REPORT TO COUNCIL
SUBJECT
Title
Award Three Contracts for Public Safety Computer Aided Dispatch (CAD) System Upgrades: (1) to Intergraph Corporation through its Hexagon Safety, Infrastructure & Geospatial Division (“Hexagon”) for HxGN On Call Dispatch Computer Aided Dispatch System (CAD), (2) to AgreeYa for CAD Implementation Project Management services; and (3) to Environmental System Research Institute, Inc. (ESRI) to Upgrade Geographic Information Systems (GIS) (F24-081)
Report
REPORT IN BRIEF
Take the following actions to approve three contracts for the implementation of a replacement of the public safety computer-aided dispatch system:
- Award a ten-year contract with a not-to-exceed amount of $5,494,766 to Intergraph Corporation through its Hexagon Safety, Infrastructure & Geospatial Division (“Hexagon”) of Madison, AL for implementation services, licensing, maintenance, and support of the On Call Dispatch CAD System for public safety dispatch services. The contract consists of implementation services in the amount of $2,894,603, which will be paid and performed over a 2-year period, and eight years of CAD licensing and maintenance and support in the amount of $2,500,385.
- Approve a 15% contingency for Hexagon implementation services in an amount of $449,157;
- Delegate the authority to the City Manager to renew the Hexagon licensing agreement and maintenance and support for CAD for four additional one-year periods within budgeted amounts, provided pricing and services remain acceptable;
- Award a 3-year contract with a not-to-exceed amount of $681,876 to AgreeYa of Folsom, CA for Project Management services for the implementation of CAD;
- Approve a 10% contingency for AgreeYa’s project management services for CAD in an amount of $68,188;
- Award a 3-year purchase order in the amount of $291,657.50 to Environmental System Research Institute, Inc. (ESRI) of Redlands, CA to upgrade to a Small Government Enterprise annual subscription for Geographic Information Systems (GIS) required to support the replacement CAD system; and
- Authorize the City Manager to execute the contracts when all necessary conditions have been met.
EXISTING POLICY
Pursuant to Chapter 2.08 of the Sunnyvale Municipal Code, contracts for this type of service are awarded pursuant to a Request for Proposals (RFP) best value process, unless otherwise exempt from the competitive bidding process. Additionally, City Council approval is required for the procurement of goods and/or services exceeding $250,000 in any one transaction.
ENVIRONMENTAL REVIEW
The action being considered does not constitute a “project” within the meaning of the California Environmental Quality Act (“CEQA”) pursuant to CEQA Guidelines section 15378(b)(5) in that it is a governmental organization or administration activity that will not result in direct or indirect physical changes in the environment.
BACKGROUND AND DISCUSSION
Computer-Aided Dispatch (CAD) System
In 1998, the City acquired the Tiburon Computer-Aided Dispatch (CAD) system. Due to a series of mergers and acquisitions, as well as related product name changes, Sunnyvale currently uses the TotalCommand CAD product from CentralSquare. Since 2002, the U.S. Department of Justice has funded the Law Enforcement Information Technology Standards Council (LEITSC) to foster the growth of strategic planning and implementation of integrated justice systems through the development of technology standards. LEITSC has been working on national standards for CAD specifications since 2003.
In September 2020, the City issued Request for Proposals (RFP) F21-002 for the purchase and implementation of a new CAD system. The RFP outlined a two-phase awarding process. During Phase I, the discovery phase, the City engaged with a consultant to provide professional services to identify, review, and describe critical functional capabilities, associated business processes, and impacts to the affected processes that align with current best practices and the City's infrastructure. Phase II involves the implementation of the CAD system after completion of the discovery phase.
The City received three proposals for Phase I on December 20, 2020, which were evaluated by a team of City staff from the Information Technology and Public Safety departments. The evaluation team interviewed all proposers and requested a test environment to assess each system. Following the interview and test environment assessments, staff recommended advancing Tyler Technologies and Hexagon to the next stage of procurement, which was a system site visit. Both vendors demonstrated user interfaces and functionalities that showed they are both easy to follow and use, making them both suitable candidates for further evaluation. Staff visited and interviewed two public agencies that use the proposed systems from Tyler Technologies and Hexagon to evaluate usability, the implementation process, and ongoing support. After an extensive evaluation, Hexagon was selected to replace the City's current CAD system.
The City awarded a contract on January 25, 2023, to Hexagon to conduct the Phase I project. Over 6 months, this discovery phase verified that the Hexagon system could meet the City’s requirements and defined which modules would be necessary for purchase.
In 2015, California Assembly Bill AB953 - The Racial and Identity Profiling Act (RIPA) was passed, which requires all law enforcement agencies in California to collect perceived demographic and other detailed data regarding pedestrian and traffic stops and submit the data to the Department of Justice on an annual basis. Hexagon's system provides modernized software that will help the City comply with AB953, share regional data as appropriate, and improve citywide processes while enhancing the City's service delivery capabilities.
This solution includes implementation services itemized in the Investment Summary and described in the Scope of Professional Service (Statement of Work) included in the contract (Attachment 1). New servers (with virtualization software) and dispatch workstations, along with other third-party tools (e.g., GIS Connectors and data integration workflow tools) will also be purchased to support this project.
During Phase I, staff realized that the Public Safety Records Management System (RMS) is closely integrated with the CAD/Dispatch systems, making this integration a critical functionality. Due to staffing constraints and the need to ensure business continuity, staff does not have the capacity to implement both CAD and RMS simultaneously. Therefore, similar to the CAD Phase I process, City staff and Hexagon will be performing a Phase I, fit-gap analysis of the RMS one year into the implementation of CAD. Once the Phase I for RMS is completed, staff will submit a request to Council to amend Hexagon’s MSA to add the scope of work for the implementation of the RMS.
Project Management
Given the specialized nature of the CAD system and the associated implementation project, a project management consulting services contract is recommended with AgreeYa. The project manager proposed by AgreeYa has prior experience implementing Hexagon CAD and experience collaborating with Hexagon’s implementation consultants. Selection of AgreeYa was made through the qualified vendors list from the solicitation of Request for Qualifications (RFQLs) F21-005. The project manager has become familiar with the City’s environment through the Discovery Phase of the CAD project.
Geographic Information System (GIS) Integration
Modern CAD systems rely on GIS technology. Hexagon’s infrastructure design requires multiple, concurrent instances of GIS to ensure fail-proof availability for the CAD system. This design is more complex than the City’s current system. It introduces challenges such as maintaining synchronized content. Moreover, the City will create and publish many new GIS-based services for CAD, necessitating an upgrade to an “Enterprise License” from ESRI, who will handle both the license upgrades and the installation/configuration of the GIS environment. Additionally, the City will enter into a separate consulting agreement with Infinity Consulting, within the City Manager’s authority, to review and update existing environment layers, add new layers and data sets. The City has previously engaged with Infinity Consulting to establish parcel management layers during the implementation of the City’s permitting system and are familiar with the City’s needs.
System Implementation
Successful implementation of a CAD is critical to public safety and a very resource-intensive effort. The implementation for this system will allow the City to be more responsive, interoperable, and efficient in its operations through the following project goals:
a. Effectively enable Public Safety to focus on protecting the lives, property, and rights of all people by providing a uniformed response to emergency and non-emergency calls for service;
b. Allow for the scalability, responsiveness, and adaptability to the future public service and safety needs of the community;
c. Utilize capabilities of modern CAD solutions to provide increases in integrated functionality with City’s software systems and data sharing on a regional basis;
d. Enhance the ability of Public Safety to provide responsive, responsible, and efficient services to the public and businesses living and working within the City;
e. Provide performance indicators for efficiency, effectiveness, and productivity that can be captured through automated, dashboard capabilities without any data manipulation outside the system of record;
f. Streamline processes to improve performance metrics while providing accurate data on relevant transactions, improve data quality, ensure performance accountability, and reduce response times;
g. Incorporate the latest technology advancements to enable adoption of industry best practices; and
h. Prevent data security breaches.
The timing for this proposed implementation is aggressive in order to avoid issues with the current unsupported RMS system and a CAD system infrastructure unable to be a part of the City’s co-location and disaster recovery architecture. This schedule will require backfill staffing for a 2-year implementation and will heavily impact the departments of Public Safety and Information Technology.
The core project team will consist of a Project/Change Manager contracted through Agreeya, who is well-versed in Hexagon CAD implementations and public safety, along with GIS consultants that provide expertise in CAD GIS implementations. The core team will also be staffed by a Systems Lead (Senior Applications Analyst), Integration Specialist (Applications Analyst), GIS Specialist II and a Public Safety Dispatcher. These employees will be assigned to the project full time and their regular duties backfilled by term limited and possible contractual appointments. In addition, a Senior Network & Systems Engineer will be assigned for a portion of the project for infrastructure and security setup/testing and their regular duties backfilled by term limited or a possible contractual appointment. Overall go-live for CAD is scheduled for August 2026, with the Fit-Gap analysis of RMS starting in the second year. To ensure successful implementation, including organizational change, required project staff must remain dedicated to the project. Funding for backfill staff and project management has been included in the project budget.
FISCAL IMPACT
Implementation and staffing costs and the initial ongoing costs are partially funded through FY 2025/26 in project 835610 - Computer Aided Dispatch (CAD) System Replacement which has approximately $8.4 million available, (Attachment 4). Additional funding is available from scheduled equipment replacement in the Technology and Communications Fund and will be partially offset by savings through the elimination of the costs for several existing systems which will be eliminated by the CAD in the amount of approximately $515K over the next five years. The remaining operating costs and replacement funds have not been budgeted and will be considered during the FY 2025/26 Projects budget process.
Funding Source
Funding for the CAD project is provided in the Technology and Communications Fund. Information Technology systems are funded through transfers from all other funds based on operational use of the systems. The CAD system is paid through transfers from DPS based on operational costs.
PUBLIC CONTACT
Public contact was made by posting the Council meeting agenda on the City's official-notice bulletin board at City Hall, at the Sunnyvale Public Library and in the Department of Public Safety Lobby. In addition, the agenda and this report are available at the NOVA Workforce Services reception desk located on the first floor of City Hall at 456 W. Olive Avenue (during normal business hours), and on the City's website.
RECOMMENDATION
Recommendation
Take the following actions:
- Award a ten-year contract in substantially the same form as Attachment 1 to the report with a not-to-exceed amount of $5,494,766 (Implementation - $2,994,381 and 8-Year System Maintenance and Support services - $2,500,385) to Intergraph Corporation through its Hexagon Safety, Infrastructure & Geospatial division (“Hexagon”) of Madison, AL for the implementation services, licensing, maintenance and support of the On Call Dispatch CAD System for public safety dispatch services. The contract consists of implementation services in the amount of $2,894,603 which will be paid and performed over a 2-year period and the nine-year CAD licensing and maintenance and support agreement in the amount of $2,500,385.
- Approve a 15% contingency for implementation services in an amount of $449,157;
- Delegate the authority to the City Manager to renew the licensing agreement and maintenance and support for CAD for four (4) additional one-year periods within budgeted amounts, provided pricing and services remain acceptable;
- Award a 3-year contract in substantially the same form as Attachment 2 to the report with a not-to-exceed amount of $681,876 to AgreeYa of Folsom, CA for Project Management services for the implementation of CAD;
- Approve a 10% contingency for project management services for CAD in an amount of $68,188;
- Award a 3-year purchase order in the amount of $291,657.50 to Environmental System Research Institute, Inc. (ESRI) of Redlands, CA to upgrade to a Small Government Enterprise annual subscription for Geographic Information Systems (GIS) required to support the replacement CAD system; and
- Authorize the City Manager to execute the contracts when all necessary conditions have been met.
Levine Act
LEVINE ACT
The Levine Act (Gov. Code Section 84308) prohibits city officials from participating in certain decisions regarding licenses, permits, and other entitlements for use if the official has received a campaign contribution of more than $250 from a party, participant, or agent of a party or participant in the previous 12 months. The Levine Act is intended to prevent financial influence on decisions that affect specific, identifiable persons or participants. For more information see the Fair Political Practices Commission website: www.fppc.ca.gov/learn/pay-to-play-limits-and-prohibitions.html
A check or “Y” in the checklist below indicates that the action being considered falls under a Levine Act category or exemption:
SUBJECT TO THE LEVINE ACT
___ Land development entitlements
___ Other permit, license, or entitlement for use
___ Contract or franchise
EXEMPT FROM THE LEVINE ACT
_x_ Competitively bid contract
___ Labor or personal employment contract
___ General policy and legislative actions
Staff
Prepared by: David Battaglia, Purchasing Officer
Reviewed by: Dennis Jaw, Interim Director of Finance
Reviewed by: Kathleen Boutte Foster-Gee, Chief Information Officer
Reviewed by: Jaqui Guzmán, Deputy City Manager
Approved by: Tim Kirby, Interim City Manager
ATTACHMENTS
1. Draft Master Service Agreement - Hexagon
2. Draft Consultant Service Agreement - AgreeYa
3. Draft Quotation from ESRI
4. Project Summary Sheet 835610