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How Can We Forget the Horn?

Possible Economies for City Taxpayers[1]

 In light of the fiscal dilemmas of many cities in the US, compounded by the growing recession, state and local governments more than ever are reviewing the way they do business and how they perform their critical functions.  For at least a couple of years, the State of New York has started to openly discuss the opportunities to improve the allocation and conservation of limited resources by pooling and consolidating services across multiple municipal jurisdictions.  With over 1600 local government entities in New York, the opportunities for streamlining “government” abound. 

For example:

·         The Town and Village of Seneca Falls are investigating (with a grant form the State) ways to consolidate some of their operations. 

·         In June 2008, the Town of Clay voted to merge its police operations into those of Onondaga County Sheriff’s Department to improve both administrative as well as operational efficiency.[2] 

·         Certain infrastructure functions are simply natural areas for reducing costs through economies of scale. 

·         For over 25 years, the Town of Geneva has purchased water from an extension of the City of Geneva’s water system rather than build its own plant. 

·         Road and highway maintenance and repair are another area where consolidation makes good sense. 

In the recent past, formal attempts have been made to initiate discussions between the Town of Geneva (“Town”) and the City of Geneva (“City”) to determine where the opportunities lie for cooperation and consolidation that will save tax payers real money.  These talks have not gone very far because of the wide discrepancy between tax rates of the two communities and a lack of leadership to take the next steps. 

While this long-running debate unfolds, the City has started planning for the 2009 City budget.   We need to take a hard look at our finances for two reasons:  first, because there is an immediate payoff in lowering or eliminating the potential for a tax increase and second, we need to put ourselves in the best position possible to encourage consolidation of services with the Town by demonstrating that we are committed to improving City operations.

Redundant Dispatching Functions at Geneva Fire Department

One area where there appears to be immediate opportunities for saving taxpayer funds is the elimination of redundant activities such as the City of Geneva Fire Department’s 9-1-1 dispatching system.  Unlike all other communities in Ontario County, the City staffs its own emergency communications through the Geneva Fire Department.  This activity is a hold-over from a bygone era when dispatching and communications technologies were more primitive and less effective.  As a result, fire response dispatching needed to be handled at a local level.  For example Geneva’s system of pull boxes, technically called the Gamewell System was a huge advance in fire emergency technology 40 years ago.  But over the last 15 years it has been eclipsed by a host of innovations in communications and technologies that offer a broader and more robust range of options that combine high speed fiber optics, Internet, cell phone, and microwave communications. 

The State of New York now has a system of 62 county emergency services that are all interconnected for redundancy and back-up in case of a statewide or national emergencies.  In addition, individual counties can back one another up when one county system has problems.  Fire departments all over Ontario County as well as other counties throughout the state get their fire and emergency notifications from specialized county offices of emergency services that typically come under the purview of the County Sheriffs Departments.  These centralized 9-1-1 operations dispatch fire, rescue, police, and medical response for virtually all emergencies.

Based on my knowledge of the current system and setup in the City of Geneva, I believe there is a real opportunity for the City to disband its redundant 9-1-1 dispatching service and allow the Ontario County Emergency Management Service to take over saving City taxpayers somewhere around $200K plus per year when fully implemented with no loss of response effectiveness.  I further believe that a transition to the County operation could be effected quickly after the appropriate technical and administrative issues are addressed and with no disruption of service. It is also very possible that Geneva’s full-time dispatchers could transfer to the County operation. 

Rationale for Making the Switch

1.     Advances in technology long ago achieved the needed sophistication to allow emergency communications to be centralized at the County level.

 

2.    The Geneva system is redundant at this point for all calls which come by cell phone or land line. (Cell phone calls may already be going to the County 9-1-1 system.) with this signal being indifferent to where it goes.  The only unique aspect of Geneva’s 9-1-1 system is that the Gamewell Pull Station system features approximately 100 hard wired pull stations that send a signal directly to the Geneva Fire Department dispatch system on Geneva Street.  With the use of some additional technology, this system could also be tied into the County’s 9-1-1 system.

 

3.    No other local fire department in Ontario County handles 9-1-1 services.  Geneva is unique in this activity both regionally as well as for its size.  In fact that it is highly unusual that a small community has a need to do its own 9-1-1 emergency response.  Name almost any City in New York State and it is highly likely that fire company dispatch is initiated at the county level.  If you can’t think of a City consider the following cities among the list:  Ithaca, Waterloo, Cortland, Syracuse, Auburn, Canandaigua, Binghamton to name just a few.

 

4.    Separating the dispatching function at the local level from the fire and medical  response functions inherently eliminates potential conflicts of interest when problems or discrepancies arise in emergency service. 

 

5.    By switching all dispatching services from the City of Geneva to the county level, the City will be also transferring the operational risk from a small pool of citizens to the greater pool of citizens represented by the County.  This will strengthen our financial security by reducing our liability exposure and possibly reducing the City’s cost of insurance.

 

6.    Hard savings are based on the analysis presented below.   The information was taken from the City of Geneva 2008 Budget document dated October 18, 2007.

 

Notes:         It is assumed that the City will incur additional savings in equipment and replacement costs on an on-going basis.   Also, it is anticipated that these numbers will increase for the 2009 budget.

 

Recommended Need for More Information

 

The information presented has been assembled over a period of time and with considerable thought as to the implications.  This is an appropriate time for City Council to consider this opportunity during this 2009 budget planning process.

Nevertheless, there is a need for more research and data gathering that will serve the City and its residents well.  I do not have the time or status to get this information and feel that the City Manager and his staff would be better suited to objectively complete and fully verify this work. 

On doing the research I have the following suggestions:

  1. First, interview Geneva’s dispatchers and Fire Chief to obtain a thorough understanding of how an emergency 9-1-1 call is currently handled in the City from any of the sources – cell phone, land line, pull-box, word-of-mouth.
  2. Call several local communities in Ontario and adjoining counties to see how  9-1-1 emergency response services are handled.  May I suggest: Canandaigua, Ithaca, and Auburn.
  3. Call Ontario County’s Emergency Management Office and discuss the cost and technical and administrative issues that need to be addressed to make a successful transition to the county system.  

Ontario County Emergency Management Office
Jeffrey Harloff, Director
2914 County Rd. 48
Canandaigua, NY 14424
(585) 396-4310 Fax: (585) 396-4583

Excerpts from Background Research on Dispatcher Issue and Emergency Response Services Operations in New York

Investigation of 911 Operations and Local Dispatching Operations in Upstate New York

Batavia, New York

The City of Batavia Fire Department serves a community population of 16,256 situated in approximately 6 square miles. The Fire Department employs sixty-one (61) full-time employees that are split between two (2) divisions: Fire Division and Medical Division. Community service is delivered from three (3) stations within the City limits; Evans, Bank and North Street.
Our community and citizens benefit from a Insurance Services Office (ISO) public protection classification of three (3). The Fire Department's fleet consists of three (3) engines, one (1) ladder, six (6) transporting ambulances, one (1) emergency support unit, and one (1) command vehicle.

CUSTOMER SERVICES

  • Basic and advanced life support
  • Basic and advanced life support training
  • Emergency medical standby at special events
  • Fire investigation
  • Fire prevention
  • Fire suppression
  • Hazardous materials mitigation
  • Juvenile fire setter intervention
  • Mutual aid partner in Genesee, Wyoming, and Orleans Counties
  • Permit issuance
  • Prefire and disaster planning
  • Public education
  • Fire hydrant inspection and testing
  • Uniform code management
  • Technical, ice, and water rescue

Emergency Dispatch Center - 911

The Communications Section of the Sheriff’s Office is a specialized unit which provides centralized public safety communications to participating police, fire and emergency medical agencies within Genesee County. Included in the responsibilities of the Communications Section is the answering, processing, and maintaining of the County’s Enhanced 9-1-1 Emergency Telephone System. Communications personnel are responsible for the operation of the County’s 800 Mhz trunked radio system, which includes assigning radio numbers; dynamic incident regrouping; maintaining the computerized radio subscriber list; maintaining and modifying the SIMS II computer interface; as well as, handling routine traffic on the system itself. The Communications Section also answers all telephone communications which come into the Sheriff’s Office and redirects these communications accordingly. The Genesee County Legislature has designated the Sheriff to administer and operate the County’s Public Safety Communications Center and trunked 800 Mhz radio system. Timely and accurate recordings of information is vital to law enforcement, fire services and emergency medical services. Information and the communicating of this information is the life blood of these agencies. The benefactors of the activities of the Communications Section include all the public service agencies served and the general public.

http://www.co.genesee.ny.us/dpt/sheriff/dispatch.html

Canandaigua, New York

Canandaigua Fire Rescue's mission is to protect life and property from loss, suffering and damage due to fire, medical, and environmental emergencies within the community through public education, code management and incident response.

Canandaigua Fire Rescue is a combination department with a career staff supplemented by two volunteer fire companies.  The Department provides not only the obvious function of fire suppression, but is also charged with numerous other prevention and protection tasks. These tasks include emergency medical response; public information; code enforcement and fire safety inspections; public education; fire training; alarm, communications, facility, apparatus and equipment maintenance.

http://canandaigua.govoffice.com/index.asp?Type=B_BASIC&SEC={72E27579-52CE-41E7-BAA3-4193F87AEC86}

Ontario County Emergency Management Office
Jeffrey Harloff, Director
2914 County Rd. 48
Canandaigua, NY 14424
(585) 396-4310 Fax: (585) 396-4583

Dialing "9-1-1" allows any County resident in need of emergency assistance, immediate access to the appropriate police, fire or ambulance agency.

The Ontario County 9-1-1 Center is located in the Sheriff's Office on Ontario Street in Canandaigua.  Our area of responsibility encompasses all or part of 34 Fire Districts, 12 EMS Districts, 5 ALS providers, 1 City Police Department, The Sheriff's Office, The New York State Police, and 5 Village Police Departments.  All wireline telephones (except the city of Geneva) and all wireless (cellular) calls are routed to our center. 

Ontario County is comprised of 16 Towns (Bristol, Canadice, Canandaigua, East Bloomfield, Farmington, Geneva, Gorham, Hopewell, Manchester, Naples, Phelps, Richmond, Seneca, South Bristol, Victor and West Bloomfield); 8 Villages (Bloomfield, Clifton Springs, Manchester, Naples, Phelps, Rushville, Shortsville and Victor) and 2 Cities (Canandaigua and Geneva).  There is all or part of 5 Finger Lakes within our boundaries (Hemlock, Canadice, Honeoye, Canandaigua and Seneca).  Twenty-seven miles of the New York State Thruway traverses the northern portion of the county and includes four exits (42, 43, 44 and 45).  There are 17 school districts in addition to two colleges, Hobart and William Smith College and Finger Lakes Community College.

http://www.co.ontario.ny.us/sheriff/OntarioCounty911.html

Forum on pull box systems

http://forums.firehouse.com/archive/index.php/t-29606.html

Gamewell System

Communications Center History

 

   The Charlotte Fire Department Communications Center moved to its present location on February 1st 1991.  Prior to that time it had been located on the second floor of the old fire station one located at 125 S. Davidson Street.  Before the move, the department received calls for service from not only the public telephone system but also from a code transmitted telegraph system consisting of manual pull boxes mounted on telephone poles and buildings.

This system which was manufactured by the Gamewell Company was maintained by the fire department and provided a direct method for reporting emergencies to the department. Because private and pay telephones were not as common then as they are now, the pull boxes gave citizens a method of calling for help in areas where a telephone may not be easy to locate.   The major drawback to the Gamewell system was that the Fire Dispatchers were in the blind when an alarm signal was received. They knew the location of the box that was activated but not the exact address of the incident, and only knew that help was needed, but not what type of emergency existed.  As a general rule most Gamewell activations were false alarms due to pranks or were malfunctions in the case of those boxes which were directly connected to business or factory fire alarm systems.  While the system was not perfect and is still used in many cities today, it was technology from the turn of the century and was in need of improvement.

     In 1979 with the advent of the 9-1-1 telephone system's introduction to Charlotte and Mecklenburg County, the Gamewell system was phased out as both private and pay telephones were quite commonplace.  The 9-1-1 system allowed a caller's telephone to be traced and locked-in if necessary to track down abusers of the system.  The 9-1-1 system greatly improved the citizens' access to the department and helped reduce the number of false or prank calls.  On the radio side, the department was utilizing five (5) 460 MHZ radio channels for dispatching and working fire department incidents.  All calls were dispatched on a single frequency main alarm channel and on dispatch, the responding companies were advised to switch to one of the four (4) remaining single frequency channels for the remainder of the call.  Each of these four frequencies were assigned to a specific geographic area of the city that was managed by a Deputy Fire Chief for that area.  Initially, the system worked quite well, but was designed for a coverage area that was the size Charlotte was in 1973.  By 1987, the radio system had been expanded and redesigned as much as was possible and other communication options were explored as the City continued to grow through annexation.

     In 1988 part of the new communications package involved upgrading of the 9-1-1 telephone system into an Enhanced 9-1-1 or E-911 system as it is called.   E-911 allowed a display of the callers telephone number as well as a second display of the callers number, name and address to be seen at the dispatching console.  Each Telecommunicator, (the employees also got a name change  as well) could now know where the caller was and have a printout of this information as a record .  This helped even more by identifying if the call was being placed from a coin phone or from within a business with a PBX system as it even showed the extension number the caller was talking from.  Because of this we saw an even further reduction in false or prank calls.  E-911 was the answer to a prayer for emergency telecommunicators.

http://www.charmeck.org/Departments/Fire/Divisions/Communications+Center+History.htm

 

Ithaca, NY

Services Provided Include:

• Fire suppression

• Fire prevention

• Code Enforcement

• NYS Uniform Code

• City of Ithaca Municipal Code

• Public Education

• Emergency Medical Services (EMS)

• All life-threatening medical emergencies

• Heart attacks

• Diabetic emergencies

• Strokes

• Etc.

• Rescue

• High-angle rope rescue

• Vehicle extrication

• Structural collapse

• Water rescue

• Ice rescue

• People stuck in elevators

• Industrial accidents

• Confined space rescue

• In-House Training

• Career

• Volunteers

• New members

• An ongoing process due to retention problems

• Fire Cause & Origin Determination

• Required by law

• Critical Incident Stress Team

• Hazardous Materials

• Maintenance

• Fire stations

• Fire apparatus

• Fire hydrants

http://www.ithacafire.org/

Emergency Response, Department of

 

 

  

Oversees County-wide emergency dispatch and communications system that allows residents to dial 911 to receive emergency medical, fire, police or other emergency help from any phone in Tompkins County. The E-911 system, through the use of County-wide communications system and computer aided dispatch, is able to locate addresses and phone ID of caller and also to maintain communication with fire, police, hospital, etc. personnel in the field.

 

http://www.co.tompkins.ny.us/departments/detail.aspx?DeptID=24

Boston, MA

No cause for alarm

While vintage call boxes can still come in useful, many communities are deciding they are not worth the upkeep cost

Email|Print| Text size – + By Emily Sweeney

Globe Staff / January 27, 2008

They stand like sentinels on sidewalks, providing a subtle sense of security and a touch of nostalgia. But fire alarm boxes - so common on our streets for more than a century - may not survive the high-tech age of enhanced 911, cellphones, and GPS devices.

In use no more Call-box systems have been phased out in Cohasset, Hull, Foxborough, Mattapoisett, Scituate, Sharon, and Weymouth. Still going strong call boxes continue to be part of the landscape in Boston, Braintree, Brockton, Dedham, Hingham, Milton, Plymouth,

Quincy, and Wareham

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The familiar red boxes are slowly disappearing, as cities and towns deem them obsolete. In doing so, those communities follow the lead of some of the nation's major cities. Washington, D.C., for example, has commissioned local artists to decorate the now-defunct boxes.

Still, several south of Boston communities - including Braintree, Brockton, Dedham, Hingham, Milton, Plymouth, Quincy, Sharon, and Wareham - have held fast to these old-fashioned devices.

Local fire officials say the wireless world hasn't negated their value. They point to the Sept. 11 attacks, when cellphone networks became overloaded. And in a blackout, they say, people can't recharge their hand-held devices.

Brockton Fire Chief Ken Galligan describes his city's street-corner boxes as "a security blanket for the community" that can overcome any language barrier. That's especially helpful for a city like Brockton, where more than 30,000 residents speak a language other than English. "I call it our multi-linguistic call box system," he said.

Mounted on black pedestals and telephone poles around the city are red boxes shaped like a miniature house, each with a white pull handle. Its purpose is spelled out plainly in capital letters: "FOR FIRE." "OPEN THEN PULL DOWN HOOK."

When the lever is pulled, a metal wheel inside the box turns, transmitting a signal via telegraph to the local fire department.

Although most emergency calls are made through 911 telephone lines, the old-fashioned system still earns its keep. One recent example was on Dec. 11, when the Brockton Fire Department was dispatched to a house fire on Hamilton Street. The first notification came through a Gamewell alarm box at the corner of Hamilton and Belmont streets, Galligan said.

The municipal fire alarm system got its start in Massachusetts. It was developed by Moses Farmer, an engineer, and Dr. William Channing, a Harvard-educated Bostonian who preferred tinkering with electronics to practicing medicine.

Their revolutionary creation was installed in Boston in 1851, more than two decades before Alexander Graham Bell gained his patent for the telephone, and consisted of 40 miles of wire and 45 boxes.

It quickly became a national model, and cities and towns across the country installed similar systems that were manufactured by the Gamewell Fire Alarm Telegraph Co. in Newton Upper Falls. By 1890, there were Gamewell systems in 500 cities and towns across the country.

The system's independent operation makes it valuable in an age of uncertainty. Because it does not operate on electric or telephone lines, it isn't affected by power outages, downed phone lines, bad cellphone reception, or radio interference.

If a major disaster knocked out power for days, and people couldn't charge their cellphones, the boxes would be a public safety lifeline.

When a computer glitch caused New York City's 911 system to crash for two hours in March 2004, the street boxes continued to work, and someone used one to report a serious fire in Brooklyn. And when an earthquake struck San Francisco in 1989, phone lines went down and power went out - but the municipal street telegraph boxes continued to work.

But for many communities, the added security is not worth the cost. Eliminating the system saves money on maintenance, they say. Sacramento officials estimate that the move to dismantle its system will save $500,000 annually in operational, maintenance, and support costs.

Some smaller municipalities in Massachusetts - including Cohasset, Hull, Foxborough, Scituate, Walpole, and Weymouth - have done the same.

Weymouth installed its first Gamewell fire alarm system in 1888. The town recently decided the old hard-wired telegraph system was too expensive to maintain, and opted to switch to a new alarm box system that transmits radio signals directly to the fire department.

Walpole started phasing out its deteriorating fire alarm boxes three years ago. "The New England weather does a number on these wires," said Deputy Fire Chief Michael Laracy.

Laracy said he hasn't heard any concerns about the transition.

"We're just replacing old technology with new technology," he said.

Hull scrapped its telegraph system over a decade ago, according to Acting Fire Chief Robert A. Hollingshead. The old boxes had been in town for a long time, and required constant maintenance, he said. "We're right on the ocean, and the salt water was wreaking havoc on our system."

More than 150 alarm boxes were removed from the streets of Hull and auctioned off as surplus property. The town now uses eight radio-controlled boxes that are placed at playgrounds, parks, and public areas by the beach. Businesses in town must use private fire alarm services in their buildings.

"The need for those master boxes is still there. . . . They certainly have a role," Hollingshead said. "But it depends on the demographics of the community, and the maintenance costs. If cost-benefit ratio is there, they're truly valuable. It's up to each community to decide."

Gamewell was acquired by Honeywell International Inc. in 2003, and is now known as Gamewell-FCI. The company no longer makes new telegraph alarm systems, but continues to manufacture replacement parts and refurbish existing ones at a Gamewell-FCI shop off Route 1 in Westwood, according to spokeswoman Beth Welch. "There are many towns across the country, and the world, that still upkeep these systems," she said. "We just help maintain them."

Welch said the company does not know how many municipalities still use the system. In recent years, some cities and towns have auctioned off their remnants as antiques.

"They've become a hot collector's item," said Welch. Boxes have sold for several hundred dollars on eBay, and history buffs have converted boxes into banks, lamps, and doorbells.

One enterprising Norwood resident recently posted an ad on South Shore's Craigslist classifieds, offering a Gamewell fire alarm pull box for $400: "Amazing like new condition, never used. Circa 1974. Complete with paperwork. Great for a collector or perhaps put into use?"

Emily Sweeney can be reached at esweeney@globe.com.


[1] Prepared by Robert K. Camera, 163 Lafayette Ave., Geneva, NY

[2] Based on the news reports (TV 5, April 8, 2008), the move is expected to produce a savings on the Town Budget of over $1 Million/year which will reduce property taxes in the Town of Clay by 20%.

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