[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