Administrator has worked with the Sheriff's Office and the Department of Information Technology to review the consultant's findings and recommendations, and to determine a recommended course of action to be considered by the Board of Supervisors. -2- ................ 11 D k V The contractor's assignment was to perform a needs assessment and inventory, and to develop short-term and long-range strategies for improving our emergency radio communication system. In the course of its work, Federal Engineering surveyed dozens of local government users to obtain an inventory of current systems and needs as well as an expression of interest from other agencies in participating in the development of a new system. The recommendations for bath fixing the existing system in the short term and replacing the system for the long term follow years of discussion and debate regarding communication issues. The Federal Engineering report also comes at a time when our microwave telecommunications infrastructure improvements at key locations around the County are being completed. In essence,the recommendations for both improvement and replacement of the County's public safety communication system contains three elements: 1 Emr encUp-graAing of Microwave Infragumdure. Necessary and immediate replacement of the lower data capacity microwave system with a redundant high data capacity microwave system that will eliminate potential failure paints and improve interoperability between agencies 2. Short/M" Term I rovement P an to EXiLting 13gdio tem A temporary solution which will improve public safety radio coverage, capacity and functionality beginning in 2003 and initiating the next phase; 3. Long-Term Radig S t m ReDIMmenj Plan. Proceeding with the plan recommended by Federal''Engineering requires the County to immediately devote staff resources to commenceinitial activities toward the development of design and financing options for a new 7030 MHZ or other state-of-the-art radia system with the goal of replacing the existing radio system by 2008. Fmneweriv URgraAde of Mimo-wave inf str ure. In 1997,the County was required to move its microwave radio system off radio spectrum that was to be used by the cellular telephone service. In the course of engineering this move, DoT subsequently determined that crucial communications;towers and building facilities did not meet current earthquake standards. The Board of Supervisors adopted a Board resolution declaring an emergency in order to immediately begin the upgrade of County telecommunications infrastructure to ensure public health and safety. Total cost of this project phase is $6.4 million, which has been funded both by pay-as-you-go bond financings. In addition, Federal 'Engineering identified other microwave infrastructure improvements needed to eliminate potential failure points and to improve interoperability which has been estimated cast by County staff to cast $3 million. The goal is to have all components of this project completed by January 2004. The deliverables of the microwave infrastructure upgrade project include: • Replacement of the existing lower data capacity microwave radio system with high data capacity microwave radios. • Reuse of existing equipment to expand microwave radio system for additional users. • Provision of expanded data bandwidth for near and long-term public service radio systems. • Elimination of potential failure points by using redundant microwave channels. Shortl id-Teerm tm rovernents tri Existin dlo System Federal Engineering found there is nor viable way to implement a unified,County-wide radio system that has enough capacity to accommodate all public agencies in the near-term with existing 800 MHZ frequencies. The consultant recommends, however, that the performance of the existing VHF radio system which currently serves the Sheriff s Office and other local public agencies could be improved with a relatively modest investment in order to"buy time"to design and develop a new state-cif-the-art replacement radio system. -3- x .ate s'-7nnA 3 The elements of this temporary solution would include adding new radio channels for the Sheriff's Office to reduce radio traffic loading; a simulcast system that would benefit all County radio systems by enhancing transmitter signal strength; adding additional VHF radio microwave system receiver sites; improved radio coverage for voice and data radio systems and the replacement of the 25 year old low band radio systems that are needed to ensure public health and safety for the General services, Building Inspection, Public Works, Health Services and Animal Services Departments. Specific recommendations to improve the existing system are listed below: Improvement Cost gstiMa&e A. Elimination of potential failure points and interoperability improvements (all departments 3,060,000 B. Add 2 VHF channels(Sheriff) 319,000 C. VHF simulcasting (Sheriff, Con Fire) 850,000 D. VHF system coverage improvements (Sheriff) 28,000 E. Mobile data deployment(Sheriff) 170,000 F. Replace old low band radio system (CSD, BI, PW, HS, AS) 798.000 Total $5,225,000 ssn9•T2ym Radiaystern Repiacem gni Plan Federal Engineering recommends that the County embark on a major project that will replace the existing radio communication system. The County Administrator and Sheriff concur in this assessment. It is recommended that the Board of Supervisors direct the County Administrator to explore the feasibility of creating a Contra Costa Public Safety Radio Authority, governed by a Radio Board. The initiation of a public awareness campaign to obtain public support and additional funding leading to development of specifications for a new system and participation in regulatory proceedings which with allow Contra Costa County to obtain licensing for a 700 MHZ or other state-of-the-part digital radio system by 2008. An extended commitment of staff and financial resources will be required in order to have a new system installed and activated by the year 2008. A new countywide or regional system will be a state-of-the-art product that will satisfy the priorities of the County,Sheriff and other public agencies for coverage capacity, reliability and interoperability. The system will also be designed with a governance and cost sharing structure that will permit ether public agency users to join the system over time. Federal Engineering has providedpreliminary estimates that costs could run as high as$40 to$60 million to fully design and engineer equipment, acquire sites for new antennas and towers and complete required environmental studies. The cost of a replacement system is beyond the present capacity of the County alone. A new system will necessitate a significant effort to gather partners to share in this cost governance and benefits. At this point, based on the needs assessment and survey conducted by Federal Engineering, many cities,adjacent counties(Alameda and Solano) and the State of California (CHP) have expressed interest in a regional approach to communications planning and service. cc. Sheriff Warren Rupf Fire Chief Keith Richter, Contra Costa County Fire Protection District Dennis Barry, Director, Community Development Department Steve Steinbrecher, Director, Department of Information Technology Laura Lockwood, Director, Capital Facilities & Debt Management Concord City Manager Ed Jetties (Public Managers Association) Pleasant Hill City Manager Mike Ramsey -4-