Telecom Decision CRTC 2020-373

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Ottawa, 12 November 2020

Public record: 8621-C12-01/08

CISC Emergency Services Working Group – Consensus report ESRE0086 regarding dispatchable location from originating networks

The Commission approves, with a modified timeline for implementation, the recommendations made in the CRTC Interconnection Steering Committee’s Emergency Services Working Group’s consensus report ESRE0086b related to automatic emergency location determinations. The Commission directs telecommunications service providers, effective on the date they are required to have their networks ready to support NG9-1-1 services, to deliver to public safety answering points the most accurate dispatchable location available when so requested, and to adhere to the timing and response times detailed in the appendix to this decision.

Background

  1. Canadians currently have access to either basic 9-1-1 or enhanced 9-1-1 service through wireline, wireless, and voice over Internet Protocol (VoIP) telephone services wherever a 9-1-1 call centre, also known as a public safety answering point (PSAP), has been established.Footnote 1 In the future, Canadians will have access to next-generation 9-1-1 (NG9-1-1) services as described in Telecom Regulatory Policy 2017-182.
  2. At present, when a caller dials 9-1-1, the call travels from the network from which it was placed (the originating network)Footnote 2 to the local specialized 9-1-1 network. The 9-1-1 network then determines, based on the caller’s telephone number, which PSAP serves the area from which the emergency request originated and routes the call accordingly, along with associated caller information such as location and telephone number. For wireline calls, the telephone number is the number assigned to the calling line; for wireless calls it is the emergency services routing digit.Footnote 3 Nomadic VoIP calls are routed to a third-party operator who then routes them to the appropriate PSAP.Footnote 4 The PSAP then dispatches emergency responders as required.
  3. Each active wireline phone number is associated with a valid civic address found in the Master Street Address Guide/Street Address Guide (MSAG/SAG),Footnote 5 if the MSAG/SAG has been activated by a telecommunications service provider (TSP). PSAPs typically have a standard operating procedure that includes confirmation of the location of the caller’s emergency for all types of 9-1-1 calls. Confirmation is necessary because the location of the emergency may be different from the location of the caller.
  4. Location information is generally obtained from the originating network. Its availability and characteristics vary depending on the type of network from which the call originates.Footnote 6 With the introduction of NG9-1-1 services and the implementation of enhanced, handset-basedof determining location in mobile telecommunications networks, location information will be used for two distinct purposes:
    • to route wireless 9-1-1 calls to the appropriate/designated PSAP, where it may be used by the PSAP communicator in the location verification process; and
    • to dispatch emergency responders to the verified location of the emergency incident (dispatchable location).
  5. For NG9-1-1 services, a location information server (LIS) will provide the most current device location for purposes of determining the dispatchable location. An additional data repository (ADR) will provide information over and above caller location, such as data about the call, the caller, or the location. In Telecom Regulatory Policy 2019-66, the Commission set out the roles and responsibilities to be imposed on TSPs and incumbent local exchange carriers for the provision of LIS and ADR functionalities, and asked the CRTC Interconnection Steering Committee (CISC) to provide recommendations regarding the associated technical and operational requirements.  
  6. In Telecom Regulatory Policy 2017-182 and Telecom Decision 2019-353, the Commission set out a framework for the implementation of NG9-1-1 services (the NG9-1-1 framework) with various milestones and associated deadlines. However, in a Commission letter to 9-1-1 stakeholders dated 8 April 2020, the Commission suspended, in light of the COVID-19 pandemic, the deadlines established in the NG9-1-1 framework, set out provisional dates for the milestones in a preliminary view, and indicated that it would launch a proceeding to formally re-establish the dates. The Commission subsequently issued Telecom Notice of Consultation 2020-326 for that purpose.

Report

  1. On 17 April 2020, the CISC Emergency Service Working Group (ESWG) Footnote 7 submitted the following consensus report (the report) for Commission approval:
    • Dispatchable Location from Originating Networks, 12 September 2019 (ESRE0086b)
  2. The report can be found in the “Reports” section of the ESWG page, which is available in the CISC section of the Commission’s website at www.crtc.gc.ca.
  3. The ESWG initiated the report in response to recommendation #5 from the ESWG report ESRE0070. The recommendation stated that automatic location determination solutions were to be addressed under a separate task identification form (TIF).
  4. The report concerns matters related to automatic emergency location determinations that should make reliable location information, which is of paramount importance for emergency services, more readily available.
  5. The report is based on the views of NG9-1-1 stakeholders, including wireless service providers (WSPs), NG9-1-1 network providers, and PSAPs. ESWG participants submitted eight contributions. Participants reached consensus on the recommendations.
  6. The report describes dispatchable location as the best location available at the time of a request and at the time of the requisite subsequent calculation, in the best format available, either a pre-defined civic format,Footnote 8 or geodetic format,Footnote 9 or both.  The ESWG indicated that the determination of dispatchable location is dependent on the source of the location data, and, for wireless calls, on the time it takes to make a computed location determination (up to 30 seconds), and noted that it contains two components:
    • initial location data, used to route the call to the appropriate/designated primary PSAP, and, when required, to transfer the call to an applicable PSAP; and
    • system-derived location data and/or additional data such as supplemental address information.
  7. The ESWG reviewed possible NG9-1-1 location requests and results timing parameters. The report recommends a best practice for PSAP location queries, shown in the appendix to this decision. These parameters will be validated by the applicable parties during forthcoming NG9-1-1 Voice implementation trials. Footnote 10,Footnote 11

Recommendations of the report

  1. The report recommends that the Commission direct TSPs to
    1. deliver the best location available, as defined in section 3.1.2 of the report, to the PSAP call handling functional element when requested to do so either automatically or manually; and
    2. adhere to the applicable timing and response times detailed in the appendix to this decision, except in the case of fixed services, which deliver a best location with a 9-1-1 call.
  2. The ESWG requested that the recommendations be implemented as early as possible, but no later than 30 June 2020, the date by which networks were initially required to be ready to support NG9-1-1 Voice services in accordance with the NG9-1-1 framework.
  3. The ESWG also identified matters for further consideration. These include:
    • the question of whether a national or regional database, equivalent to the national emergency address database used in the U.S. (NEAD),Footnote 12 is required for types of network access other than Wi-Fi access points;
    • additional consideration of LIS/ADR with regard to technical and operational requirements that are related to dispatchable location;
    • additional consideration of the introduction of new technologies to improve wireless location accuracy in Canada, looked at in CISC consensus report ESRE0064, Wireless E9-1-1 Phase II Location Accuracy Requirements in Canada, and in particular the implications for the delivery of best location to PSAPs;
    • validation of the functions and processes related to location determination, acquisition, and routing that will be the subject of the NG9-1-1 Voice implementation trials, and assessment of the technical and operational implications of those functions and processes for dispatchable location; and
    • assessment of the implications of multi-line telephone system location determination for dispatchable location.
  4. The ESWG noted that it will give priority to the consideration of those matters, together with additional matters that may arise in discussions or through the NG9-1-1 Voice implementation trials, and present recommendations to the Commission, as appropriate, to support implementation of mandated requirements within the specified timelines.

Commission’s analysis and determinations

  1. The Commission considers the ESWG’s recommendations to be reasonable and consistent with the broader strategic objectives set out in the NG9-1-1 framework, namely, (i) to increase the safety of Canadians by giving them the best access to emergency services through world-class telecommunications networks; (ii) to provide high-quality information, services, and support to PSAPs, which will ultimately enable emergency responders to effectively assist Canadians, and (iii) to use standards-based solutions that allow for flexibility and to strive for national consistency in their application.Footnote 13
  2. The Commission agrees with the intent of the recommendations. However, the timeline requested for implementation of the recommendations should be modified to reflect the suspension of relevant deadlines in the Commission letter of 8 April 2020. In that letter, the Commission stated a preliminary view that the date by which NG9-1-1 network providers and originating network providers must have their networks ready to support NG9-1-1 Voice service be re-established as 30 March 2021.
  3. The Commission notes that in response to a request for information,Footnote 14 the chairperson of the ESWG indicated that aligning the implementation of the recommendations with the date by which networks must be prepared to support NG9-1-1 Voice services would ensure that WSPs and PSAPs are able to adhere to the timing parameters included in the appendix to this decision. These timing parameters are critical to ensuring the timely transfer of accurate location data for each applicable 9-1-1 call, ultimately contributing to the successful launch of NG9-1-1 Voice services.Footnote 15
  4. With regard to the matters that the report identifies for further consideration, the Commission notes that several of them are specific to the work of other TIFs already underway, and encourages the ESWG to assess the impact of the present decision on those TIFs.
  5. In light of all of the above, the Commission approves the recommendations contained in the report, with a modified timeline for implementation, and directs TSPs, starting on the same day that NG9-1-1 network providers and original network providers are required to have their networks ready to support NG9-1-1 voice services, whether 30 March 2021 or a date the Commission may set in the proceeding it has initiated with Notice of Consultation 2020-326, to
    1. deliver the most accurate dispatchable location available, as defined in the report,Footnote 16 to the PSAP call handling functional element when so requested, either automatically or manually, specifically the geodetic location, the validated civic location, or both, and comprising:
      • initial location data, and
      • system-derived location and/or additional data such as supplemental address information; and
    2. adhere to the applicable timing and response times detailed in the appendix to this decision, except in the case of fixed services, which deliver a best location with a 9-1-1 call.
  6. The Commission encourages PSAPs to implement and use the NG9-1-1 system location request timing configuration, the detailed technical specifications, and the operational best practices shown in the appendix.
  7. Furthermore, the Commission requests the ESWG to address the following issues, identified as matters for further consideration in the report:
    • the question of whether a national or regional database, equivalent to the NEAD, is required for types of network access other than Wi-Fi access points;
    • additional consideration of LIS/ADR with regard to technical and operational requirements related to dispatchable location;
    • additional consideration of the introduction of new technologies to improve wireless location accuracy in Canada, looked at in CISC consensus report ESRE0064, E9-1-1 Wireless Phase II Location Accuracy Requirements in Canada, and in particular the implications for the delivery of best location to PSAPs;
    • validation of the functions and processes related to location determination, acquisition, and routing that will be the subject of the NG9-1-1 Voice implementation trials, and assessment of the technical and operational implications of those functions and processes for dispatchable location; and
    • assessment of the implications of multi-line telephone system location determination for dispatchable location.

Policy Directions

  1. In accordance with subparagraph 1(b)(i) of the 2006 Policy Direction,Footnote 17 the Commission considers that approval of the report and the recommendations will advance the policy objectives set out in paragraphs 7(g) and (h) of the Telecommunications Act.Footnote 18
  2. The 2019 Policy Direction,Footnote 19 which complements the 2006 Policy Direction, states that the Commission must consider and specify how its determinations promote competition, affordability, consumer interests, or innovation, as applicable. The report addresses technical matters related to the accurate determination of caller location for emergency services, and to the security of NG9-1-1 networks and the networks with which they interconnect. The Commission considers that implementation of the various measures outlined in the report will ensure the proper functioning of critical networks, and thereby promote consumer interests. The Commission’s approval of the recommendations, with a modified timeline for implementation, promotes innovation and provides leadership in the coordination of the nationwide transition to NG9-1-1 networks and services, to the benefit of all Canadians. As technology and consumer expectations change, the Commission finds it imperative that 9-1-1 networks continue to maintain the path towards NG9-1-1, and that innovations in this field remain responsive to the public safety needs of Canadians.

Secretary General

Related documents

Appendix to Telecom Decision CRTC 2020-373

Recommended NG9-1-1 Location Request Timing

Diagram explaining the recommended NG9-1-1 Location request timing
Long description

The illustration is of a line chart that shows time along the horizontal axis starting at time 0 seconds on the left and ending at time 60 seconds on the right.  Vertical arrows below the horizontal axis pointing up reflect requests at certain points in time for location information associated with 9-1-1 calls made by either a human call taker at a public safety answering point, otherwise known as a PSAP, or electronically by the PSAP call handling functional element. Vertical lines above the horizontal axis pointing down reflect requests or responses to requests, at certain points in time, from wireless service providers (or WSPs) for location information.

The chart shows, on the far left, that when a 9-1-1 call is initiated, the wireless handset issues a location request, with the extension parameter emergencyRouting from the wireless network. Delivered with the call is the initial static civic address (or Phase 1 address) of the cell tower processing the call, which is used to route the call to the proper PSAP. This occurs at responseTime = 0 seconds.

At approximately two seconds, the PSAP call handling functional element requests a Location Update from the location server, as soon as it is aware of the call. The Location Result sent to the PSAP includes the best location with the uncertainty and confidence factor. The extension parameter for this action is emergencyDispatch. At approximately eight seconds, the 9-1-1 call is answered by a call taker at the PSAP. At approximately 10 seconds, the emergencyDispatch location result is sent by the WSP to the PSAP, where it can be used by the call taker to dispatch first responders to the emergency incident.

The chart also shows that at approximately 35 seconds, a PSAP call taker can request a subsequent high accuracy result if required, known as a Location Request Current Rebid. This can only occur after responseTime = 30 seconds. At approximately 45 seconds, the WSP responds with the Location Result Current Rebid.

There are footnotes associated with various terms on the chart as follows:

Civic Location Phase 1 – From ESCO0609 Appendix B Cell Civic address used for routing, delivered with the call.

Location Update emergencydispatch – from ESCO0609 Appendix B Location Updated. emergencyDispatch to pull result from the request at call initiation.

Location Request Current Rebid by Call taker – from ESCO0609 Appendix B Rebid. Accurate Geo Current location request (ResponseTime=30sec) by Call Taker for in-call location update (or ILCU)

When the call is initiated, a location request is provided with the extension parameter “emergencyRouting”. The initial static civic address is delivered with the call as a reference for purposes of routing the call to the proper PSAP. This occurs at responseTime = 0 seconds.

The PSAP call handling functional element requests a location update from the location server as soon as the call handling functional element is aware of the call. The location result sent to the PSAP includes the best location as well as the uncertainty and confidence factor, with the extension parameter “emergencyDispatch”.

When a PSAP call taker requests a subsequent high accuracy result, known as a location request current rebid, an in-call location update (ICLU) is provided. This can only occur after responseTime = 30 seconds. The PSAP must wait for a response prior to initiating subsequent requests, otherwise an error message will be returned by the WSP.

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