New Mexico 911 Network (NM 911 Net) Project

Project Charter For Certification

Executive Sponsor – Rick Martinez
Business Owner – Joyce Johnson
Project Managers – Bill Range & Jake Rose
Original Plan Date: March 24, 2010
Revision Date:
Revision: 1

table of contents

table of contents i

1. project background 1

1.1 Executive Summary 1

1.2 Summary of the foundation planning and documentation for the project 4

1.3 Project Certification Requirements 5

2.0 Justification, Objectives and impacts 6

2.1 Agency Justification 6

2.2 Business Objectives 6

2.3 Technical Objectives 7

2.4 Impact on Organization 8

2.5 Transition to Operations 8

3.0 Project/Product Scope of Work 9

3.1 Deliverables 9

3.1.1 Project Deliverables 9

3.1.2 Product Deliverables 11

3.2 Success and QUALITY METRICS 12

4.0 Schedule Estimate 13

5.0 Budget Estimate 15

5.1 Funding Source(s) 15

5.2. Budget 15

6.0 Project Authority and Organizational Structure 17

6.1 STAKEHOLDERS 17

6.2 PROJECT GOVERNANCE PLAN 20

6.3 PROJECT MANAGER 20

6.3.1 PROJECT MANAGER CONTACT INFORMATION 20

6.3.2 PROJECT MANAGER BACKGROUND 21

6.4 PROJECT TEAM ROLES AND RESPONSIBILITIES 21

6.5 Project management Methodology 22

7.0 Constraints 22

8.0 Dependencies 24

9.0 Assumptions 26

10.0 Significant Risks and Mitigation Strategy 26

11.0 COMMUNICATION PLAN FOR EXECUTIVE REPORTING 28

12.0 INDEPENDENT VERIFICATION AND VALIDATION - IV&V 28

13.0 Project Charter Agency Approval Signatures 30

14.0 Project Charter Certification Approval Signature 30

Revision History

Revision Number / Date / Comment
1.0 / March 24, 2010 / Original Project Charter for Certification

ii

Project Charter New Mexico 911 Net Project, Central Ring 14

1. project background

1.1 Executive Summary

Design Concept

A Two Path, IP-Enabled 911 Network for New Mexico 911

The E-911 Program has conceptualized an IP-enabled Next Generation (NG) 911 network that will provide connectivity to all PSAPs in the State of New Mexico. The predominant design feature of this conceptualized network is that it will have two diversely routed paths to every PSAP. Two paths into each PSAP will afford the greatest resiliency in the network and eliminate single points of failure that today compromise PSAP service thereby endangering the lives and property of New Mexicans. A second high-level design feature of the conceptualized two-path network is that at least two service providers using distinct transport media into each PSAP is desired; the goal being that at no point in the two respective paths shall the paths share the vulnerability of being co-located and potentially cut and rendered out-of-service at the same time due to the same incident. The diverse route and distinct media goals can be satisfied if one network path is in the ground or “terrestrial” based and the other is “mountain top to mountain top” or microwave based. The two path network is called New Mexico 911 Network or “NM 911 Net” for short.

Diagram 1—Depiction of the “Mountain Top to Mountain Top” Network

Path One, a Terrestrial Network Path

Path one is intended to be a terrestrial network path. There are some options for the terrestrial path that are being considered. One terrestrial path option is Qwest’s Multi-Protocol Label Switching (MPLS) network that is available throughout New Mexico today. A limitation of Qwest’s MPLS network is that its costs today are prohibitive. The E-911 Program is closely monitoring potential Qwest MPLS price reductions that may result from a Department of Information Technology (DoIT) RFP. If a contract is awarded to Qwest, MPLS can be purchased at significantly lower prices. There may be other options for the terrestrial path and therefore the E-911 Program is working with DoIT to keep other path one options open. The terrestrial path is beyond the scope of this project.

Path Two, a “Mountain Top to Mountain Top” Network Path

Path two is a “mountain top to mountain top” network path using microwave technology. A significant amount technical work and planning was put into seeking a Federal grant. The grant application described a conceptual design of the “mountain top to mountain top” network as a six ring, self-healing, IP-enabled network with a microwave backbone. The application was relevant to meeting NG-911 and interoperability objectives and the Federal government granted New Mexico almost $1 million to put the first ring into place.

With the Federal funding in mind, this project charter certification request is intentionally scoped to only the initial portion—the ‘Central Ring’—of the “mountain top to mountain top” microwave network.

Diagram 2—Depiction of the NM 911 Network, Central Ring Only

Project Overview

This project charter certification request seeks approval for only the Central Ring portion of the NM 911 Net. The Central Ring project and its primary deliverable—a self-healing IP-enabled network ring in Central New Mexico—is part of a much larger multi-year, multi-vendor project that will bring two paths of 911 network connectivity to every Public Safety Answering Point (PSAP) in New Mexico. The Central Ring portion of the larger project is the only focus of this charter certification request, not the entire two-path network project itself.

The scope of this project is limited to the planning and implementation of the Central Ring in order to:

  1. Make the project objectives clearer,
  2. Constrain the cost of the project, and
  3. Identify and mitigate the impact of risks to the larger NM 911 Net project.

Some high-level objectives of the Central Ring project include the following:

  1. Install the first portion of a larger IP-enabled NG-911 network in New Mexico.
  2. Install a test network interface with a Next Generation (NG) 911 switch known as the NG Soft Switch.
  3. Install an interface from the Central Ring to the legacy 911 switches known as the Selective Routers.
  4. Interconnect eight PSAPs that will be used for:
  5. Test and acceptance of connectivity between PSAPs and the legacy and NG-911 switches,
  6. Design refinement (iterative process with test development),
  7. Development and execution of network test and acceptance procedures, and
  8. Planning the larger network project around cost and schedule constraints.

The Central Ring project will serve as pilot project to develop and refine the requirements of the larger NM 911 Net project. The Central Ring project will allow us to specify any items that are currently unspecified for use in the larger project. Examples include the minimum network bandwidth requirements and final test and acceptance criteria. The test results, recommendations, and lessons learned from the Central Ring project will be analyzed and used in planning and guiding the larger NM 911 Net project to success.

1.2 Summary of the foundation planning and documentation for the project

The Need to Shift from Legacy to NG911 Technology

Enhanced 911 (E-911) calls across New Mexico are being delivered to Public Safety Answering Points (PSAPs) by a Legacy 911 network, heretofore referred to as the “Legacy 911 network”, which is based upon 1970s circuit switching technology. Meanwhile, there is a national movement being led by the Federal government—for funding—and by the National Emergency Number Association (NENA)—for the creation of standards—for implementing IP-enabled technology for call delivery, text, image, and video messaging into PSAPs. The new standards refer to the collection of future services described above as Next Generation-911 (NG-911) services.

Public perception is that 911 centers are capable today of receiving NG-911 services. However, the legacy 911 network infrastructure is in fact NOT as capable as public perception suggests. Today, PSAPs in New Mexico cannot interface with the public as described because of the Legacy network. Part of the new standard for enabling NG-911 services in PSAPs is the necessary implementation of an IP-enabled network which can carry the NG-911 services. In addition to providing new services at the PSAP, another significant and intentional benefit of implementing an IP-enabled network for 911 is improved interoperability with PSAPs across the nation. An NG-911 IP-enabled network puts New Mexico PSAPs on a nation wide network or grid for nationwide interoperable communications.

NG-911 has been heavily touted in the 911 industry for the past few years. Chief among the industry leaders advocating NG-911 are NENA, APCO, and the 911 Institute. The E-911 Program has been following and participating in NG-911 standards development, test cases, and implementations since the beginning.

Planning for the transition to a Next Generation network began with a NG-911 Feasibility Study in 2007 and is ongoing. PSAP and GIS stakeholders met in FY09 to assist with a long range plan to migrate to Next Generation. A Technical Working Group was formed in early FY10 to provide a forum for issues and information around Next Generation migration. The Working Group consists of representatives from PSAP management, PSAP IT staff, a nationally recognized Next Generation consultant, various service providers for equipment and network, the Department of Homeland Security and Emergency Management (DHSEM) and the Department of Information Technology (DoIT). This group will serve as a Steering Committee for Next Generation planning and implementation.

The stakeholders involved in the NG-911 Tech Working Group recognize the growing need to implement NG-911 services and support the implementation New Mexico’s NG-911 network. This project, if approved, will implement the first ring—the Central Ring—of a six ring “mountain top to mountain top” microwave network that is part of a larger NG911 Net project. The Central Ring project is the first step in the shift from legacy 911 to NG-911 technology.

The Need for Improved Resiliency in the 911 Network

As evidenced by repeated failures of the legacy 911 network, there is a clear, demonstrated need to improve resiliency in the 911 network thereby ensuring the protection of life and property of New Mexicans. This need for network resiliency (also called network diversity) is the second major factor driving the need for this project. PSAP up-time is less than desirable because of the technological limitations of the legacy 911 network. On the legacy 911 network, there are several single points of failure which invariably cause PSAP outages. PSAP outages endanger lives and property in New Mexico. In most cases a single cable cut on the legacy 911 network can take a PSAP out of service for several hours or in worse cases, outages can last for days. The lack of network path redundancy in the legacy 911 network has long been recognized as a weakness and a risk to life and property.

Efforts have been made to mitigate the likelihood and impact of network outages by 911 equipment vendors, legacy 911 network providers, PSAP Managers, and PSAP IT staff alike. For example, every PSAP has identified a designated PSAP back-up where calls will route under outage conditions. However, despite all the best intentions and the mitigating actions, there continue to be instances on today’s legacy 911 network where outages to PSAPs put the lives and property of New Mexicans at risk.

Network resiliency is one of the foundations of an NG-911 network. The first of six “mountain top to mountain top” rings will provide network connections into eight PSAPs and will thereby improve resiliency by an order of magnitude over the legacy 911 network.

Potential Loss of Nearly $1 Million in Federal Grant Funding

In September 2009, the National Highway Transportation Safety Administration (NHTSA) awarded $888,894 to the NM E-911 Program to implement the first of a six ring “mountain top to mountain top” microwave network. The award, significantly higher than the basic application amount of $500,000, was based on the appropriateness, relevance and potential for meeting national requirements for NG-911.

The ENHANCE 911 Grant Act requires on-going certification that E-911 funds have not been diverted to any other purposes. Any “fund sweeps” would disqualify New Mexico from the grant as well as require any grant funds received be returned to NHTSA. The Federal grant funding must be used by September 30, 2012 or it will be lost; no extensions will be granted.

1.3 Project Certification Requirements

CRITERIA / YES/NO / EXPLANATION
Project is mission critical to the agency / Yes / An IP-enabled network to meet public expectations for NG-911 services such as text messaging, etc
Project cost is equal to or in excess of $100,000.00 / Yes / Non-recurring cost of the Central Ring is approximately $1 million
Project impacts customer access / No / Access to 911 is critical to saving lives and property
Project is one deemed appropriate by the Secretary of the DoIT / Yes / Project is administered by DFA/LGD on behalf of local governments. It is not a state agency project. DFA intends to follow reporting precedents set in the Wireless Rollout Project
Will an IT Architecture Review be required? / Yes / Technical Architecture Review will be completed during the Planning Phase

2.0 Justification, Objectives and impacts

2.1 Agency Justification

Number / Description /
2.1 / The E-911 Program’s mission is to improve 911 service throughout New Mexico

2.2 Business Objectives

Number / Description /
Business Objective 1 / Provide an IP-enabled network for transporting current 911 services (landline, VoIP and wireless) and capable of future 911 services (text, still images and full motion video)
Business Objective 2 / Provide a platform for testing network connectivity and functionality between PSAPs and the legacy and NG switches
Business Objective 3 / Provide maximum network reliability by implementing an IP-enabled 911 network that utilizes self-healing ring topology

2.3 Technical Objectives

Number / Description /
Business Objective 1 / Provide an IP-enabled network for transporting current 911 services (landline, VoIP and wireless) and capable of future 911 services (text, still images and full motion video)
Technical Objective 1.1 / Conduct a pilot test to confirm that assumptions of network design are sound and correct
Technical Objective 1.2 / Test and prepare the migration of 911 traffic onto the IP-Enabled network
Technical Objective 1.3 / Establish minimum security standards for network connections
Technical Objective 1.4 / Establish through contract a network management entity responsible for maintenance and management of the network, serving as a single point of contact in a multi-vendor environment
Number / Description
Business Objective 2 / Provide maximum network reliability by utilizing a redundant, diversely routed 911 network that utilizes self-healing ring topology.