Item D1County of Monroe
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BOARD OF COUNTY COMMISSIONERS
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Mayor David Rice, District 4
IleOI1da Keys
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Mayor Pro Tem Sylvia J. Murphy, District 5
Danny L. Kolhage, District I
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George Neugent, District 2
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Heather Carruthers, District 3
County Commission Meeting
April 19, 2018
Agenda Item Number: D.1
Agenda Item Summary #4050
BULK ITEM: No DEPARTMENT: Information Technology
TIME APPROXIMATE: STAFF CONTACT: Alan MacEachern (305) 295 -5110
11:00 A.M.
AGENDA ITEM WORDING: Discussion, Direction and Presentation by Mark Pallans,
communications consultant to the Sheriffs Department, on "The Use of Third Party Radio Towers to
Improve Reliability of the Monroe County Trunked Radio System" as requested by the Board of
County Commissioners at its in December 13, 2017 meeting related to emergency communications
after a storm.
ITEM BACKGROUND:
During the December BOCC Meeting, the Board directed staff to review whether a proposed
communications tower on Cudjoe Key would improve the County's ability to communicate after a
future storm similar to Hurricane Irma. The Sheriffs staff has an existing relationship with a
consultant who performs those types of reviews for them (Mr. Mark Pallans). Mr. Pallans performed
an analysis of the impact the proposed tower would have on communications capabilities and will
present that report, as well as be available for questions. Following the report, Mr. Pallans also
submitted an email addendum to future explain potential communication capabilities post storm if a
private tower was erected on Cudjoe Key.
If directed by the Board, staff can work with the owner on a potential development approval and
letter of understanding, if the applicant applies for same.
PREVIOUS RELEVANT BOCC ACTION:
December 2017 BOCC Meeting : D12 : Discussion and direction to staff to investigate and report to
BOCC regarding the issue of how the proposed Sugarloaf Communication tower could aid the
County with emergency communication during hurricane aftermath such as we just experienced in
Hurricane Irma
CONTRACT /AGREEMENT CHANGES:
N/A
STAFF RECOMMENDATION: Discussion
DOCUMENTATION:
New Tower Implementation in Monroe County - Mark Pallans Report
Proposed Cudjoe Key Tower - EMail Addendum
Proposed Cudjoe Key Tower - December BOCC Meeting Request
Proposed Cudjoe Key Tower Talking Points - Proposer Provided
Proposed Cudjoe Key Tower - site plan
Proposed Cudjoe Key Tower - ASR Registration 1061464
Proposed Cudjoe Key Tower - Marathon ASR Application A0871380
FINANCIAL IMPACT:
Effective Date: N/A
Expiration Date: N/A
Total Dollar Value of Contract:
Total Cost to County:
Current Year Portion:
Budgeted:
Source of Funds:
CPI:
Indirect Costs:
Estimated Ongoing Costs Not Included in above dollar amounts:
Revenue Producing:
Grant:
County Match:
Insurance Required:
Additional Details:
If yes, amount:
N/A
REVIEWED BY:
Alan MacEachern
Completed
Assistant County Administrator Christine
Hurley
04/02/2018 4:59 PM
Christine Limbert
Completed
Budget and Finance
Completed
Maria Slavik
Completed
Kathy Peters
Completed
Board of County Commissioners
Pending
04/02/2018 3:58 PM
Completed
04/03/2018 1:05 PM
04/03/2018 2:39 PM
04/03/2018 3:08 PM
04/03/2018 6:14 PM
04/19/2018 9:00 AM
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COMMUNICATION CONSULTANTS
THE USE OF THIRD PARTY RADIO TOWERS TO IMPROVE RELIABILITY OF THE
MONROE COUNTY TRUNKED RADIO SYSTEM
The proposer has indicated that, if permitted, its towers will support emergency
communications for Monroe County. Pallans Associates, Communication Consultants,
has been requested to determine if these towers would, in fact, adequately support the
County radio system during a disaster such as the last year's hurricanes that
devastated parts of the County. In addition, we have been asked to comment on other
alternative communication solutions for use during emergencies.
THE CURRENT RADIO SYSTEM
In order to determine if the proposed towers will benefit the County it is necessary to
understand how the radio system operates and where its weaknesses, if any, lie. The
current Motorola P25 trunked radio system was installed in 2015. It replaced the
Motorola radio system originally purchased in 1999. The old system and its analog
technology was obsolete and no longer supported by Motorola. The new system is
completely digital, state of the art, with technology designed specifically for public safety
use.
Figure 1 shows the location of each of the radio sites. Radio coverage extends from
Key West through Key Largo. All of the Florida Keys enjoy good public safety radio
communications with the exception of the northern end of North Key Largo and areas of
Card Sound Road where coverage is marginal.
FIGURE 1 — MONROE COUNTY RADIO SITES
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All of these sites work together in order to provide countywide coverage for all radio
system users.
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COMMUNICATION CONSULTANTS
How the Radio System Works
All radio system traffic (voice messages) flows between all sites in the system. This
allows users to communicate with each other no matter where they are in the coverage
area. All of the radio sites are linked to the system "Master Site" through a leased T -1
data line. The computers at the Master Site control all communications between all of
the radio sites. These computers determine which users can speak to each other and
which sites should be activated for these conversations to take place. P25 is a standard
developed specifically for public safety communications equipment users to
communicate with each other using "Internet Protocol" or IP. This is the same
technology that allows smartphones and computers to communicate with each other.
What Are the Weaknesses Of The Radio System?
Monroe County has relied upon radio towers for many years and all have survived
multiple hurricanes. If a tower is lost then there would be no radio coverage in that
portion of the County. Typical radio coverage from each radio site is 10 to 15 miles in
each direction. Thus, the loss of a tower would result in no coverage for some 20 to 30
miles along the Keys.
A more likely scenario is that the data lines connecting the sites will fail. The result is
that control data will no longer be passed between radio sites and one or more sites will
be isolated from the main system. The result is that one or more radio sites will lose the
ability to communicate beyond its primary coverage area. The radio sites are designed
to continue operating in their local area even when the control data is lost.
Figure 2 shows how each radio site contributes to full coverage of the Florida Keys. If
any site loses the network connectivity required for full county coverage then each site
will only cover the indicated area.
FIGURE 2 - FLORIDA KEYS RADIO SYSTEM COVERAGE
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COMMUNICATION CONSULTANTS
The sites overlap each other to a small degree in order to maintain constant contact for
units in the field. As an example of the impact to coverage if a site fails is shown in
Figure 3. This simulation clearly shows the loss of coverage if a site such as Marathon
fails.
FIGURE 3 - FLORIDA KEYS RADIO SYSTEM COVERAGE WITH LOSS OF MARATHON SITE
Can the Proposed Towers Benefit Monroe County Emergency Communications
The proposed towers are located on the mainland side of Card Sound Road, in
Marathon and on Cudjoe Key. The site information is shown in Table 1.
TABLE 1 - PROPOSED RADIO TOWER SITES
Site Name
Coordinates
Height feet
Card Sound Road
25 °22'18.83 "N, 80 °25'24.32 "W
500
Marathon
24.717611N, - 81.068667W
135
Cudjoe Key
24.672222N, - 81.501667W
1043
The developer is proposing to construct these sites in order to lease space to
commercial radio services and wireless service providers in order for them to serve the
Florida Keys market. The developer has stated that these sites can enhance
emergency communication services for Monroe County. Figure 4 shows the locations
of the proposed towers with respect to the existing County radio sites.
Two of the proposed sites are located near existing Monroe County tower sites. The
proposed Cudjoe Key site is less than a mile from the Sugarloaf Key site and the
proposed Marathon tower is less than a mile from the County's Marathon radio site.
The Card Sound proposed site is located on the mainland.
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COMMUNICATION CONSULTANTS
FIGURE 4 - PROPOSED RADIO TOWER SITES
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Analysis of the proposed towers
The following analyses of the proposed sites considers what the benefits to the
County's emergency communications may be. Since Pallans Associates is not a
structural engineering firm this document addresses only the potential County use of the
towers and does not comment on the tower structures themselves. One issue that can
be addressed is the tower construction standards to be used during the County
approval process. TIA 222 is the industry standard. The new version, TIA -222H went
into effect on January 1, 2018 and is currently being implemented nationwide. The
standard addresses hurricane environments more than in previous editions.
One overarching aspect to this report is that use of these towers may require a
significant amount of additional communication infrastructure to be procured and
installed at these sites. This will entail a substantial cost investment by the County
unless there are agreements with the proposers to provide that infrastructure should the
towers be approved.
Because the County's primary radio system is so robust none of these three sites will
benefit the County on a day to day basis but each of them could provide emergency
coverage to sections of the County if the Primary radio system or parts of it fail in an
event such as the 2017 hurricanes.
Card Sound Road site
This location is in Miami Dade County east of Card Sound Road and approximately 6.5
miles north of Alabama Jack's. It is proposed to be 500 feet tall. If it were equipped
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COMMUNICATION CONSULTANTS
with two backup radio channels this site could provide localized radio coverage from the
northern tip of Key Largo south to approximately Tavernier. This coverage would
include the Coral Reef Club, all of Card Sound Road and Highway US -1 from Florida
City southward to Tavernier.
This type of backup would not have any connectivity into the main radio system or and
County facilities emergency operation centers. There are design concepts that can
bring these remote communication points back into the remaining portions of the County
networks but these concepts are beyond the scope of this report.
Marathon Site
By itself this site does little to support Monroe County. It is only about a mile from the
Sheriff's Master Radio Site and is proposed to be only135 feet tall. It is likely that if the
Sheriff's system is damaged by an event then this site also would be impacted. By
equipping this site with equipment as described for Card Sound and with a directional
antenna, it could prove standalone emergency coverage to the east almost to Layton.
This type of backup would not have any connectivity into the main radio system or and
County facilities emergency operation centers. There are design concepts that can
bring these remote communication points back into the remaining portions of the County
networks but these concepts are beyond the scope of this report.
Cudjoe Key Site
The proposed Cudjoe Key tower is approximately 1.8 miles northeast of the County's
existing Sugarloaf tower. The proposed height of 1000+ feet could benefit the County
since the Sugarloaf tower height is 371 feet. If a backup repeater was placed at 600
feet on the proposed tower, its emergency coverage would extend into Key West.
Again, this type of backup would not have any connectivity into the main radio system or
and County facilities emergency operation centers. There are design concepts that can
bring these remote communication points back into the remaining portions of the County
networks but these concepts are beyond the scope of this report.
Another consideration for this site is that the County currently leases the Sugarloaf site
from a commercial provider. If the proposers offered the Cudjoe site for County use at
no charge then there would be a direct cost savings to the County. If the antennas were
installed at the increased elevation the reliability of radio communications from
Marathon to Key West would be improved on a daily basis.
The three sites combined just for emergency use as described previously would have a
coverage footprint as shown in Figure 5. They would provide reasonably good
coverage for more than 60% of the Florida Keys. They would probably cover 80% of
the Keys if noisy signals are considered.
5
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COMMUNICATION CONSULTANTS
FIGURE 5 - PROPOSED SITES AS SYSTEM BACKUP
Conclusions
As a communications consulting firm Pallans Associates can address the question of
the value of the towers to Monroe County's communications infrastructure. The
question of permitting construction versus the terms of the County's tower ordinance will
be left to the attorneys. The technical analysis is the issue that this report addresses.
The existing radio system proved its resilience during Hurricane Irma in September,
2017, one of the worst storms in history to strike the Florida Keys. The radio system
did not fail, thus proving its resilience. Statistically this reduces the probability of a
storm damaged radio system and also statistically lowers the value of the proposed
towers for the County. Backup sites only benefit the County after a major disaster. It is
something to consider.
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MacEachern-Alan
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if you have any additional questions or comments, please feel free to reach out to either Laura or me and we will
coordinate further with Mr. Pallans to ensure a timely response.
Alan MacEachern
IT Director
Monroe County BOCC Information Technology
102050 Overseas Highway, MM 102.5
Key Largo, FL 33037
Office - (305) 453-8792
Cell (305) 363-9109
Email maceachern-
Please note: Florida has a very broad public records law. Most written communications to or from the County
regarding County business are public record, available to the public and media upon request. Your e-mail
communication may be subject to public disclosure.
From: MacEachern-Alan
Sent: Saturday, March 17, 2018 5:10 PM
To: County Commissioners and Aides
Cc Gastesi-Roman; Hurley-Christine; Wilson-Kevin; Senterritt-Martin; Rick Ramsay; Rice-Mike; White-Laura
Subject: FW: Technical Review - Proposed CudJoe Key Tower
During the December BOCC meeting, the board directed staff to review whether a proposed communication tower on
Cudjoe Key would improve communications capabilities after another significant event like Irma (text of the meeting
request attached as BOCC eeting.docx)• Laura White and the Sheriff's department has an existing relationship with a
communications expert familiar with the Monroe County infrastructure (Mr. Mark Pallans) and Mr. Lallans has prepared
the attached report (Clew Tower Implementation in Monroe County.pdf) for your review.
If you have any questions or comments, please feel free to reach out to either Laura or me and we will coordinate with
Mr. Pallans to ensure a timely response,
Alan MacEachern
IT Director
Monroe County BOCC Information Technology
102050 Overseas Highway, MM 102.5
Key Largo, FL 33037
Office : (305) 453 -8792
Cell : (305) 363 -9109
Email : ,maceachern-alan@bmonroecountv-fl.gov
Please note: Florida has a very broad public records law. Most written communications to or from the County
regarding County business are public record, available to the public and media upon request. Your e-mail
communication may be subject to public disclosure.
From: MacEachern-Alan
Sent: Friday, March 16, 2018 4:12 PM
To: 'MarkLBaker'; 'David P. Horan'
Gastesi-Roman; Hurley-Christine; Wilson-Kevin; Rice-Mike; White-LaWQ
Subject: Technical Review - Proposed Cudjoe Key Tower
Alan MacEachern
IT Director
Monroe County BOCC Information Technology
102050 Overseas Highway, MM 102.5
Key Largo, FL 33037
• (30 453�8792
0•
4
Please note: Florida has a very broad public records law. Most written communications to or from the County
regarding County business are public record, available to the public and media upon request. Your e-mail
communication may be subject to public disclosure.
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Pam Hancock: Rick Richter. They might not come up if I pronounce their names wrong. Sorry
And he is representing Key West TelCo.
Rick Richter: Hi, good morning, Commissioners. I would just like to say a couple of words on
this project. I think it is in the early stages and I am excited to see what's going to come •
know this project down in that area has a long history in the keys I just want you to know you
have a lot of local support and expertise available as the project goes forward and we look
forward to seeing what the applicant comes up with. Thank you.
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we are still in the same boat.
Mayor Rice: Yes. I would assume that that would be about the first question that would be
addressed by any expert in responding to our question. There are many more issues, of course,
but I think it's apparent that if it's laying on the ground, at the end of the storm, it is not going
to be much help. So, we have a motion (Commissioner Murphy) and a second (Commissioner
Carruthers). Mr. Kolhage?
Mayor Rice: | think it has engineering xvrittenaUoverit.
Roman Gastesi: I'm not sure what the answer is to that—it would have to be multiple agenci
because the sheriff operates the communication towers—I think it would probably be some
combination of us, both engineering and planning, because I don't know the restrictions out
there, plus emergency management would probably be taking the lead, if that's what we're
talking about. But we'd have to interact with the sheriff's department. I
Roman Gastesi: And IT as well.
Comissioner Kolhage: The reason why I ask is because we had an (offer?) from the HAM radio
operators in this county, and they have an organization that deals specifically with
emergencies. We should try to incorporate them, if we can, as much as possible. They're
this needs to be a combination of emergency management and the sheriff's office, because
that is what we are talking about, is emergency communications.
Mayor Rice: Well let me say, I would feel more comfortable if I left this meeting today, and
we're talking about the county, not necessarily the sheriff's department, of course they are
going to be a part of it. But who's going to represent the County Commission's interest, here?
Who is going tobe the person in charge? | think itis wise to know that.
Roman Gastesi: Sure, that's always me, right? I'll bediscussing it with you all. I'm the one
responsible.
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Commissioner Carruthers: Of course, now that we're talking about it, I have other questions. Is
this tower going to be used for other commercial uses? When it is not being used for
emergency management?
Mayor Rice: I think that'll be one of the issues that will come out in the study because I would
assume we would hire an expert who would probably spend quite a bit of time discussing the
project with the individual who is willing to build it. That'll be a part of the report.
Carruthers: Would this individual be willing to (carry?) fiber optic cable throughout the county,
instead?
Bob Schillinger: Mr. Mayor, we would like to point out some legal issues that are emerging on
towers.
Steve Williams: There is a whole new array of federal oversight that will allow the commercial
use of the tower vs. strictly emergency use of the tower. They have 2 separate tracks of where
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you can go, what you can do, and restrictions, timelines, and federal oversight. So if it's strictly
set of standards.
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Mayor Rice: Yes?
Commissioner Carruthers Well, I also think redundancy is important. And one ham operator
who can get to somebody who does have service can do the same thing.
Commissioner Neugent I'm not saying they don't provide a service, I know they provide a
service, but it's not the level of service that we need in the aftermath of a storm.
Commissioner Kolhage What we are talking about here is supplemental. It is not meant to
replace anything. They can provide point to point communications, continuously, with
generators and so forth, that is not dependent on lines, or any of that. But, it's only
supplemental, and I just don't think we should turn away any offer of assistance.
Commissioner Neugent Oh, of course not, and they're operating 24/7 at the emergency
operations center.
Mayor Rice Do we have any opposition? The motion stands approved.
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We are proposing to construct a tower in the lower Keys that would provide state-of-the-art facilities for communications
services. The construction of the tower would result in the availability of a communications hub in the lower Keys that can
facilitate enhanced television, radio, UHF, cellular, and emergency (police, fire, and other agency) communications. The
entire facility would be constructed to withstand category 5 hurricane conditions, providing for greater availability of
communications before, during, and after a sustained weather event.
12. What we need
To accommodate the proposed communications hub, the county will need to remove or replace the following
from the Monroe County Land Development Regulations: "146.7 (f): No variance granted pursuant to this section
shall be granted to allow an overall height of greater than 330 feet."
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ASR Registration Search
Registration 1061464
�V' Map Registration
Reg Number
1061464
File Number
A0132803
EMI
No
NEPA
No
Status
Constructed
Dismantled
Granted
Structure Type TOWER - Free standing or Guyed Structure used for Commu
Location (in NAD83 Coordinates)
Lat /Long 24 -40 -20.0 N 081 -30 -06.0 W Address BLIMP RD
City, State CUDIOE KEY, FL
Zip 33042 County MONROE
Center of Position of Tower
AM Array in Array
Heights (meters)
Elevation of Site Above Mean Sea Level Overall Height Above Ground (AGL)
1.5 318.2
Overall Height Above Mean Sea Level Overall Height Above Ground w/o Appurtenances
319.7 304.8
Painting and Lighting Specifications
FAA Chapters 4, 9, 13
Paint and Light in Accordance with FAA Circular Number 70/7460 -13
FAA Notification
FAA Study 98 -ASO- 6675 -OE FAA Issue Date 02/10/1999
Owner
INDUSTRIAL COMMUNICATIONS & ELECTRONICS INC
Attention To: ENGINEERING DEPT
40 Lone Street
Marshfield , MA 02050
Contact
Delaney , Kevin P
Status
Granted
Purpose
Admin Update
Mode
Interactive
07/21/2000 A0132803 - Admin Update (AU)
ASR Registration 1061464
Owner Entity
Type
P:(781)319-1111
F:
E:
P:(781)319-1111
F:
E: kevindelaney @induscom.com
Received 07/21/2000
Entered 07/21/2000
http:// wireless2. fcc. gov/ UlsApp/ AsrSearch /asrRegistration.jsp ?regKey= 621365 &printable
1/23/2018 ASR Registration 1061464
02/23/1999 A0071950 -New (NE)
Comments
None
t r
Date Event
07/26/2006 FRN Re- association Letter sent
07/23/2001 Construction Reminder Letter Sent
07/21/2000 Registration Printed
All History (5)
07/26/2006 FRN Re- association, Reference 517505
07/23/2001 Construction Reminder, Reference 148507
07/21/2000 Authorization, Reference 64582
All letters (4)
http:// wireless2. fcc. gov/ UlsApp/ AsrSearch /asrRegistration.jsp ?regKey= 621365 &printable
fWAYN11U
ASR Application Search
Application 1
File Number A0871380
Registration
Number
NEPA
Status Inactive
Purpose New
Mode Interactive
Structure Type POLE - Any type of Pole
Location (in NAD83 Coordinates)
Lat /Long 24 -43 -03.4 N 081 -04 -07.2 W
City, State Marathon , FL
Zip 33050
Center of
AM Array
Heights (meters)
Elevation of Site Above Mean Sea Level
1.0
Overall Height Above Mean Sea Level
42.4
Proposed Marking and /or Lighting
FAA Style E
FAA Notification
FAA Study 2011 -ASO- 2453 -OE
FRN 0015991391
ASR Application A0871380
Constructed
Dismantled
EMI No
Received 01/10/2014
Entered 01/10/2014
Address 273 64th Street Ocean
County MONROE
Position of Tower
in Array
Overall Height Above Ground (AGL)
41.4
Overall Height Above Ground w/o Appurtenances
39.6
FAA Issue Date 04/16/2013
Owner Entity Corporation
Type
Owner
Keys Wi -Fi, Inc.
Attention To: Rick Richter
104 Palmetto Avenue
P.O. Box PO Box 999
Taverier , FL 33070
Contact
Richter , Rick
Attention To: Rick Richter
104 Palmetto Avenue
P.O. Box PO Box 999
Tavernier , FL 33070
Does the applicant request a Waiver of the
Commission's rules for environmental notice?
P: (305)852 -8171
F:
E: keyswifi @gmail.com
P: (305)852 -8171
F:
E: keyswifi @gmail.com
Is the applicant submitting an Environmental
Assessment?
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1/23/2018 ASR Application A0871380
No No
Is another Federal Agency taking responsibility for Does the applicant certify to No Significant
environmental review? Environmental Effect pursuant to Section
No
Reason for another Federal Agency taking
responsibility for environmental review
Name of Federal Agency
National Notice Date
01/14/2014
t r
Date
01/10/2014
Date Description
None
Pleading Type
None
Date Description
None
Type Description
None
Basis for Certification
Local Notice Date
Title
19
Event
New Application Received
Existing Value
Description
Requested Value
Date Entered
Date Entered
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