A Case Study in Wireless Networking Deployment: Kennewick, WA

 

Introduction:

 

Where, and for what purpose, is wireless technology (802.11b and cellular) being adopted?  What equipment is being deployed?  Where are the antennas and towers being installed?  If it is being aggressively rolled out, is there interference and degradation caused by channel overlap problems?  These are questions the Kennewick City Council is considering as they try to regulate the congested airwaves over Kennewick.  The city council met to discuss imposing a city ordinance that would regulate wireless air traffic. 

 

At about the same time, the Kennewick School District conducted a wireless test from its district office to nearby Kennewick High School.  The test results encouraged the district officials to implement a wireless bridge between the two buildings.  This wireless bridge would save hundreds of dollars in service provider charges each month.  The wireless signal traveled directly over the city hall communications center.

 

The city council got word of this information and became concerned that the wireless signal might interfere with the local public safety communications system.  It was believed that the district’s wireless signal would interfere with the public safety calls directed to local police and a nearby hospital. 

 

This same type of scenario has been played out with local commercial cellular service providers for the past five or six year.  The local police department reported “dead spots” where officers were unable to communicate with dispatchers.   The police department believed the “dead spots” were caused by the cellular signals.  The safety of the public and its officers were at risk.  It was time for a city ordinance. 

 

The Case

 

Background -- Local School District

 

During the summer of 2000, three Kennewick High students and the school’s computer science instructor (Marc Long) participated in a wireless networking research appointment at the Pacific Northwest National Laboratory in Richland, Washington.  Their summer wireless research projects convinced them that a wireless implementation between Kennewick High School and the district office (a distance of about two city blocks) would save the district approximately $13,000 in communications costs over a three year period of time. 1

 

The district agreed to a pilot project to demonstrate the feasibility of a wireless connection between Kennewick High School and the nearby football stadium.  It was estimated that trenching costs for a wired solution would cost $5,450, while the wireless solution would cost $3,500.  Kennewick High students demonstrated for district-technicians acceptable file transfer performance rates, security features, and interference diagnostic software using Cisco bridges.  It was decided that Kennewick High students would implement the wireless connection between Kennewick High School and the nearby football stadium office.

 

The success of this project convinced the district to proceed with the wireless bridge between the district office and the high school.  September of 2002, students tested the wireless connection.  They found several channels were occupied by someone’s communications in the 2.4 GHz unlicensed bandwidth.  It was determined that the least amount of interference would be achieved by setting the bridge to channel 11 (one of three non-overlapping frequencies).  This setup provided Kennewick High School a larger bandwidth to the Internet providing better services for students and staff.  Principal David Alderson reports, “Students and teachers couldn’t be happier about Internet performance.”

 

In October of 2002 Ben Jones, Kennewick School District IT Coordinator, was told there may be some radio frequency interference with the county public safety communications system.

 

Background -- Law Enforcement Representatives

 

Since 1998, city police officers have been reporting missed calls, problems relaying information to dispatchers, and requests for backup.  (See Exhibit 1)

 

The police department recognizes the need to update their communications system.  In December of 2001, the department was given $1.2 million to update police radios. (See Exhibit 2)

 

The city and county officials have received some positive response in negotiations with cell companies like Nerdtel.  But, Chief Johnson believes, “If more cell towers pop up or others start using our frequencies, the problem could persist.” 

 

Chief Johnson supports a bill that would give the city/county power to revoke permits for towers that block out the county’s public safety system.  Law enforcement in Kennewick is most concerned about the safety and well-being of local citizens and its police officers.

 

Background -- City Council / County Commissioners

 

The Kennewick City Council has listened to police concerns about the public safety communications system since 1998.  County Commissioner Stan Regal reminded the council of its commitment to update existing equipment.  In June of 2001, “The council passed a motion to fund $5 million over a five-year period to overhaul the public safety radio system.”

 

The Kennewick City Council met with Benton County Commissioners to discuss an ordinance that would better manage Radio Frequency Interference (RFI).  The adopted ordinance reads as follows:  “Responding to unresolved RFI from wireless facilities to its public safety communication system, Benton County Council in October of 2002 adopted a zoning ordinance requiring commercial telecommunication providers to demonstrate that their wireless systems would not degrade or interfere with the public communications system.  The ordinance gave the city the authority to cancel a zoning certificate if such interference or degradation occurred.  It could also be cancelled if telecommunication service providers did not certify their systems to be in compliance with FCC standards and guidelines.”  KE-ORD1232 (October, 19 2002).

 

Furthermore, NightStar Telecommunications of Pasco, Washington was given a contract to study and report on city RFI issues.

 

In January of 2003, NightStar Telecommunications reported on the RFI issues it found around the city.  Their report stated there were 46 dead spots where no wireless signal could be picked up.  NightStar reported discussing the problem with national cellular provider Singular Wireless, but they refused to discuss the issue.

 

Last year to appease the cellular providers an amendment to the original ordinance was eventually adopted. (Exhibit 3)

 

Background -- Tri-City Regional Wireless Server Providers (TRIWSP)

 

In March of 2003, the Tri-City Regional Wireless Service Providers (TRIWSP) met to discuss an action to be taken regarding the City of Kennewick and Benton County efforts to enforce ordinance KE-ORD1232.  It was decided TRIWSP and Singular Wireless would “Petition the FCC for a Declaratory Ruling,”2 and at the same time the county filed a “Motion to Dismiss” in the hopes it would be funneled in the local court system.

 

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Exhibit 1

 

Tri-City Reporter

Radio Blackouts Hamper Police Arrests 3

By Amber Dawson, Staff Reporter

August 8th, 1999

 

Early on the morning of August 8th, city police Officer James Warren heard the first radio call from a police dispatcher about an armed robber walking around the streets of East Kennewick.  But as he drove east on 10th avenue toward the address he was given, he heard only a broken transmission updating the description of the assailant.  “If someone’s carrying an assault rifle, you’d like to know about the entire situation,” Officer Warren said.  The teen wasn’t carrying a weapon when the office approached, but another officer found a SKS-45 assault rifle leaning up against a nearby tree.  “Not knowing what you might be facing, and not having as much information as possible, creates tremendous stress and anxiety,” he said.

 

Officer Warren filed his report with Chief Fred Johnson about the incident.  Officer Warren believes the “dead spot” without radio contact was caused by a nearby cellular communications tower.

 

Officer William Jefferies, Fraternal Order of Police Lodge No. 3 said, “Everyone acknowledges there is a problem, but so far there is no solution.”  Officer Jefferies said he’s been taking part in meeting with city and county officials, cellular telephone representative, and communications engineers since last year to investigate the problem.”  “The chief’s greatest concern is for the safety of our citizens and our officers,” said Lt. Tom Kelly.

 

Dave Rogers, an engineer with the Federal Communications Commission, said the fault for the problem lies within the police radios, not the cellular towers.  The FCC’s investigation found that hand-held police radios often can’t filter out the signals from nearby cellular towers.  The cellular and police frequencies are too close together.  The cellular towers are operating properly.

 

Motorola technicians that manufacture the radios officers carry with them, say the problem seems to occur during heavier cellular telephone use, such as rush hours, Ms. Stacey Swift said.

 

The county is considering a $5 million, five-year overhaul of the radio system.

 

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Exhibit 2

 

Tri-City Reporter

Police Radios to Counter Static – Cell Phone Interference Reason for New Equipment4

By Eric Blank, Staff Reporter

December 2nd, 2001

 

Frustrated with Radio Frequency Interference (RFI) from cell towers, the county is spending $1.2 million for new radios that will help protect the best interest of the community. 

 

The local police officers should notice an immediate difference.  Current “dead spots” occur in areas where there are high volumes of cellular communications.  The newer radios have much stronger filters to minimize cellular interference.  “Officers will receive 240 new radios in January,” said Capt. Jon Owens, commander of the department’s Technology Support Division.

 

“With every tower they build, they interfere that much more with public safety,” said Chief Johnson.  Police officials don’t believe the new radios are the sole answer to the growing conflict between cell phone communications and public safety in the county.  Lt. Randy Polson believes, “The real solution is for us to move, or them to move, from the current frequency.”

 

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Exhibit 3

 

Tri-City Reporter

Council Amends Cell Tower Bill – County could Revoke Permits that Block Police Communications5

By Melissa Lang, Staff Reporter

December 18th, 2001

 

The County Commissioners last night relaxed some restrictions in an ordinance regulating cellular phone towers, appeasing but not satisfying cellular phone companies.

 

County Commissioner Jessica Westcott brought an amendment to the current ordinance that would eliminate bonding requirements for new towers and exempt towers that passed the original inspection from a second time.

 

Paul Sanders, an attorney for Nerdtel, said he supported the amendments.  The bill came about after Desert Horizon residents complained that Nerdtel built a 125-foot tower less than 200 feet from a house just outside of Kennewick.

 

The amendment to the ordinance requires cellular companies to notify residents before building towers on nearby commercial lots.  The bill also would give the county power to revoke permits for towers that interfere or degrade the public safety communications system.

 

Chief of Police Johnson stated at the meeting that they were still dealing with 41 dead spots or areas where officers could not use their radios within a ½ mile radius of certain towers.

 

Cell phone companies argued that the county was overstepping its boundaries, saying some of the issues should be handled by the Federal Communications Commission.6

 

The public is encouraged to comment on the proposed amendment.7

 

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