BILL ANALYSIS Ó
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|SENATE RULES COMMITTEE | SB 1212|
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THIRD READING
Bill No: SB 1212
Author: Hueso (D)
Amended: 5/3/16
Vote: 21
SENATE ENERGY, U. & C. COMMITTEE: 10-0, 4/19/16
AYES: Hueso, Cannella, Gaines, Hertzberg, Hill, Lara, Leyva,
McGuire, Pavley, Wolk
NO VOTE RECORDED: Morrell
SENATE APPROPRIATIONS COMMITTEE: 6-1, 5/27/16
AYES: Lara, Beall, Hill, McGuire, Mendoza, Nielsen
NOES: Bates
SUBJECT: 2-1-1 information and referral network
SOURCE: 2-1-1 California
DIGEST: This bill states it is the intent of the Legislature to
facilitate the expansion of 2-1-1 informational and referral
services (I&R) into those counties in California where they are
lacking, to support a comprehensive statewide database that will
connect all callers to I&R services, and to facilitate access to
disaster preparedness and I&R services uniformly in the state
especially in hard-to-serve rural areas through a 2-1-1
telephone service. This bill authorizes the California Public
Utilities Commission (CPUC) to expend up to $1.5 million from
the California Teleconnect Fund Administrative Committee to help
close telephone service gaps in counties lacking access to 2-1-1
referral service, including implementation of a coordinated
publicly owned database.
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ANALYSIS:
Existing law:
1)Provides that the CPUC may supervise and regulate every public
utility in the State and may do all things, whether
specifically designated in this part or in addition thereto,
which are necessary and convenient in the exercise of such
power and jurisdiction. (Public Utilities Code §701)
2)Establishes procedures for implementing 2-1-1 dialing in
California. (CPUC D. 03-02-029, February 13, 2003)
3)Assigns 2-1-1 as a national abbreviated dialing code to be
used for access to community information and referral
services. Delegates to state commissions, including the CPUC,
the authority to certify I&R providers that will enable them
to receive calls from those who dial 2-1-1. Requires all
local exchange carriers to provide 2-1-1 call origination
services at reasonable rates in those territories that will be
served by 2-1-1 (Federal Communications Commission N11 Third
Report and Order)
4)Establishes the California Teleconnect Fund and California
Teleconnect Fund Administrative Committee which is a program
to an advisory board to advise the CPUC regarding the
deployment, implementation, and administration of a program to
advance universal service by providing discounted rates to
qualifying schools maintaining kindergarten or any of grades 1
to 12, community colleges, libraries, hospitals, health
clinics, and community organizations. (Public Utilities Code
§280)
This bill:
1)States the intent of the Legislature to facilitate the
expansion of 2-1-1 telephone services into those counties in
California where they are lacking and to support a
comprehensive statewide database that will connect all callers
to the I&Rs they need.
2)States the intent of the Legislature to facilitate access to
disaster preparedness, response, and recovery information, and
referral services, uniformly in the state, especially in
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hard-to-serve rural areas, though a universally available
2-1-1 telephone service.
3)Authorizes the CPUC to expend up to $1.5 million from the
California Teleconnect Fund Administrative Committee to help
close telephone service gaps in counties lacking access to
2-1-1 referral service, including implementation of a
coordinated publicly owned database.
4)States this subdivision is inoperative on January 1, 2023.
Background
N11 Codes. Under its authority over the North American
Numbering Plan, the FCC establishes several abbreviated dialing
codes, including designating three digit numbers such as 9-1-1
for emergency services. On July 31, 2000, the FCC issued its
N11 Third Report and Order assigning the 2-1-1 dialing code as a
national abbreviated dialing code to be used for access to
community I&R providers. The FCC noted in its N11 Third Report
and Order that the assignment of the 2-1-1 code to I&R providers
satisfies the public interest standards for assignments of N11
codes, and recognizes that a great public need can be met
through the implementation of a 2-1-1 dialing program. The FCC
noted that the use of the 2-1-1 dialing code has the potential
to provide Californians with easy access to information
concerning child care services, housing assistance, physical and
mental health resources, aging and hospice services, educational
and other programs. Such information is not currently available
through the 9-1-1 emergency code or the 3-1-1 police
non-emergency code, two previously authorized N11 codes.
About 2-1-1 services. 2-1-1 is the free telephone number by
which Californians can obtain I&R to health and human service
programs. Generally, 2-1-1 provides telephone and web services
that promote public safety during non-emergency situations.
During emergency or disaster situations, 2-1-1 provides critical
public information, such as information on shelters, food
distribution, evacuations, road closures and transportation
issues, utility outages, school closures, medical and housing
assistance, government aid, mitigation and repairs, such as sand
bags, emergency alerts, such as riots and looting, as well as
public health warnings. Additionally, 2-1-1 service providers
offer contact information and access to many local, state and
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national hotlines, including poison control, suicide, child
abuse, adult abuse, teen bullying/cyber-bullying and other
crises, domestic violence, veteran issues, immediate shelter,
food and health needs, and many other social services that are
not currently addressed by either 9-1-1 or 3-1-1 services.
2-1-1 use in California. In 2014, over 1.7 million Californians
called 2-1-1 for help finding needed community services such as
rent and mortgage assistance, food and shelter, healthcare, job
training, transportation, childcare, and senior care. For
example, 2-1-1 services have been important gateways for
enrolling low- and moderate-income families in health insurance
programs, including Healthy Families and county-based Children's
Health Initiatives. In the same year, over 1 million unique
hits were tracked on 211 Web sites across the state.
2-1-1 also plays a critical role in providing information and
support in times of disaster, such as evacuation, shelter, food,
medical and recovery information, and providing public officials
with feedback from callers about changing conditions. For
example, in 2007 during the San Diego wild fires local 2-1-1s
handled 130,000 calls in five days.
CPUC role. The CPUC authorizes one qualifying local agency in
a county the use of the 2-1-1 dial code. This designation
allows the lead agency to provide the 2-1-1 referral services
for the county. I&R centers seeking to utilize the 2-1-1 dial
code must apply directly to the CPUC for rights to use this
special three digit dialing code. The CPUC has approved 2-1-1
services in 37 counties serving approximately 95 percent of
California's population (noted on the following map). Most of
these counties have funded their 2-1-1 services via partnerships
between local health and human services agencies and nonprofits.
For example, Sacramento County notes its program is funded by
First 5 Sacramento Commission, Sacramento County Office of
Emergency Services, Agency on Aging, Goodwill Industries of
Sacramento Valley & Northern Nevada, Sacramento Superior Court,
Kaiser and contributions from the community.
Some counties are left out. While most counties have 2-1-1 I&R
providers, 21 counties currently lack the service.
Specifically, the following 10 counties are currently developing
their 2-1-1 service: Colusa, El Dorado, Glenn, Lassen, Mono,
Plumas, Placer, Siskiyou, Sutter, and Yuba. Another 11 counties
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lack the service and do not have programs in development:
Alpine, Amador, Calaveras, Del Norte, Inyo, Lake, Madera, Modoc,
Sierra, Trinity, and Tuolumne.
California Teleconnect Fund Administrative Committee. This bill
authorizes the CPUC to expend $1,500,000 from the California
Teleconnect Fund Administrative Committee to fund 2-1-1 service
in the counties that currently lack the service, including a
publicly owned coordinated database. The California Teleconnect
Fund is a program to advance universal service by providing
discounted rates to qualifying schools maintaining kindergarten
or any of grades 1 to 12, community colleges, libraries,
hospitals, health clinics, and community organizations. The
program is funded by a surcharge assessed on revenues collected
from endusers for intrastate telecommunications services subject
to surcharge. The current surcharge rate is 1.080 percent.
According to the CPUC, the Administrative Committee is required
to submit a proposed budget to the CPUC on or before June 1 of
each year. The Administrative Committee submitted a letter,
dated August 10, 2015, to the CPUC's Executive Director seeking
approval of a proposed budget for the program of $117,915,000
for FY 2016-17. It's unclear whether the use of this or any
other ratepayer fund is appropriate to fund the 2-1-1 program.
The sponsor of this bill states the additional costs for both
the expanded service and the coordinated statewide referral
database may be about one million dollars. Since all the
currently covered counties have largely utilized local resources
and contributions from charitable organizations and individuals,
the CPUC may want to ensure the counties served by this funding
have made reasonable efforts to secure local and other funding.
FISCAL EFFECT: Appropriation: No Fiscal
Com.:YesLocal: No
According to the Senate Appropriations Committee, up to $1.5
million (California Teleconnect Fund Administrative Committee
Fund) to potentially fund the following implementation
activities:
One-time costs of approximately $350,000 to activate and
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program the 2-1-1 services in the expanded territories.
One-time costs of approximately $1 million to develop a
publicly owned database.
Unknown, but potentially significant costs, to maintain the
database.
Approximately $131,000 annually to cover staff costs for
implementation and program administration.
SUPPORT: (Verified5/27/16)
2-1-1 California (source)
2-1-1 Nevada County
Contra Costa Crisis Center
Eden I&R/2-1-1, Alameda County
Rural County Representatives of California
United Ways of California
United Ways of San Diego County
Ventura County Board of Supervisors
Yolo County
OPPOSITION: (Verified5/27/16)
None received
ARGUMENTS IN SUPPORT: The author states: "SB 1212 will take
the next step in developing a statewide 2-1-1 disaster response
network and close the gap in 211 coverage to provide access for
rural areas in California that do not currently have 211
service. It will make eligible the 2-1-1 network for state
funding. This bill will lay the groundwork for statewide
coordination and funding to ensure all residents of California
can access this critical service regardless of the region from
which they are calling."
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Prepared by:Nidia Bautista / E., U., & C. / (916) 651-4107
5/28/16 17:15:27
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