FCC Tackles Indoor Wireless 911 Accuracy

on February 20, 2014

Ironically, the Federal Communications Commission (FCC)—chaired by a former wireless industry group executive—has proposed rules to improve indoor 911 call accuracy that may be more challenging for cellular companies than the original Phase II rules devised in 1996. The proposals issued Thursday would require wireless carriers to provide improved indoor location accuracy, and add vertical (Z-axis) location data with three-meter accuracy to the ANI/ALI data transmitted to public safety answering points (PSAP). The FCC also urged public safety answering points (PSAP) to improve their technology to handle more accurate locations, and pushed companies for improved technology in the future to locate 911 callers. The commissioners were not unanimous in their approval of the new rules, saying that neither the technology nor the FCC’s timetable for improved accuracy has been fully thought out. But they all acknowledged the trend—up to 80% of 911 callers now use a cellular phone to report emergencies, more homeowners have wireless-only telephone service, and more 911 callers are calling from inside structures that could be 50 stories tall. As for the irony, from 1992 to 2004 FCC chair Tom Wheeler headed the Cellular Telecommunications & Internet Association (CTIA), the group that wrestled to implement the original wireless location rules. At the time, the FCC’s rules were an enormous burden for the cellular industry, which was attempting to expand their networks and add subscribers, rather than tackling the difficult issue of pinpointing 911 callers. Download (pdf) the full Notice here.

Currently, the FCC requires that a certain percentage of wireless calls be located to within a certain distance, depending upon the location technology used: Handsets using the global positioning system (GPS) must locate 67% of calls to within 50 meters, and 90% within 150 meters. Carriers using network-based location technology have a slightly less rigorous standard—67% of calls within 150 meters and 90% of calls with 300 meters, both in 85% of the counties that the carriers covers.

Under the proposed rules, wireless carriers would have to begin providing horizontal location information (x and y axis coordinates) within 50 meters for 67% of 911 calls made from indoor locations within two years of the effective date of the rule. Within five years, the accuracy requirement would increase to 80% of all calls.

More importantly, carriers would have to begin providing vertical location information (z axis) within three meters for 67% of 911 calls, and within three years of an FCC vote. Within five years the accuracy requirement would increase to 80% of 911 calls, a goal that would be built on substantial improvements in current location technology.

Carriers would be able to meet the rules either at the PSAP or county level, and would demonstrate compliance through independent testing. PSAPs could seek enforcement of the rules, but only if they’ve already implemented technology to accept the improved location data.

Lastly, the FCC asked for input on how it should pursue improved location technology, if it should revise the accuracy testing procedures, and if it should consider moving toward A-GPS as the sole method for determining cellular caller locations.

Feedback

In statements issued along with the Notice of Proposed Rulemaking, commissioner Mignon Clyburn noted that “some members of the wireless industry are bristling” over the new rules, claiming they are “a bit aggressive.”

Commissioner Ajit Pai said he supported the new proposals, but added, “I am skeptical that the timeframes proposed in today’s item are realistic. Pai said his staff asked for a formal timeline on reaching the accuracy goals. “But to date, no one has been able to product such a timeline.” He suggested deadlines be set only after new location technology has been certified as meeting accuracy benchmarks. He also said wireless carriers should not be penalized until a certified location technology is available.

Commissioner Michael O’Reilly was also concerned about the deadlines that were proposed, pointing to the experience of the original 911 accuracy requirements. Download (pdf) the commissioners’ statements here.

Commission chair Wheeler admitted the accuracy improvement timeline was aggressive, but called it “reachable.” He added that, “It takes two to tango,” and called upon state and local government to, “step up to ensure that PSAPs have sufficient funding to deploy the necessary technologies and, ultimately, make the migration to NG911.”

In response to the FCC’s action, the National Emergency Number Association (NENA) issued a statement:

Today’s action by the FCC is a major step toward ensuring that everyone who dials 9-1-1 can be located quickly and accurately, according to NENA-The 9-1-1 Association.Nearly 40% of U.S. households use wireless phones only, and millions of Americans live and work in large buildings and complexes, factors that may make it difficult to pinpoint locations automatically.”By proposing rules to improve automatic location of those dialing 9-1-1 from indoors locations and multi-level buildings, the FCC is taking a big step in helping the public,” said Bernard “Buster” Brown, President of NENA-The 9-1-1 Association, and an active 9-1-1 professional from Danville, Virginia.”NENA recognizes that this important and potentially life-saving effort will require significant efforts by wireless telecommunication providers, location technology providers, and 9-1-1 professionals,” Brown said.”With more than 70% of 240 million annual calls to 9-1-1 coming from wireless devices, it is imperative that we work cooperatively to provide the most effective location capabilities to find people quickly in their moment of need.”

The Association of Public Safety Communications Officials (APCO) issued the following statement:

Today, the Federal Communications Commission (FCC) proposed rules and launched a further inquiry to ensure that accurate caller location information is automatically provided to public safety officials for all wireless calls to 9-1-1, including indoor calls, to meet consumer and public safety needs and expectations, and to take advantage of new technological developments.APCO President Gigi Smith welcomed today’s action and said “we applaud the Commission’s proactive and forward-thinking proposal to address the need to improve wireless 9-1-1 location accuracy, especially for calls from indoors.”President Smith continued, “as more and more wireless 9-1-1 calls are being made from indoors, it is critical that there be substantial improvement in the accuracy of location information provided with those calls to PSAPs. Without substantial improvements, the public is at risk that first responders will have difficulty finding them during emergencies in houses, apartments, schools, offices, commercial spaces and other indoor locations. APCO looks forward to working with the FCC, wireless carriers, location technology providers, and others to address this critical issue.”

In a prepared statement, Jamie Barnett of the Find Me 911 coalition said:

Today’s unanimous vote to advance a rule on wireless 9-1-1 location accuracy will save lives. Too many wireless 9-1-1 calls lack fast and accurate location information, and emergency personnel often cannot locate those callers in need. Every dropped call or confused, scared, or unconscious caller is another unnecessary tragedy. The rule will help ensure that 9-1-1 works for every caller, indoors and outdoors, and the Find Me 911 coalition – and our 175,000 supporters – offer our gratitude and support to Chairman Wheeler and the other Commissioners for their leadership on this issue of vital public interest.

An AT&T spokesperson issued the following statement:

“AT&T fully supports the FCC’s goal of improving accuracy in locating ‘911’ wireless callers in both outdoor and indoor locations. Unfortunately, the Commission has tentatively proposed unrealistic targets for location accuracy indoors. Indeed, the recent FCC CSRIC Report shows that no vendor currently has proven technology that can meet the proposed standards. We remain committed to working with the Commission and the public safety community to craft a realistic, effective solution that takes the greatest advantage of existing technology to ensure consumers can rely on ‘911’ no matter where they are or what service they use.”

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