[Asterisk-Users] Canada Nomadic 911 - From the Yes it will Screw Your Biz Dept

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ESWG Consensus 12-month Report on Nomadic VoIP Technical and Operating
Impediments to 9-1-1/E9-1-1 Service Delivery in Canada


Executive Summary

Emergency Services Working Group (ESWG) recommends on a consensus
basis the Commission order the deployment of NENA Interim-2 (i2)
compliant emergency services components, systems and upgrades to
result in the operation within 18 months of enhanced 9-1-1 services
for nomadic and fixed/non-native VoIP callers in Canada.  ESWG also
recommends that the Commission establish for planning purposes a
milestone for the transition of all legacy analogue emergency services
networks to IP-based emergency networks (so called next generation
9-1-1 networks) in Canada no sooner than 36 months after the
deployment of i2.
ESWG further recommends that the Commission order eight specific tasks
with sequential milestones to assist with the orderly deployment of
i2:
1.	CISC should be ordered to deliver within 6 months a preferred PSAP
funding model for VoIP E9-1-1 addressing regional/provincial variances
and practices to produce a common national standard.
2.	CISC should be ordered to deliver a comprehensive architecture for
the implementation of VoIP E9-1-1 to deliver within 9 months
specifying roles and responsibilities of all emergency services
industry participants.
3.	All 9-1-1 Service Providers ordered to provide MSAG for the
purposes of LIS validity checking within 12 months subject to amended
agreements.
4.	All Broadband Internet Service Providers be ordered to provide LIS
capability within 12 months at their own expense.
5.	All 9-1-1 Service Providers be ordered to provide ALI/ANI
capability consistent with NENA i2 implementation within 15 months at
their own expense.
6.	All local VoIP service providers be ordered to provide Call Servers
and/or Proxy Gateway capability within 15 months at their own expense.
7.	All 9-1-1 Service Providers be ordered to provide ESGW capability
within 15 months at their own expense.
8.	All VoIP 9-1-1 calls to be E9-1-1 delivered to the correct PSAP
within 18 months (Full Production).
ESWG also recommends the establishment of at least one pilot program /
test region in Canada to evaluate and determine the best method and
practices for transition from legacy to IP emergency services.
Finally, ESWG requests Commission continue their practise of fostering
advancement in emergency services by providing deadlines for the
accomplishment of specific tasks through decisions and order the
commencement of this deployment as quickly as is prudent.

1 Background
1.1 Decision CRTC 2005-21 Mandate
This Emergency Services Working Group (ESWG) Consensus 12-month Report
on Nomadic VoIP Technical and Operating Impediments to 9-1-1/E9-1-1
Service Delivery in Canada (the 12-month Report or the Report) is in
response to the mandate given to CRTC Interconnection Steering
Committee (CISC) by the Commission in Telecom Decision CRTC 2005-21 as
follows:
72. The Commission remains of the view that, as these are technical
and operational issues, the most effective approach to resolving them
is through the CISC process, provided that CISC is guided by a fixed
timeline.
73.  Accordingly, the Commission requests CISC to submit to the
Commission, within six months from the date of this Decision, a report
identifying the technical and operational issues that impede
9-1-1/E9-1-1 service delivery when local VoIP service is offered on a
fixed/non-native basis, and, within one year from the date of this
Decision, a similar report with respect to local VoIP service offered
on a nomadic basis. Each report should identify all viable solutions
and recommend the preferred solution(s), with supporting rationale,
and a proposed timeframe for implementation. [Emphasis added]
74. The Commission notes that certain parties suggested that CISC may
benefit from participation in the NENA process in the United States.
The Commission recognizes that the progress made by other national
telecommunications regulators, with respect to the provisioning of
emergency services with local VoIP services, may be of value to the
Canadian industry and encourages CISC to monitor the reports and
progress being made in other jurisdictions on this important issue.
This 12-month Report follows up upon the issues identified in the ESWG
6-month Report on Fixed/Non-Native VoIP Technical and Operating
Impediments to 9-1-1/E9-1-1 Service Delivery (the 6-month Report) as
it was the conclusion of ESWG that the impediments in Canada were
common between the Fixed/Non-native and Nomadic VoIP 9-1-1/E9-1-1
service delivery.
In addition, this Report lays out the careful monitoring of the
US-based National Emergency Number Association (NENA) process done by
ESWG as well as the monitoring and contrast of the regulatory
environment in the United States provided by the Federal
Communications Commission (FCC) used to guide the development of the
Report.
1.2 ESWG 6-month Report on Fixed/Non-Native VoIP Technical and
Operating Impediments to 9-1-1/E9-1-1 Service Delivery
On 3 November 2005, the ESWG filed Identification of Issues for
Provision of 9-1-1/E9-1-1 Service to Fixed/Non-Native VoIP Customers,
27 October 2005 (ESRE0041) (the 6-Month Report). The ESWG submitted
that the working group is currently exploring and evaluating
alternative technologies to provide E9-1-1 solutions for nomadic VoIP
services and that these technologies may also resolve the problems
related to E9-1-1 service delivery to fixed/non-native VoIP customers.
 The ESWG recommended that the Commission review and consider the
proposals to be put forward in the ESWG report on nomadic 9-1-1/E9-1-1
services before giving directions to the industry on what solutions
should be implemented in order to ensure that 9-1-1/E9-1-1 services
are provided in an effective and efficient manner to all VoIP local
service subscribers.  The 6-month report was approved by the
Commission in Telecom Decision 2005-73, Consensus report on
9-1-1/E9-1-1 services provided to fixed/non-native VoIP subscribers 
on 20 December 2005.
1.3 NENA in the United States
NENA's evolution of 9-1-1 systems and methods are described  as:
•	Immediate methods for Voice over Internet (i1)
Route Voice over Internet calls to the correct PSAP outside the
current E9-1-1 system network, optionally with caller ID. No
mechanized ALI provided.
•	Intermediate methods (pre i2)
Solutions termed `pre i2' appear prior to the availability of full i2
interim solutions. These pre-i2 cases are subsets of the i2
characteristics and may not support device based location data
capabilities.
•	Migratory (Interim) solution for VoIP (i2)
Route Voice over Internet and other types of VoIP calls into the
current E9-1-1 systems and to the correct PSAP with correct ANI and
ALI, accommodates both stationary and nomadic users, provides MSAG
valid location information. Provides a method for nomadic user
location either through an automated process or user input via a
service prompted web based form or equivalent. Mobility (wireless
VoIP) not supported beyond base station location identification.
Provides a single industry adopted solution.
•	Next Generation 9-1-1 (NG 9-1-1) (a.k.a. i3)
Enable end to end IP based E9-1-1 design, supporting VoIP originated
call delivery, and the transition of current wireline and wireless
service providers to IP interface technology. Support IP mobility
users, and all capabilities of i2. Utilize extended capabilities of IP
to provide location and other information with the call, as well as
other sub-sets of relevant data (Future Path Plan tier 3 and beyond). 
Provide a standard NG 9-1-1 solution which incorporates all
requirements of E9-1-1, and the potential to easily support future
IP-based communications devices.
1.4 Federal Communications Commission (FCC) Relevant Ruling (FCC05-116)
On June 3, 2005 the FCC released the VoIP 911 Order adopting rules
that require interconnected VoIP providers to provide their new and
existing subscribers with 9-1-1 service no later than November 28,
2005.  Specifically, as a condition of providing interconnected VoIP
service, each interconnected VoIP provider must, in addition to
satisfying the subscriber notification, acknowledgment, and labelling
requirements:
•	Transmit all 911 calls to the public safety answering point (PSAP),
designated statewide default answering point, or appropriate local
emergency authority that serves the caller's "Registered Location." 
Such transmissions must include the caller's Automatic Numbering
Information (ANI) and Registered Location to the extent that the PSAP,
designated statewide default answering point, or appropriate local
emergency authority is capable of receiving and processing such
information;
•	Route all 911 calls through the use of ANI and, if necessary,
pseudo-ANI, via the Wireline E911 Network, and make a caller's
Registered Location available to the appropriate PSAP, designated
statewide default answering point or appropriate local emergency
authority from or through the appropriate Automatic Location
Identification (ALI) database;
•	Obtain from each of its existing and new customers, prior to the
initiation of service, a Registered Location; and
•	Provide all of their end users one or more methods of updating their
Registered Location at will and in a timely manner.  At least one
method must allow end users to use only the same equipment (such as
the Internet telephone) that they use to access their interconnected
VoIP service.
Additionally, the VoIP 911 Order required each interconnected VoIP
provider to file with the Commission a Compliance Letter by November
28, 2005 detailing its compliance with the FCC 9-1-1 requirements or
face suspension of service.  The FCC also acknowledged the work being
done by NENA in the provision of guidelines to assist companies in
complying with the FCC orders.
1.5 Comparison to the Canadian situation
There are two major differences to the Canadian situation to that
present in the United States (US): first is the regulatory
environment; and second is the degree of deployment of Wireless Phase
II.
The Commission in Telecom Decision 2005-28, Regulatory framework for
voice communication services using Internet Protocol,  provided
specification on what constituted a VoIP service, VoIP service
categories, the appropriate legislative framework, and application of
the regulatory framework for local competition.  The Commission dealt
with the emergency service obligations for local VoIP service
providers in Decision 2005-21 dealing with: the provision of E9-1-1 to
fixed/native callers; the provision of basic 9-1-1 to all other
callers on an interim basis; customer notification; status quo funding
of the provincial 9-1-1 networks; and directing the production by CISC
of the 6- and 12-month Reports.
Contrary to the US situation where FCC05-116 ordered the immediate
implementation by  VoIP providers of the user information (ALI), use
the routing (ANI or p-ANI) requirements and to provide a method for
customers to update their registered location, the Canadian situation
is to provide basic 9-1-1 on an interim basis where and when E9-1-1
cannot be provided.  The US is essentially in the pre-i2 phase defined
above with vendors working to develop and market i2  capable system
components.  As the US market represents a significantly larger market
for vendors of emergency services systems it behoves Canadian VoIP
9-1-1 industry participants to use the guidelines of NENA to the
greatest degree possible as vendors will first produce systems for US
deployment of i2 before addressing any specific Canadian market
requirements.  It should be noted that the guideline for NG9-1-1 has
not been published by NENA although work is progressing with vendors
developing NG9-1-1 compliant system designs as part of the NENA Future
Path Program.
The second difference between the Canadian and US situation is the
greater breadth of deployment of Wireless Phase II in the US.  In
Canada, Wireless Phase I, which allows call takers to receive the
caller's wireless phone number for callback, is deployed in all
provinces except Saskatchewan, and, while a Wireless Phase II pilot is
being conducted by Bell Canada, no Wireless Phase II systems are in
production.  In the US, Wireless Phase II, which allows call takers to
receive both the caller's wireless phone number and their location
information, nearly 80 percent of public safety answering points
(PSAPs) are capable of receiving Phase I location information and 57
percent have implemented Wireless Phase II for at least one wireless
carrier .  As NENA i2 is essentially an expansion of the capabilities
and concepts of Wireless Phase II, the adoption of i2 is inextricably
linked to the deployment of Wireless Phase II.  This linkage between
i2 and Wireless Phase II is beneficial as vendors that have developed
Wireless Phase II systems are more readily able to develop and market
i2 systems.
1.6 NTWG Review of IP-to-IP Tandem Enablement Proposals
On 19 July 2005 ESWG received from the Network Working Group (NTWG)
the evaluation of IP-to-IP Tandem Enablement proposals submitted for
review.  The NTWG review did not rank one proposal over the other. 
The NTWG review concluded that it was premature to evaluate connection
of the local VoIP Service Providers to the existing 9-1-1 Tandem
Service Providers' equipment without resolving what information would
be passed, the specific protocol, and routing of information once
received.
1.7 Description of Major Issues
PSAP Funding (TIF 42)
PSAP funding emerged as a major issue as it brought into focus the
variation in funding that PSAPs receive and the limitations of that
funding to address new system and process requirements.
VoIP Caller Location Identification (TIF 45)
Identification of the location of a VoIP 9-1-1 caller is crucial to
determining first which PSAP is appropriate for them to be routed to
and second in determining where to dispatch the emergency resources
required.
VoIP Caller Routing to PSAP (TIF 46)
The technical routing of the VoIP 9-1-1 call to the PSAP introduces
new terminal devices, network elements, and technologies to the
delivery of a call to the appropriate PSAP.
VoIP Caller Information to PSAP (TIF 47)
VoIP 9-1-1 calling has the ability to broaden the amount and type of
caller information to the PSAP.  This TIF deals with what information
is currently received that would be absent and attempts to identify if
a lowest common information set recognizing the regional differences
in PSAP equipment exists.
1.8 Methodology
Issues Matrix
An issues matrix was used as a working document to initiate, organize,
and capture discussion within ESWG regarding the 12-month Report.  
Issues were suggested during the early plenary sessions of ESWG
regarding the 12-month Report and were amended and appended
subsequently as needed.  The matrix discussion was used to clarify the
issues, develop alternatives for addressing the issues, and then
evaluate these alternatives with regard to effectiveness and
feasibility.  The matrix issues were primarily technical in nature and
included alternatives that were beyond i2 and NG 9-1-1 capturing the
challenges of Canadian implementation of E9-1-1 for VoIP.
The process of ranking alternatives regarding effectiveness and
feasibility provided the basis of whether consensus developed around a
particular alternative.  In addition, the matrix consensus items were
identified as progress within the separate major issue TIFs.
The major conclusion of the matrix discussion was that NG 9-1-1 was
not yet sufficiently defined to allow implementation of systems in the
near term when compared to i2.
1.9 Progress on Major Issues
PSAP Funding (TIF 42)
Unlike wireline or wireless callers, VoIP caller locations are not
directly associated with the PSAP in which they reside or require
service in due to the nature of IP networking.  The migration of a
caller from wireline or wireless service can potentially result in a
loss of the associated call answer levy or municipal tax based funding
to the PSAP.  NENA i2 implementation would allow enumeration of the
VoIP subscribers through their location as captured in the ALI
database serving the PSAP continuing funding to the correct PSAP.  It
is also noted that funding can differ within a PSAP serving multiple
municipalities and that PSAP funding varies in form across Canada.
VoIP 9-1-1 Caller Location Identification (TIF 45)
As VoIP handsets and access devices become location aware the
requirement for the IP network to provide their location is not
diminished but rather serves as corroboration of the location provided
by the device.  NENA i2 provides the building blocks upon which this
corroboration occurs and deploys the base functionality to locate
devices that are not location aware attached to an IP network when a
9-1-1 call is placed.
VoIP 9-1-1 Caller Routing to PSAP (TIF 46)
NENA i2 provides a method of routing VoIP 9-1-1 calls to the
appropriate PSAP using modified or upgraded existing infrastructure
and databases while delivering no less information to the PSAP than
what is currently delivered based on the PSAP capability.
VoIP 9-1-1 Caller Information to PSAP (TIF 47)
NENA i2 has the ability to provide the same caller information via the
same facilities to the existing PSAP terminal equipment.  Specific
PSAP capabilities may operate differently or be unavailable due to the
call being placed using a VoIP device and these limitations are not
specific to any local VoIP service provider but to the nature of IP
networking.
2 Identification and Analysis of All Viable Solutions
2.1 NENA i2
NENA i2 consists of the interaction of following major components and
interactions:
•	Location information servers are operated by broadband Internet
service provider(s) and allow determination of location within their
deployed IP networks.
•	Soft Switches are operated by local VoIP service providers and act
as the switching fabric for IP 9-1-1 calls.  Soft switches interact
with the underlying location information server to locate the origin
of the VoIP 9-1-1 call and the resultant appropriate emergency
services gateway for that location.
•	Call Routers/Proxy Servers route the 9-1-1 call from the soft switch
to the appropriate Emergency services gateway for the appropriate
PSAP.
•	An emergency services gateway converts the IP 9-1-1 call into a
traditional SS7 call and forwards the 9-1-1 call to the selective
routers.
•	Selective routers dip into purpose built and maintained or
substantially upgraded databases to determine the appropriate PSAP,
and to retrieve ALI and street address information before delivering
the 9-1-1 voice call with associated information to the PSAP via
existing trunking.
•	The ALI databases and street address databases interact with new
voice positioning databases and the location information servers in
real time to refresh the caller location information during and after
the 9-1-1 call.
NENA i2 essentially supercharges the existing wireline E9-1-1 network
to be capable of handling VoIP 9-1-1 calls in an enhanced manner. 
NENA i2 provides no advancement of capabilities for the PSAPs but
focuses on integrating the new VoIP call type into the existing
infrastructure by holding the interface to the PSAP constant.  No i2
components are currently deployed in a production environment in
Canada.  Some carriers have latent i2 capabilities to varying degrees
in deployed emergency services system components but these have not
been integrated into workable systems.  Vendors are currently
marketing i2 components and systems in North America and providing
upgrades to existing installed emergency system components to make
them i2 ready.  ESWG considers i2 to be the near term viable solution
for Canada's 9-1-1 requirements.

2.2 Next Generation 9-1-1 (NG 9-1-1)
NG 9-1-1 shares the same initial components as i2: location
information servers, soft switches, call servers/proxy servers but
changes the function of the emergency services gateway from protocol
conversion into network security.  All other interaction within a
NG9-1-1 system, including delivery of the 9-1-1 call to the PSAP is
done using IP.  The benefits of using IP include the advancement of
capabilities within the PSAP and the integration of other emergency
service organizations to allow coordinated response to natural
disasters and terrorism.
If i2 can be characterised as a supercharging of the existing E9-1-1
wireline network, NG9-1-1 is full scale replacement of the engine of
an E9-1-1 network moving wireline, wireless and VoIP E9-1-1 calling
from legacy analogue (SS7) signalling to digital (IP) signalling. 
This ability to handle IP-based 9-1-1 calls without conversion
combined with the expansion of capabilities offered by NG 9-1-1
defines it as the logical successor to legacy 9-1-1 emergency service
networks limited by analogue components, including i2 networks.
The specification of components that make up a NG 9-1-1 emergency
systems is not complete therefore no vendors are providing NG 9-1-1
components or systems at the current time.  Some vendors are currently
installing pilot systems in accordance with the NENA Future Path Plan
to ensure that their development and resultant products meet the NG
9-1-1 guidelines when available.  These pilot systems are also being
evaluated by the emergency service providers to gain knowledge as to
the risks, limitations, and costs of transitioning from legacy 9-1-1
infrastructure to next generation 9-1-1 infrastructure and how best to
accomplish the transition.  ESWG considers NG 9-1-1 the viable long
term solution to Canada's 9-1-1 requirements.
3 Recommendation: A Canadian Implementation of NENA i2
3.1 Major Points
As a consequence of the availability of i2 components currently it is
the recommendation of ESWG to proceed with the deployment and
operation of an i2 emergency services network in Canada within 18
months of a decision to do so being ordered by the Commission.  The
ESWG recognizes that NG 9-1-1 is the successor to i2 therefore the
Canadian implementation of i2 shall be consistent with the eventual
transition to NG 9-1-1.  A milestone for planning proposes of the i2
to NG 9-1-1 transition is recommended by ESWG to be at least 36 months
after the implementation of i2 to allow for the recovery of the costs
of i2 components and upgrades.   All carriers, local VoIP service
providers, and broadband Internet service providers shall be
responsible for their own costs of deploying i2 components, systems,
and upgrades.
As the ability of PSAPs to deal with i2, and eventual NG 9-1-1, VoIP
call information varies, and in some cases is completely lacking, ESWG
recommends that the funding of PSAPs be evaluated on a national basis
to ensure that capital and operating budget constraints do not
interfere with the i2 implementation and that  PSAPs are preparing for
NG 9-1-1.
ESWG recommends that the components of an i2 system are implemented in
a coordinated sequence to ensure the testing of operation and security
of the resultant production environment while providing no competitive
advantage to any industry participant.
3.2 Pilot Program / Test Region
Given the NENA Future Path Plan towards Next Generation E9-1-1 it
would be prudent to formally recognize and support the implementation
of a hybrid NENA i2 and NG 9-1-1 solution or a pure NG 9-1-1 solution
as a pilot program within a specified region of Canada.  ESWG
recommends that at least one such pilot program be supported provided
that cooperation is received from the PSAP(s) within the pilot region.
 It is noted by ESWG that even if such a pilot program is converted
into a production environment within the pilot region doing so does
not inhibit or interfere with the deployment of i2 in all other
regions of Canada as NG9-1-1 is backward compatible to i2 by design.
3.3 Implications of Recommendation on Interim Solutions
No specific implications were determined resulting from the
recommendation of an i2 implementation upon the interim solutions
regarding VoIP 9-1-1 call handling currently in effect in Canada.
4 Proposed Timeline for Implementation
4.1 Major Milestones and Immediate Orders Requested
1.	CISC should be ordered to deliver within 6 months a preferred PSAP
funding model for VoIP E9-1-1 addressing regional/provincial variances
and practices to produce a common national standard.
2.	CISC should be ordered to deliver a comprehensive architecture for
the implementation of VoIP E9-1-1 to deliver within 9 months
specifying roles and responsibilities of all emergency services
industry participants.
3.	All 9-1-1 Service Providers ordered to provide MSAG for the
purposes of LIS validity checking within 12 month, subject to amended
agreements.
4.	All Broadband Internet Service Providers be ordered to provide LIS
capability within 12 months at their own expense.
5.	All 9-1-1 Service Providers be ordered to provide ALI/ANI
capability consistent with NENA i2 implementation within 15 months at
their own expense.
6.	All local VoIP service providers be ordered to provide Call Servers
and/or Proxy Gateway capability within 15 months at their own expense.
7.	All 9-1-1 Service Providers be ordered to provide ESGW capability
within 15 months at their own expense.
8.	All VoIP 9-1-1 calls to be E9-1-1 delivered to the correct PSAP
within 18 months (Full Production).
4.2 Request for Commission Decision prior to proceeding
As successful implementation of an i2 emergency services network in
Canada involves the participation and coordination of companies and
organizations not currently involved with the delivery of E9-1-1 calls
currently (i.e., Broadband Internet service providers providing
location information or services on their access or underlying IP
networks) ESWG requests that the Commission make the complete set of
orders above before requiring the industry participants to proceed. 
The 18 month implementation recommendation by ESWG is the minimum
period required to allow participants to plan, budget, acquire and
implement the various i2 components, systems and upgrades required.
5 Conclusion
With the number of VoIP subscribers estimated to be over 1 million by
the end of 2006 there is a pressing and urgent need to provide these
subscribers with efficient and effective enhanced 9-1-1 service. 
Additionally, the inherent nature of VoIP, with easy nomadic
capability and ease of becoming a fixed non-native caller in any
region of Canada regardless of how remote, presents daily challenges
to the dedicated members of the PSAPs and emergency response agencies
to act expeditiously to save lives of VoIP 9-1-1 callers.  ESWG
concludes that it is crucial to act quickly to determine a course to
deliver a practical and sustainable solution to VoIP 9-1-1 calls and
to provide a path to the next generation of 9-1-1 emergency services
for all Canadians.
ESWG recommends the deployment of NENA's i2 compliant system in Canada
on an 18-month timeline.  ESWG also requests that the Commission
continue their practise of fostering advancement in emergency services
by providing deadlines for the accomplishment of specific tasks
through decisions and order the commencement of this deployment as
quickly as is prudent.
In order to provide the next generation of 9-1-1 services in Canada
that are being made possible by the wide adoption of IP the ESWG also
recommends that the Commission establish a milestone for the
transition to NG9-1-1 services no less than 36 months after the
deployment of i2 emergency systems.