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03-06-86 Safety Comm MinutesPersonnel & Safety - Joint Meeting March 6, 1986 Attendance: Mayor Kennedy, Councilmembers Grainger, Schindler, Saverud and Hafferman, Police Chief Stefanie, City Attorney Neier, Clerk/Treasurer Halver, Assistant Fire Chief Larson and Roger Hopkins. PERSONNEL AND POLICY 1. Fire Department Grievance The committees gave the Mayor and City Attorney authority to represent the City in selecting a mediator for the grievance. 2. Police Lieutenant The committees concluded past practice indicated Lieutenant Dupuy should receive the same benefits as the Police Union members even though he is not in the union. A letter defining the procedures for setting his salary and benefits should be prepared, signed by the Mayor and put in his file and the City's master personnel file. These procedures apply to Dupuy and not the position. Glen Neier suggested the council approve the letter. Councilman Grainger said the committee had been given power to act but the action will be reported to the council. 3. Uniform allowances The Police Chief, Assistant Police Chief, and Police Lieutenant,,did not receive the increase in the clothing allowance paid to the police union members. Mayor Kennedy and Clerk Halver are requesting the policy for paying clothing allowance for supervisors also be defined in writing. Councilman Grainger requested all these questions be routed through the Mayor to the council. Policy for clothing allowances for non -bargaining unit employees will be established by the council at the next meeting. 4. Fire Chief Replacement Procedure for securing a replacement for the Fire Chief was discussed. It was concluded the Mayor has the authority to appoint with approval of the council. Council members are welcome to participate in interviews. 5. Fire Department staffing Duane Larson told the Mayor that delaying the replacement of the Fire Chief would increase the department work load. Councilman Grainger also commented the department is operating at minimum staffing now. Mayor Kennedy said he is still waiting for the cost of retirement of the Chief and isn't ready to make a decision on the replacement timing. 6. Clerk II promotion procedures. Mayor Kennedy asked if there was a policy for promotion from Clerk I to Clerk II. There is no written policy. The committee felt it was up to the discretion of the Mayor and Department Heads. - 1 - L] Personnel u Safety - Joint Meeting i?arch 6, 1986 7. Educational assistance Fireman Jim Neal has requested consideration of educational assistance for him to work for a Master's Degree. He would need 52 hours at a cost of $95.00 per credit hour. The committee concluded they would like to encourage anyone who wants to further their education but they didn't have any source of funds for this request. The committee requested the Mayor write him a letter stating there aren't any funds available. 8. Retired Police Officer Pay Bob Sevier has requested the city determine the proper base pay of a "confirmed officer" as needed to determine the retirement rate of retired officers. The City Attorney will investigate this. 9. Banner Policy After considerable discussion of proposed policies suggested by Attorney Jeff Ellingson and City Attorney Neier, the committee recommended the City Attorney's proposals be presented to the council for consideration. His proposal includes: 1. $150.00 fee 2. To announce an event, activity or celebration, no political parties or candidates. 3. Applicant must sign statement agreeing to comply with state laws and will not descriminate in violation of the Montana human Rights Act. Councilwoman Hafferman felt the $150.00 fee would prevent many organizations from using banners. The committee suggested trying a fee of $75.00. Councilman Grainger requested the Mayor and City Attorney work up a proposed policy for the council to consider. 10. 4-10's work shifts. Mayor Kennedy and Clerk/Treasurer reported they had received approval from the AFSCN,E union to try allowing the Clerk/Treasurer's staff to work four ten hour shifts a week. They would be working as teams with one team member being of on Monday and the other on Friday. The coennittee agreed it could be tried as long as it was done as a management prerogative and was not put into the contract. - 2 - Personnel & Safety - Joint Meeting March 6, 1986 SAFETY Police Chief Stefanie presented a report regarding suggestions for consolidation of dispatch services and a discussion of "911" emergency number proposals. (report attached to original minutes.) At the conclusion of his report the committee requested he and Councilman Schindler prepare a policy statement for the council to consider presenting to the 11911" Committee. Chief Stefanie reported the "911" committee has about completed their bylaws and the Mayor should contact the other City Mayors for their feelings on this subject. dh - 3 - 11 i TO.- -FROM: SUBJECT: Synopsis THE CITY OF KALISPELL MONTANA POLICE DEPARTMENT KALISPELL, MONTANA 59901 PHONE 406-755-2121 M E M O MAYOR KENNEDY, CITY COUNCIL MARTIN D. STEFANIC, CHIEF OF POLICE MARTIN D. STEFANIC Chief of Police DONALD F. HELLMAN Asst. Chief of Police CONSOLIDATED DISPATCH1911 SERVICES - A STAFF REPORT AND IMPACT SUMMARY This report was prepared to provide decision makers and policy setters with a detailed yet succinct analysis of certain dispatching concept changes upon emergency services provision in the city of Kalispell. The purpose of this analysis is to guide factual discussion, provide best available information and achieve a timely decision regarding City policy as it applies to these two issues. Background The concept of dispatch consolidation is a separate issue from 911 services. It must be noted, however, that certain applications of 911 relate directly to the dispatch function and possibly to the consolidation issue. It is because of those relationships that the two are being covered in a joint report. The possible consolidation of dispatch services has been a low level issue for several years in our area. It seems to be coming to a head of late due to the government study commissions, budget crunches and political efforts of some individuals. For our purposes in this report, consolidation of dispatch relates to a consolidation between City of Kalispell Police dispatchers and Flathead County Sheriff's dispatchers. The concept is sometimes discussed in relation to including Whitefish and Columbia Falls, but it is inappropriate to cover them extensively in this report, even though their inclusion is pivotal in some forms of consolidated concepts. The separate issue of 911 has likewise been in low key discussion phases for several years. Most recently and to the point is the current 911 committee formed under the leadership of the Flathead Safety Council about 1'iF years ago. Further impetus regarding 911 as a Flathead Valley issue resulted from passage of legislation in the 1985 session enabling and minimally funding 911 through the State of Montana. This issue will be addressed later in this report. I. Dispatch Consolidation In the City of Kalispell we have four personnel with the • job title of "dispatcher". They are to staff a 24 hour/7day position in the City dispatch center. Since it obviously takes more like 5+ persons to staff a single 24 hour position, we utilize other employees to "fill in" at various times. We also rely on other personnel as "back-up" during busy times, breaks or meal periods. Typically these persons are clerical, STEP personnel, meter maid or officers. Certain ill-informed persons assume that the job of "dispatcher" involves sitting at a radio/telephone console waiting for either a phone call reporting a need for emergency service or a radio call from various units informing of various actions taken. This erroneous notion is the crux of what the police staff sees as a major problem in proposed consolidation. In addition to the two classic functions of monitoring calls on radio or by phone, our "dispatchers" provide a variety of services, most of which are indispensable. IT IS CRITICAL prior to discussing consolidation to understand that these various functions will have to be provided for or else a significant reduction of service to our citizens and clients will result. Present Kalispell Police Department Dispatcher duties: • - Answer phones. This amounts to emergency and non -emergency calls. The proportion and total number varies shift to shift, day to day or season to season. Many administrative calls are handled which may involve transfer to other staff personnel, providing information to the media and public or answering questions. This is easily in excess of 100 phone calls per day. For each emergency call, the dispatcher handles from 4 to 10 non -emergency calls. - Radio transmissions. A dispatcher monitors and speaks on (to varying degrees) 6+ radio channels. These include City Police 1, City Police tactical, County Sheriff, Highway Patrol, Fire, Public Works and Regional/State emergency. Other channels are used or monitored, but infrequently. In addition to the numerous police transmissions, the dispatcher coordinates or relays messages for City Water, Street crews, sanding truck and plows, fire and amublance, street sign and traffic signal personnel, meter maid, animal warden, STEP personnel, police administrative and detectives as well as other agency base units. Regular police personnel alone account for numerous transmissions • per officer per shift. The dispatcher dispatches officer(s) to calls, notes arrival, relays pertinent enroute data, monitors officer's time at scene, notes clearnance time, enters dispositions and telephones information to third parties. They also log all traffic stops, access records information on vehicles, individuals (2) and premises; check wants/warrants, check registration and driver license date and use NCIC/LENS computer network. They also generally keep track of officers on patrol for safety and relay information to/from patrolmen and to/from third parties. Data Cards. On each call for service a data card must be filled out documenting numerous details of the call. This is critical to our data requirements from State & Federal laws as well as in-house activity logs. Type Log. The daily log of all calls and pertinent information is kept by the dispatcher. This is usually a short recap of each call and logging of pertinent related information to communicate to later shifts, staff, media, etcetera. Type reports. On any call resulting in a police report of crime or incident the dispatcher types from officer's hand- written copy to provide clear, correct and readable report. obviously, this can amount to quite a lot of typing. - Keep records files and access same. The thousands of reports received and typed must be categorized, indexed, cross indexed, compiled, filed and copied. These records also have to be accessed frequently by the dispatcher. This amounts to thousands of document units and tens of thousands of units of time annually. - Monitor, alarms. The dispatcher also monitors in-house a bank of burglary, robbery and fire alarms. They also receive numerous alarm reports from answering services and telephone alarm equipment. These alarms come from private businesses, government agencies, medical/extended care facilities and banks. They also monitor the City water/sewer alarms. - Monitor jail. Dispatchers are the only City personnel in the City hall complex continually. As such, they are our "jailors" in terms of acoustical monitoring and visual observations of the jail/security area. - Building Security. Once again, because they are the only persons in City Hall continually, the dispatcher monitors the CCTV System for building security. - Walk-ins. A crucial element of our City hall and the police function is the ability for citizens/victims/complainants to walk in anytime for help, information or assistance. Dispatchers provide that function for payment of tickets, releasing vehicles, posting bonds, receiving reports, victim/witness receiving, prisoner releasing, miscellaneous building access and any number of other things people expect from City Hall or the police. (3) • - Fire/ambulance dispatch. Our dispatcher is the fire dispatch when there is a general alarm fire. They also dispatch ambulances frequently when a vehicle accident or other police incident requires. - Teletype/computer. our dispatcher is our link to National and State anti -crime computer systems. They use this equipment frequently/continuously to access or enter information on wanted persons, stolen vehicle, driver licenses, vehicle registration, stolen property, criminal history and other information access. They also send and receive messages to or from other law enforcement agencies regarding BOLO's, crime incidents, emergency messages, etcetera. - Other city units. The dispatcher occasionally coordinates and relays messages for City water, Sewer, Street or Parks department employees after hours. Other. As with any job there are numerous other small details of units of work that either do not come to mind or do not bear singling out. In many instances they are neverthe less important. The importance of describing all of the above duties is that-. each of those functions will have to be provided for or consciously dropped as a service under most currently discussed dispatch • consolidation schemes. It also serves to illustrate that the position "dispatcher" has a good many functions that do not -meet the eye. Yet, in spite of those numerous duties, when the phone rings or radio communication activates, the dispatcher must be immediately available and alert to respond to an emergency. CONSOLIDATION SCHEMES There are several conceivable schemes whereby consolidation may be achieved. Variations of any may or may not involve the inclusion of 911 services. Such compatability will be mentioned briefly here, but covered in more detail under the 911 section. Consolidation is most frequently conceived as a singular county -wide central dispatch system. This concept would "eliminate" the three City dispatch centers. The presumption is that combining all calls to one center will avoid duplication of personnel/services thereby saving (the city's) money. Such could only be true if, in fact, any of the four present dispatch centers is "over staffed". We will not presume to speak for any, but Kalispell, which is under- staffed at present. Therefore, the only way this scheme could "save" us money is if the county will totally fund the consolidated center. Even then, Kalispell would be forced to evaluate the services previously described under dispatcher duties. Problems to be • resolved for a non -financial nature are many. Would record systems also be consolidated? If so, how will each agency access and mani- pulate records and data? Which forms will be utilized and will they be satisfactory to each agency? Who is in charge? Who is liable for call handling errors? What about insurance for error/omissions? What of the various agency detention facilities? What entity actually employs the dispatchers? What comes of present dispatchers? What retirement systems may be involved? How will staffing needs be determined, resolved and funded? What will come of related services currently provided by dispatchers? These are but some of many issues that will have to be resolved before consolidating under any scheme. There are many more unlisted here. Another common scheme discussed is consolidating only Kalispell and Flathead County. This proposal bears even less likelihood for actually saving tax dollars. One bright aspect of this approach, however, is that the central dispatch center could be located in Kalispell City Hall. That would make the option more attractive in terms of resolving ancillary services, but still would not likely save money. A further issue would be determining levels of service response on calls for service. A serious problem could arise in terms of differential agency policies on responding to different types of calls. The new County Justice Center is capable of housing a consolidated Center, but then we are back to all of the previous issues. A particular concern still would be which agency is in administrative control. It is very likely not in our best interest to have the center in control of an elected official who may change • office each election. Some individuals have suggested putting the center under control of the Civil defense office. My concern with that is still to resolve all foregoing issues, but also that during a major emergency, just when the center needs its best leadership the person in charge is out at the scene of the major problem. This staff feels that if such a consolidation must come about the center should be administered by a board and managed by a competent individual unencumbered by any other duties, responsibilities, affiliations or political allegiances rather than an existing agency. Conclusion A consolidated dispatch center concept has some attractive features on first preliminary analysis. The KPD staff recommends against such a concept after close examination. It will createmore problems than it will solve. It will not save money overall nor especially to the City. It will not better serve the citizens of Kalispell. If, however, decisions are made contrary to this staff finding we recommend the following options in this order of preference. option I) Retain our own dispatch center and personnel option 2) Combine/consolidate and house in KPD at City Hall Option 3) Consolidate and house in a neutral facility headed by appointive manager unaffiliated with any agency. (5) In no event should any consolidation be attempted without first resolving service changes, completing analysis of staffing needs, resolving all issues previously mentioned, determining funding formula and establishing expanded City costs to staff functions our dispatchers presently provide; in particular 24 hours walk-in assistance, 24 hour jail monitoring, building security and handling of administrative calls and messages. . II. 911 Implementation 911 is merely the enabling of all telephones in a given area to allow persons needing emergency services to simply dial three digits 9-1-1 and reach an emergency services operator. It is extremely important to understand that 911 is nothing more nor less than this phone service ability. It is all too easy to confuse 911 with other dispatch issues. This confuses the issue and distorts the costs of providing 911 service. The political and burdensome financial problems associated with the 911 emergency services operator(s) is (are), how many there are, where they are located, what other duties they have and under whose auspices they are employed. It could be said that the "concept" of 911 has been around for decades and has • worked rather nicely. This "concept" is the ability for a person needing emergency services to simply dial "0". For a variety of reasons telephone companies have figured out that they do not wish to or cannot provide this "operator" service. Therefore, the birth of the 911 concept and a new job description of "emergency service operator". The concept of 911 has most recently been under research by the 911 committee mentioned earlier. For approximately eighteen months this group has been researching feasability and costs for adopting a 911 system in Flathead County. The group is composed of agency heads from various emergency service providers and interested citizens. Progress has been slow, particularly due to researching costs and the political ramifications involved in various schemes of where the answering center would be located, how to staff it, etcetera. The one issue the committee has consistently agreed upon is that 911 as a means of obtaining emergency service is desirable. During the 1985 legislative session, a bill was passed into law (herein appended) encouraging 911 systematization throughout Montana and establishing a tax of $.25 per phone line per month to telephone subscribers in order to fund implementation of 911 • service. In Flathead County that translates to about $70,000 per year available to fund 911. Costs will undoubtedly far exceed this figure regardless of what scheme is adopted to accommodate 911 service. Central office equipment costs, pay phone adaptation (6) i retrofitting, 911 answering center costs and on -going personnel costs all become variously frightening depending upon which scheme is being analyzed. 911 service as a system really only benefits persons needing emergency services who do not know or cannot remember the phone number of the specific emergency service they need. In the county- wide sense there can be much confusion as to the varying service jurisdictions and coverages. In Kalispell, police, fire and ambulance are all available at one or at most two numbers which a person should have by their phone. Realistically, in any case in any area of the county or city a person calling any emergency service will get whatever service they need either by way of transfer, relay or direct response regardless of jurisdictional problems. Even with all the emergency calls handled over the past several years no one can recall an instance where calling parties with ture emergency problems were not served well. In our financial setting a strong argument could be made that 911 is a "cadillac" that our "chevrolet budge" cannot afford. This staff does not take that position. Another pertinent factor to be understood is the availability of enhanced 911 (E911). Basic 911 merely accommodates three digit dialing. With E911 the emergency operator instantly receives computerized visual confirmation of the exact location of the caller and the name of the person to whom that phone belongs. This E911 is an important feature when true lifesaving emergency calls are received. This staff feels that this feature should be considered essential in developing 911 service here. We see no sense in starting off with technology that is already twenty years behind the times. E911 is state of the art and, we feel, one of the indispensable features which makes the 911 concept really useful. All of the objections to 911 service revolve around the answering end of the line. The legislation describes four kinds of acceptable systems. There are variations raising that number when put in practice locally. Some of the schemes recently examined include consolidated dispatch while some do not. This staff has discussed four viable options. Probably the simplest politically is a central 911 answering center which then identifies the service needed and transfers the caller to the correct agency. once again, such a center sould be separate from the agencies, administered by a board and managed by an unaffiliated qualified person. Costs could run moderate or high for such a concept, depending upon variables. The easiest concept from the agency and current dispatch concept is to utilize available technology that pre-programs each telephone such that when 9-1-1 is dialed, it automatically rings to the correct (7) geographical dispatch center (already in existence) for service response. The costs here are hardware/software (one time) costs which are quite high due to our present level of technology in the N.W. Telephone Company. There would be no on -going personnel costs added, however. A third option is to have all our 9-1-1 calls routed to an already existing 911 center such as Missoula. The personnel there could then relay or transfer the caller to the correct agency here for response. Costs would have to be negotiated. This could also be done using any of our presently existing dispatch centers, but this involves many problems in addition to costs. A fourth most common scheme under discussion here is a full consolidated county -wide dispatch center which would receive 911 calls and dispatch them directly. Costs and political problems seem to abound with this option. This seems to be the most popular option among people not involved in service agencies or having current dispatch systems. This is also the option causing all the confusion of what 911 really is and isn't. All of the staff comments relating to consolidating dispatch apply to this option. Costs would have to be determined after studying facility and staffing needs. A fifth option is creating 911 service only in the Kalispell area, • but not county wide. This staff feels that would confuse matters worse than they already are. Very little benefit would be achieved while much may be lost. The key to 911 is that it cover an entire service area. The provision of 911 service is first and foremost strictly a means of telephone communication of emergency response needs. It is the opinion of this staff that the primary responsibility for such a telephone system lies with the telephone companies. If 911 is an option we can afford county -wide it should be adopted with minimal disruption to already functioning emergency service providers and currently effective dispatch systems. To that end we wholeheartedly support developing 911 system capability as soon as the level of technology in local telephone service can accommodate E911 which rings into the proper geographical jurisdiction serving emergency needs. If that cannot be done, this staff severely questions whether the costs are worth the benefits, particularly to the citizens of Kalispell whom we serve. As a second option we would next recommend a central (8) • 911 answering service utilizing call transfer to the proper response agency. The "given" in adopting such a system is that all emergency calls are slowed by the 911 bureaucracy as opposed to the ability of the individual to direct dial the proper agency. Another pertinent "given" is that we will all begin paying $.25 per month per phone line in January of 1987 whether we develop 911 service or not. We acknowledge that there are several other options, but none seem practical at this time without a severe disruption of service and/or significant expense. (9)