[Federal Register Volume 59, Number 211 (Wednesday, November 2, 1994)]
[Proposed Rules]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-27134]
[[Page Unknown]]
[Federal Register: November 2, 1994]
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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]
BILLING CODE 6712-01-M