9-1-1 Funding

The 9-1-1 Network is funded by surcharges on telephone bills, the Emergency Telephone Surcharge, ranging in amount from 43� per month in some Front Range Counties to $1.25 per month in some rural Colorado counties. The surcharges are paid to the local Emergency Telephone Authority, which uses them to pay the 9-1-1 Network service provider. An Emergency Telephone Authority is typically an independent authority formed by agreement between a county and the cities, towns and fire districts within the county, to fund 9-1-1 Network and call processing costs. In some rural areas, two or more counties have joined together to form a single Authority.

The 101 Emergency Call Centers in Colorado (generally operated by County Sheriff or City police agencies on behalf of themselves and other First Responders serving their county or area) are funded in part by a portion of the Emergency Telephone Surcharge, and in part by the counties' towns' and/or cities' general funds (from local property and sales taxes). The Emergency Telephone Surcharge has historically been used to fund call processing systems, including computer aided dispatch ("CAD") systems, and in very small counties to help fund radio systems and Emergency Call Center Personnel. Changes in Colorado law have relaxed some limitations on use of surcharge funds but, ironically, the amount of the surcharges collected in these more sparsely populated counties leaves little for such expenses after payment of the 9-1-1 Network charges.

The more urbanized Front Range Counties with larger and denser populations, greater numbers of telephone customers and correspondingly greater surcharge receipts, tend to have the most up-to-date Emergency Call Centers. Most are Next Gen 9-1-1 ready (or as ready as they can be prior to deployment of a Next Gen 9-1-1 Network), and the Emergency Telephone Authorities have been able to accumulate some cash reserves to help meet anticipated Next Gen 9-1-1 Costs.

Rural Colorado Counties tend to have small populations and correspondingly smaller surcharge revenues, even with a higher surcharge amount. They also tend to have much larger areas to serve. Some rural counties with large through-highways or large numbers of recreational visitors have significant emergency response costs imposed by non-residents (up to 70% of emergencies from highway incidents). As a result, many Emergency Call Centers outside of the Front Range are not able to afford technology and to provide services which are taken for granted along the Front Range.

The 9-1-1Colorado Foundation's primary focus is on supplementing surcharge funding for (i) deployment of a Next Generation 9-1-1 Network in Colorado, and (ii) modernizing Colorado's Emergency Call Centers and making them 9-1-1 ready. Once these goals are met, the Foundation may provide supplemental funding for other First Responder equipment, systems and training.

The Emergency Response and 9-1-1 Systems

Providing the public a simple means to get help in any emergency, anywhere, anytime, is not so simple a task. There are different parties responsible for different parts of the Emergency Response System, of which the 9-1-1 System is a critical part. There are also different technologies and services involved, and different funding mechanisms, for different parts of the Emergency Response System.

The 9-1-1 System, which the Foundation plans to modernize, has two main parts: the 9-1-1 Network and the Emergency Call Centers (also known as "Public Safety Answering Points," or "PSAPs")

The Emergency Response System

There are two parts to the Emergency Response System: the 9-1-1 System and the First Responder Agencies/Hospital Emergency Rooms. The 9-1-1 System includes (i) your service provider's connections to the 9-1-1 Network, (ii) the 9-1-1 Network which connects to the Emergency Call Centers, and (iii) the emergency Call Centers. The First Responder agencies include law enforcement (Police, Sheriff's or Marshall's office or State Patrol), fire departments which also provide paramedic response, and ambulance or Flight for Live service.

When you call 9-1-1, your telephone company or wireless carrier connects your call to the 9-1-1 Network. The 9-1-1 Network determines which Emergency Call Center should handle your call, based upon your location, and connects your call to that Emergency Call Center. Call Takers and Dispatchers at the Emergency Call Center dispatch the appropriate First Responders to your location, and assist you until help arrives. The First Responders assist with your emergency, and in the case of a medical emergency the ill or injured person is transported to a Hospital Emergency Room for treatment.

The 9-1-1 Network

The 9-1-1 Network is the part of the 9-1-1 System that gets your call for help to the Emergency Call System. See a diagram providing an overview of the 9-1-1 Network components and operation, from the Colorado 9-1-1 Task Force March 27, 2008 Annual Report to the Colorado Public Utilities Commission.

The 9-1-1 Network takes the call from your wireline or wireless telephone service provider, determines where you are located, and sends the call to the Emergency Call Center responsible for dispatching First Responders to your location. It also provides the Emergency Call Center with your location, and with a call back number so the Emergency Call Center can call you back if the call is dropped or disconnected. However, in four Colorado counties, calls are default-routed to the Emergency Call Center most likely responsible for dispatching to the callers location, based upon cell tower location, but does not provide any location information and does not provide a the caller's number. In five other counties, only the location of the cell tower receiving the call is reported. These issues can be resolved with additional funding.

Your telephone service provider is responsible for connecting your 9-1-1 call to the 9-1-1 Network, and for providing location information for the 9-1-1 Network provider's database. Your provider's costs of connecting the call to the 9-1-1 Network and providing the location information are generally included in your provider's regular service fees, although some providers assess a separate charge to meet these costs.

The costs of operating the 9-1-1 Network and maintaining the location database are paid out of the Emergency Telephone Surcharge, as described below.

The current 9-1-1 Network is based upon 1970's technology, before the advent of the personal computer, when NASA rockets had less computing power than the cell phone you use today. Indeed, your cell phone has greater data processing and transmission capabilities than the 9-1-1 Network you rely on for help in an emergency. Unless we upgrade to a Next Generation 9-1-1 Network, the 9-1-1 Network will continue to be unable to handle messages from some existing and future communications systems. Upgrade and operational costs for a Next Generation 9-1-1 Network will be substantial, but will improve public safety response and be compatible with new and emerging communications systems and methods as well as communications and emergency systems in common use today. Read more about Next Generation 9-1-1 Networks.

Emergency Call Centers

The Emergency Call Centers are where your 9-1-1 call is received. Different emergency call centers have different procedures, equipment and systems, but perform the same essential functions. A call taker will take your call and determine the nature of your emergency. That call taker may stay on the line with you, or may perform a type of "triage" and then transfer your call to another call taker based on the type of emergency. The call taker may also dispatch First Responders to your location, or a separate dispatcher may handle dispatch operations in coordination with the call taker. Some Emergency Call Centers have Computer Aided Dispatch (CAD) systems which will automatically dispatch the appropriate First Responders as soon as the call taker enters the code for the type of emergency, based on your location information as provided by the 9-1-1 Network (if available), First Responder training, and unit location, equipment and availability.

The Call Taker at the Emergency Call Center may stay on the line with you until the First Responders arrive, depending upon the nature of the emergency, whether another person has already called regarding the emergency, and the number of calls. The call taker may suggest action to take until first responders arrive, provide other assistance such as instructing you how to give first aid to an injured person until paramedics arrive, or gathering further information.

The most basic equipment or systems an Emergency Call Center must have include:

• A telephone system which will allow 9-1-1 calls to be answered by the call takers/dispatchers, and which will display the telephone number and address of the caller.
• A system for dispatching and communicating with First Responders, typically including police and fire radio systems.
• A method for keeping track of which First Responders and units are on duty and available.
• Backup power for their systems so that the Emergency Call Center can remain in operation during a power outage. Today, this is more important since more advanced Call Center systems are computer-based.

In the early days of 9-1-1, many Emergency Call Centers had only telephone systems, and police and fire radio systems, and used tote boards and/or paper-based systems (even note cards) for tracking unit availability and recording critical call information. Today, Emergency Call Centers have benefitted to from the revolution in computer technology that has impacted almost every other area of modern life; with the better-funded systems benefitting more than others.

Emergency Call Centers may now have digital Call Recorders, Computer Aided Dispatch CAD systems, Emergency Notification Systems, and computer programs to better instruct callers in rendering first aid to a victim until First Responders arrive. Call Recorders make audio recordings of all 9-1-1 calls. CAD Systems record information pertaining to every 9-1-1 call and First Responder activity, and provide additional information for the call taker, dispatcher and/or First Responder pertaining to the incident. CAD systems may use and analyze incident and First Responder information to allow for a faster or better response, or to allow officials to analyze incident statistics to better manage First Responders and even prevent incidents. Emergency Notification Systems allow Emergency Call Centers to make outgoing calls to people in a hazard area, such as a forest fire, flash flood, or tornado area, warning them of the danger. Read more about Emergency Call Center Systems.

Foundation Funding Goals

The Foundation seeks to fund improvements in Emergency Call Centers, deployment of Emergency Notification Systems and a Next Generation 9-1-1 Network in Colorado, and public education regarding 9-1-1.

There is broad variation in the Emergency Call Center equipment and systems employed at Centers throughout Colorado. The Emergency Call Centers serving the more populated counties along the Front Range tend to have more modern systems, be capable of receiving wireless call location data, and be Next Generation 9-1-1 Network-ready or close to it. Centers serving more rural counties may have more basic systems (and may struggle to afford even those basic systems), some are unable to receive wireless call location data, and few are Next Generation 9-1-1 ready.

The Foundation seeks to fund the upgrade of Colorado Emergency Call Centers on a needs-basis so that all 101 Colorado Emergency Call Centers, and people living in or visiting the areas they serve, will have the benefit of modern public safety systems. The Foundation seeks also seeks to upgrade all Colorado Emergency Call Centers to be Next Generation 9-1-1Network-ready (capable of receiving and using the types of calls, messages and data which can be transmitted over a Next Generation 9-1-1 Network. Funding on a needs-basis will avoid providing supplemental funding to Call Centers which are already well-funded.

The Front Range Emergency Call Centers are most likely to be Next Generation 9-1-1 Network-ready, and/or can best afford improvements to become Next Generation 9-1-1 Network-ready. The Foundation seeks to fund initial deployment of a Colorado Next Generation 9-1-1 network along the Front Range, where the Call Centers are Next Generation-ready. As additional Emergency Call Centers are upgraded and become Next Gen-ready, the Foundation will seek to fund expansion of the Next Gen network beyond the Front Range.

Studies still need to be completed and determinations made whether Qwest will be the provider of the Next Generation Network as it is with the current 9-1-1 Network, the most appropriate Next Generation network architecture for Colorado, whether and how existing network facilities can be upgraded or if entirely new facilities need to be installed, and how 9-1-1 service will be transitioned to the new Next Generation network across the state. However the Foundation believes that a deployment plan will be developed which will allow Next Generation-ready Call Centers to move to the Next Generation Network as soon as it is available in their area, and for other Emergency Call Centers to move to the Next Generation Network when they complete improvements to be Next Generation-ready and the Next Generation Network is deployed to their area. Unless such a migration path is developed, even the Front Range Emergency Call Centers serving 75% of the State's population will be delayed for years in taking advantage of Next Generation 9-1-1 services and improvements.

A portion of the Foundation's funding will be devoted to public education. Our goals for the Foundation's Public Education Program are to (i) reduce misuse of the 9-1-1 Network, (ii) promote more efficient use of the Network, and (iii) increase wireless and internet phone enrollment in Emergency Notification Systems. Read More About Public Education. Read About "When to Call 9-1-1."

Finally, after the Foundation meets the above goals, it will make grants to fund ongoing improvements to the 9-1-1 Network (for example, to interface with new communications technologies and methods), and to fund life-cycle replacement of Emergency Call Center systems and equipment, and training. The Foundation also hopes to be able to make grants for First Responder systems, equipment and training, from bullet proof vests, to "jaws of life" and fire trucks, to interoperable radio systems which will allow First Responders in neighboring jurisdictions or different agencies to communicate with each other, etc. Such grants would further the Foundation's Goals of equivalent First Responder equipment systems and training is available when you need them, where ever you may live, work, travel or play in Colorado.

Federal grants for public safety are sometimes made available on a matching basis. Rural public safety agencies have at times been unable to take advantage of such grants because of a lack of sources for matching funds. Donations permitting, the Foundation would like to be a potential source for such matching funds, as it would improve Colorado public safety and maximize the benefit of the funds the Foundation develops. The Foundation may also make grants available on a matching basis in appropriate circumstances.