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BCC Minutes 08/21/1991 WNaples, Florida, August 21, 1991 LET IT BE REMEMBERED, that the Board of County Commissioners in .fiend for the County of Collier, and also acting as the Board of Zoning 'i~ Appeals and as the governing board(s} of such special districts as have been created according to law and having conducted business herein, met on this date at 5:00 P.M. in WORKSHOP SESSION in Building "F" of the Government Complex, East Naples, Florida, with the CHAIRMAN: Ann Goodnight .. !" VICE-CHAIRMAN: Michael J. Volpe Richard S. Shanaban Max A. Hasse, Jr. ABSENT: Burr L. Saunders ALSO PRESENT: Debby Farris, Deputy Clerk, Netl Dotrill, County '~Manager; Jennifer Pike, Assistant to the County Manager; Don Hunter, $herlff; and Leo Ochs, Jr., Administrative Services Administrator. ~,.:(' follow:~ng members present: Page AUGUST 21, 1991 Sheriff Don Hunter reported that his office, after trying for five years through the State Division of Communications, received a fre- ,/~ . q%lency one and one-half years ago to alleviate some of the loading on the frequencies used for his operations. He indicated that radio fre- ~".i~ (IliahOles in the VHF range have been allocated out and are no longer [' mvm~]able for this or any county. He explained that a few years ago a new technology arrived on the scene known as 800 MHZ. He stated that [[:~[~, the Board of County Commissioners have a system ~n place designed around the 800 MHZ technology and he is compelled to move ahead with a ~' new system as well. He commented that the purpose of th~s meetlng ~s to ac~aint the Board of County Commissioners with the 800 MHZ tech- nolo~ and the manner in which it can be utJllzed to flextbly address the p~bltc safety needs of Collier County, including law enforcement, but also EMS and fire. He confirmed that discussions have been taking place between hi:s office, the Fire Chiefs Association, and EMS :~,~..',/' regarding the various advantages of this technology. He remarked that h~s office previously ~eserved some frequencies that will need to be '~.~ acted upon within approximately one year or perhaps they will lose "them, ventring reappltcatlon at a la'ter date as well as incurring mddltional expen~ie. He stated that David Brents, Ben Holycross, and Terald D. Baker are present to speak to the 800 MHZ issue. He pro- '> vided resumes' listing the credentials of each of these gentlemen. David O. Brents reflected that hill area became involved w~th 800 /~, ~Z some t~me a9o fo~ basically the same reasons that Sheriff Hunter ~e presently cons:idertng It. He stated that 800 MHZ trunktn~ tech- ~010~ ~S the best way to go ~n cases such as Collier County where ch~els are con~ested without the means to expand the existing ~etem. He reported that back in the late 1970's the Association of ? ~bl1c Safety Communications Offices, in conjunction with the FCC and ~.~ m~l major communications vendors, participated in a study to decide -' Page 2 AUGUST 21, 1991 "~xat kind of f,~atures were needed in an 800 MHZ system in order for it :"tO function well in a public safety environment. He explained that the result of 'the study was the development of a document known as the '~ APCO 16 Document which has become the standard for assessing an 800 : M~Z system. He expounded that the document addresses such things as how long it takes to access the sys'tem when you key the radio, what k~nd of emergency features are necessary to enable law enforcement or emergency serw[ces personnel to access the system when it is busy, etc. He rendsmad his opinion of the importance of using the APCO 16 Document as part of the guidelines for development of specifications. !~e speculated that FCC will probably, within the next year or so, man- date that the Sheriff's Office either use the license for the 806 MHZ band or lose it In response to Commissioner Volpe, Mr. Brents stated that there is no opportunity to extend the license, adding that he is aware of the FCC revoking three l~censes already. Mr. Brents reported that the FCC has opened up a new set of fro- q%lencies in the 821 Band-but placed a lot of restrictions on same. He ~nd~cated it normally costs three-to-four times as much to implement a system in the 821 Band due to its restrictions than it does in the 806 Band. Regarding the 806 Band, he stated that FCC restrictions are less, the wave propagation is less restricted, and the equipment is cheaper. He s~ressed the importance of assessing the needs and lmple- menting a system within the timeframe of the currently held License. Pursuant to Commissioner Volpe's request, Mr. Brents provided a brief explanation of the concept of the 800 MHZ frequency whereby the lines are relinquished during lapses of conversation and reaccessed When needed. He explain,:d that, based on the APCO 16 study, tech- nolo~ was developed by 'the manufacturers requiring that certain spe- cifications be implemented for using this type technology that meets the needs of public safety and is not available to some general users. stated that the 800 MHZ system is a computer controlled system &llowAn~ one to change p]:ogra~:s al~ your needs change in lieu of 03' Page 3 AUGUST 2!, 1991 ',i~.~el~lacing equipment. He indicated the radio system allowed his area ~ ~ to program a new talk ¢;roup and add another precinct without necessi- · rating getting another FCC License. Commtasioner Hasse questioned whether any of the Sheriff's existing equipment can be used, to which Mr. Brents stated that if one wished to assign the equipment to a specific task it could continue to be used and also be tied into the 800 MHZ system through the system consoles. He added that operational/y, as far as the main dispatch and that type of function is concerned, there is no way to integrate that into an operation. He acknowledged that the 800 MHZ system can be used by all the emergency services departments and will allow the ,.,~, various departments to communicate with one another. In reply to Commissioner Volpe's question regarding the currently ~/ assigned frequ~:ncy for the County's 800 MHZ system utilized in '~,' Administrative Services, Mr. Brents commented that the channels &astgned for the system are probably in use by the public works departments. }{e stated that adding another group of users requires additional frequencies, which tn tuun requires a new license. Con~nissioner Volpe commented Mr. Brents seems to be suggesting that Instead of the County expandln~ its present 800 MHZ system it needs to acquire a new public safety 800 MHZ system. · ' Mr. Brenta verified that Commissioner Volpe's observations are [~correct, adding that the Countv's current 800 MHZ system does not comply with APCO 16 specifications and lacks some of the features that need to be in a public safety system. He indicated a more realistic thing to do is to install an APCO 16 type system and tie it and the existing system together so that they can intercommunicate. Co~mtastoner Shanahah indicated his understanding is that the 800 HHZ system the County currently has in place is completely expanded through the APeS 16 system, and is interchangeable with all other ]'~!~eq~lipment. He indicated it requires a switch which is already in p~&ca with the County's existing system. He relayed his understanding that the ~o%1/3t¥' is currently in the position to expand its 800 MHZ Page 4 AUGUST 21, 1991 if:' 'tt'unking system with exactly what they have. He stated that, based on '-:..-hAs research, the current system is working beautifully in every segment of the County and that it can be expanded to what Mr. Brents SO speaking of for millions of dollars less than purchasing a new 8~/stem. Mr. Brents stated his understanding Is that the existing system lacks a number of the APCO 16 features. Mr. Brents Indicated there are a lot of reasons for going with the 800 M~Z technology with a computer controlled system, i.e. expan- dability, ease of reconfiguring, etc. He stated that at the time the APCO 16 study was performed Motorola was the only vendor who built an :. APCO 16 system, but GE has since built a system that meets the APC0 16 specifications. He expressed his opinion that the vendor of the 'i..'Cou~lt¥'s system has not yet built a system to meet the APCO 16 spect- flcattons. County Manager Derrill confirmed that E. F. Johnson is the vendor ~hat was selected when the County purchased its current 800 MHZ ii/!~, ayeten. Co~tostoner Volpe questioned why cellular phones are not used, to which Mr. Brents replied that air time costs are astronomical. He /:-stated that the initial cost of equipment will not be as dramatic as · .the ongoing cost of air time. Mr. Brents commented that in lieu of :cellular phones, they gave some of their agencies the 800 MHZ trunked radto with a telephone interconnect. He stated that they do not use telephone lines in their system as it is all connected with microwave, 'thereby eliminating somewhere between $150,000 and $170,000 annually ~tn phone line costs. · " In response to Commissioner Yelps questioning the range for the ~yetems, Mr. Brents commented it depends a lot on the terrain, the power of the transmitters being used, etc. He reported that he can talk back into his system when located 170 miles from it. He stated '~h~t a 8~'stem should be designed around what the issues of coverage '~e. He added that the United States can be covered with one system Page 5 ~i~f it ie plarmed that way. He indicated his system is designed for i~'port&ble use only. He added that coverage from a portable must be ~?,~, :<~etter than coverage from a mobile. In response to Commissioner Shanahah. Mr. Brents commented they are talking 120 miles on an 806 channel. In reply to Commissioner Volpe, Mr. Brents suggested that the first step in assessing whether a system will be for the benefit of the community is to analyze what the needs are and, if a change is to be made, determine what is to be accomplished by that change, sit down and look at what the operational needs are and figure a system that ~,. meets theoe needs. In reply to Commissioner Hasse requesting a ball park figure for associated costs to meet the needs of the Sheriff'$ Department, EMS, and fire, he suggested seven million dollars plus, adding that amount ie merely a ~uess. In response to Commissioner Volpe, Mr. Brents indicated he felt City of Naples was given consideration in the needs assessment. Sheriff Hunter pointed out that the opportunity to sell back time f~:~ on the system to perhaps the City of Naples, U.S. parks, state parks, ~, . Florida Marine Patrol, the Game and Fresh Water Fish Commission, and %~: various public safety agencies within Collier County exists. He >~ietated it provides tactical capabilities to talk with the rest of the State of Florida. He confirme~ that the Florida Department of Law ~.~: Enforcement and all thei~ state agencies are going to this type of technolo~. Me suggested another important consideration is the microwaving of video imaging through digital signals. He stated they presently have the authority of the Judicial branch to enable them to do t~enty-four hour hearings over a video camera, thus saving somewhere in the neighborhood of $50,000 in transportation costs every day in addition to Jail deputy time saved. He suggested getting out all the information possible in terms of what constitutes an 800 MHZ · 'system. He stressed that he is looking Into it without any decisions havin~ yet been made. He reminded the Board of County Commissioners m 06 Page 6 AUGUST 21, 199! i~hat it was portrayed to him in 1987 that the County'a 800 MHZ system was o~ginall¥ designed to be an administrative frequency and not p~oposed as a public safety devise. He stated it is not controlled by a public safety agency, not used for public safety dispatch nor any other transmission of a public safety nature. He indicated that if 'there iea possibility of expanding the current system to meet the needs of public safety, that will be considered as part of the group .:'atudy. He acknowledged the existence of a committee whose members include the fire chiefs as well as EMS which is investigating the uses of the 800 M~Z frequency spectrum in connection to benefits afforded :~Col~ier County. He stated they are not yet prepared to quote costs but are merely looking at the 800 MHZ system versus what is currently in place to determine whether it is a viable option. In response to Commissioner VolpeTs inquiry of whether digital :.etonailing with microwave imaging is something other than portable ~eue mobile, Mr. Brents confirmed that it will require adding an additional piece of hard~are to the existing system as an accessory to what ts currently in place. Sheriff Hunter etated that, with mobile digital terminals, they begin to reduce some of the costs attached to operating telecom- ltions systems in the long term. Commtssion~r Hasse pointed out that in the past there has been · i~ concern in regard to the privacy of the individual units. Sheriff Hunter reflected that in public safety they do look for Some partitioning away from other t~pes of radio systems and scanners. He ~etterated Mr. BrentsT comments regarding the capability of recon- figuring various agencies enabling them to talk to one another, which · e(lui~ea intervention on the part of a dispatcher to ~eprogram the He pointed out that one of the advantages of the 800 MHZ is i.the ~Teat flexibility and spontaneity. Mr. Brenta stated they do have an executive channel where ~ee~nated paragons can talk to each other without anyone else on the · Fete~ overhearing their conversations. Page ? AUGUST 21, 1991 In response to Commissioner Volpe, Sheriff Hunter confirmed that of the five year plan is to restrict radio language to signals only and allow no voice conversation other than the signal. In reply to Commissioner Volpe, Sheriff Hunter stated that the proposed system will enhance the 911 system. Mr. Brents stated he concurs with the direction that Sheriff .-~'"Hunter is taking in doing the study. He reflected that Sheriff Hunter · iS still in somewhat of a fact finding process and trying to determine the best route to follow. : In response to Commissioner Vo.lpe questioning other available :alternatives, Mr. Brents replied that, in his opinion, to resolve the communication needs that Sheriff Hunter presently has it requires going to some type of an 800 MHZ system. County Manager Dorrill asked whether, in addition to the ability have an encrypted signal law enforcement and security parameters, 'the same is true with respect to telemetry signals for heart monitors, to which Mr. Brents responded in the affirmative. County Manager Dotrill requested that Mr. Brents provide a layman's perspective of what APCO 16 entails. He stated that APCO is acronym for the National Association of Public Safety Communication adding that it could argu~ably, in the past, have been a proprietary spec. Mr. Brents responded by saying that APCO is not a group of busi- i'nassmen doing this kind of thing commercially for public safety, but it is public safety. In response to County Manager Dorrill, Mr. Brents stated that the APCO 16 document did have ~3omething to do with the FCC. He expressed his belief that APCO 16 can never be arguably proprietary, in neither :~.he past, present, or in the future as it was not developed by any ~peciftc vendor or agency. He stated it was a group of public safety ~;.~peopla around the country who sat down together and determined needs bued on guidelines that they receiv,:d from the FCC for what the tach- nology could do. He stated that every major radio manufacturer in the -08' Page 8 AUGUST 21, 1991 World partlcipsted in this study as panel members with the final docu- msnt reflecting everyone's Input. In reply to County Manager Dotrill, Mr. Brents commented that only Motorola chose to meet the specifications of the APCO 16 document. County Manager Dotrill pointed out that it appears that declining to meet those tJpectftcatlons appeared to be a conscious decision as a result of and after the specifications having been developed as opposed to anything they could do prior to the study. Mr. Brents stated that, for public safety, one of the Issues is access time. He stated that taking a radio, be it mobile or portable, using this type of technology, when keying that radio you do not key a transmitter but rather you go to a control channel which ascertains what the talk group Is. He Indicated the control channel goes back ~,~ out, finds an available channel and sends out a signal to all the "~ radios in that talk group while switching them over to the appropriate channel and enabling them to talk. He stated that one of the specifi- cations tn the APCO 16 document is that the delay cannot exceed one- half second. He confirmed that another specification of the APCO 16 document Is the ability of emergency personnel to generate a signal to access the system even when the system is busy. He explained that his system allows emergency personnel such as police, fire and gMS to key the microphone and, upon receiving a busy signal, have the option to hit the emergency button, key khe microphone and be given access to a channel. He referred to this feature as "ruthless preemption". He : stated these are the types of things contained in the APCO 16 docu- ".~ merit :" In response to Sheriff Hunter, Hr. Brents confirmed that when the initial APCO 16 document was developed it was done in coordination with the FCC. He stated that, ~n essence, FCC requested the document be developed and APCO responded by getting people together to comply with the request. Sheriff Hunter stated It bears saying that fire people, EMS, /:"[M~uaedios, etc. have all been confronted with violent people when ooo,,.., o9 Page 9 AUGUST 21, 1991 to calls and, therefore, it is very important to have that preempting capability on a frequency to solicit help immediately ~teithout delay. Commissioner Volpe questioned how the phase in will take place ;:./should the decision be made to go to an 800 HHZ system and what the i'expected time frame might be. ~ · Mr. Brents reported that they basically brought people on board in ,:'groupa with fire and EMS together, all public works, etc. He indi- cated it probably took 2-1/2 to 3 months to bring everyone on board. He stated that, essentially, it could be done in one day. He indi- cated they preferred to bring them on board in groups, allow them to (operate for a short time and then comment on the system. He Inferred the time frame will probably be more dictated by budgetary ~:.requiremente. Sheriff Hunter stated they are not to that stage yet, but indicated "when the time comes they will probably look at the activity, pro- from the coastal area out, and use whatever UHF frequencies ~i' .cllrrently available and phase in over a number of years. He stated that the ball park figure of seven million dollars is necessary to ..'implement the entire system. He stressed it is time to determine which agencies are carrying the activity and have to, on a regular , talk with one another, said agencies being given priority for ~;tmplementatton of the phase in process. Mr. Brents stated that we can bring in portions of the Sheriff's Department and Fire Department which are in an area and normally com- ,:'~l~nicate with one another into the system without bringing in others who are in these departments but do not communicate. Sheriff F, unter reported that there is a current working group com- posed of Fire Chiefs, ENS and Shertff's representatives trying to work ;!~=!,.Ont the ~anner in which the phase in will occur should it be decided go to this type system. In reply to Coauatsstoner ~hanahan, Sheriff Hunter confirmed that c~lrrsnt measures are not adequate and they are seeking alternatives Page 10 AUGUST 21, 1991 tO a crisis occurring. 'Sheriff Hunter reiterated the difficulty encountered in receiving most recent radio frequency. He reflected that frequencies appear "to be going to users other than law enforcement. He inferred that over on their tactical frequencies results in a loss of security. i,~'.i Xn re'bones to Commissioner Volpe, Sheriff Hunter stated that we er have problems today with the current system or will have them shortly due to congestion, due to lack of transponders on the radios ~!~ or care, due to the management issue of not knowing the location of their vehicles within the fleet, due to inability to talk using the system as a phone, due to necessity of especially requesting encryp- tion to deter scanning, etc. In reply to Commissioner Volpe, County Manager Dorrill reported :~..~ that the system,, as we currently have it, is a technology that has ~:i~i been around since World War II and .,mffers as the result of volume. He stated it was initially a fine system but does not adequately address the needs involved with the increase of persons trying to talk on radios. He pointed out that it is a segregation and assignment in '~3 a priority system allowing unlimited numbers of people, both presently ~:'.and in the future, to talk that makes the proposed system appealing. Sheriff Hunter reiterated the fact that there are no other fre- .,' quenciee available to add to their existing system. He pointed out the fact that they have old equipment which will need to be replaced anyway and, therefore, this is a window to begin considering where they want to be in the future with a system. Ben D. Holycross, Director of Communications for Lee County, implied that two years ago he was in almost the identical situat.ion which Sheriff Hunter finds him.elf faced with today. He stated that the FCC is pushing all governmental agencies, federal, state and '/~ocal, into the 800 MHZ portion of the spectrum with the VHF and UHF frequencies being reassigned to the private sector. He explained that there As the 806 pool and the 821 pool within the 800 MHZ portion of Page 11 -!' ~hs spectrum. AUGUST 21, 1991 He stated that the 806 pool is regulated by the FCC in & manner almost identical to VHF and UHF channels, while the 821 por- tion of the frequency spectrum is regulated entirely different. He estimated that the engineering cost alone to do an 821 system will be something in the neighborhood of half a million dollars to design a ' '~yatem to the point that you can go out to bid on it. He explained 'that the FCC mandates the maximum possible amount of efficiency. He reiterated that Collier County has approximately one year before the FCC will rescind the license and reissue the frequencies that the County has been given. He reported the problems Lee County faced a .short time ago which parallel what Collier County is now facing. He commented that a communications system is as important to the growth · and development of a county as roadways, sewers, etc. He explained that the communications system must support everybody in some degree i.. of priority. He stated he does not advocate a particular manufacturer brand. He addressed the need fo]: law enforcement, fire service, EMS and public works agencies to be able to communicate with one another when responding to emergency situations. He stated that one of the mandates of federal legislation addresses interagency com- mmtcattons as it pertains to hazardous materials incidents. He !.pointed out the need for agencies to be able to communicate with one -another during crisis situations while maintaining their autonomy for normal day-to-day operations. He concurred that an 800 MHZ trunked radio system provides the necessary communications capability. He indicated that Lee County, after exploring a number of financial alternatives, d~ctded on a Certificate of Participation Bond whereby ~the Government Communications ketwork (GCN) was established as an intergovernment service which pays the bills for the system and, based on total number of mobiles, portables and base stations within the system by the various agencies, Government Communications Network (GCN) sends a bill each month to the agency for their proportionate share. He suggested that Collier County view a communications system · aS infrastructure, looking at the overall picture rather than bits and i2 Page 12 AUGUST 21, 199! r,,)~eCeS, investigate the situation thoroughly and then make a decision ~.)~)based on the actual evidence ':"' In responBe to Commissioner Shanahah, Sheriff Hunter confirmed that we have twenty 806 frequency ranges reserved. "' Sheriff Hunter stated that scheduled speaker Terald D Baker has deferred at this point. Sheriff Hunter recognized that John Daley, Director of · .Co~mlunications Division for the Naples Police Department, as well as other representatives are present from the committee that has been discussing this Issue. " In response to Co~isstoner Volpe, Sheriff Hunter conftraed that from time to time the Division of Communications is invited to Collier County by his apencY to review the communications needs and arrent statu~. He explained that they from time to time Issue reports which are used ~o define needs and begin to plan for the Coutsstoner Volpe ~tated that page 13, the cos~ estimates pro- vtded hack in 1990, is ~tsstng from the Board of County 0o~tsstoners' packet. Sheriff Hunter confirmed receiving ranges from seven to eleven million on total system costs, depending on what features are added to · the system. Chief Charles MacDonald proffered his credentials, which included ,being a member of Sheriff Hunter's Task Force regarding the 800 MHZ ~etem. He reported a tremendous communications problem with the high-rise buildings on Marco Island. He confirmed that in an emergency situation communications is one of the first things to go. He pointed out that the Administrative 800 MHZ system was not designed by the Public Safety Committee and, therefore, it may or may not work for their purposes. In reply to Commissioner Shanahan, Administrative Services Administrator Ochs confirmed that they do have an 800 MHZ &d~inistrative System currently in place consisting of approximately Page 13 AUGUST 21, 1991 unite presently installed. He stated that coverage has been !excellent to-date and performance has been very good with indications that the system is meeting or exceeding expectations. He explained that there was an RNT switch offered as part of the package on a trial basis for the Public Safety Agencies to test and determine whether they are satisfied with the ability of the system to be modified over ~ :a period of time to accommodate public safety. Fred Gallard, from E. F. Johnson, proffered his credentials. He etated that technically the system which has been installed for the County does not meet the APCO 16 requirements. He added, however, .that by adding a few enhancements into the system tt iS possible to meet the APCO 16 requirements. He explained that E. F. Johnson has three systems up and running which meet the APCO 16 requirements, one in California, one in Minnesota, and one in Puerto Rico which covers the entire is/and. He stated he has written documentation which he w~11 be happy to leave with the Board of County Commissioners regarding this. He added that Marttn County in Florida has been sold one of their systems which also meets the APCO 16 requirements. In answer to Commissioner Shanahan, Mr Gallard commented that the RNT (radio network terminal) will support all APCO 16 requirements. '~:He confirmed that Collier County presently has that switch on their · ~etem. He explained that additional software enhancements are necessary to bring the current system up to APCO 16 requirements. Commiss~oner Shanahah reiterated that the County's current system does not presently meet the APCO 16 requirements but merely requires ~nor enhancements and software to do so, to which Mr. Gallard con- cuffed. Mr. Gallard reported that three years ago E. F. Johnson introduced I~11tt-net which is an enhancement to their old trunk system. He ;~'"stated that E F Johnson is presently the second largest manufacturer [71 of tznlnklng communications in the entire world and has, in the private ;.sector, more systems in the air than their competitor. Sheriff Hunter again pointed out that neither his office, fire, or Page 14 AUGUST 21, 1991 have committed to any vendor and are currently reviewing the tech- '~1ogy and how It may be applied to various public agencies. He ; [':conffrmed that he is aware that the County's current system does not meet Apc0 16 standards and is concerned about that fact. He stated it Was originallH conveyed to him that the County's present system was ,~ . designed to b(! an administrative system under the Board of County ,' Commissioners' control and dld not meet his needs. He stated, there- fore, he pulled frequencies out of FCC to reserve same for public safety use to be operated within h:[s office. ~' Commissioner Shanahan stated h~ thought the County's system was ~ . being designed with the eventual capability to include public service 'a~ao and was part of the overall plan. He remarked there is no :"question of the need for the Sherifff's Office to move forward with a /~Fetem and that the Board of County Commissioners needs to assist in i' doing so at the most ~conomtcal and best available quality. Sheriff Hunter commented that they did not participate in nor help design the specifications for a future use as a public safety group. He etated he will defer to the engineers as opposed to sales people 'i'?,".when inquiring about the APCO 16 application within their system , des.t gne. There being no further business for the Good of the County, the ~' meet/n~ was adjourned by Order of the Chair - Time: 6:35 P.M. Page