Evolving 911 Services Final Report September 14, 2016
The report provides a comprehensive overview of best practices and standard operating procedures for Legacy, Transitional, and Next Generation 911 systems. It emphasizes the importance of inter-jurisdictional coordination in emergency response systems and makes recommendations for optimizing PSAP reroutes. Additionally, it discusses the architectural and operational standards required for location-based routing of 911 calls, assessing various location information sources' reliability and accuracy.
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Presentation Transcript
Working Group 1: Evolving 911 Services Final Report September 14, 2016 Susan Sherwood, Co-Chair (Verizon) Jeff Cohen, Co-Chair (APCO International)
WG1 Deliverables Task 1 Review public safety and industry best practices and standard operating procedures on Legacy, Transitional (IP-based) and Next Generation 911 (NG911) systems for rerouting 911 calls between PSAPs due to the use of cell sectors for routing purposes, and where necessary identify gaps and make recommendations towards optimizing PSAP reroutes. Deliverable: Report and Recommendations Completed February 24, 2016 Work Group reviewed and included the following topics in the Task 1 report: Public Safety and Industry Best Practices and Standard Operating Procedures on Legacy, Transitional and Next Generation 911 (NG911) Systems Inter-jurisdictional coordination on MSAG and GIS 2
WG1 Deliverables Task 2 Work on Task 2 started March 11, 2016. Study and make recommendations on the architectural, technical, operational standards, and security requirements (including cyber) of location based routing that uses longitude and latitude information or other location identification methods (when available) to determine routing to the appropriate PSAP for a voice 911 call from wireless devices that include CMRS, IP-Based (VoLTE, WiFi), and Over-the-Top (OTT) 9- 1-1 applications. Consider different routing delivery options for Location-Based Routing (LBR) methods: CMRS delivery option VOIP Positioning Center (VPC) delivery option (different routing table) External option going direct to PSAP Explore and report on the pros and cons of various sources of location information available for LBR, the potential reliability and accuracy of the sources, and the transition path to LBR of voice 9-1-1 calls from Legacy to Transitional and then fully deployed NG911 systems, in particular identifying the necessary roles and responsibilities of key stakeholders involved in supporting 9-1-1 calls and existing and future standards to support the transition. Deliverable: Report with Guidelines and Recommendations 3
WG1 Members Last Name First Name Organization Cohen Co-Chair Jeff APCO Sherwood Co-Chair Musgrove Sze Thompson Aryana Susan Peter Elaine Jim Firdaus Verizon Wireless ATIS (AT&T) AT&T Cal OES, 911 Branch CenturyLink Wood Melissa Comcast Cable Marshall Roger Comtech Bischoff Brent Cox Communications Savage Andre Cox Communications King Willie CSD Hall Brice DHS Flaherty Laurie DOT White Fred Laaser Spears Dean Dorothy NASNA (VITA) Mace Forgety Steve Trey NCTA NENA Hixson Roger NENA 4
WG1 Members Last Name First Name Organization Whitbeck Kathy Nsight Green Jeanna Sprint Schumacher Greg Sprint Jensen Ryan T-Mobile Hagerson Eric T-Mobile Parry Eric Utah Communications Authority Montani Tony Verizon Militeau Christian West 5
WG1 Status WG1 has held weekly meetings to complete Task 2 Report and Recommendations. Report delivered to FCC staff on 8/26/16. No comments or edits were received prior to scheduled CSRIC vote on 9/14/16. First call for Task 2 was held on Friday, 3/11/16. WG1 reviewed task description and identified key topics. WG1 agreed that representatives from key 3rd party commercial location providers should be invited to Task 2 calls. Meetings were held bi-weekly. 6
Location-Based Routing Method Review Working Group 1 used the following format for reviewing each LBR method: Pros Cons Reliability Accuracy Roles and responsibilities of key stakeholders (technical feasibility) Architectural Changes and Technical Standards Impacts Operational Standard Operating Procedures (SOP) Impacts Security Considerations (including cyber) Recommendations 7
Location-Based Routing Method Review Working Group 1 reviewed the following 5 LBR methods: Hold Call Until Phase 2 Available Interim or Quick Fix Geo-code Registered/Provisioned Civic Address Device-Based Hybrid (DBH) Location Wireless 9-1-1 Location Accuracy Emerging Technologies 8
LBR Method 1 Hold Call Until Phase 2 Available Working Group 1 considered 2 options to implement this technology: Option 1: Hold call at Wireless Mobile Switching Center (MSC) or Hold call at the MSC based on delaying routing info from Mobile Positioning Center (MPC)/Emergency Call Server (ECS). Option 2: Hold call at the PSAP gateway. 9
LBR Method 1 Hold Call Until Phase 2 Available Recommendation: There are concerns about the delays to call delivery to the 9-1-1 system and associated PSAPs that this method inherently involves and it is not recommended for timeframes related to the current availability of Phase 2 location. 10
LBR Method 2 Interim or Quick Fix In this LBR method, the 9-1-1 call can be routed using an Interim or Quick Fix that is delivered by the WSP in 5 seconds or less. The X/Y coordinates delivered with the Interim or Quick Fix are plotted on a geospatial shape file of one or more PSAP jurisdictional boundaries and delivered to the PSAP in which the X/Y coordinates are plotted. Generally, this method necessitates holding the 9-1-1 call at one of the points outlined LBR Method 1, utilizing a timer of up to 6 seconds. 11
LBR Method 3 Interim or Quick Fix Considerations: To the extent carriers can provide quick fixes in 5 seconds or less and accuracy is appreciably better, there is some value to this method. Recommendation: It is recommended that Interim or Quick Fix be used where its implementation is expected to derive sufficient benefit to justify investment. This methodology may have some benefits, but there are some factors that may limit its usefulness and return on investment depending on how implemented. 12
LBR Method 3 Geo-code Registered/Provisioned Civic Address Working Group 1 considered 3 options to implement this technology: Option 1: Static or nomadic consumer home device that has customer register location of device. Option 2: Semi-permanent devices or cells installed by carrier or other commercial entity addresses provisioned by entity. Option 3: Dynamic geo-code registration nomadic device that can update its registered civic address in real time through reverse geo- coding. 13
LBR Method 3 Geo-code Registered/Provisioned Civic Address Considerations: If the registered address for the device is correct, this method is ideal for routing. If the address is incorrect or if the device is used elsewhere and the address is not updated, the location could be very far off. Recommendation: The FCC should work with device manufacturers and WSPs to assess the feasibility of enabling all devices used for static and nomadic purposes with the ability to validate if it has been moved and alert the network of its status. 14
LBR Method 4 Device-Based Hybrid (DBH) Location DBH Location uses a mix of location methods available to the device including crowd-sourced WiFi, A-GNSS, and handset-based sensors. It also includes an associated uncertainty estimate reflective of the quality of the returned location. With this method the carrier no longer controls the entire E9-1-1 location process from end-to-end. The method is now becoming available for use with E9-1-1 location systems. 15
LBR Method 4 Device-Based Hybrid (DBH) Location Recommendations: Further study is needed to determine the suitability and usefulness of DBH for E9-1-1 call routing. The FCC should reach out to Smartphone operating system and device providers to invite them to participate in 9-1-1 industry forums and standards activities as 9-1-1 location providers and advise on what action(s) by the FCC would be required to provide WSPs with the assurances and protections needed in order for them to implement proprietary 3rd party location solutions. 16
LBR Method 4 Device-Based Hybrid (DBH) Location Recommendations: WSPs should investigate updating device and location server capabilities in order to choose between an interim A-GPS fix or a stored location on the device supplied by a commercial location application running on the phone. The Telecommunications Industry Association (TIA) TR-45.8 and Alliance for Telecommunication Industry Solutions (ATIS) Wireless Technologies and Systems Committee (WTSC) standards bodies need to review J-STD- 036 to determine if any interface, signaling and parameter changes are required in order to support use of a device s commercial location as an interim location method for delivery and use with wireless 9-1-1 call routing. 17
LBR Method 5 Wireless 9-1-1 Location Accuracy Emerging Technologies Wireless carriers are currently implementing the FCC s 4th Report and Order on 9-1-1 location accuracy that includes provisions for a Test Bed to assess deployed and new, emerging technologies. The location technologies tested in the Test Bed and currently or subsequently deployed, could potentially be leveraged for location- based routing of wireless 9-1-1 calls if these technologies derive sufficiently accurate location fixes in 5 seconds or less. 18
LBR Method 5 Wireless 9-1-1 Location Accuracy Emerging Technologies Considerations: Testing has shown that combining additional satellite constellations as support with GPS (referenced as A-GNSS), increases the number of satellites that can be seen by the device, particularly in challenging environments such as indoors, and as a result, increases the number of A-GNSS fixes and the accuracy of those fixes. Hybrid A-GNSS/OTDOA and OTDOA location solutions also show a good deal of promise in improving the accuracy of locations delivered on 9-1-1 calls over other 2G/3G hybrid and network-based location solutions, but it is too early in the deployment cycle of these technologies to see if the time to first fix (TTFF) can be improved to the 5 seconds or less required for location-based routing. 19
LBR Method 5 Wireless 9-1-1 Location Accuracy Emerging Technologies Considerations: On the other hand, for GPS or cell-based locations, the TTFF and the accuracy of a given fix are a function of the environmental conditions in which the 9-1-1 call is made. The more challenging the environment (e.g. deep indoors), the longer it takes to obtain a fix, if position inputs need to be gathered from both GPS and cell- based sources. Dispatchable Locations are not impacted by environment conditions because these addresses are tied to fixed points within a building and not geodetically calculated. Additionally, while carriers have recently began testing from a warm start, this still does not allow for device tracking obtainable from a hot start. 20
LBR Method 5 Wireless 9-1-1 Location Accuracy Emerging Technologies Recommendations: The FCC should continue to support independent testing and analysis of new location accuracy technologies. The FCC should encourage the use of additional A-GPS/A-GNSS satellite constellations by WSPs as one input, among many inputs, into the 9-1-1 location algorithm as it is currently in use for device- based hybrid commercial locations. 21
LBR Method 5 Wireless 9-1-1 Location Accuracy Emerging Technologies Recommendations: The FCC should seek assurance from providers of location fixes calculated from proprietary databases sought to be used for routing 9-1-1 calls, that their databases and algorithms are maintained in a manner that assures consistent and accurate locations required for emergency services. Furthermore, the FCC should require these databases to be standards compliant and allow for periodic, standardized accuracy testing conducted by users and recipients of DBH locations, without sending the voice call to PSAP. 22
LBR Method 5 Wireless 9-1-1 Location Accuracy Emerging Technologies Recommendations: The FCC should require providers of location fixes calculated from proprietary databases sought to be used for routing 9-1-1 calls, to provide metrics and other performance verification tools to WSPs to ensure that the location fixes meet accuracy and quality requirements. WSPs who deliver 9-1-1 calls and are held responsible for the calculation of the locations fixes passed to public safety, must have metrics and procedures in place to ensure that internal positioning methodologies used are reliable, consistent and performing at expected accuracy and quality requirements. 23
Transition Considerations for PSAP Systems Transition implies the moving from legacy 9-1-1 to NG9-1-1. The emergency calling architecture has two separate ends or domains, the originating end and the terminating end. The originating domain is responsible for initiating a 9-1-1 call, initial call routing, and to acquire location associated with the call. It supports a variety of media, access technologies, and performance profiles. The terminating domain may also perform additional routing, delivers the call, as well as location and call related data. It typically uses the terms legacy, transitional, and NG9-1-1 to describe how any kind of available data is conveyed to the PSAP. Each domain can evolve separately, and can impact the other. 24
Transition Considerations for PSAP Systems Originating Service Characteristics Hold Call Until Phase 2 Available: no transition impacts except for delays for the caller, the telecommunicator, and the responder agencies. Interim or Quick Fix: no transition impacts but could improve call handling by directing more calls to jurisdictionally appropriate PSAP. Geo-code Registered/Provisioned Civic Address: for transitional/NG9-1-1, ability to timely receive or acquire location is critical. NG91-1- design already accounts for this approach, but this is dependent on IP-to-IP interconnection between the WSP and NG9- 1-1 core ingress components, a capability proposed but not yet implemented by WSPs. Device-Based Hybrid Location: for transitional/NG9-1-1, options exist to receive or acquire the location in time to route to the jurisdictionally appropriate PSAP. NG91-1- design already accounts for this approach, but this is dependent on IP-to-IP interconnection between the WSP and NG9-1-1 core ingress components, a capability proposed but not yet implemented by WSPs. Wireless 9-1-1 Location Accuracy Technologies: no transition impacts expected. 25
Transition Considerations for PSAP Systems Terminating Service Characteristics Transition Considerations for Legacy Emergency Services Networks: impact of LBR may be significant because of the need to differentiate X, Y data used for routing vs. for locating the caller; legacy ALI systems may require software changes to accept an expanded set of location data and the availability of this data is dependent on capabilities of PSAP equipment. Transition Considerations for IP-connected Emergency Services Networks: non-standard solutions exist but would be considered proprietary. Transition Considerations for NG9-1-1 Emergency Services Networks: would be able to present a full set of rich data, including the location used for routing as well as other location data requested after initial call routing was complete. 26
Summary of Recommendations It is not recommended to delay the call delivery to the 9-1-1 system and associated PSAPs for timeframes related to the current availability of Phase 2 location. Interim or Quick Fix can be used where its implementation is expected to derive sufficient benefit to justify investment. The FCC should work with device manufacturers and WSPs to assess the feasibility of enabling all devices used for static and nomadic purposes with the ability to validate if it has been moved and alert the network of its status. It is recommended to further study the suitability of device-based hybrid for use in E9-1-1 call routing. The FCC should reach out to the Smartphone operating system and device providers to invite them to participate in 9-1-1 industry forums and standards activities as 9-1-1 location providers and advise on what action(s) by the FCC would be required to provide WSPs with the assurances and protections needed in order for them to implement proprietary 3rd party location solutions. 27
Summary of Recommendations WSPs should investigate updating device and location server capabilities in order to choose between an interim A-GPS fix or a stored location on the device supplied by a commercial location application running on the phone. TIA TR-45.8 and ATIS WTSC standards bodies should review J-STD-036 to determine if any interface, signaling and parameter changes are required in order to support the utilization of a device s commercial location as an interim location method for delivery and use with wireless 9-1-1 call routing. The FCC should continue to support the independent testing and analysis of new location technologies. The FCC should encourage the use of additional A-GPS/A-GNSS satellite constellations by WSPs as one input, among many inputs, into the 9-1-1 location algorithm as it is currently in use for device- based hybrid commercial locations. 28
Summary of Recommendations The FCC should seek assurance from providers of location fixes calculated from proprietary databases sought to be used for routing 9-1-1 calls, that their databases and algorithms are maintained in a manner that assures consistent and accurate locations required for emergency services. Furthermore, the FCC should require these databases to be standards compliant and allow for periodic, standardized accuracy testing conducted by users and recipients of DBH locations, without sending the voice call to the PSAP. The FCC should require providers of location fixes calculated from proprietary databases sought to be used for routing 9-1-1 calls, to provide metrics and other performance verification tools to WSPs to ensure that the location fixes meet accuracy and quality requirements. WSPs who deliver 9-1-1 calls and are held responsible for the calculation of the locations fixes passed to public safety, should have metrics and procedures in place to ensure that internal positioning methodologies used are reliable, consistent and performing at expected accuracy and quality requirements. 29
Questions? 30
