COUNTY OF SACRAMENTO

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					                              COUNTY OF SACRAMENTO
                                   CALIFORNIA
                                                                                        For the Agenda of:
                                                                                             April 21, 2004
                                                                                         Timed: 2:15 P.M.

TO:            Board of Supervisors

FROM:          Patrick Groff
               Chief Information Officer

SUBJECT:       Approval of the Strategic Direction of Implementing a Cisco Standard Converged
               Voice and Data Network and Voice Over Internet Protocol (VoIP)

CONTACT:       Patrick Groff 874-7825

Overview:

The County currently owns and maintains two separate voice (Avaya) and data (Cisco) networks. For
the past three years, the County’s IT governance structure has been working to develop a
recommended standard for implementing a converged voice and data network. This effort began in
2001 with the implementation of a very successful Municipal Services Agency VoIP pilot project.
Subsequently, on March 7, 2002, upon the recommendation of the Technology Review Group (TRG),
the Information Technology Policy Board (ITPB) approved the strategic direction to implement a
converged voice and data network and also approved the establishment of a VoIP work group of the
TRG chartered to develop a preliminary design for the VoIP infrastructure and to assist the Office of
Communications and Information Technology (OCIT) in developing a transition plan to this new
infrastructure. The TRG then created a cross-departmental work group that developed an Informal
Request for Information (IRFI). This IRFI was distributed and responded to by Avaya and Cisco. A
separate cross-departmental team then reviewed and evaluated both responses and unanimously
recommended that the Cisco standard be adopted. A third work group then developed a VoIP
Business Case/Implementation Strategy that was unanimously approved by the TRG on September
16, 2003 and unanimously approved by the ITPB on October 2, 2003. Consistent with the County’s
adopted IT Constitution, it is now appropriate for your Board to consider the recommendation of the
ITPB, Chief Information Officer, and County Executive.

Recommendation:

It is recommended that your Board approve the strategic direction of implementing a Cisco standard
converged voice and data network and voice over internet protocol (VoIP), consistent with the VoIP
Business Case/Implementation Strategy outlined in this report.

Measures/Evaluation:

Implementation of the converged voice and data network and VoIP will enable the County to (1)
provide voice and data connectivity in a more cost effective manner; (2) enable the County to build in
redundancy and provide for the level of availability and reliability required to operate all of our mission
critical applications; and (3) allow the County to be more agile in our continuing efforts to provide
community services to our constituents. With a five to ten year timeframe for implementation, the
County will have ample opportunities to evaluate the value of the converged voice and data network
and VoIP on an implementation by implementation basis.
Converged Voice and Data Network
April 21, 2004
Page 2 of 6


Fiscal Impact:

With the implementation of the converged voice and data network and VoIP, it is estimated that the
County will achieve net savings of approximately $740,000 over the next seven years and savings in
excess of $700,000 per year thereafter. It is anticipated that the County can implement the converged
voice and data network and VoIP within the current telephone and data network rate structures.

Background:

The County currently owns and maintains two separate networks that deliver telephone service and
data connectivity respectively. The County’s standard for the voice network equipment has been
Avaya while the standard for the data network equipment has been Cisco.

During 2001 and early 2002, the Municipal Services Agency (formerly known as the Public Works
Agency) conducted a Cisco VoIP pilot project at its leased facility at Mather. This was a joint effort
between the Municipal Services Agency MIS Section and the OCIT Telecommunications Bureau to
connect the new VoIP system with the County’s existing voice network. Water Quality moved into this
building in April 2001 and General Services moved into the building in June 2001. Since that time, the
Municipal Services Agency pilot project has expanded to include the Agency’s MIS facility located at
9700 Goethe Road and the new Municipal Services North County Corporation Yard located at 5026
Don Julio Boulevard. Expansion of the pilot project to these two additional locations was deemed
appropriate because it allowed us to evaluate how the new system would operate across the County’s
Wide Area Network (WAN) and both of these facilities were undergoing significant remodel efforts.
The Municipal Services Agency has installed approximately 400 IP telephones as part of their pilot
project.

On March 7, 2002, as a result of the successful Municipal Services Agency VoIP pilot project, and
with the recommendation of the County’s Technology Review Group (TRG), the Information
Technology Board (ITPB) took the following two actions:

   1. Approved the strategic direction for the implementation of a converged voice and data network
      (VoIP) infrastructure and unified messaging.

   2. Approved the establishment of a VoIP work group of the TRG chartered to develop a design
      for the VoIP infrastructure and to assist OCIT in developing a transition plan to this new
      infrastructure.

As part of the above approval, the ITPB made it clear that any implementation of a converged voice
and data network and VoIP would be accomplished in an enterprise fashion and that a business case
would be required in order to validate that the County would, in fact, save money as a result of
implementing the converged voice and data network infrastructure and VoIP.

During this same general timeframe, OCIT and the new Department of Child Support Services
(DCSS) jointly conducted a successful Avaya VoIP pilot project at their new DCSS facility located at
Granite Regional Park on Power Inn Road. DCSS moved into this building in June 2002. DCSS has
installed approximately 100 IP telephones as part of their pilot project.

In order to ensure that the County adopted the best technical solution and to establish the foundation
for adopting a County-wide standard, the TRG established a Converged Voice and Data Network
(VoIP) Steering Committee. This Steering Committee then established a cross-departmental
technical work group that included representatives from the IT group and the Telecommunications
Converged Voice and Data Network
April 21, 2004
Page 3 of 6


group for the purpose of developing an Informal Request for Information (IRFI). On July 11, 2002, the
technical work group issued an IRFI for a converged voice and data network and VoIP that was sent
to both Avaya and Cisco. This limited distribution was determined to be appropriate because, as
mentioned earlier, Avaya has been the County’s voice system equipment standard and Cisco has
been the County’s data network equipment standard. A joint vendor conference was held on July 24,
2002 that was attended by both Avaya and Cisco. On August 12, 2002, responses to the IRFI were
received from both Avaya and Cisco. The technical work group established formal rating criteria that
considered technical requirements, cost, and overall value to the County. A separate evaluation
panel made up of different members of the TRG representing Airports, Sheriff, Human Resources,
Child Support Services, County Counsel, Assessor, and Health and Human Services independently
evaluated the responses from the IRFI. The evaluation panel utilized the rating criteria established by
the original technical work group and unanimously recommended Cisco as the VoIP standard.
Subsequently, on February 6, 2003, upon the recommendation of the full TRG, the ITPB approved the
establishment of Cisco as the County standard for the converged voice and data network. Again, this
approval was made with the direction and expectation that a business case and transition plan would
be developed for the purpose of validating that the County would save money and assuming that the
new system would be implemented in an enterprise fashion. This process is similar to the process
that was used to establish FileNet as the County’s imaging and document management standard.

For the next several months, a third work group met for the purpose of developing the above-business
case and transition plan. This work group was made up of the Chief Information Officer, the IT
Manager for the Probation Department and current Chair of the TRG, the IT Division Chief for the
Municipal Services Agency and current Vice-Chair of the TRG, the IT Manager for Data Networks in
OCIT, the Principal Administrative Analyst for the Municipal Services Agency, the Sr. IT Analyst for
the Airports System, the Sr. Accounting Manager for OCIT, and the Telecommunications Manager for
OCIT. Subsequently, the VoIP Business Case/Implementation Strategy was unanimously approved
by the TRG on September 16, 2003, and unanimously approved by the ITPB on October 2, 2003.

Discussion:

On March 4, 2003, your Board approved the County’s first comprehensive Information Technology
Plan. Included in that Plan within Focus Area 1 (Enhance the County IT infrastructure to provide a
robust, stable, scaleable, and secure foundation) and Goal 1 (Improve the capabilities of the voice
and data networks); are the following Objectives:

       A.   Prepare a business case regarding converging the voice and data networks.
       B.   Establish a standard for unified messaging.
       C.   Develop a transition plan for converging the voice and data networks.
       D.   Implement “quality of service” on the Wide Area Network.

The VoIP Business Case/Implementation Strategy that was approved by the TRG and the ITPB (and
further refined by OCIT and the WAN/LAN Steering Committee) is a high-level analysis that assumes
a seven year implementation timeframe. This analysis indicates that the County can implement the
converged voice and data network and VoIP within the current telephone and data network rate
structures. The analysis further estimates that the County will achieve a net savings of approximately
$740,000 over the seven year implementation period with additional savings in excess of $700,000
per year thereafter.
Converged Voice and Data Network
April 21, 2004
Page 4 of 6


The assumptions, key issues, priorities, and advantages included in the VoIP Business
Case/Implementation Strategy are outlined as follows:

Assumptions:

    •   Costs for telephones, local area network (LAN) upgrades, and wide area network (WAN)
        connectivity will remain the responsibility of County Departments.
    •   Costs for the upgrade of the WAN will remain the responsibility of the Office of
        Communications and Information Technology (OCIT).
    •   There will be no increase in telephone rates as a direct result of this conversion.
    •   Departments will purchase Cisco powered switches when replacing or upgrading LAN
        equipment.
    •   OCIT will purchase Cisco VoIP solutions when replacing or making major
        enhancements/upgrades/additions to existing telecommunications equipment.
    •   The Municipal Services Agency GigaMAN circuit will be utilized until the RT/Highway 50 fiber
        legs are operational.

Key Issues:

    •   Planning for the WAN upgrade will begin immediately.
             o OCIT will be responsible for the upgrade of the WAN.
             o Wireless WAN links for backup connectivity will be utilized in lieu of telecommunication
                 lines wherever practical.
    •   In cases where attaching existing PBX equipment to the WAN will achieve telecommunications
        line cost savings, this will be done as soon as possible.
             o Options for IP enabling PBX equipment vs. voice enabling data network routers will be
                 studied to find the most cost effective and reliable solution.
             o By enabling existing telecommunications equipment to operate on the County’s data
                 network, current telecommunications hardware investments will be maximized.
    •   OCIT, together with the County’s WAN/LAN Steering Committee will develop the transition
        plan for the converged network and VoIP implementation.
    •   Cisco VoIP (infrastructure and phones) will be installed:
             o At all new buildings/facilities.
             o In all spaces that undergo major remodels.
             o When major enhancements/upgrades/additions are required to existing PBX
                 equipment.
             o Where departmental business needs require VoIP.
             o When existing PBX equipment reaches end of life.
             o When replacing LAN equipment.
    •   The Municipal Services Agency Cisco VoIP pilot equipment will be merged into the central
        (enterprise) infrastructure.
    •   Options for replacement of the GTD5 voice switch at Branch Center (Cisco and Avaya options)
        will be reviewed with the objective of finding the most cost effective and reliable solution that
        will maximize investment over time.

Priorities:

    •   Upgrade the WAN, providing for Quality of Service (QOS) and redundancy.
    •   Implement the Regional Transit/Highway 50 fiber legs.
Converged Voice and Data Network
April 21, 2004
Page 5 of 6


   •   Retire the County’s existing telecommunications equipment as it reaches end of life with
       continued transition to the Cisco VoIP solution.
   •   Retire redundant circuits.
   •   Where feasible, attach existing PBX equipment to the data network.
   •   Utilize the Municipal Services Agency VoIP pilot infrastructure as part of the enterprise
       architecture.

Advantages:

   •   Results in net savings of approximately $740,000 over the next seven years, and in excess of
       $700,000 per year thereafter.
   •   Provides departments with the ability to implement new VoIP dependant applications.
   •   Expedites adds, moves, and changes for sites converted to VoIP
   •   Provides the foundation for the implementation of unified messaging.
   •   Emphasizes the WAN as first and foremost priority (vs. support of two separate networks).
   •   Reduces leased TDM trunking costs.
   •   Maximizes current call center investments.
   •   Maximizes investment in existing Cisco VoIP equipment and existing Avaya voice network
       equipment.
   •   Decommissioning the GTD5 voice switch at 3700 Branch Center Road frees up space that
       could be used for a backup data center.
   •   Phased transition reduces the cost of vendor support, training, and implementation.

It should be noted that the above high level VoIP Business Case/Implementation Strategy recognizes
that additional costs will be required to fully implement the converged voice and data network and
VoIP. These include approximately $1.2 million in near-term OCIT costs to upgrade the County’s core
WAN and approximately $5.0 million in long-term departmental costs to purchase IP telephones,
handset software licenses, and powered LAN switches. This was deemed appropriate for the
following reasons:

   •   Upgrading the core WAN is required to accommodate other applications such as streaming
       media and video conferencing, and to provide the redundancy required for other mission
       critical applications. Furthermore, funding for the core WAN upgrade is included in the existing
       data network connectivity rate structure.

   •   Under the current telephone and data network rate structures, costs associated with
       telephones and the Local Area Network (switches, etc.) are the responsibility of the
       departments. Funding for these costs will be included as part of each department’s business
       justification, as part of a major new facility construction/remodel project, or as part of their
       normal equipment refresh program.

Conclusion:

The recommended strategic direction represents a very measured approach to implementing a
converged voice and data network and VoIP in the County. As outlined above, it is anticipated that it
will take between seven to ten years to fully converge the voice and data networks, thereby, allowing
the County to implement VoIP in the most strategic and effective manner. In the meantime, the
County will continue to rely on a hybrid environment that includes the existing telephone system and
the VoIP system. It should be highlighted that, at this time, some departments will not be interested in
migrating to the new converged voice and data network and VoIP. As an example, because the
Converged Voice and Data Network
April 21, 2004
Page 6 of 6


Sheriff’s Department operates on a separate data network from the County’s WAN, they are not likely
to migrate to the converged voice and data network. In addition, with the implementation of unified
messaging, some of the law enforcement agencies have some concerns regarding combining their
voice-mail messages with their e-mail messages.

The processes utilized to analyze and choose the recommended Cisco converged network and VoIP
standard included multiple cross-departmental teams and the resulting recommendations were
unanimously approved by the County’s information technology governance structure. OCIT and other
members of the County’s WAN/LAN Steering Committee have been working with Marc Wilkerson,
Chief of the County’s Disability Compliance Office, to ensure that the County’s accessibility
requirements and issues are being addressed.

Implementing a converged voice and data network and VoIP is certainly a major policy and
operational decision for the County of Sacramento. Consistent with the County’s adopted IT
Constitution, it is now appropriate for your Board to consider the recommendation of the ITPB, Chief
Information Officer, and the County Executive. Therefore, it is recommended that your Board approve
the strategic direction of implementing a Cisco standard converged voice and data network and VoIP,
consistent with the implementation strategy outlined in this report.


Respectfully submitted,                                   Approved:



___________________________                               _______________________
Patrick L. Groff                                          Terry Schutten
Chief Information Officer                                 County Executive


PLG:pao

				
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