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CITY COUNCIL STAFF REPORT
DATE: September 19, 2007 LEGISLATIVE
SUBJECT: PROPOSED ORDINANCE ADOPTING PUBLIC SAFETY RADIO
SYSTEM COVERAGE REGULATIONS
FROM: David H. Ready, City Manager
BY: Fire Chief
SUMMARY
The City Council will consider an ordinance that will enable City law enforcement
officers, firefighters and other public safety officials to have direct radio communications
to the Palm Springs Public Safety Communications Center, or the Incident Commander,
while performing their work inside buildings and underground parking areas. This will be
achieved by requiring the installation of a public safety radio frequency amplification
system in all new, four-story buildings (or taller), existing four-story buildings that
increase their space by 20%, and all new underground parking and storage areas that
do not provide reliable and continuous radio coverage an at least 90% of each floor.
RECOMMENDATION:
1. Waive the reading of the ordinance text in its entirety and read by title only.
2. Introduce on first reading Ordinance No. _, "AN ORDINANCE OF THE CITY
OF PALM SPRINGS, CALIFORNIA, ADDING CHAPTER 11.03 TO THE PALM
SPRINGS MUNICIPAL CODE, RELATING TO PUBLIC SAFETY RADIO
SYSTEM COVERAGE."
STAFF ANALYSIS:
The proposed ordinance is intended to provide a regulatory framework for the purpose
of providing effective public safety radio coverage throughout the City of Palm Springs
for police and fire emergency services.
ITEM NO.
City Council Staff Report
September 19, 2007—Page 2
Public Safety Radio Coverage
Portable hand-held radios used by the police and fire departments often do not have the
signal strength to send the radio message from within buildings or from underground
parking garages to outside emergency responders or the dispatch center. The design,
location, and construction materials of structures also contribute to inadequate radio
signals being received by outside personnel. A radio signal amplification system routes
the radio signal from inside the building out to the public safety radio system and
emergency responders.
In order to minimize the danger to life caused by ineffective communication, this
Ordinance requires new four-story buildings to provide effective and continuous public
safety radio communications from at least 90% of each floor. Existing non-exempt
buildings that add, alter, or enlarge twenty percent (20%) or more in total floor area and
do not support the minimum radio coverage for city emergency service workers will be
required to install a radio amplification system so that each floor of the building has
public safety radio communications with 90% reliability.
This ordinance exempts elevators and elevator shafts, and exempts structures that are
three stories high or less without subterranean storage or parking, and if a wood frame
residential structure three stories or less has subterranean storage or parking, only the
subterranean areas must meet the radio signal specifications.
This Ordinance requires all new four-story buildings or taller, and all subterranean levels
of any new building, or existing altered buildings over 20% to undergo radio system
testing pursuant to the City of Palm Springs Public Safety Radio System Coverage
Specifications. If all or portions of the building do not meet the 90% per floor radio
coverage requirement, then all, or portions of the building shall have a radio
amplification system installed to meet the specifications. This ordinance also requires
that all new four story (or taller) buildings, and all subterranean levels of any new
buildings have a 2" conduit installed for the sole purpose of allowing a radio
amplification system to be installed if needed.
The installation of a radio amplification system for both police and fire to ensure
effective and continuous radio coverage in a nine (9) story 100' tall building is estimated
to cost $80,000 per Mr. Chuck Rich of Riverside Communications. Mr. Rich is currently
installing a radio amplification system in an eight story hospital in the Inland Empire. A
Certified Technician would approve the design and conduct acceptance testing prior to
occupancy. Thereafter, the Fire Department would conduct radio tests during the
scheduled fire inspection of the occupancy to ensure its operational effectiveness
The Fire Chief and staff have researched how other jurisdictions maintain public safety
radio coverage in buildings. The Federal Communications Commission (FCC) has
posted resources related to this issue on its Public Safety and Homeland Security
Bureau Web site. This site provided sample ordinances and methods to achieve
continuous radio communications from inside buildings.
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City Council Staff Report
September 19, 2007— Page 3
Public Safety Radio Coverage
In addition, many Southern California cities have public safety radio ordinances in
effect. Upon examination, staff recommended that we develop our Ordinance and
Specifications after those in Burbank, Ontario, and Orange County. Lastly, we utilized
the consultant services of Dr. Henry Richter and Mr. Chuck Rich of Riverside
Communications to review and make recommendations to our proposed Ordinance and
Specifications.
The Fire Chief in consultation with the Police Chief and City Manager's Office will review
and update the Public Safety Radio System Specifications periodically to allow for
changes to the public safety radio frequencies, FCC requirements or mandates, and
other regional factors affecting the City's public safety radio system.
FISCAL IMPACT:
No fiscal impact to the City.
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Blake G. Goetz, Fire Chief David H. Ready, OrKanager
Attachments:
Proposed Ordinance
Coverage Specifications
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ORDINANCE NO.
AN ORDINANCE OF THE CITY OF PALM SPRINGS,
CALIFORNIA, ADDING CHAPTER 11.03 TO THE
PALM SPRINGS MUNICIPAL CODE, RELATING TO
PUBLIC SAFETY RADIO SYSTEM COVERAGE.
City Attorney's Summary
This Ordinance requires the installation of 800 MHZ and
150 MHz communications systems or approved
amplification systems in new development or retrofitted
buildings to ensure effective and continuous public safety
radio communication for emergency service operators.
The City Council of the City of Palm Springs ordains:
SECTION 1. The Palm Springs Municipal Code is amended to add Chapter
11.03, to read as follows:
Chapter 11.03
PUBLIC SAFETY RADIO SYSTEM COVERAGE
Sec. 11.03.010. Intent and purpose. The intent of this Chapter is to provide a
regulatory framework for the purpose of providing effective public safety
coverage throughout the City of Palm Springs for police and fire emergency
services.
Sec. 11.03.020. Definitions. The following words, terms, and phrases when
used in this Chapter shall have the meanings ascribed to them in this section,
except where the context clearly indicates a differing meaning:
"Certified Technician" means an individual who is qualified/Certified with a
General Radiotelephone Operator License (GROL/PG); or Journeyman Wireless
C.E.T.; or NARTE EMC Technician; or NARTE EMC Engineer; or equivalent, to
review design plans and perform tests in affected structures to measure City of
Palm Springs Public Safety Radio System Coverage Specifications.
"City of Palm Springs Public Safety Radio System Coverage Specifications"
means those specifications designed to provide optimum coverage and radio
effectiveness within buildings and structures under the Palm Springs
Communication System, approved and amended from time to time by the Fire
Chief and on file in the Fire Department.
"Fire Chief' means the Fire Chief of the City of Palm Springs or the Fire Chiefs
designee.
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"Fire Department" means the City of Palm Springs Fire Department.
"Palm Springs Communication System" means the radio system used by local
law enforcement, fire, and public works departments within the City of Palm
Springs for emergency and non-emergency radio communications.
"Special Inspector" means a certified technician who is approved by the City of
Palm Springs to conduct acceptance testing.
Sec. 11.03.030. Use and occupancy.
A. Except as otherwise provided, each building or structure for which a
building permit is issued on or after November 5, 2007, or any part thereof, shall
be erected, constructed, and occupied in a manner consistent with the Palm
Springs Public Safety Radio System Coverage Specifications-
B. Owners shall maintain reliable radio communication within their buildings
and structures in compliance with Palm Springs Public Safety Radio System
Coverage Specifications.
C. The provisions of this Chapter shall not apply to any building or structure
erected or built and occupied pursuant to a building permit issued on or before
November 5, 2007, provided that any addition, alteration, or enlargement of
twenty percent (20%) or more in total floor area of such building or structure, then
such building or structure shall be retrofitted or otherwise modified to comply with
the requirements of Subsection A above.
Sec. 11.03.040. Testing procedures. Test of radio coverage will be conducted
pursuant to those specifications in the City of Palm Springs Public Safety Radio
System Coverage Specifications as provided in this Section.
A. Acceptance testing. Acceptance testing will be performed by a Special
Inspector in accordance with test standards as listed in the City of Palm Springs
Public Safety Radio System Coverage Specifications. A Certificate of Occupancy
shall not be issued if said structure, or any part thereof, fails to comply with these
test standards. Complete documentation of acceptance testing conducted and
the results shall be forwarded to the Fire Department.
B. Annual tests. Annual tests will be administered by the Fire Chief in
accordance with the test standards as listed in the City of Palm Springs Public
Safety Radio System Coverage Specifications.
Sec. 11.03.050. Amplification systems allowed. Buildings and structures that
cannot support the required level of radio coverage shall be equipped with an
amplification system as specified in the City of Palm Springs Public Safety Radio
System Coverage Specifications.
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Sec. 11.03.060. Exemptions. This Chapter shall not apply to the following:
A. Elevators and elevator shafts.
B. Structures that are three stories or less without subterranean storage or
parking.
C. Wood-constructed residential structures three stories or less without
subterranean storage or parking. Should construction that is three stories or less
include subterranean storage or parking, then this ordinance shall apply only to
the subterranean areas.
Sec. 11.03.070, Costs. The owner and property developer shall be responsible
to hire and pay all costs for the certified technician who will be the Special
Inspector. Any company or individual hired to perform special inspection work for
the project may not be part of the construction or installation process. The
certified technician may not be employed by or have a vested interest in the
general contracting company, any subcontracting companies, building
management, building ownership or any portion of structure construction.
Payment of the Special Inspector's fee and costs shall not be made contingent
upon the passage of the acceptance test.
Sec. 11.03.080. Noncompliance. After discovery of noncompliance, the
building owner is provided three months to remedy the deficiency and gain
compliance. Notwithstanding the foregoing, no Certificate of Occupancy shall be
issued after discovery of noncompliance until the deficiency is corrected and the
acceptance test is passed. It shall be unlawful for any person, firm or corporation
to violate any provision or fail to comply with any of the requirements of this
ordinance. Any person, firm or corporation violating any provision of this
ordinance or failing to comply with any of its requirements shall be deemed guilty
of an infraction, punishable by a fine not exceeding One Thousand Dollars
($1,000.00) per day the violation continues. Each such person, firm or
corporation shall be deemed guilty of a separate offense for each day during any
portion of which any violation of any of the provisions of this ordinance is
committed, continued or permitted by such person, firm or corporation, and shall
be punishable therefor.
SECTION 2. In support of the adoption of this Ordinance, the City Council of the
City of Palm Springs finds:
A. The City of Palm Springs provides public safety services through the Fire
Department (PSFD) and Palm Springs Police Department (PSPD).
B. Both existing and increased development throughout the City have caused
interference to the 800 MHz and 150 MHz communications systems used by the
PSFD and the PSPD.
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C. Said radio degradation has caused a lack of coverage, quality and
intelligibility for essential public safety emergency radio communication and, as a
result, is a potential threat to the safety of emergency workers and to the public.
D. In order to minimize the danger to life caused by ineffective
communication, all new buildings will be required to provide for communications
systems such that effective and continuous public safety radio communication
will be maintained, and existing non-exempt buildings that do not support the
minimum radio coverage for City emergency service workers will be required to
install an amplification or other system to ensure adequate public safety radio
communications.
E. This ordinance constitutes a "local security standard" regulating the
erection, construction, or alteration of buildings pursuant to California Penal Code
Section 14051.
SECTION 3. The City of Palm Springs Public Safety Radio System Coverage
Specifications shall be applied to the non-exempt buildings and structures
specified in this Ordinance.
SECTION 4. The City Council declares that, should any provision, section,
paragraph, sentence, or word of this ordinance be rendered or declared invalid
by any final court action in a court of competent jurisdiction or by reason of any
preemptive legislation, the remaining provisions, sections, paragraphs,
sentences, or words of this ordinance shall remain in full force and effect.
SECTION 5. The Mayor shall sign and the City Clerk shall certify to the passage
and adoption of this Ordinance and shall cause the same, or the summary
thereof, to be published and posted pursuant to the provisions of law and this
Ordinance shall take effect thirty (30) days after passage.
PASSED AND ADOPTED THIS DAY OF 2007.
AYES:
NOES:
ABSTAIN:
ABSENT:
RON ODEN, MAYOR
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319129"1
ATTEST:
James Thompson, City Clerk
APPROVED AS TO FORM:
Douglas Holland, City Attorney
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CITY OF PALM SPRINGS PUBLIC SAFETY RADIO SYSTEM COVERAGE
SPECIFICATIONS
1. Performance. Specifications are provided to assist property owners in
satisfying a delivered audio quality (DAQ) of three with a 90 percent reliability
factor for emergency personnel using radio communication in their buildings and
structures.
Property owners who can demonstrate full compliance with the reliability factor
without adhering to all of the following specifications may be excused from all or
part of these provisions.
Property owners who adhere to all of the specifications and fail to reach the
reliability factor must employ all resources necessary to ensure full compliance.
Performance and compliance may be tested and verified annually as part of the
Palm Springs Fire Department's Fire Inspection program.
2. Signal strength, signal rejection, modulation compatibility, and delivered
audio quality. The following defines the minimum required level of radio signal
strength:
- A minimum signal strength of (-95dBm) in 90 percent of the area of each floor of
the building from the 800 MHz Palm Springs Communications System is
required.
-A minimum signal strength of (-95dBm) in 90 percent of the area of each floor of
the building from the 150 MHz Palm Springs Communications System is
required.
- The frequency range supported from the 800 MHz Palm Springs
Communications System shall be 806 - 861 MHz.
- The frequencies supported from the 150 MHz Palm Springs Communications
System shall be 154.3550(RX) and 153.8900(TX).
-A public safety radio amplification system shall include filters to reject
frequencies below 805 MHz and frequencies above 870 MHz by a minimum of
35 dB.
- All system components must be 100 percent compatible with analog and digital
modulations after installation without additional adjustments or modifications. The
systems must be capable of encompassing the frequencies stated herein and
capable of future modifications to a frequency range subsequently established by
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the City of Palm Springs. If the system is not capable of modification to future
frequencies, then a new system will need to be installed to accommodate the
new frequency band.
-Active devices shall have a minimum of-50 dB 3rd order intermodulation
protection.
- All active in-building coverage devices shall be FCC Part 90 Type Certified.
- UL listing is required for any AC operated power supplies.
- Active devices shall include a minimum of 12 hours of battery backup power.
- Any in-building coverage system shall be installed by a City approved,
manufacturer-trained and certified installer-
- Delivered Audio Quality (DAQ) minimum is DAQ 3.
The delivered audio quality(DAQ) is defined below:
DAQ Delivered Audio Quality/ Subjective Performance Description
DAQ 1 / Unusable, speech present but unreadable.
DAQ 2 / Understandable with considerable effort. Frequent repetition due to
noise/distortion.
DAQ 3 / Speech understandable with slight effort. Occasional repetition required
due to noise/distortion.
DAQ 3.5 / Speech understandable with repetition only rarely required. Some
noise/distortion.
DAQ 4 / Speech easily understood. Occasional noise/distortion.
DAQ 4.5 ./ Speech easily understood. Infrequent noise/distortion.
DAQ 5 / Speech easily understood.
3. Remedies to achieve compliance (acceptable amplification systems). If
needed to ensure compliance with the 90 percent reliability factor, the property
owner must install each of the following:
- An in-building coverage system composed of a radiating cable system or an
internal multiple antenna system with FCC-certified bi- directional 800 MHz and
150 MHz (as required to meet the two indicated 150 MHz frequencies)
amplifier(s), distribution system, and subcomponents.
- Any active devices (e.g. signal booster(s)) must be encased in a NEMA 4 (or
equivalent) dust/waterproof case and clearly labeled "City of Palm Springs Public
Safety Radio."
- Multi-band pass filters as required.
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In the event of a power outage, all electrical components must be equipped with
independent auxiliary battery power or generators to function at full capacity for
at least 12 hours.
Once a system is installed, a Spectrum Analyzer will be used to evaluate the
system for harmful interference to the 800 MHz Palm Springs Communications
System backbone during Acceptance Testing. After Acceptance Testing, the
Fire Department may periodically test the system using a Spectrum Analyzer on
an "as-needed" basis to determine if the system remains in compliance during
the lifespan of the building. Any interference must be identified and removed
before the system can be accepted.
A. Applicable Federal Communications Commission rule compliance. All
active devices used to provide extended coverage must be FCC- certificated.
A. Test standards. Design review and certification.
1. Prior to issuance of a building permit, the applicant shall:
i. Retain a certified technician who will review construction plans in order to
ensure that such plans meet aforementioned radio communication criteria, and
recommend, if needed, an in-building solution for reliable radio communication;
ii. Submit copies of plans certified with the signature of the technician to the Chief
Building Official of the City of Palm Springs who will forward to the Fire
Department Plans Examiner for approval.
2. Prior to issuance of a Certificate of Occupancy, the applicant shall:
i. Retain a certified technician who will test all areas of the building or structure,
verify installation and operation of in-building solutions, if needed, and certify all
of the findings stated herein on the date of inspection with his/her signature. A
passing test is one that demonstrates DAQ 3 with a 90 percent reliability factor
on each floor. Owners of buildings that fail to meet this standard will not be in
compliance with this ordinance.
ii. The building owner must retain all records of initial and annual inspections and
submit copies to the Fire Chief of the City of Palm Springs.
B. Acceptance Testing procedure. All testing must be scheduled at least 24
hours in advance of the desired test time. Acceptance Testing must be done on
a weekday during the late evening/early morning hours, 10:00 P.M. until 6:00
A.M. In the event of a serious emergency, the Incident Commander may require
that Acceptance Testing be stopped on the affected frequency or frequencies
until the emergency has been terminated.
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For purposes of testing, each floor of the building shall be divided into a grid of
approximately 20 equal areas. Testing will be conducted from the center of each
of the 20 equal grid areas. A maximum of two nonadjacent areas will be
permitted to fail the test. The test shall be conducted using a portable radio
talking through the 800 MHz and 150 MHz frequencies. A spot located
approximately in the center of each grid area will be selected for the testing. The
radio will then be keyed to verify two-way communication to and from the outside
of the building through the 800 MHZ and 150 MHz Palm Springs
Communications System. Once the spot has been selected, prospecting for a
better spot within the grid area will not be permitted.
If a floor fails Acceptance Testing, the floor may be divided into 40 equal areas,
and retested from the center of each of the 40 equal grid areas. During this test,
a maximum of four nonadjacent areas will be permitted to fail the test.
All auxiliary power systems shall be tested under load for a period of one hour to
verify that the system will operate properly in the event of a power outage. The
testing technician reserves the discretion to determine whether or not the battery
exhibits symptoms of failure. The certified technician will ultimately decide if the
auxiliary system needs to be replaced or upgraded.
C. Annual test procedure. After a Certificate of Occupancy is issued, the Palm
Springs Inspector or appointed agent may annually test the in-building system
components to determine general functional operability. If noncompliance is
found, an approved technician will reassess the improvement upon scheduling by
the building owner.
D. Every two years battery back-up systems shall be replaced per
manufacturer's specifications.
Batteries shall be marked in permanent marker with the date of replacement.
5. Additional equipment feature requirements.
Active devices shall be alarmed. A phone line (traditional telephone service or
POTS) will provide dial tone to an alarm device. The alarm device will be
programmed to activate the buildings alarm system
The minimum alarms will indicate loss of AC failure and operational failure.
6. New building construction.
All new building construction, that is not exempted by the Public Safety Radio
System Coverage Ordinance, shall have a two-inch conduit installed between the
first and bottom subterranean floor and said conduit shall extend along the center
of the building to the roof. At each floor and the roof, an opening shall be made to
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afford easy access to the conduit from the ceiling. Access in either the form of
drop ceiling or conduit shall be made available along hallways and through
firewalls. All subterranean parking garages shall have a similar conduit
installation.
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