Enhanced 911 Emergency Calling

FEDERAL COMMUNICATIONS COMMISSION

47 CFR Part 68

[CC Docket No. 94-102, RM-8143; FCC 94-237]

Enhanced 911 Emergency Calling

AGENCY: Federal Communications Commission.

ACTION: Proposed rule.

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SUMMARY: This Notice of Proposed Rulemaking (NPRM) proposes to amend

rules to ensure the compatibility of enhanced 911 services with private

branch exchanges (PBXs), other private dispersed telephone systems, and

wireless services. This action responds to a petition for rulemaking

(RM-8143) to amend the rules to require compatibility of PBXs with

enhanced 911 emergency calling systems, a petition for reconsideration

filed in the Commission's proceeding on personal communications

services, and issues raised in an Emergency Access Position Paper filed

recently with the Commission.

DATES: Comments must be received on or before January 9, 1995, reply

comments must be received on or before February 8, 1995.

ADDRESSES: Office of the Secretary, Federal Communications Commissions,

1919 M Street, NW., Washington, DC 20554, with copy to Suzanne

Hutchings, Mail Stop Code 1600B2, FCC, Washington, DC 20554.

FOR FURTHER INFORMATION CONTACT: Suzanne Hutchings, Attorney, Domestic

Services Branch, Domestic Facilities Division, Common Carrier Bureau,

(202) 634-1802; or John Reed, Engineer, Office of Engineering and

Technology, (202) 653-7313.

SUPPLEMENTARY INFORMATION: This summarizes the NPRM in CC Docket No.

94-102 and RM-8143 (FCC 94-237) adopted September 19, 1994 and released

October 19, 1994, which bears the title ``Revision of the Commission's

rules to ensure compatibility with enhanced 911 emergency calling

systems.''

The NPRM and supporting file are available for inspection and

copying during the weekday hours of 9 a.m. to 4:30 p.m. in the FCC

Reference Center, room 239, 1919 M St., NW., Washington, DC. Copies may

be purchased from the Commission's duplicating contractor, ITS, Inc.,

2100 M St., NW., suite 140, Washington, DC 20037, phone (202) 857-3800.

The NPRM will be published in the FCC Record.

Summary of NPRM

1. Background

A petition for rulemaking was filed by Adcomm Engineering Co.

(Adcomm), to amend part 68 of the rules to require interoperability

between PBXs and enhanced 911 emergency calling systems. See FCC Report

No. 1922 (RM-8143) released December 29, 1992. The Texas Advisory

Commission on State Emergency Communications (TX-ACSEC) under the

Office of the Attorney General for the state of Texas filed a petition

for reconsideration in the Commission's proceeding on personal

communications services (PCS) (GEN Dkt. 90-314) requesting Commission

action to ensure the compatibility of PCS with enhanced 911 emergency

calling systems. This NPRM also addresses an Emergency Access Position

Paper, filed by the Associated Public Safety Communications Officials-

International, Inc. (APCO), the National Emergency Number Association

(NENA), the National Association of State Nine One One Administrators

(NASNA), and the Personal Communications Industry Association (PCIA),

which presents the consensus recommendations of these organizations to

assist in developing appropriate standards for emergency access from

wireless service systems to 9-1-1 systems. We seek comment on proposals

for insuring the compatibility of PBXs and other dispersed private

telephone systems with enhanced 911 emergency services. Second, we

propose to adopt rules that would require wireless services to include

features that will make enhanced 911 services available to mobile radio

callers.

2. Dispersed Private Telephone Systems and Enhanced 911 Systems

The NPRM proposes to require that PBX and similar equipment: (a)

have the capability of automatically providing a caller's number and

location to the public safety answering points (PSAPs) where the calls

are received; (b) permit callers to obtain access to a PSAP by dialing

911, i.e., without dialing ``9'' or another access code to obtain an

outside dialtone; and (c) have the capability to alert, and provide

calling information to, an attendant at the location served by a

dispersed private telephone system so that an attendant may assist in

responding to an emergency. These requirements would apply to PBX

equipment manufactured or imported one year after rules ultimately

adopted in this proceeding or installed eighteen months after that

date. Under the proposed rules, PBX equipment manufactured or imported

during the first year must be labeled with emergency dialing

instructions both on the device and on the outside of the packaging in

which it is marketed.

3. Wireless Services and Enhanced 911 Systems

We propose to require commercial mobile radio services (CMRS) that

provide, or are capable of providing, real time voice services to

include features that will make enhanced 911 services available to

mobile radio callers. These features include Station Number

Identification (SNI), Automatic Location Information (ALI), and

Selecting Routing (SR).

We propose that: (a) Customers of mobile radio services be able to

obtain access to emergency services by dialing 911 without having to

dial additional digits; (b) such callers be able to place 911 calls

without meeting any mobile radio service user validation requirements;

and (c) mobile radio service calls to 911 be placed at the beginning of

any queue of calls awaiting availability of radio or network resources.

The NPRM proposes to require that mobile radio services furnish

information necessary for emergency service providers to locate a 911

caller who is using a mobile radio unit, and that mobile radio services

permit PSAPs to call back immediately a mobile unit from which a 911

call has been received. The NPRM seeks comment on a proposal that

mobile radio equipment that does not conform to the performance

criteria proposed in the NPRM must be labelled with a warning that

access to 911 is limited and a description that specifies those

limitations. Further, the NPRM seeks comment on whether mobile radio

services should provide PSAPs with common channel signalling

information elements, including subscriber's name and routing

information, to direct the call to the proper PSAP. In addition, the

NPRM requests comment on ensuring access to 911 service by text

telephone devices (TTY) that use wireless services. The NPRM seeks

comment on when these requirements should be imposed, and seeks

analysis of the technical and cost considerations involved.

4. Additional Considerations

The NPRM seeks comment on whether or what privacy considerations

should apply to the provision of enhanced 911 services, and seeks

analysis of any additional issues that should be considered to ensure

that the benefits of 911 services are not diminished by new

developments.

Initial Regulatory Flexibility Analysis

Reasons for Action

This Notice of Proposed Rule Making responds to the petitions

submitted by TX-ACSEC and Adcomm to address issues raised by the

provision of enhanced 911 services through commercial mobile radio

systems, private branch exchanges, and other dispersed private

telephone system equipment. Telephone stations for wireline stations

served by PBX or similar equipment and for wireless services are not

adequately identifying caller location to permit a timely response by

emergency services personnel.

Objectives

The objective of this proposal is to ensure access to enhanced 911

emergency systems on the public switched telephone network for callers

served by private branch exchange other dispersed private telephone

systems, and for callers served by certain mobile services.

Legal Basis

The proposed action is authorized under sections 47 U.S.C. 151,

154, 155, 201-05, 208, 215, 218, 226, 227, 302, 303, 313, 314, 332,

403, 404, 410, 522.

Reporting, Record Keeping and Other Compliance Requirements

Private branch exchanges and other dispersed private telephone

systems will be required to maintain records for calling number

identification, caller location identification, and a call-back number

for each of their calling stations. Commercial mobile radio services

will be required to identify the location of mobile transmitters and

provide call-back numbers for them. Equipment used for private branch

exchanges and other dispersed private systems and commercial mobile

radio services will have to be capable of providing this information to

the local telephone exchanges to which they are connected. Local

telephone exchanges will incur costs storing and relaying this

information to enhanced 911 public service answering points.

Federal Rules Which Overlap, Duplicate or Conflict With These Rules

None.

Description, Potential Impact and Number of Small Entities Involved

The proposed changes in the regulations would affect a number of

entities both large and small. An estimate of such parties affected is

approximately 65 million new wireless services users and approximately

4 million PBX equipment owners.

Any Significant Alternatives Minimizing the Impact on Small Entities

Consistent with Stated Objectives

With respect to PBX equipment, the NPRM asks whether the proposed

rules must be applied where the equipment serves a physically small

location, such as a single story building, or a small number of closely

situated telephone stations.

Ex Parte Presentations

This is a nonrestricted notice and comment rulemaking proceeding.

Ex parte presentations are permitted, except during the Sunshine Agenda

period, provided they are disclosed as provided in Commission rules.

See generally 47 CFR 1.1202, 1.1203 and 1.1206(a).

Filing Comments

Pursuant to applicable procedures set forth in Secs. 1.415 and

1.419 of the Commission's rules, 47 CFR 1.415 and 1.419, interested

parties may file comments on or before January 9, 1995, and reply

comments on or before February 8, 1995. To file formally in this

proceeding, interested parties must file an original and four copies of

all comments, reply comments, and supporting documents with the

reference number ``CC Docket 94-012'' on each document. If interested

parties want each Commissioner to receive a personal copy of comments,

interested parties must file an original plus nine copies. Interested

parties should send comments and reply comments to the Office of the

Secretary, Federal Communications Commission, Washington, DC 20554.

Comments and reply comments will be available for public inspection

during regular business hours in the FCC Reference Center, room 239,

Federal Communications Commission, 1919 M Street, NW., Washington, DC.

Copies of comments and reply comments may be purchased from the

Commission's duplicating contractor: ITS, Inc., 2100 M Street, NW.,

suite 140, Washington, DC 20037, (202) 857-3800.

List of Subjects in 47 CFR Part 68

Communications equipment, Labelling requirements, Telephone.

Proposed Rules

Part 68 of Chapter I of Title 47 of the Code of Federal Regulations

is proposed to be amended as follows:

PART 68--CONNECTION OF TERMINAL EQUIPMENT TO THE TELEPHONE NETWORK

1. The authority citation for Part 68 continues to read as follows:

Authority: Sections 1, 4, 5, 201-205, 208, 215, 218, 226, 227,

303, 313, 314, 403, 404, 410, 522 of the Communications Act of 1934,

as amended, 47 U.S.C. 151, 154, 155, 201-205, 208, 215, 218, 226,

227, 303, 313, 314, 403, 404, 410, 522.

2. Section 68.1 is revised to read as follows:

Sec. 68.1 Purpose.

The purpose of the rules and regulations in this part is to provide

for uniform standards for the protection of the telephone network from

harms caused by the connection of terminal equipment and associated

wiring thereto, for the correct operation of terminal equipment with

public emergency access networks, and for the compatibility of hearing

aids and telephones.

3. Section 68.3 is proposed to be amended by adding the following

definitions in alphabetical order to read as follows:

Sec. 68.3 Definitions.

* * * * *

Dispersed private telephone system: A PBX or similar multi-line

telephone system whose connection to the telephone network carries

emergency calls from more than one emergency response location.

* * * * *

Emergency response location: A specific site, corresponding to a

calling station in a dispersed private telephone system.

* * * * *

Enhanced 9-1-1: A telephone network feature that automatically

provides emergency response agencies with telephone directory number

and location information on calls placed to the national emergency

number, 9-1-1.

Enhanced 9-1-1 compatibility: The ability to relay a number

associated with each served emergency response location.

Enhanced 9-1-1 emergency services trunk: Any 2-wire or 4-wire

telephone connection that provide access to Enhanced 9-1-1 service.

* * * * *

Restriction: The blocking of specific dial codes and sequences

during call initiation.

* * * * *

4. Section 68.106 is proposed to be amended by adding paragraph (f)

to read as follows:

Sec. 68.106 Notification to telephone company.

* * * * *

(f) Dispersed private telephone system trunk and station number

verification for Enhanced 911 purposes. Customers who install dispersed

private telephone systems after [18 months after effective date of

order adopting rules in this proceeding] shall provide the telephone

company with:

(1) The number of trunk connections desired;

(2) The number of stations that may originate emergency calls;

(3) The number of, and identification of emergency response

locations that will require number identification; and

(4) The FCC Registration Number of the equipment being used. The

telephone company will provide 10-digit numbers for the identified

emergency response locations.

5. Section 68.228 is proposed to be added to read as follows:

Sec. 68.228 Enhanced 911 trunk and station number verification.

(a) Verification requirements.

(1) General. The proper transmission of station number

identification (SNI) for the station dialing the emergency number 911

shall be verified as part of initial installation and subsequent

changes in emergency response location data.

(2) Station number identification. The 10-digit station number

identification transmitted for 911 calls shall be verified to:

(i) Be in the group of station numbers assigned to the trunk by the

telephone company and, (ii) Be assigned to the specific emergency

response location of the corresponding calling station.

(b) Verfication personnel. Work associated with the verification of

Enhanced 911 emergency services trunk operation shall be performed

under the supervision and control of a supervisor as defined in

paragraph (c) of this section. The supervisor and installer may be the

same person.

(c) Supervision. Work by installation personnel shall be performed

under the responsible supervision and control of a person who:

(1) Has at least 6 months of on-the-job experience in the

installation of telephone terminal equipment;

(2) Has been trained in the operation of Enhanced 911 emergency

services trunks and in the performance of operations needed to verify

proper identification procedures and results;

(3) Or, regardless of compliance with paragraphs (c)(1) and (c)(2)

of this section, is a licensed professional engineer in the

jurisdiction in which the installation is performed.

(d) Verification procedure. The installation supervisor shall

provide written notification to the telephone company that the required

verification tests have been performed, including the following

information:

(1) The responsible supervisor's full name, address and business

telephone number; and

(2) The date when Enhanced 911 trunks will go into service, the

date when the verification tests were completed, and a list of trunk

identification numbers and station numbers verified.

(e) Verification of changes. Addition or deletion of Enhanced 911

data base entries will be cause for verification of operation.

Sec. 68.308 [Amended]

6. Section 68.308 is proposed to be amended by revising in the

table following paragraph (b)(5) the heading ``Public Switched Network

Ports (2-Wire)'' to read ``Public Switched Network Ports (2-Wire) and

Enhanced 911 Trunks''.

7. Section 68.320 is proposed to be added to read as follows:

Sec. 68.320 Enhanced 911 compatibility: technical standards.

(a) Trunk interface. Enhanced 911 trunks are analog two-wire or

four-wire channels supporting either E&M type 1 or E&M type 3

signaling.

(b) Station number identification signaling. The station number

identification (SNI) code assigned to the emergency response location

of a 911 caller will be sent from the registered equipment to the

telephone company 911 system using multifrequency (MF) tone pulses,

prompted by a solid off-hook indication from the telephone network.

(c) Operability. It shall be possible to access the Enhanced 911

trunk in emergencies whether or not system features are used that block

access to normal dial trunks (i.e., restriction of all calls beginning

with ``9''). Access shall be provided whether users dial 911 or

additional digits preceding 911.

(d) Equipment levels. The minimum number of Enhanced 911 emergency

services trunks connecting a private switch to the telephone network

shall be one (1). Additional trunks may be used at the user's option.

Additional trunks shall be added to maintain an availability of P=0.01

based on the number of users served.

(e) Attendant notification. Equipment manufactured or imported

after [one year after the effective date of the order adopting rules in

this proceeding], or installed after [18 months after the effective

date of the order adopting rules in this proceeding], must be capable

of notifying an attendant or on-premises personnel, if present, and of

providing station number identification and emergency response location

to the attendant when a 911 call is dialed.

(f) Information requirements. Equipment manufactured or imported

after [one year after the effective date of the order adopting rules in

this proceeding], or installed after [18 months after the effective

date of the order adopting rules in this proceeding], must have the

capability to provide the caller's station number identification,

caller location identification, and call-back number to PSAP personnel.

(g) Labeling requirements. PBX and dispersed telephone systems

manufactured or imported one year from [the effective date of the final

rule] shall comply with this section. Equipment of earlier manufacture

shall comply with this section if installed [18 months from the

effective date of the section] or any time thereafter. Such equipment

must be reregistered by the manufacturer or other person responsible

for equipment compliance with part 68, if already registered but not

compliant with Sec. 68.320. PBX equipment and associated station

equipment that is domestically manufactured or imported on or after [30

days, but not later than one year, from the effective date of the order

adopting rules in this proceeding] that does not comply with

Sec. 68.320 must be labelled by the manufacturer with a warning

describing its limitations for those attempting to use it to call

enhanced 911. The warning must appear on the devices and on the outside

of the packaging in which it is marketed. The domestic manufacture or

importation of PBX equipment that does not comply with Sec. 68.320 must

cease as of one year from [the effective date of the final rule].

Federal Communications Commission.

William F. Caton,

Acting Secretary.

[FR Doc. 94-27134 Filed 11-1-94; 8:45 am]

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