The Public Safety Communication Act of 2002, among other things, requires the Public Safety Radio Strategic Planning Committee to develop and implement a statewide integrated public safety communication system that facilitates interoperability among state public safety departments and other first response agencies and coordinate other shared uses of the public safety spectrum consistent with decisions and regulations of the Federal Communications Commission.

This bill would require that a provider of commercial mobile radio service, as defined, provide access for end users of that service to the local emergency telephone systems described in the Warren-911-Emergency Assistance Act, that 911 be the primary access number for those services, and that user validation not be required. The bill would prohibit a provider of commercial mobile radio service from charging any airtime, access, or similar usage charge for any 911 call placed from a commercial mobile radio service telecommunications device to a local emergency telephone system. The bill would authorize 911 calls from commercial mobile radio service telecommunications devices to be routed to a public safety answering point other than the Department of the California Highway Patrol (CHP) only if the alternate routing meets specified requirements. The bill would repeal similar provisions regarding wireless 911 calls in the Public Utilities Code.

This bill would require the Office of Emergency Services to require the Public Safety Communications Division to work with wireless carriers to verify that all cell sector routing decisions for wireless 911 calls, made pursuant to these provisions, have been implemented. The bill would also require the Office of Emergency Services to maximize the efficiency of the wireless 911 emergency telephone system and to require the Public Safety Communications Division to work with the CHP and county coordinators to determine whether the most efficient routing of wireless 911 calls should be to a local public safety answering point or to a CHP center, using specified criteria, with a comprehensive statewide review and routing decisionmaking process to be completed annually. After completion of the comprehensive statewide review and routing decisionmaking process, the bill would authorize specified local entities to submit a written request for a review of a specific cell sector based on specified criteria to the Public Safety Communications Division.

The Public Safety Communication Act of 2002, among other things, requires the Public Safety Radio Strategic Planning Committee to develop and implement a statewide integrated public safety communication system that facilitates interoperability among state public safety departments and other first response agencies and coordinate other shared uses of the public safety spectrum consistent with decisions and regulations of the Federal Communications Commission.

This bill would require that a provider of commercial mobile radio service, as defined, provide access for end users of that service to the local emergency telephone systems described in the Warren-911-Emergency Assistance Act, that 911 be the primary access number for those services, and that user validation not be required. The bill would prohibit a provider of commercial mobile radio service from charging any airtime, access, or similar usage charge for any 911 call placed from a commercial mobile radio service telecommunications device to a local emergency telephone system. The bill would authorize 911 calls from commercial mobile radio service telecommunications devices to be routed to a public safety answering point other than the Department of the California Highway Patrol (CHP) only if the alternate routing meets specified requirements. The bill would repeal similar provisions regarding wireless 911 calls in the Public Utilities Code.

This bill would require the Office of Emergency Services to require the Public Safety Communications Division to work with wireless carriers to verify that all cell sector routing decisions for wireless 911 calls, made pursuant to these provisions, have been implemented. The bill would also require the Office of Emergency Services to maximize the efficiency of the wireless 911 emergency telephone system and to require the Public Safety Communications Division to work with the CHP and county coordinators to determine whether the most efficient routing of wireless 911 calls should be to a local public safety answering point or to a CHP center, using specified criteria, with a comprehensive statewide review and routing decisionmaking process to be completed annually. After completion of the comprehensive statewide review and routing decisionmaking process, the bill would authorize specified local entities to submit a written request for a review of a specific cell sector based on specified criteria to the Public Safety Communications Division.

The Public Safety Communication Act of 2002, among other things, requires the Public Safety Radio Strategic Planning Committee to develop and implement a statewide integrated public safety communication system that facilitates interoperability among state public safety departments and other first response agencies and coordinate other shared uses of the public safety spectrum consistent with decisions and regulations of the Federal Communications Commission.

This bill would require that a provider of commercial mobile radio service, as defined, provide access for end users of that service to the local emergency telephone systems described in the Warren-911-Emergency Assistance Act, that 911 be the primary access number for those services, and that user validation not be required. The bill would prohibit a provider of commercial mobile radio service from charging any airtime, access, or similar usage charge for any 911 call placed from a commercial mobile radio service telecommunications device to a local emergency telephone system. The bill would authorize 911 calls from commercial mobile radio service telecommunications devices to be routed to a public safety answering point other than the Department of the California Highway Patrol (CHP) only if the alternate routing meets specified requirements. The bill would repeal similar provisions regarding wireless 911 calls in the Public Utilities Code.

This bill would require the Office of Emergency Services to require the Public Safety Communications Division to work with wireless carriers to verify that all cell sector routing decisions for wireless 911 calls, made pursuant to these provisions, have been implemented. The bill would also require the Office of Emergency Services to maximize the efficiency of the wireless 911 emergency telephone system and to require the Public Safety Communications Division to work with the CHP and county coordinators to determine whether the most efficient routing of wireless 911 calls should be to a local public safety answering point or to a CHP center, using specified criteria, with a comprehensive statewide review and implementation routing decisionmaking process to be completed no later than July 1, 2019. annually. After completion of the comprehensive statewide review and implementation, routing decisionmaking process, the bill would authorize specified local entities to submit a written request for a review of a specific cell sector based on specified criteria to the Public Safety Communications Division.

The Public Safety Communication Act of 2002, among other things, requires the Public Safety Radio Strategic Planning Committee to develop and implement a statewide integrated public safety communication system that facilitates interoperability among state public safety departments and other first response agencies and coordinate other shared uses of the public safety spectrum consistent with decisions and regulations of the Federal Communications Commission.

This bill would require that a provider of commercial mobile radio service, as defined, provide access for end users of that service to the local emergency telephone systems described in the Warren-911-Emergency Assistance Act, that 911 be the primary access number for those services, and that user validation not be required. The bill would prohibit a provider of commercial mobile radio service from charging any airtime, access, or similar usage charge for any 911 call placed from a commercial mobile radio service telecommunications device to a local emergency telephone system. The bill would authorize 911 calls from commercial mobile radio service telecommunications devices to be routed to a public safety answering point other than the Department of the California Highway Patrol (CHP) only if the alternate routing meets specified requirements. The bill would repeal similar provisions regarding wireless 911 calls in the Public Utilities Code.

This bill would require the Office of Emergency Services to require the Public Safety Communications Division to work with wireless carriers to verify that all cell sector routing decisions for wireless 911 calls, made pursuant to these provisions, have been implemented. The bill would also require the Office of Emergency Services to maximize the efficiency of the wireless 911 emergency telephone system and to require the Public Safety Communications Division to work with the CHP to determine whether the most efficient routing of wireless 911 calls should be to a local public safety answering point or to a CHP center, using specified criteria, with a comprehensive statewide review and implementation to be completed no later than July 1, 2019. After completion of the comprehensive statewide review and implementation, the bill would authorize specified local entities to submit a written request for a review of a specific cell sector based on specified criteria to the Public Safety Communications Division.

 THIRD READING  

Bill No: AB 1564

Author:

:

Vote:

SENATE ENERGY, U. & C. COMMITTEE: 10-0, 6/21/16

AYES: Hueso, Morrell, Cannella, Gaines, Hertzberg, Lara, Leyva, McGuire, Pavley, Wolk

NO VOTE RECORDED: Hill

SENATE APPROPRIATIONS COMMITTEE: Senate Rule 28.8

ASSEMBLY FLOOR: 78-0, 5/12/16 (Consent) - See last page for vote

SUBJECT:

SOURCE: Fire Chiefs Association of Santa Barbara County

DIGEST: This bill requires the Office of Emergency Services (OES), working with the California Highway Patrol (CHP), and county coordinators to review and ensure the most efficient routing of mobile calls to the 911 system.

ANALYSIS:

Existing law:

1. Establishes the Warren-911 Emergency Assistance Act and provides a local public agency to adopt a plan to implement a 9-1-1 emergency telephone response system, and establishes the State 9-1-1 Advisory Board. (Government §Code 53100, et seq.)
2. Requires a provider of mobile telephone service to provide access to the local emergency telephone systems described in the Warren-911 Act. (Public Utilities Code §2892)
3. Authorizes a 9-1-1 call from a mobile phone service to be routed to a local public safety access point (PSAP) other than the CHP, if the alternate routing meets specified criteria. (Public Utilities Code §2892)

This bill:

1. Requires the OES to take all necessary actions to maximize the efficiency of the “911” system.
2. Requires OES to require the Public Safety Communications Division (PSCD) to work with the CHP and county coordinators to review call data to determine the most efficient routing for wireless 911 calls based on annual comprehensive statewide review and routing decisionmaking process.
3. Provides that after completion of annual comprehensive statewide review and routing decisionmaking process, a local fire, police, sheriff, or emergency medical services agency, or a local public safety answering point, may submit a written request for a review of a specific cell sector based on specified criteria.
4. Requires OES to require PSCD to work with the wireless carriers to verify that all cell sector routing decisions have been implemented.

Background

California’s 9-1-1 system. The OES PSCD is tasked with administering the 9-1-1 emergency telephone response system in the state, including reviewing PSAP equipment and operations. PSCD is responsible for design, installation, maintenance and repair of the statewide microwave network and public safety radio communications systems used by the State’s public safety agencies’ first responders on a 24 hours/7 days a week/365 days a year basis. PSCD is responsible for the administration and oversight of the State Emergency Telephone Number Account (SETNA) used to fund 9-1-1 in California, and for the design development of the statewide network that supports delivery of 9-1-1 calls to the State’s 452 PSAPs, with over 400 that are non-CHP.

Growth of wireless telephone use. When the 9-1-1 system was first established in the 1970s, the majority of emergency calls were made from landlines. The emergency response system receives a call which is routed to a PSAP and the dispatcher dispatches emergency services to the location. With the advent of mobile phones, 9-1-1 calls from mobile phones were routed to a CHP dispatcher in recognition that most of the early mobile phones were in cars, and it was assumed that most of the calls would be related to issues experienced on the roads. However, as mobile phone use has grown and devices have become smaller, more 9-1-1 calls are coming from locations that aren’t necessarily near the CHP patrolled freeways and roadways. Yet, the current dispatch system still largely relies on the CHP to dispatch the call, potentially delaying on-the-ground emergency response times. Based on year 2013 numbers, there were over 25 million 9-1-1 calls placed with about 75 percent coming from wireless phones.

Misrouting of calls. According to the author, in January of 2014, a 23 year old woman was found by her brother to be unresponsive. He called 9-1-1 from his mobile phone and his call was first routed to the CHP who then routed the call to the City of Santa Barbara. The city dispatched emergency response 10 minutes from initial dispatch to arrive at the correct location. According to the author, as a result of the delay, the woman died.

Need to improve efficiency. This bill requires OES to conduct a statewide comprehensive assessment of the 9-1-1 routing system and adjust the routing locations to improve the response times. While currently allowed under law, this bill would require OES to conduct this assessment and make routing decisions on an annual basis, thereby continuously improving the routing system. These changes have the potential to shave minutes from on-the-ground emergency response which could help save lives and improve health outcomes.

Related/Prior Legislation

AB 510 (Rodriguez, 2016) would have increased the membership of the State 9-1-1 Advisory Board from 11 members to 15. Held in the Assembly Committee on Appropriation.

AB 510 (Rodriguez, 2016) would have required Cal OES to conduct a comprehensive review of the California’s 9-1-1 emergency communication systems. Held by the author in the Senate Committee on Energy, Utilities and Communications.

SB 1211 (Padilla, Chapter 926, Statutes of 2014) required Cal OES to develop a plan and timeline for testing, implementation, and operation of a Next Generation 9-1-1 emergency communication system, including text, throughout California.

FISCAL EFFECT: Appropriation: Fiscal Com.: Local:

SUPPORT: (Verified 7/28/16)

Fire Chiefs Association of Santa Barbara County (source)

American Heart Association

American Medical Response

American Stroke Association

California Ambulance Association

California Chapter of the American College of Emergency Physicians

California Fire Chiefs Association

California Peace Officers’ Association

California Professional Firefighters

California State Sheriffs’ Association

Emergency Medical Services Administrators’ Association of California

Emergency Medical Services Directors Association of California

Emergency Medical Services Administrators Association

Fire Districts Association of California

League of California Cities

Santa Barbara County Board of Supervisors

OPPOSITION: (Verified 7/28/16)

None received

ARGUMENTS IN SUPPORT: The author states: “By clarifying the process by which an alternate PSAP is selected, people in emergency situations will reach the most efficient emergency responders the first time, shaving minutes from response times. This will dramatically improve lifesaving outcomes for the public who call 9-1-1.”

ASSEMBLY FLOOR: 78-0, 5/12/16

AYES: Achadjian, Alejo, Travis Allen, Arambula, Atkins, Baker, Bigelow, Bloom, Bonilla, Bonta, Brough, Brown, Calderon, Campos, Chang, Chau, Chávez, Chiu, Chu, Cooley, Cooper, Dababneh, Dahle, Daly, Dodd, Eggman, Frazier, Beth Gaines, Gallagher, Cristina Garcia, Eduardo Garcia, Gatto, Gipson, Gomez, Gonzalez, Gordon, Gray, Grove, Hadley, Harper, Roger Hernández, Holden, Irwin, Jones, Kim, Lackey, Levine, Linder, Lopez, Low, Maienschein, Mathis, Mayes, McCarty, Medina, Melendez, Mullin, Nazarian, Obernolte, O'Donnell, Olsen, Patterson, Quirk, Ridley-Thomas, Rodriguez, Salas, Santiago, Steinorth, Mark Stone, Thurmond, Ting, Wagner, Waldron, Weber, Wilk, Williams, Wood, Rendon

NO VOTE RECORDED: Burke, Jones-Sawyer

Prepared by:

8/3/16 18:36:22

**** END ****

SENATE COMMITTEE ON ENERGY, UTILITIES AND COMMUNICATIONS

Senator Ben Hueso, Chair

2015 - 2016 Regular

Bill No: AB 1564 Hearing Date: 6/21/2016

SUBJECT: Emergency services: wireless 911 calls: routing

DIGEST: This bill requires the Office of Emergency Services (OES), working with the California Highway Patrol (CHP), and county coordinators to review and ensure the most efficient routing of mobile calls to the 911 system.

ANALYSIS:

Existing law:

1. Establishes the Warren-911 Emergency Assistance Act and provides a local public agency to adopt a plan to implement a 9-1-1 emergency telephone response system, and establishes the State 9-1-1 Advisory Board. (Government §Code 53100, et seq.)
2. Requires a provider of mobile telephone service to provide access to the local emergency telephone systems described in the Warren-911 Act. (Public Utilities Code §2892)
3. Authorizes a 9-1-1 call from a mobile phone service to be routed to a local public safety access point (PSAP) other than the CHP, if the alternate routing meets specified criteria. (Public Utilities Code §2892)

This bill:

1. Requires the OES to take all necessary actions to maximize the efficiency of the “911” system.
2. Requires OES to require the Public Safety Communications Division (PSCD) to work with the CHP and county coordinators to review call data to determine the most efficient routing for wireless 911 calls based on annual comprehensive statewide review and routing decisionmaking process.
3. Provides that after completion of annual comprehensive statewide review and routing decisionmaking process, a local fire, police, sheriff, or emergency medical services agency, or a local public safety answering point, may submit a written requires for a review of a specific cell sector based on specified criteria.
4. Requires OES to require PSCD to work with the wireless carriers to verify that all cell sector routing decisions have been implemented.

Background

California’s 9-1-1 system. The OES Public Safety Communications Division is tasked with administering the 9-1-1 emergency telephone response system in the state, including reviewing PSAP equipment and operations. PSCD is responsible for design, installation, maintenance and repair of the statewide microwave network and public safety radio communications systems used by the State’s public safety agencies’ first responders on a 24 hours/7 days a week/365 days a year basis. PSC is responsible for the administration and oversight of the State Emergency Telephone Number Account (SETNA) used to fund 9-1-1 in California, and for the design development of the statewide network that supports delivery of 9-1-1 calls to the State’s 452 PSAPs, with over 400 that are non-CHP.

Growth of wireless telephones. When the 9-1-1 system was first established in the 1970s, the majority of emergency calls were made from landlines. The emergency response system receives a call which is routed to a PSAP and the dispatcher dispatches emergency services to the location. With the advent of mobile phones, 9-1-1 calls from mobile phones were routed to a CHP dispatcher in recognition that most of the early mobile phones were in cars, and it was assumed that most of the calls related to issues experienced on the roads. However, as mobile phone use has grown and devices have become smaller, more 9-1-1 calls are coming from locations that aren’t necessarily near the CHP patrolled freeways and roadways. Yet, the current dispatch system still largely relies on the CHP to dispatch the call, potentially delaying on-the-ground emergency response. According to numbers from 2013, there were over 25 million 9-1-1 calls placed with about 75 percent coming from wireless phones.

Misrouting of calls. According to the author, in January of 2014, a 23 year old woman was found by her brother to be unresponsive. He called 911 from his mobile phone and his call was first routed to the CHP, delaying the emergency response time. The City of Santa Barbara dispatched emergency response to a location 10 minutes from initial dispatch to arrive at the correct location. According to the author, as a result of the delay, the woman died.

Need to improve efficiency. This bill would require OES to conduct a statewide comprehensive assessment of the 9-1-1 routing system and adjust the routing to improve the response times and locations. While currently allowed under law, this bill would require OES to conduct this assessment and make routing decision on an annually basis, thereby continuously improving the routing system. These changes have the potential to shave minutes from on-the-ground emergency response which could help save lives and improve health outcomes.

Prior/Related Legislation

AB 510 (Rodriguez, 2016) would have increased the membership of the State 9-1-1 Advisory Board from 11 members to 15. Held in Assembly Committee on Appropriation.

AB 510 (Rodriguez, 2016) would have required Cal OES to conduct a comprehensive review of the California’s 9-1-1 emergency communication systems. Held by author in this committee.

SB 1211 (Padilla, Chapter 926, Statutes of 2014) required Cal OES to develop a plan and timeline for testing, implementation, and operation of a Next Generation 9-1-1 (Next Gen 9-1-1) emergency communication system, including text, throughout California.

FISCAL EFFECT: Appropriation: No Fiscal Com.: Yes Local: No

SUPPORT:

Fire Chiefs Association of Santa Barbara County (Source)

American Heart Association

American Medical Response

American Stroke Association

California Ambulance Association

California Chapter of the American College of Emergency Physicians

California Fire Chiefs Association

California Peace Officers’ Association

California Professional Firefighters

California State Sheriffs’ Association

County of Santa Barbara

Emergency Medical Directors Association of California

Emergency Medical Administrators’ Association of California

Emergency Medical Services Administrators Association

Fire Districts Association of California

League of California Cities

OPPOSITION:

None received

ARGUMENTS IN SUPPORT: The author states: “By clarifying the process by which an alternate PSAP is selected, people in emergency situations will reach the most efficient emergency responders the first time, shaving minutes from response times. This will dramatically improve lifesaving outcomes for the public who call 9-1-1.”

-- END --

Date of Hearing: May 4, 2016

ASSEMBLY COMMITTEE ON APPROPRIATIONS

Lorena Gonzalez, Chair

ABPCA Bill Id:AB 1564

Author:(Williams) – As Amended Ver:March 17, 2016

Urgency: No State Mandated Local Program: No Reimbursable: No

SUMMARY:

This bill requires the Office of Emergency Services (OES), the California Highway Patrol (CHP), and county coordinators to review the states routing of 911 calls. Specifically, this bill:

1. Requires OES to take all necessary actions to maximize the efficiency of the 911 system.
2. Requires OES to require its Public Safety Communications Division to work with the CHP and county coordinators to conduct an annual comprehensive statewide review and routing decision making process to determine the most efficient routing for wireless 911 calls.
3. Authorizes a local fire, police, sheriff, or emergency medical services agency, or a Public Safety Answering Point (PSAP), to submit a written request for a review of a specific cell sector, as specified.
4. Requires OES to require its Public Safety Communications Division to work with wireless carriers to verify that all cell sector routing decisions, as specified, have been implemented.

FISCAL EFFECT:

Absorbable state costs.

COMMENTS:

1. Purpose. According to the author, there are currently significant problems with California's 911 system including the misrouting of calls to incorrect PSAPs, sometimes in different cities or regions, and inaccurate caller location information.

The author points to an incident in 2014 when a 911 emergency call made in Santa Barbara was routed to Ventura CHP instead. Inaccurate location information given from CHP to the local dispatch further delayed the call and the arrival of medical care. Following the 2014 shooting in Isla Vista, CA, in August 2015 test calls made from Isla Vista revealed that cell sites were still routing calls to Ventura CHP instead of a local dispatch.

1. Background. When the Warren-911 Act was enacted in 1973 , 911 emergency calls were made primarily on landlines. A call would be routed to a PSAP and the dispatcher would dispatch emergency services to the location accordingly. As mobile phones were introduced, mobile 911 calls were routed to a CHP dispatch because most early mobile phones were in cars and the assumption was that calls being made from a mobile device were primarily to report issues on roadways. As mobile devices became more common and the use of landlines decreased, more 911 calls were being made from mobile devices than landlines. By 2015, 25 million 911 calls were being made each year and 80% of those calls were coming from mobile devices. Currently, California has approximately 425 PSAPs, which handle 51% of the states 911 calls, while 25 CHP PSAPs handle the remaining 49%.

When a 911 call is made from a mobile device, the call is routed to an antenna on a cell tower. Each antenna is assigned an Emergency Service Number which determines the PSAP that will handle the call. Calls made from one antenna's coverage area might directly be referred to a local PSAP, whereas, another may be referred to a CHP dispatch depending on the antenna.

911 callers using a mobile device that are forwarded to a CHP PSAP are queried until their location is determined by the CHP. The call is then transferred to a local dispatch center. This has resulted in delays of the arrival of emergency services.

After completion of the comprehensive statewide review and routing decision making process, this bill authorizes a local fire, police, sheriff, or emergency medical service agency, or a local PSAP, to submit a written request to the Public Safety Communication Division, for a review of a specified cell sector. This will allow local public safety officials to continually help identify misrouted calls for OES to ensure calls are routed quickly and accurately to provide more effective emergency services to the public

Analysis Prepared by: Jennifer Galehouse / APPR. / (916) 319-2081

Date of Hearing: April 20, 2016

ASSEMBLY COMMITTEE ON GOVERNMENTAL ORGANIZATION

Adam Gray, Chair

ABPCA Bill Id:AB 1564 (

Author:Williams) – As Amended Ver:March 17, 2016

SUBJECT: Emergency services: wireless 911 calls: routing

SUMMARY: Requires the Office of Emergency Services (CalOES), the California Highway Patrol (CHP), and county coordinators to review the states routing of 911 calls. Specifically, this bill:

1. Requires CalOES to take all necessary actions to maximize the efficiency of the 911 system.
2. Requires CalOES to require its Public Safety Communications Division to work with the CHP and county coordinators to conduct an annual comprehensive statewide review and routing decision making process to review call data on the routing of 911 cell phone traffic.
3. Authorizes a local fire, police, sheriff, or emergency medical services agency, or a Public Safety Answering Point (PSAP), to submit a written request for a review of a specific cell sector, as specified.
4. Requires CalOES to require its Public Safety Communications Division to work with wireless carriers to verify that all cell sector routing decisions, as specified, have been implemented.

EXISTING LAW:

1. Establishes CalOES by the Governor's Reorganization Plan No.2, operative July 1, 2013.
2. Requires CalOES to perform a variety of duties with respect to specified emergency preparedness, mitigation, and response activities in the state, including emergency medical services.
3. Provides, under the Warren-911 Emergency Assistance Act (Warren-911 Act), a local public agency to adopt a plan to implement a 911 emergency telephone response system, and establishes the State 911 Advisory Board.
4. Requires a provider of commercial mobile radio service to provide access to the local emergency telephone systems described in the Warren-911 Act and requires 911 to be the primary access number for those emergency systems.
5. Requires a provider of commercial mobile radio service, in accordance with all applicable Federal Communication Commission orders, to transmit all 911 calls from technologically compatible commercial mobile radio service communication devices without requiring user validation or any similar procedure.
6. Prohibits a provider of commercial mobile radio service from charging any airtime, access, or similar usage charge for any 911 call placed from a commercial mobile radio service telecommunications device to a local emergency telephone system.
7. Authorizes a 911 call from a commercial mobile radio service telecommunications device to be routed to a PSAP other than the CHP only if the alternate routing meets all of the following requirements:
   1. The 911 call originates from a location other than from a freeway, under the jurisdiction of the CHP.
   2. The alternate routing is economically and technologically feasible.
   3. The alternate routing will benefit public safety and reduce burdens on dispatchers for the CHP.
   4. The CHP, Cal OES, and the proposed alternate PSAP, in consultation with the wireless industry, providers of 911 selective routing service, and local law enforcement officials, determine that it is in the best interest of the public and will provide more effective emergency service to the public to route 911 calls that do not originate from a freeway under the jurisdiction of the CHP to another PSAP.

FISCAL EFFECT: Unknown

COMMENTS:

Purpose of the bill: According to the author, it is imperative that the State of California perform a review of its 911 emergency communications system policies and procedures, to make changes that reflect technology available now and in the near future, and to make plans to improve the 911 system in order to protect lives. The author states, “When someone calls 911, every second counts and it is alarming that, in an age where cell phones are so prevalent in our society, our 911 systems are not able to pinpoint a callers location. We need to fix our systems so no more lives are lost to senseless delays."

Background: In 1973, the Legislature passed the Warren-911 Act, which established California's 911 emergency telephone response system. Before the Warren-911 Act, the state had thousands of different emergency phone numbers, and its telephone exchange boundaries and central offices service areas were not designed to consider public safety and political boundaries. The Warren-911 Act provided for a single, primary three-digit emergency number through which emergency service could be quickly and efficiently obtained, making it less difficult for law enforcement and other public service personal to locate and provide emergency services.

When the Warren-911 Act was enacted, 911 emergency calls were made primarily on landlines. A call would be routed to a PSAP and the dispatcher would dispatch emergency services to the location accordingly. As mobile phones were introduced, mobile 911 calls were routed to a CHP dispatch, because most early mobile phones were in cars and the assumption was that calls being made from a mobile device were primarily to report issues on roadways. As mobile devices became more common, and the use of landlines decreased, more 911 calls were being made from mobile devices then landlines. By 2015, 25 million 911 calls were being made each year and 80% of those calls were coming from mobile devices. Currently, California has approximately 458 PSAPs, which handle 51% of the states 911 calls, while 25 CHP PSAPs handle the remaining 49%.

CalOES: The Public Safety Communications Office within CalOES administers the state 911 system, reviews local PSAPs’ 911 equipment and operations, and reimburses their reasonable costs for planning, implementation, and maintenance of approved 911 systems. In 2013, this office was transferred from the California Technology Agency to CalOES as part of budget action. The California Emergency Number Association represents the state’s PSAPs and provides research, planning, and training to support 911 dispatchers and the state 911 system. A state 911 Advisory Board advises CalOES on operation, funding, and long-range planning for PSAPs and the state 911

911 Wireless Routing: There are approximately 300,000 wireless antennas in California. Under current law, 911 calls from a mobile device may be routed to a PSAP other than the CHP if the alternate routing meets all of the following requirements:

• 1. The 911 call originates from a location other than from a freeway;
  2. The alternate routing is economically and technologically feasible;
  3. The alternate routing will benefit public safety and reduce burdens on CHP dispatchers; and
  4. The CHP, Cal OES, and the proposed alternate PSAP, in consultation with the wireless industry, providers of 911 selective routing service, and local law enforcement officials, determine that it is in the best interest of the public and will provide more effective emergency service to the public to route 911 calls that do not originate from a freeway to another PSAP.

When a 911 call is made from a mobile device, the call is routed to an antenna on a cell tower. Each antenna is assigned an Emergency Service Number which determines the PSAP that will handle the call. Hence, calls made from one antenna's coverage area might directly be referred to a local PSAP, whereas, another may be referred to a CHP dispatch depending on the antenna.

911 callers using a mobile device that are forwarded to a CHP PSAP are queried until their location is determined by the CHP. The call is then transferred to a local dispatch center. This has often resulted in delays of the arrival of emergency services and on some occasions, such delays have resulted in serious injury or death.

Misrouting of 911 Calls: According to the author, there are currently significant problems with California's 911 system including: misrouting of calls to incorrect PSAPs, sometimes in different cities or regions, and inaccurate caller location information. The author points to an incident in 2014, in which a 911 emergency call made in Santa Barbara was routed to Ventura CHP instead. Inaccurate location information given from CHP to the local dispatch further delayed the call resulted in a 20 minute delay in the arrival of medical care. Furthermore, following the 2014 shooting in Isla Vista, CA, in August 2015 test calls made from Isla Vista revealed that cell sites were still routing calls to Ventura CHP instead of a local dispatch.

Support: According to the California Professional Firefighters, "When lives are on the line, every second counts. This is especially true, for example, in instances where an individual sustains a cardiac arrest – a sudden condition that can be fatal if not treated within a few minutes. By clarifying the process by which an alternate PSAP is selected, as proposed by this bill, people in emergency situations will be able to reach the most efficient emergency responders the first time, thereby potentially shaving minutes off of response times. Consequently, AB 1564 aids in dramatically improving lifesaving outcomes for those who call 9-1-1."

Double Referral: This bill was first heard in Assembly Committee on Utilities and Commerce and passed on a 15-0 vote.

REGISTERED SUPPORT / OPPOSITION:

Support

American Heart Association

American Medical Response

American Stroke Association

California Ambulance Association

California Chapter of the American College of Emergency Physicians

California Fire Chiefs Association

California Peace Officers’ Association

California Professional Firefighters

California State Sheriffs’ Association

County of Santa Barbara

Emergency Medical Services Administrators Association of California

Emergency Medical Services Medical Directors Association of California

Fire Chiefs Association of Santa Barbara County

Fire Districts Association of California

League of California Cities

Opposition

None on file

Analysis Prepared by: Kenton Stanhope / G.O. / (916) 319-2531

Date of Hearing: March 30, 2016

ASSEMBLY COMMITTEE ON UTILITIES AND COMMERCE

Mike Gatto, Chair

ABPCA Bill Id:AB 1564 (

Author:Williams) – As Amended Ver:March 17, 2016

SUBJECT: Emergency services: wireless 911 calls: routing

SUMMARY: Requires the Office of Emergency Services (Cal OES), the California Highway Patrol (CHP), and county coordinators to review the states routing of 911 calls. Specifically, this bill:

1. Requires Cal OES to take all necessary actions to maximize the efficiency of the 911 system.
2. Requires Cal OES to require its Public Safety Communications Division to work with the CHP and county coordinators to conduct an annual comprehensive statewide review and routing decision making process to review call data on the routing of 911 cell phone traffic, as specified.
3. Authorizes a local fire, police, sheriff, or emergency medical services agency, or a local public safety answering point (PSAP), to submit a written request for a review of a specific cell sector, as specified.
4. Requires Cal OES to require its Public Safety Communications Division to work with wireless carriers to verify that all cell sector routing decisions, as specified, have been implemented.

EXISTING LAW:

1. Provides, under the Warren-911 Emergency Assistance Act (Warren-911 Act), a local public agency to adopt a plan to implement a 911 emergency telephone response system, and establishes the State 911 Advisory Board. (Government Code Section 53100, et. seq)
2. Requires a provider of commercial mobile radio service to provide access to the local emergency telephone systems described in the Warren-911 Act and requires 911 to be the primary access number for those emergency systems. (Public Utilities Code Section 2892)
3. Requires a provider of commercial mobile radio service, in accordance with all applicable Federal Communication Commission orders, to transmit all 911 calls from technologically compatible commercial mobile radio service communication devices without requiring user validation or any similar procedure. (Public Utilities Code Section 2892)
4. Prohibits a provider of commercial mobile radio service from charging any airtime, access, or similar usage charge for any 911 call placed from a commercial mobile radio service telecommunications device to a local emergency telephone system. (Public Utilities Code Section 2892)
5. Authorizes a 911 call from a commercial mobile radio service telecommunications device to be routed to a PSAP other than the CHP only if the alternate routing meets all of the following requirements:
   1. The 911 call originates from a location other than from a freeway, under the jurisdiction of the CHP.
   2. The alternate routing is economically and technologically feasible.
   3. The alternate routing will benefit public safety and reduce burdens on dispatchers for the CHP.
   4. The CHP, Cal OES, and the proposed alternate PSAP, in consultation with the wireless industry, providers of 911 selective routing service, and local law enforcement officials, determine that it is in the best interest of the public and will provide more effective emergency service to the public to route 911 calls that do not originate from a freeway under the jurisdiction of the CHP to another PSAP. (Public Utilities Code Section 2892)

FISCAL EFFECT: Unknown.

COMMENTS:

1. Author's Statement: "It is imperative that the State of California perform a review of its 911 emergency communications system policies and procedures, to make changes that reflect technology available now and in the near future, and to make plans to improve the 911 system in order to protect lives. When someone calls 911, every second counts and it is alarming that, in an age where cell phones are so prevalent in our society, our 911 systems are not able to pinpoint a callers location. We need to fix our systems so no more lives are lost to senseless delays."
2. Background: In 1973, the Legislature passed the Warren-911 Act, which established California's 911 emergency telephone response system. Before the Warren-911 Act, the state had thousands of different emergency phone numbers, and its telephone exchange boundaries and central offices service areas were not designed to consider public safety and political bounders. The Warren-911 Act provided for a single, primary three-digit emergency number through which emergency service could be quickly and efficiently obtained, making it less difficult for law enforcement and other public service personal to locate and provide emergency services.

The Cal OES Public Safety Communication Division is tasked with administering the states 911 emergency system which includes reviewing local PSAP equipment and operations. The 911 Advisory Board advises Cal OES on the operation, funding, and planning for the State 911 system.

1. 911 Routing: When the Warren-911 Act was enacted, 911 emergency calls were made primarily on landlines. A call would be routed to a PSAP and the dispatcher would dispatch emergency services to the location accordingly. As mobile phones were introduced, mobile 911 calls were routed to a CHP dispatch because most early mobile phones were in cars and the assumption was that calls being made from a mobile device were primarily to report issues on roadways. As mobile devices became more common, and the use of landlines decreased, more 911 calls were being made from mobile devices then landlines. By 2015, 25 million 911 calls were being made each year and 80% of those calls were coming from mobile devices. Currently, California has approximately 425 PSAPs, which handle 51% of the states 911 calls, while 25 CHP PSAPs handle the remaining 49%.
2. 911 Wireless Routing: There are approximately 300,000 wireless antennas in California. Under current law, 911 calls from a mobile device may be routed to a PSAP other than the CHP if the alternate routing meets all of the following requirements:
   1. The 911 call originates from a location other than from a freeway;
   2. The alternate routing is economically and technologically feasible;
   3. The alternate routing will benefit public safety and reduce burdens on CHP dispatchers; and
   4. The CHP, Cal OES, and the proposed alternate PSAP, in consultation with the wireless industry, providers of 911 selective routing service, and local law enforcement officials, determine that it is in the best interest of the public and will provide more effective emergency service to the public to route 911 calls that do not originate from a freeway to another PSAP.

When a 911 call is made from a mobile device, the call is routed to an antenna on a cell tower. Each antenna is assigned an Emergency Service Number which determines the PSAP that will handle the call. Hence, calls made from one antenna's coverage area might directly be referred to a local PSAP, whereas, another may be referred to a CHP dispatch depending on the antenna.

911 callers using a mobile device that are forwarded to a CHP PSAP are queried until their location is determined by the CHP. The call is then transferred to a local dispatch center. This has often resulted in delays of the arrival of emergency services and on some occasions, such delays have resulted in serious injury or death.

1. Misrouting of 911 Calls: According to the author, there are currently significant problems with California's 911 system including: misrouting of calls to incorrect PSAPs, sometimes in different cities or regions, and inaccurate caller location information. The author points to an incident in 2014, in which a 911 emergency call made in Santa Barbara was routed to Ventura CHP instead. Inaccurate location information given from CHP to the local dispatch further delayed the call resulted in a 20 minute delay in the arrival of medical care. Furthermore, following the 2014 shooting in Isla Vista, CA, in August 2015 test calls made from Isla Vista revealed that cell sites were still routing calls to Ventura CHP instead of a local dispatch.
2. Comprehensive Review: Cal OES is responsible for the coordination of state agency response to disasters in order to ensure that the state is prepared to respond to all hazards and emergencies, which include assisting local governments in their emergency preparedness, response, recovery and mitigation. This bill requires Cal OES to require its Public Safety Communications Division to work with CHP and county coordinators to conduct an annual comprehensive statewide review and routing decision making process, to implement findings from the review, of the states 911 emergency systems to assess the most efficient routing for wireless 911 calls. The bill also requires the Public Safety Communications Division to work with wireless carriers to verify that all cell sector routing decisions have been implemented, as specified.

After completion of the comprehensive statewide review and routing decision making process, this bill authorizes a local fire, police, sheriff, or emergency medical service agency, or a local PSAP, to submit a written request to the Public Safety Communication Division, for a review of a specified cell sector. This would allow local public safety officials to continually help identify misrouted calls for Cal OES to ensure calls are routed quickly and accurately to provide more effective emergency services to the public.

1. Arguments in Support: According to the California Professional Firefighters, "When lives are on the line, every second counts. This is especially true, for example, in instances where an individual sustains a cardiac arrest – a sudden condition that can be fatal if not treated within a few minutes. By clarifying the process by which an alternate PSAP is selected, as proposed by this bill, people in emergency situations will be able to reach the most efficient emergency responders the first time, thereby potentially shaving minutes off of response times. Consequently, AB 1564 aids in dramatically improving lifesaving outcomes for those who call 9-1-1."
2. Related Legislation:

AB 2453 (Rodriguez), 2016: Increases the membership of the State 911 Advisory Board from 11 members to 15, as specified. Pending in the Assembly Utilities and Commerce Committee.

AB 510 (Rodriguez), 2015: Requires Cal OES, by January 1, 2017, to conduct a comprehensive review of California’s 911 emergency communication systems, as specified. Pending in the Senate Energy, Utilities and Communications Committee.

1. Prior Legislation:

AB 1211 (Padilla), Chapter 926, Statutes of 2014: Requires Cal OES to develop a plan and timeline for testing, implementation, and operation of a Next Generation 9-1-1 (NG9-1-1) emergency communication system throughout California, and also requires Cal OES to include NG9-1-1 costs in its annual calculation of the 9-1-1 surcharge rate.

1. Double Referred: This bill is double referred to the Assembly Governmental Organization Committee.

REGISTERED SUPPORT / OPPOSITION:

Support

American Medical Response

California Fire Chiefs Association

California Peace Officers’ Association

California Professional Firefighters

County of Santa Barbara

Emergency Medical Services Medical Directors Association of California

Fire Chiefs Association of Santa Barbara County

Fire Districts Association of California

League of California Cities

Opposition

None on file

Analysis Prepared by: Edmond Cheung / U. & C. / (916) 319-2083