2013 NASCIO Award Submission Category: Cross-Boundary Collaboration and Partnerships. Project Title: Public Safety and Enterprise GIS in Tennessee
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1 2013 NASCIO Award Submission Category: Cross-Boundary Collaboration and Partnerships Project Title: Public Safety and Enterprise GIS in Tennessee State of Tennessee, Board of Parole State of Tennessee, Tennessee Bureau of Investigation State of Tennessee, Department of Finance and Administration, Office for Information Resources, GIS Services Contact: Dennis Pedersen (615) State: Tennessee Project Initiation: July 1, 2010 Project Completion: May 15, 2011
2 Executive Summary In Tennessee, the State has made a significant investment into developing and maintaining a multi-agency enterprise GIS system branded as the Tennessee Map (TNMap). One of the main objectives of the TNMap enterprise GIS is to build it once, use it many and eliminate or help minimize GIS data duplication efforts, saving time and money. Through the collaborative efforts and data sharing partnerships of seven state agencies and local governments throughout Tennessee, the Department of Finance and Administration, Office for Information Resources, GIS Services (OIR-GIS) was able to develop two GIS web applications that met the public safety needs of the Tennessee Bureau of Investigation (TBI) and the Board of Probation (BOP). Specifically, TBI and the BOP identified a need to improve public safety by developing Drug Free Zones and exclusion zones respectively that consisted of 1000 foot buffer zones of property parcels around schools, day care facilities, parks, and libraries. This required having a digital map that represented these locations statewide and a process to create the 1000 foot buffer zones around the property parcels where these facilities were located. Both agencies worked directly with OIR-GIS in the Department of Finance & Administration to provide the TNMap geospatial data and the processes that would support the project s business needs. Ultimately, the main objective for both applications was two-fold: improve public safety by restricting travel into Drug Free Zones and exclusion zones by sex offenders or drug traffickers and increase the penalties if the Drug Free Zones are violated; and save time and money by developing the solution for both agencies by reusing existing GIS data already available through the TNMap enterprise GIS. The ability to integrate geographic information systems and data created through the Tennessee Base Mapping Program (TNBMP), a multi-year effort to develop digital base map data in support of State and local government, was an essential part of the project s success.
3 Description of the Business Problem and Solution First, in 1995, the Tennessee General Assembly passed a law that enhanced criminal penalties for violations within Drug Free Zones. Specifically, Tennessee Code Annotated (TCA) (b) (1) states, A violation of , or a conspiracy to violate the section, that occurs on the grounds or facilities of any school or within one thousand feet (1,000') of the real property that comprises a public or private elementary school, middle school, secondary school, preschool, child care agency, or public library, recreational center or park shall be punished one (1) classification higher than is provided in (b)-(i) for such violation. Without a map that identifies these statewide locations and the 1000 foot buffer zones around the real property that comprise these locations, the TBI and district attorney offices would not be able to enforce this law and for years were unable to do so. Fortunately, OIR-GIS had either developed these GIS data layers or worked with the agency responsible for maintaining the GIS data layer through the project with the Board of Parole (BOP) to identify exclusion zones for registered sex offenders. The following table shows how multiple agencies provided GIS source data to support the project: State Agency Department of Education Department of Environment and Conservation Department of Human Services Comptroller of the Treasury (via 95 county property assessors) Secretary of State Department of Transportation Dept. of Finance and Administration GIS Data Source Geocoded schools Parks Geocoded Day Care Facilities Property Parcels Geocoded Libraries Interstate Mile Posts Base maps and aerial photography Using Esri s ArcGIS software, the OIR-GIS Services group geocoded the schools, day care facilities, and libraries, while the Department of Environment and Conservation maintains the parks GIS data source. The most significant GIS data layer that is part of the solution is the property parcel boundaries. Through a data replication process, the Comptroller of the Treasury receives updated digital parcels from the 95 local property assessor offices on a weekly basis. Once the data was geocoded, it was accurately placed within each parcel. Then, after the parcels were identified, the 1000 foot buffer zones were created using the ArcGIS software. Through this process OIR-GIS was able to create 5,699 Drug Free Zones or exclusion zones in Tennessee. Meanwhile, the BOP needed a more efficient way of tracking their registered sex offenders on parole. The business requirements for BOP were remarkably similar to the TBI, in that they needed to identify exclusion zones or 1000 foot buffer zones around
4 schools, day care facilities, parks, and libraries where offenders could not travel. GIS Services worked directly with BOP staff and their vendor, Satellite Tracking Of People (STOP) and developed a process to use GPS ankle bracelets and the exclusion zones to remotely monitor these offenders. Significance to the improvement of the operation of government Both BOP and TBI were faced with a daunting task of how to prevent sex offenders and drug traffickers from traveling within certain protected areas across the State. Attempting to do this work manually wasn t an option. Both TBI and BOP had to leverage the power of GIS to accomplish their mission. The GIS web application ( developed for the TBI and local district attorney offices, is being used throughout the State to improve public safety. Prior to the development of the web application, TBI staff and district attorney staff were simply unable to determine if and where an offender was located relative to the Drug Free Zones. As a result, when it came to prosecuting these offenders, there was no proof or leverage used to convict these criminals and potential sentencing time was decreased. Now, all of the drug trafficking cases use the GIS web site to determine if a Drug Free Zone is violated. In all, between 30%-40% of the drug cases in Tennessee violate the Drug Free Zones and are prosecuted using information from the web site. Tennessee felonies are ranked A-E, with A being the longest jail time (15-25 years) and E being the shortest jail time (1-2 years). Whenever the Drug Free Zones are violated (drugs bought, sold, or made inside these zones; or if the zone is traveled through to make a purchase/transaction), the penalties are increased by one felony category, automatically increasing jail time accordingly. The GIS web application not only displays the Drug Free Zones but also has the ability to zoom to a specific county, judicial district, and Interstate Mile Post (leveraging data from the Department of Transportation). The map display for the Drug Free Zones are updated nightly via an automated geocode process and intersected with the property parcels. So, law enforcement officials have confidence in the accuracy of GIS data being displayed and the corresponding Drug Free Zones that are created through the ArcGIS software. Users also have the ability to change the base map background between a street map view and an aerial photography view (additional GIS data developed through the TNBMP and hosted by OIR-GIS). In the case of BOP, a GIS web application ( was developed that simply reuses the GIS data and Drug Free Zones but labels them as exclusion zones (areas that registered sex offenders cannot live or travel within). This concept of leveraging existing GIS data to meet a variety of needs underpins the main efforts of the TNMap enterprise GIS vision, summarized as build it once, use it many and results in a more efficient and effective government. The web application is used primarily by BOP staff to determine if the offenders home or work address is within one of the exclusion zones, but isn t the only method used for BOP to monitor sex offenders. Through their consultant STOP (Satellite Tracking of People) the exclusion zones are downloaded
5 from OIR-GIS on a nightly basis and integrated with their GPS monitoring center. Each offender is required to wear a GPS ankle bracelet. Whenever a sex offender goes into an exclusion zone the GPS device triggers an alarm and an automatic notification is sent to the monitoring center and local law enforcement is informed. Through this technology and the GIS data provided by OIR-GIS, BOP is more accurately able to monitor these sex offenders and reduces the overall costs associated with public safety. Benefits of the Project This project took almost one year to complete. Initial discussions began in summer of 2010 and were followed by various meetings, planning sessions, and GIS software development. Overall, it took a team of subject matter experts and GIS developers approximately nine months to gather and create the GIS data products and build both of the GIS web applications for BOP and TBI. The primary benefit of this project is improved public safety throughout the state of Tennessee. Across the nation, many jurisdictions are using GIS and GPS to improve and protect their citizens. Through collaboration and data sharing partnerships, Tennessee is leading the way in both the TBI and the BOP. In the BOP, reliable technologically advanced GPS based monitoring offers an effective tool that enhances the ability of supervising officers to better manage their offender caseload and available resources. Through the use of this technology BOP has seen a decrease in the man hours required to monitor the offenders, while increasing the number of offenders being monitored. Additional benefits and significant savings are being realized by BOP in the following ways: 1. Increased accuracy of monitoring across county boundaries. 2. Time savings by officers not having to evaluate exclusion zones manually. 3. Statewide coverage of exclusion zones provides officers the ability to monitor offenders more closely. In the case of TBI, through the development of the digital Drug Free Zones, certain areas of cities almost form a gauntlet to prohibit drug dealers from practicing their trade, thus making Tennessee cities safer and more productive. Drug dealers are now acutely aware of the terms of the drug-free school zone act. When charged, they often plead very quickly to lesser offenses to avoid the harsh punishment outlined in this act. Cases are being resolved more quickly because of the impact that the statewide digital map has had on criminal justice. This improves quality of the legal system, and prevents cases from languishing on state dockets for extended periods of time. An additional benefit of the project was the ability to develop a solution with minimal cost to both the TBI and the BOP. Using the enterprise GIS shared environment developed by OIR-GIS, both agencies did not have to procure dedicated hardware and software associated with implementing the solution. In addition to infrastructure costs, both agencies did not have to pay for any of the GIS data associated with the project,
6 but was able to leverage the existing GIS data that was already being managed by OIR- GIS and other state agencies via the TNMap enterprise GIS.
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