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18.05.2004
Management of large TETRA project1
Structure and management of very large TETRA project
Seppo Seitsonen, JP-Epstar Ltd.
tel +358 9 682 6696, email seppo.seitsonen@poyry.fi
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Management of large TETRA project
Introduction
Describtion on how a nationwide and shared professional mobile radio project has been succesfully managed in Finland
Conclusions are personal views of the authors and are not official views of Finland’s Ministry of Interior, or VIRVE Unit
Authors are JP-Epstar’s consultants, who have worked in the VIRVE project since early 1990s, and performed tasks such as– Identification of requirements– Costs analysis– Assistance in the procurement process i.e. RFQ preparation,
evaluation of tenders, contract negotiations– Assistance in management of the implementation– Auditing network performance
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Management of large TETRA project3
JP-Epstar
Independent telecommunications consulting and engineering company
Subsidiary of Jaakko Pöyry Group
Extensive experience in network based telecom business and projects, such as professional mobile radio systems for authorities and industries
www.epstar.fi, www.poyry.fi
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Management of large TETRA project
VIRVE Network today
Authority Network = “VIRVE”
1200 Base stations Nationwide coverage 15 Switching centres 200+ Dispatcher work stations Capacity for 50 000 user/terminals 22 000 users/terminals (2003),
growing Service is well accepted by users
1200 km
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Management of large TETRA project
VIRVE user groups, public authorities
Defence ForcesDefence Forces
•Peacetime security operations•Inter-authority co-operation•Peacetime security operations•Inter-authority co-operation
Ministry of Transport and CommunicationsMinistry of Transport and Communications
•Civil Aviation Authority•Meteorological Institute•Navigation Administration•Telecommunications administr.•Road Administration•National Broadcasting Company
•Civil Aviation Authority•Meteorological Institute•Navigation Administration•Telecommunications administr.•Road Administration•National Broadcasting Company
Customs AuthorityCustoms Authority
Ministry of Trade and Industry
Ministry of Trade and Industry
•Nat. Emergency Supply Agency•National Food Administration•Safety Technology Authority
•Nat. Emergency Supply Agency•National Food Administration•Safety Technology Authority
Ministry of Social Affairs and Health
Ministry of Social Affairs and Health
•Operations in Normal Conditions•Preparations for emergency situations
•Operations in Normal Conditions•Preparations for emergency situations
Ministry for Foreign Affairs Ministry for Foreign Affairs
Other User GroupsOther User Groups
•Population Register Center•Technical Research Center of Finland
•Population Register Center•Technical Research Center of Finland
Ministry of the InteriorMinistry of the Interior
•Police•Rescue Services•Frontier Guard
•Police•Rescue Services•Frontier Guard
Ministry of the EnvironmentMinistry of the Environment
Ministry of JusticeMinistry of Justice
•Accident Investigation Agency•Accident Investigation Agency
Prime Minister’s OfficePrime Minister’s Office
Office of the President of the Republic
Office of the President of the Republic
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Management of large TETRA project
Background of VIRVE-project
Background High number and dedicated emergency centers of police and rescue
organisation were found inefficient and expensive Separate and incompatible radio system of police and rescue caused
several operational limitations
Goals Reduce number of emergency centers and make them common Public safety organisation wanted to intensify their mutual cooperation Ministries of Interior, Defence and Transport and Communications
preferred a common radio communication system
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Phases of VIRVE project Feasibility Evaluation
– Identification of user requirements, technology evaluation, the first cost estimations.
Procurement– Preparation of the requirements for the VIRVE network, decisions
concerning the scope of procurement, tendering and evaluation of tenders.
Implementation – Implementation of the network, terminal distribution and network testing.
Early Operation– Operation during the implementation phase.
Regular Operation– Operation when the most of the network had been implemented.
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Time schedule of VIRVE project
Task Name
Development of cooperation
Studies of cooperationbetween usersPilot combined rescuecentresRegular combined rescuecentres
Development of VIRVE
Feasibility
Procurement
ImplementationPhaseEarly Operation
Regular OperationPhase
H1H2H1H2H1H2H1H2H1H2H1H2H1H2H1H2H1H2H1H2H1H2H1H2H1H2H1H2H1H2H1H2H1H2H1H2H1
1986 1987 1988 1989 1990 1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004
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Phase 1: Feasibility study phase
Ministy of Transport and Communications (neutral party) set up a project team
Most essential system requirements were managed communication within and between organisations, group call, fast call set up, encryption
Common view: A professional mobile radio system was required, cellular services do not meet requirements
No single organisation could set up the network Ministry provides the network (investment), users pay for service
(operational cost), ”normal” budget structure, outsourcing of the network operation
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Phase 2: Procurement phase
VIRVE project was moved to Ministry of Interior due to user organisations and easier budget allocations
A part time project team was not enough -> VIRVE Unit was established Network tender:
– Focus on network functionality and features for users – Technology not fixed
Operator tender: – Focus on implementation and operation of the network– Supplier information provided
Contracts and responsibilities (1997): VIRVE Unit, supplier, operator, users
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Phase-3: Procurement phase, contracts and responsibilities VIRVE Unit
– Design parameters for the network: coverage in different areas, capacity, interconnection
Network supplier– Installation and commissioning of the first two switches and 120 base stations– Maintenance support, software support
Network operator– Site acquisition, radio-network planning, – Trunk network, interconnection planning– Installation and commissioning of rest of base stations and switches, and
Dispatcher WSs– Maintenance and user support
User organisations– Procurement of terminals– Implementation of VIRVE service in their own operations– Integration of control-room applications with the VIRVE service
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Phase-3: Procurement phase, conclusions
1. Much easier to obtain funding for the improvement of co-operation than for a new network
2. Funds for a full-time project organisation needed from beginning3. With only two supplier candidates for each tender, real competition was
maintained 4. Frame contracts signed with the supplier -> flexibility 5. Handling of terminals and user applications as separate projects made the
network project simpler, less costly and easier to manage6. Time pressure meant that the contract for operator services had some
inadequacies7. Better contracts management if
– Installation of the network and operation during the installation phase -> Two contracts for the installation period
– Regular operation -> One contract at end of the installation phase (better knowledge)
8. TETRA systems were still prototypes -> extensive system testing was required
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Phase-4: Installation and early operation Installation
– 5 phases according to yearly budget allocations– System testing in Helsinki area -> difficult to get sites– Base station rollout went smoothly– Need for Dispatcher WS turned out to be much less
System testing– Terminals from several manaufacturers were missing– Tests made by different user groups were not coordinated well enough
Management centre– 24h network management and user support was established (run by VIRVE
operator) Terminals
– Distributor was selected through an open tender Implementation of VIRVE service
– Planning of work processes took a lot of time– Availability of terminals which fulfilled requirements was delayed -> waiting– Group call feature in large area was not available -> problems in daily operations
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Phase-4: Installation and early operation, conclusions1. Stronger coordination and guidance by VIRVE Unit could accelerate
implementation of VIRVE service within user organisations
2. Today VIRVE network could be implemented in 3 years, instead of 5 years, cost savings as parallel systems are needed for shorter time
3. Users wanted to be sure that the service would meet their need before start using it, a 3.party quality audit of each part of the network might increase confidence
4. It is very important to arrange efficient handling of user fault reports, their analysis and provision of feedback -> increased confidence
5. Definition of usability of service is different for each user group -> implementation of the new services takes different amount of time in each organisation
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Management of large TETRA project
Phase-5: Regular operation Complete network
– 1200 base stations by end of 2002– Capacity up to 50.000 user terminals– Network wide group call feature and data services– Wide range of compatible terminals
Routine VIRVE operation– Normal network maintenance, customer service, network performance
monitoring– Right moment to specify operator tasks in detail, including performance
indicators Some open issues
– Management of subscriber data, complete agreement with users– Application on packet data services– Network wide call recording service– Only average indoor coverage in cities, dedicated solutions needed for special
sites– Usage based billing
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Project organisation of VIRVE activities (early operation phase)
VIRVE Board
VIRVE UnitOperational Group
Technical Group
Ministry of Interior
Supplier Operator
Distributor
Co-operation groups
VIRVE-executive groupsVIRVE-executive groups
VIRVE-executive groupsVIRVE Executive groups
National
Regional
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Organisation of VIRVE activities (early operation phase) VIRVE Board
– Tasks: main decisions, project supervision– Members: ministry, main user groups
VIRVE Unit– Tasks: procurement, management, administration, economy, planning, organisation,
supervision, tech. guidelines– Members: dedicated organisationOperational Group / Technical Group
• Tasks: definitions, specifications, operational models• Members: main user groups
VIRVE Executive groups• Tasks: commissioning, start-up, user information, capacity planning, support for service
implementation• Members: main user groups
Supplier / Operator / Distributor– Supplier: delivery of network equipment– Operator: network planning, operation, maintenance, reporting of network matters, provision
of infrastructure– Distributor: terminal distribution and settings– Common 3-party groups: seamless co-operation
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Management of large TETRA project
Summary of project organisation / parties in each phase
Feasibility evaluation
Procurement Implementation Early Operation Regular Operation
Ministry of Transportation & Communication
Ministry of Interior Ministry of Interior Ministry of Interior Ministry of T&C
Part time project team
Full time VIRVE unit
VIRVE unit VIRVE unit
Network supplier, network constructor
Network supplier
Network constructor
Network constructor, operator and manager
Service provider, state ownership
User organisations User organisations User organisations
Terminal distributor
Terminal distributor
One terminal supplier
Several terminal suppliers
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Experiences from regular operation phase
1. Some issues remained / can remain open during the project
2. More effort/attention in the planning phase should be put on– Management of subscriber data and billing– Implementation of applications– Network wide services/functionality– Indoor coverage in cities
3. Some user groups, like municipal organisations, are difficult to get– Marketing is required– Predefined product packages are required
4. Traffic per user is lower than expected– Coverage is more important than capacity
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Management of large TETRA project
Why VIRVE was successful project?
VIRVE is part of an on-going project to improve the level of co-operation between the country’s different public safety organisations– All major government ministries have supported it
VIRVE is a network project only– Terminals and user applications do not belong to the VIRVE project,
they are part of a parallel project managed by the user organisations– This approach has helped to avoid VIRVE becoming a mammoth
project which is too costly and too complex to handle
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VIRVE today
VIRVE project was successfully completed at the end of 2002 Gradual substitution of old analogue systems during 2003 VIRVE service is well accepted by users Number of users is expected to grows up to 50.000 Since beginning of 2004, the project organisation was converted to an
operational one– State owned service provider
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Project management environment 1. Business model and strategy2a. Operator agreement2b. Supply agreement2c. Construction agreement3. Supply agreement4. Agreements for use5. Supply agreement6. Service development /
provision agreements
1
Project Owner &Network
Service Provider
Project Owner &Network
Service Provider
Business Model for providing network services
Business Model for providing network services
Network OperatorNetwork Operator
Network Equipment Vendor
Network Equipment Vendor
Network ConstructorNetwork ConstructorTerminal
Equipment Vendors
Terminal Equipment
Vendors
User Application Providers
User Application Providers
User organisationsNetwork providers
2a
2b
2c3
4
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National administrationsCentral administrationsCounty administrationsSafety authoritiesEssential enterprisesOthers
National administrationsCentral administrationsCounty administrationsSafety authoritiesEssential enterprisesOthers
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Management of large TETRA project
Thank You
Seppo Seitsonen
JP-Epstar Ltd
Tel. +358 9 682 6696
Email seppo.seitsonen@poyry.fi