This contribution has been prepared to assist the Next Generation Interconnection Interoperability Forum in its discussions and is not a binding agreement on the Office of Emergency Communications, DHS or any other organization. The information presented in this document may be subject to change and is provided “as is” with no warranties of any kind. Office of Emergency Communications reserves the right to change, amend, or withdraw this contribution at any time for any reason.

ATIS-0300109

ATIS Standard on

Next Generation Interconnection Interoperability Forum (NGIIF)

NGN Reference DocumentEmergency Services

Alliance for Telecommunications Industry Solutions

Approved October 11, 2013

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ATIS-0300109

Foreword

The Alliance for Telecommunication Industry Solutions (ATIS) serves the public through improved understanding between carriers, customers, and manufacturers. The Next Generation Interconnection Interoperability Forum (NGIIF) addresses next-generation network interconnection and interoperability issues associated with emerging technologies. Specifically, it develops operational procedures which involve the network aspects of architecture, disaster preparedness, installation, maintenance, management, reliability, routing, security, and testing between network operators. In addition, the NGIIF addresses issues which impact the interconnection of existing and next generation networks and facilitate the transition to emerging technologies.

Suggestions for improvement of this document are welcome. They should be sent to the Alliance for Telecommunications Industry Solutions, Next Generation Interconnection Interoperability Forum (NGIIF), 1200 G Street NW, Suite 500, Washington, DC 20005.

At the time of consensus on this document, Next Generation Interconnection Interoperability Forum (NGIIF), which was responsible for its development, had the following leadership:

Robin Meier, NGIIF Co-Chair, AT&T

Amy Hindman, NGIIF Co-Chair, Verizon

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ATIS-0300109

Table of Contents

1 SCOPE, PURPOSE, & APPLICATION.............................................................................................................11.1 SCOPE......................................................................................................................................................... 11.2 PURPOSE..................................................................................................................................................... 11.3 APPLICATION................................................................................................................................................ 1

2 NORMATIVE REFERENCES........................................................................................................................... 13 DEFINITIONS, ACRONYMS, & ABBREVIATIONS..........................................................................................1

3.1 DEFINITIONS................................................................................................................................................ 13.2 ACRONYMS & ABBREVIATIONS...................................................................................................................... 2

4 NGN GETS........................................................................................................................................................ 24.1 GETS......................................................................................................................................................... 24.2 WPS........................................................................................................................................................... 2

4.2.1 Precedence......................................................................................................................................... 34.2.2 UMTS Redirection to GSM (also known as Directed Retry Handover)...............................................34.2.3 Enhanced Overload Performance.......................................................................................................3

4.3 NGN PRIORITY SERVICES............................................................................................................................ 4

5 9-1-1.................................................................................................................................................................. 55.1 LEGACY 9-1-1 SERVICE................................................................................................................................ 55.2 NEXT GENERATION 9-1-1 SERVICE...............................................................................................................6

5.2.1 Operations Issues............................................................................................................................... 65.2.2 Service Access.................................................................................................................................... 75.2.3 FCC Recommendations...................................................................................................................... 75.2.4 ATIS/NGIIF Recommendations...........................................................................................................7

6 TSP................................................................................................................................................................... 86.1 DOMESTIC NS/EP SERVICES........................................................................................................................ 86.2 CONTROL SERVICES AND ORDERWIRES........................................................................................................86.3 OTHER SERVICES......................................................................................................................................... 86.4 TSP CODE IDENTIFICATION.......................................................................................................................... 86.5 TSP INSTALLATION....................................................................................................................................... 96.6 TSP MAINTENANCE...................................................................................................................................... 96.7 COMPETITION FOR RESOURCES BETWEEN PROVISIONING AND RESTORATION PRIORITIES..............................106.8 TSP INSTALLATION PREEMPTION................................................................................................................106.9 TSP MAINTENANCE PREEMPTION...............................................................................................................10

Table of Figures

FIGURE 1 -9-1-1 CALL FLOW 1................................................................................................................................... 5

Table of Tables

TABLE 1 - TSP CODES REFERENCE TABLE.................................................................................................................. 9

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ATIS STANDARD ATIS-0300109

ATIS Standard on –

Next Generation Interconnection Interoperability Forum (NGIIF) NGN Reference Document Emergency Services

1 Scope, Purpose, & Application1.1 ScopeThis document identifies items that will potentially impact government-managed emergency services, such as Government Emergency Telecommunications Service (GETS), Wireless Priority Service (WPS), and Telecommunications Service Priority (TSP) when telecommunications facilities in the Next Generation Network (NGN) are consolidated and newer technologies (e.g., IP, fiber, Ethernet) are implemented.

This document describes the effects of adoption of NGN National Security and Emergency Preparedness (NS/EP) priority services. Included in the document are descriptions regarding GETS, enhanced overload performance in Code Division Multiple Access (CDMA) networks, Universal Mobile Telecommunications System (UMTS) handover to Global System for Mobile Communications (GSM), TSP, and the transition to Next Generation 9-1-1 emergency services.

1.2 PurposeThe purpose of this document is to communicate to the industry the effects of transitioning emergency services from circuit switched to NGN.

1.3 ApplicationThis guideline should be used by emergency service providers and vendors to understand the effects of transitioning emergency services from circuit switched to NGN.

2 Normative ReferencesThe following standards contain provisions which, through reference in this text, constitute provisions of this American National Standard. At the time of publication, the editions indicated were valid. All standards are subject to revision, and parties to agreements based on this American National Standard are encouraged to investigate the possibility of applying the most recent editions of the standards indicated below.

T1.xxx-YYYY, Title.1

3 Acronyms, & Abbreviations3.1 Acronyms & Abbreviations

3GPP Third Generation Partnership ProjectAOC Access Overload ClassASAP As Soon As PossibleASC Access Service Customer

1 This document is available from the Alliance for Telecommunications Industry Solutions, 1200 G Street N.W., Suite 500, Washington, DC 20005. <http://www.atis.org>

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ATIS-0300109

ASP Access Service ProviderATIS Alliance for Telecommunications Industry SolutionsBSC/BTS Base Station Controller / Base Transceiver StationCDMA Code Division Multiple AccessCOS Class of ServiceCPC Calling Party CategoryDiffServ Differentiated ServicesDRH Directed Retry HandoverDSCP Differentiated Services (DiffServ) Code PointEOP Enhanced Overload PerformanceETS Emergency Telecommunications ServiceEV-DO Evolution Data OptimizedGETS Government Emergency Telecommunications ServiceGSM Global System for Mobile CommunicationsHLR Home Location RegisterHSPA High-Speed Packet AccessIAM Initial Address MessageIMS IP Multimedia SubsystemIP Internet ProtocolIS-41 Interim Standard 41ISDN Integrated Services Digital NetworkISUP Initial SetupFCC Federal Communications CommissionLTE Long Term Evolution

MIMO Multi-Input Multi-OutputMPLS Multiprotocol Label SwitchingMSC Mobile Switching CenterMTP Message Transfer PartNARUC National Association of Regulatory Utility CommissionersNCS National Communications SystemNCSL National Conference on State LegislaturesNENA National Emergency Number AssociationNS/EP National Security and Emergency PreparednessOEC Office of Emergency CommunicationsOFDM Orthogonal Frequency Division MultiplexingPIN Personal Identification NumberPSAP Public-Safety Answering PointPSIST PersistencePSTN Public Switched Telephone NetworkQoS Quality of ServiceRACH Reverse Access ChannelRPH Resource Priority HeaderSIP Session Initiation ProtocolSR Selective RouterSS7 Signaling System 7

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STP Signaling Transfer PointTIA Telecommunications Industry AssociationTSP Telecommunications Service PriorityQoS Quality of ServiceUMTS Universal Mobile Telecommunications SystemUTRAN Universal Terrestrial Radio Access NetworkVLR Visitor Location RegisterWATS Wide Area Telecommunication ServiceW-CDMA Wideband CDMAWPS Wireless Priority Service

4 NGN GETS As the telecommunications industry consolidates facilities in its transition from circuit to packet switching technology, the Office of Emergency Communications (OEC)2-managed GETS and its wireless counterpart, WPS, will interoperate with NGN Priority Services.

4.1 GETSGETS was established in the United States in the mid-1990s in accordance with an Executive Order of the President3. The purpose of this wireline service is to provide federal, state, and local officials, as well as other authorized personnel associated with national security and emergency preparedness (NS/EP) responsibilities with the means of obtaining priority in placing telephone calls via the Public Switched Telephone Network (PSTN) during times of emergency or when the telephone network is otherwise congested.

The OEC contracts with commercial wireline and wireless telephony carriers to provide GETS and the WPS—the wireless counterpart to GETS—on their networks. The OEC also authorizes potential GETS and WPS users and issues each GETS user a unique personal identification number (PIN), which can be used to place priority telephone calls in a manner similar to placing a calling-card call.

High probability of call completion of NS/EP calls in a damaged or congested telephone network is achieved through a set of specialized treatments including routing calls to certain GETS-enabled public carriers, queuing calls to overcome temporary blocking situations, additional re-routing attempts to overcome link damage or route congestion, and exemption from restrictive network controls. In addition, Signaling System 7 (SS7) signaling message priority is associated with GETS calls. GETS call messages are routed with higher priority than are signaling messages associated with non-priority calls.

The number of authorized GETS users has been growing steadily. At present, there are more than 300,000 OEC-authorized GETS users. GETS and WPS users include officials of the federal, state and local governments, first responders such as fire fighters, medical personnel, law enforcement organizations, and other authorized users.

4.2 WPSWPS is implemented in accordance with the rules in the Federal Communications Commission (FCC) Second Report and Order 00-242, 13 July 2000. WPS enables an authorized and provisioned NS/EP user to invoke WPS on a per-call basis by dialing Feature Code *272, followed by the destination number. If all radio channels in the user’s cell [sector] are busy, the user’s call will be queued for access to the next available radio channel in accordance with the user’s assigned priority and the order in which the call was received. Furthermore, WPS provides queuing to congested PSTN interfaces for calls originated at a Mobile Switching Center (MSC) and traversing another carrier’s network. Regardless of whether a WPS call traverses the PSTN or simply connects

2 Formerly the National Communications System (NCS)3 Executive Order No. 12472, “Assignment of National Security and Emergency Preparedness Telecommunications Functions,” April 3, 1984, Vol. 49, No. 67, Federal Register 13471 (1984), (amended by Executive Order 13286 of 28 February 2003). E.O. 12472 was revoked and replaced by E.O. 13618 dated 6 July 2012.

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ATIS-0300109within the same MSC, queuing is also applied when terminating a WPS call into a cell where all radio channels are busy. WPS and GETS integration provides end-to-end priority treatment for NS/EP calls, including calls that originate, transit and/or terminate in wireless and/or landline networks that are equipped with WPS or GETS features.

WPS makes use of several congestion control mechanisms to optimize the probability of call completion during congestion. These include the Precedence Parameter, UMTS Redirection to GSM, also known as Directed Retry Handover (DRH), and Enhanced Overload Performance signaling priority and other features.

4.2.1 PrecedenceTo provide priority treatment for WPS calls, the SS7 Initial Setup (ISUP) Precedence Parameter will be sent from the originating MSC across the PSTN to a terminating MSC. The Precedence Parameter is defined as an optional parameter within the SS7 ISUP Initial Address Message (IAM) and is specified in Technical Report 3GPP TR 22.952 V6.3.0 (2005-09), Table A.2. This parameter ensures that a priority call originated at an MSC will receive the same priority-level treatment at a terminating MSC (i.e., queuing and servicing before lower priority calls). Without transmission of the Precedence Parameter, all terminating WPS calls would have the same default priority and treatment at the terminating MSC. The Precedence Parameter is passed along across any intervening networks between the originating and terminating MSCs according to ANSI T1.113-1995, “American National Standard for Telecommunication Signaling System No. 7 (SS7) – Integrated Service Digital Network (ISDN) User Part.” All en-route switches are required to pass optional parameters and values that they do not understand, such as the Precedence Parameter with WPS values.

4.2.2 UMTS Redirection to GSM (also known as Directed Retry Handover)To support users as they upgrade their mobile equipment to 3 rd generation (3G), commercial GSM-based carriers have been deploying UMTS, also known as Wideband CDMA (W-CDMA), as an overlay to their GSM networks. Because UMTS is an overlay, commercial users will continue to receive their wireless service in all markets, whether GSM alone, GSM and UMTS together, or UMTS alone (when available), via the use of dual-mode handsets. However, for WPS calls to or from users with dual-mode handsets in a market with both GSM and UMTS technologies or with UMTS alone, it was necessary to require that WPS calls that originate from a UMTS subscriber or NS/EP calls that terminate to a UMTS subscriber should be redirected to a GSM system if radio resource congestion occurs on the Universal Terrestrial Radio Access Network (UTRAN), the air interface part of UMTS. This approach is called DRH and is a bridging strategy for an immediate UMTS solution.

4.2.3 Enhanced Overload PerformanceDuring the first minutes after rare and highly unusual “mass calling events” (triggered by unexpected disasters such as severe earthquakes), the public wireline and wireless networks become extremely congested in and near the affected areas. Various analyses conclude that, in the wireless networks, the problem is primarily caused by call attempt overload on the signaling channel (called reverse access channel, or RACH) needed for a user’s mobile handset to signal to the network a request for a call.

To address this issue, beginning with the CDMA air interface technology, the OEC began the process to enhance WPS to protect NS/EP performance during periods when surges in signaling risks congestion of signaling resources. The OEC contracted with network vendors to design and develop a solution—known as WPS Enhanced Overload Performance (EOP)—that would not only overcome congestion on the RACH that could impact WPS calls, but also to provide a high assurance that, once getting past the RACH, WPS calls would also receive priority treatment through the base station controller / base transceiver station (BSC / BTS) and mobile switching center (MSC) processors involved in call setup that could also become overloaded. The OEC also required that each vendor’s CDMA WPS Overload solution address potential congestion on the RACH that can occur in response to terminating public and NS/EP calls that use the paging channel (PCH) as well as the RACH for portions of call termination signaling.

The enhancements require WPS mobiles be provisioned with a distinct Access Overload Class (AOC) as permitted in the standards. AOCs are defined in TIA/EIA TSB16-B and apply for all TIA TR-45 air interfaces—not just CDMA. The user device is provisioned by the wireless carrier with a 4-bit number known as the AOC. There

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ATIS-0300109are sixteen (16) possible AOCs; public user devices are assigned randomly AOCs in the range of 0-9. AOC 10 is defined for system test purposes and is typically used by network technicians. AOC 11 is defined for authorized emergency use for law enforcement, fire, medical, and rescue services; and AOCs 12-15 were reserved for future use. In order to avoid conflict with other federal, state, and local law enforcement, fire, and/or emergency uses for AOC 11, the OEC has proposed use of AOC 12 for NS/EP communications. Both the 3GPP2 (the standardization group for CDMA 2000), and the TIA TR 45.5 subcommittee have accepted the use of AOC 12 by the NS/EP community for voice, video, data, and multimedia.

WPS EOP utilizes the CDMA broadcast Persistence (PSIST) Parameter to control signaling load as provided in the standard. The standard permits assigning separate PSIST Parameter values, individually or collectively, for public AOCs 0-9 and for AOCs 10-15. The WPS EOP exercises the PSIST capability to control public load via AOC 0-9 while enabling WPS AOC 12 to retain a high likelihood of successful signaling. This WPS EOP use of load control also improves the number and percentage of public signaling successes.

The OEC has instructed the CDMA service providers that AOC 12 should only be provisioned on WPS user devices, as authorized by the Executive Office of the President. In addition, all CDMA service providers should ensure that properly provisioned user devices with AOC 12 function as appropriate, and that any existing overload controls do not impact AOC 12.

4.2.4 MTP=2 in IS-41 Messages4.2.4.1 IntroductionPriority services are deployed and maintained in nationwide and regional common carriers’ networks to ensure that calls by national security and emergency preparedness (NS/EP) personnel have a high likelihood of success. The Wireless Priority Service (WPS) improves call completion capabilities on wireless public telephone networks. WPS calls receive priority over public calls, thereby greatly increasing the probability of call completion. WPS is available in Global System for Mobile Communications (GSM) and in Code Division Multiple Access (CDMA) networks.

Following a recent software deployment of WPS in a Mobile Switching Center (MSC), unusually high peg counts were noted for operational measurements associated with Interim Standard 41 (IS-41)4 messages with a Message Transfer Part (MTP) priority of 2. It was then discovered that these IS-41 messages were associated with public (i.e., non-NS/EP) calls.

Standards document Telecommunications Industry Association (TIA)-917, Wireless Priority Service Enhancements for CDMA Systems, specifies that IS-41 messages for public calls should have an MTP priority of 0 or 1, depending on the message, and that NS/EP calls should be assigned a higher MTP priority (MTP=2) than normal public traffic. With public IS-41 messages set to an MTP priority of 2 along with NS/EP messages, completion of NS/EP calls could be impaired in a congested Signaling System No. 7 (SS7) environment.

4.2.4.2 Technical Description: IS-41 SignalingIS-41 messages are used for each one-time registration of a mobile station (i.e., a wireless handset), as the mobile station is turned on, or when it moves between its home carrier’s area and other (visiting/roaming) carriers’ areas. The IS-41 protocol is not used for call set-up messaging. The IS-41 protocol is used to transmit SS7’s Mobile Application Part (MAP) registration messages within a carrier’s network, between each Mobile Switching Center (MSC) and the MSC’s Home Location Register (HLR) or Visitor’s Location Register (VLR). The IS-41 protocol is also used to transmit messages between carriers’ networks, i.e., between roaming carriers’ VLRs and the handset’s home carrier’s HLR. The general domain of IS-41 signaling is depicted in Figure 1:

4 Telecommunications Industry Association Interim Standard 41 (IS-41, also known as ANSI-41) is an Inter Cellular Network Communication Protocol that was developed to support interoperability between differing networks for mobile telephony. The protocol provides functionalities like call delivery to and from the mobile network, intersystem handover and roaming, short message delivery and validation and authentication through an inter-system messaging protocol. Specifically, IS-41 functions provide operations and procedures to: Detect the presence of a mobile subscriber in a visited system, authenticate a subscriber for service, allow access to subscribed services while roaming outside the original service area, and provide continuity of in-progress calls through the handover process between systems.

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ATIS-0300109Figure 1: The Roaming / Registration Scenario5

As indicated in Figure 1, a wireless subscriber’s service parameters are stored in the subscriber’s home network’s HLR. When the handset roams to a different network, the visited network’s VLR queries the subscriber’s HLR via signaling transfer points (STPs) to obtain the subscriber’s parameters and privileges. If the visited network’s VLR cannot query the subscriber’s HLR, a registration in the visited network cannot be established and roaming is not possible.

4.2.4.3 Scope of Problem

Assigning a higher priority (i.e., MTP=2) to NS/EP-related IS-41 messages enhances the probability that a WPS-provisioned handset will be able to register with the mobile network. This is especially crucial in cases where a mass event, emergency, or a natural disaster cause a temporary network outage: when the network is restored, all handsets in the area will saturate the network with registration requests, and the higher priority afforded WPS handset messaging will provide a higher likelihood of registration success. At other times, a newly-arrived traveling WPS handset (such as a First Responder’s) may need to register with a local network in an NS/EP event area experiencing network congestion. Again, the higher priority afforded WPS handset messaging will provide a higher likelihood of registration success.

Assigning MTP=2 to non-NS/EP-related messages dilutes the value of priority for NS/EP-related messages. Under these conditions, many IS-41 messages (and not only those related to NS/EP communications) will be transmitted with the higher priority.

Being assigned a higher MTP priority than the general population is important for NS/EP users making a WPS call from a visited network even within the same WPS provider’s service area. IS-41 MAP messaging is used to route, page, and terminate voice calls (even within the same WPS provider), via a Temporary Local Directory Number (TLDN), from a home MSC to a visited MSC. Consequently, without a higher priority (i.e., MTP=2), WPS calls may not be able to terminate to NS/EP users who regularly operate in areas not covered by their home MSC. This issue becomes even more severe for NS/EP users traveling between different service providers (and multiple HLRs and VLRs) and traversing multiple transit networks (originating Local Exchange Carrier (LEC), Inter-eXchange Carrier (IXC), terminating LEC, etc.).

While WPS employs several techniques to gain higher likelihood of completion (e.g., setting the Calling Party’s Category (CPC)=NS/EP and the precedence parameter/WPS priority level in the Integrated Services Digital Network – User Part (ISUP) Initial Address Message (IAM)), these will become less effective if the

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HLR = Home Location Register STP = Signaling Transfer Point

MSC = Mobile Switching Center VLR = Visitor Location Register

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VLR2

MSC2

STP4

VLR1

MSC1

STP1 STP2 STP3

HLR

Roaming Carrier1

Home Carrier Roaming Carrier2

ATIS-0300109visiting/roaming WPS user’s serving MSC and VLR cannot communicate with the subscriber’s home MSC and HLR to validate the subscriber’s WPS privileges. This can happen during NS/EP events due to congestion on the MSC-HLR links. In such a scenario, the handset had registered successfully with the network and is now attempting to initiate a WPS call. The default priority level for outgoing WPS calls that fail positive (i.e., cannot verify the WPS privileges at the HLR or the VLR) will be set, at most, to the lowest priority level of 5. Even this low priority setting will be available only if the WPS provider allows calls to be made when subscription cannot be verified (e.g., the subscriber profile is not available at the MSC and the MSC cannot communicate with the HLR).

4.2.4.4 Next-Generation Network Evolution

The value of ensuring that MTP=2 is used exclusively for NS/EP users is that IS-41 messages for NS/EP calls will receive higher priority over public calls. However, as the circuit-switched public telephone networks are converted into packet-switched Internet Protocol (IP) networks, the WPS service providers will either:

o Continue to use SS7 and IS-41 signaling, o Encapsulate the SS7 priority parameters into Session Initiation Protocol (SIP) for Telephony (SIP-T)

messages, oro Convert the SS7 priority parameters into existing and future IP-based signaling, such as the SIP Resource

Priority Header (RPH).

4.3 The WPS service providers might opt for any of these options, or some combination of options. NGN Priority Services

NGN priority services will include voice, video, and data priority services.

NGN Priority Services are expected to operate under a broad range of circumstances, from widespread damage to the network resulting from natural or man-made disasters up to and including nuclear war. NGN Priority Services should be implemented so they are at least as survivable or endurable as the networks upon which they are implemented.

The telecommunications industry’s transitioning to the packet-switched Internet Protocol (IP) infrastructure of the NGN will enable it to provide high quality multimedia services, including voice, video, and data. Both GSM and some Code Division Multiple Access (CDMA) carriers are deploying a new generation of radio technology with a more efficient air interface to the packet-based switching infrastructure. Long Term Evolution (LTE) is the accepted evolution path for both the Third Generation Partnership Project (3GPP) (GSM, UMTS, HSPA, LTE, LTE Advanced) and 3GPP2 (CDMA2000, EV-DO). Its two defining technologies are orthogonal frequency division multiplexing (OFDM) and Multi-Input Multi-Output (MIMO) antenna arrays. An optimized combination of OFDM and MIMO enables wireless systems to support up to five times more subscribers than today’s networks are capable of supporting (dependent on the bandwidth of deployed spectrum) in addition to a significant increase in data transfer speed. It is expected to be the most widely deployed wireless access technology interfacing with the IP Transport and IMS cores, delivering controlled end-to-end packet transport (via IP) to the application and service layers (IMS). The first domestic commercial trials and deployments of LTE occurred in 2010.

The technologies will impact how NGN Priority Services will need to be implemented. To achieve priority for a connection-oriented service in an IP network, the signaling protocol used for setting up the connection (e.g., SIP) should use its priority parameters (e.g., SIP Resource Priority Header) to assign priority to both signaling and transport packets. That is to say, the signaling protocol should mark the Differentiated Services (DiffServ) Code Point (DSCP) in the IP packet header and/or assign priority-reserved routes in a multiprotocol label-switched (MPLS) implementation. Facilities consolidation activities present the potential of adversely affecting the number of available diverse priority-reserved routes that can be assigned.

In a fiber network, quality of service (QoS) capabilities will likely be used to provide priority to NGN Priority Service connections. In these networks, the policy server will be an “NGN Priority Services-aware” device and it will need to set the appropriate priority flows using existing QoS capabilities. Similarly, to achieve priority within carrier Ethernet technology solutions, the policy server will need to transmit policy to the appropriate Ethernet switches and gateways. These elements will need to be able to identify the NGN Priority Services traffic, assign the appropriate class of service (COS) or DSCP to the traffic, and handle the traffic with priority. Facilities

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ATIS-0300109consolidation activities will need to account for these policy functions and allow for sufficient diversity and robustness of the effected network elements (e.g., the policy servers) to meet the NGN Priority Services’ needs.

Across all technologies, NGN Priority Service connections should be provided exemption from overload controls and given priority queuing for resources. Consolidation notwithstanding, sufficient resources need to be provided to allow for the proper functioning of NGN Priority Services without extensive and extended queuing.

Carrier interconnection/interoperability will need to support NGN Priority Services. For example, carriers will need to establish trust relationships with interconnected peer carriers to ensure NGN Priority Services calls maintain priority across networks. As the barriers to entry decline and the number of interconnected carriers increase, establishing and maintaining trust relationships with an ever-increasing number of peer networks will become a serious challenge. Additionally, NGN Priority Services-compliant carriers will be required to test the interoperability of service features and priority parameters (e.g., SIP Resource Priority Header [RPH]) with peer networks, and to ensure NGN Priority Services connections are exempt from procedures that throttle inter-network messaging (e.g., to control overload).

Current circuit-based priority telecommunications features and services will gradually disappear as industry phases out segments of the networks. NGN Priority Services’ efforts will focus first on migrating GETS and WPS voice telephony features into the new infrastructure. Future efforts, however, will take advantage of the high bandwidths offered by the NGN to define additional priority telecommunications services such as video teleconferencing, and support data services such as Internet access and e-mail. During the transition, a hybrid circuit-switched/packet-switched communications environment will require the interoperation of legacy GETS and WPS with the new NGN Priority Services, permitting NS/EP users to use these services interchangeably and transparently. In the long-term, legacy services may eventually be replaced completely by the new NGN Priority Services capabilities.

5 9-1-15.1 Legacy 9-1-1 ServiceThe Nation’s 9-1-1 system has existed for over 40 years. Emergency 9-1-1 calls placed by the public on the public telephone network enjoy certain special treatments by the network. The figure below presents the general call flows and system elements of the legacy 9-1-1 system.

9-1-1 calls are routed from the local phone service provider’s end office or MSC, or by a third-party emergency call center, to a SR (also known as a “9-1-1 Tandem”) switch which distributes these calls to a local public-safety answering point (PSAP). This routing is typically accomplished over dedicated SS7 trunk groups.

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Figure 2 9-1-1 Call Flow 1The PSAP has access to information about the caller’s location and call-back number. The PSAP also has access to local public safety dispatch, (i.e., calls may be transferred to a dispatch center when that function and organization is different from the PSAP) to dispatch police, fire, medical or other emergency services, or to other PSAPs.

Call routing by the SR of landline-originated 9-1-1 calls is based on local exchange carrier subscriber data, which is also the source of the caller’s location information. The Calling Party Category (CPC) parameter in the SS7 ISUP/IAM message establishing a 9-1-1 call is set to 11100000 (decimal 224), for "emergency service call." It is up to each local exchange carrier to specify the appropriate treatment for calls marked by this CPC; at present, none of the carriers provides any special or priority treatment to 9-1-1 calls. The message transfer priority (MTP) level of 9-1-1 call-associated SS7 messages is set to “1,” providing 9-1-1 call-associated signaling messages with priority in the SS7 network over normal public calls (MTP=0).

Wireless-originated 9-1-1 calls are processed by each mobile carrier regardless of whether the handset is subscribed to the carrier. Apart from this feature, 9-1-1 wireless calls are not currently provided with priority over public calls by mobile carriers. Because of the mobile nature of wireless handsets, 9-1-1 call routing by mobile networks to the appropriate PSAP is based on cellular tower location and/or mobile positioning equipment. The specific processing of mobile 9-1-1 calls depends on the technology employed by each mobile carrier.

5.2 Next Generation 9-1-1 ServiceDramatic improvements and changes in the public’s use of communications technology, the saturation of the cellular phone market, and the adoption of digital, IP-based devices have rendered the analog, circuit-switched system obsolete. There is consensus within the 9-1-1 community on the shortcomings of the current system infrastructure and the need to take advantage of advances in information and communications technologies, to implement the next generation of the 9-1-1 system.

The use of an IP technology base for NG9-1-1 systems allows transformation of the legacy 9-1-1 to a structure of software and database components that equal and exceed current 9-1-1 system capabilities This enables more

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ATIS-0300109complete support for current and future telecommunications services used to access 9-1-1 systems, 9-1-1 PSAPs, and other entities that process emergency calls. The new structure of 9-1-1 systems, both in the call delivery network and within the PSAP, provides flexibility and more direct control of how 9-1-1 calls are processed. Some of the new capabilities include:

Enhanced location acquisition: New techniques for location acquisition enhance the capabilities of 9-1-1. Multimedia messaging: As service providers deploy new media types (e.g., text, video, etc.), they may

provide those services to the users of the NG9-1-1 service as well as to emergency entities, including PSAPs.

5.2.1 Operations IssuesThe transition from legacy to NG9-1-1 is expected to present its own challenges, including the coexistence of legacy 9-1-1 and NG9-1-1. Service providers may have to interconnect to both services simultaneously within their service area, thus facing both technical and operational issues. Operational issues in transitioning to the NG9-1-1 environment are divided into those that are specific to the operations within the PSAP and those involving operation of the 9-1-1 system.

PSAP operational issues include those that affect the day-to-day operations of 9-1-1 systems and/or the PSAP related to the convergence of legacy 9-1-1 and NG9-1-1, and to the answering and processing of 9-1-1 calls and data. (Data may include text messages, images, video, data from other emerging technologies, and data associated with the processing of the call.) The NG9-1-1 environment will create significant changes in PSAP operations related to the variety of new data that must be processed, the basic changes in the 9-1-1 infrastructure, new flexibility and more direct control of how 9-1-1 calls are processed.

System operational issues include issues related to the roles and responsibilities of 9-1-1 Authorities in the operation of the NG9-1-1 system. Implementation of NG9-1-1 will result in increased responsibilities for 9-1-1 Authorities in directly managing the components of the NG9-1-1 system, including issues related to roles and responsibilities, education and training, standards, and contingency planning.

5.2.2 Service AccessSustained mass calling events to 9-1-1 may cause a focused overload of the 9-1-1 system. Additionally, certain 9-1-1 Selective Router (SR) platforms could remove 9-1-1 PSAP trunks from service during periods of heavy emergency call volume. To counter these, special 9-1-1 treatments are employed by the telephone network to enhance the availability and proper operations of the 9-1-1 service.

With the recent dramatic increase in the usage of wireless communications, radio access from mobile handsets to the mobile network’s receivers may be severely curtailed during mass calling events, limiting the availability of 9-1-1 service during such events. As an example, in August 2011 the FCC investigated the failures of cell phone service that occurred after an earthquake, when for as long as an hour after the quake wireless customers were unable to get calls through. The FCC was very concerned with the fact that 9-1-1 calls were also congested, as the Commission is charged with ensuring that people who need emergency help are able to get it.

In the NGN, signaling associated with 9-1-1 calls will be marked with a RPH value of “esinet” to distinguish it from normal signaling (analogous to the CPC value of 224 in the SS7 network); it is still up to each local exchange carrier to specify the appropriate treatment for calls so marked. Additionally, 3GPP has assigned Access Class 10 exclusively to 9-1-1 calls in the NGN6, enabling these calls to be given priority access to the radio channel during congestion (similar to the EOP feature described elsewhere in this Section). The use of this capability by each mobile carrier is optional, however.

5.2.3 FCC RecommendationsIn a 2011 report, the FCC’s Communications Security, Reliability, and Interoperability Council made the following recommendations, among others:

6 3GPP TS 22.011 version 3.8.0, 3rd Generation Partnership Project; Technical Specification Group Services and System Aspects; Service Accessibility (Release 1999) (2002-09)

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ATIS-0300109 In support of NG9-1-1 nationwide call routing and transfer capabilities, a National 9-1-1 Program Office

should be considered. Collaboration by PSAP administrators should be promoted through developing relationships with PSAPs

outside of their normal service jurisdiction, in an effort to improve their ability to handle calls in an overflow, backup, or disaster situation.

Standards should be developed and implemented at the state, regional, and local PSAP levels, on a variety of operational needs, including: virtual PSAPs, multimedia call processing, text messaging to 9-1-1, and nationwide call transfer procedures.

Development of models of consortium arrangements and governance supporting system operations roles and responsibilities, regional and state-level coordination should be identified by National Emergency Number Association (NENA) and the National 9-1-1 Program Office.

Appropriate Federal agencies and non-governmental organizations (e.g., National Association of Regulatory Utility Commissioners [NARUC] and National Conference on State Legislatures [NCSL]) should evaluate regulations, legislation, and tariffs to identify and make recommendations on needed modifications.

Development of public education programs to inform stakeholders about NG9-1-1 is needed. The APCO/NENA NG9-1-1 Education work group should enlist the assistance of the National 9-1-1 Program Office, NENA, and the National Governors’ Association in development and distribution of a nationwide message.

5.2.4 ATIS/NGIIF Recommendations Standards should be developed and implemented at the state, regional, and local levels to guide the

uniform treatment of the NG9-1-1 Access Class to increase the likelihood of radio access during mass calling events.

Standards should be developed and implemented at the state, regional, and local levels to guide the uniform priority treatment of NG9-1-1 calls marked by the “esinet” RPH.

Standards should be developed and implemented at the state, regional, and local levels to ensure that NS/EP calls (ETS, NGN GETS) are treated with higher priority than NG9-1-1 calls.

6 TSPThe TSP system provides for the priority treatment of NS/EP telecommunication services in order to prioritize their installation and maintenance.

This section provides TSP installation and maintenance guidelines for access services and generic administrative procedures and interfaces between Access Service Customer (ASCs) and the Access Service Provider (ASPs).

In order for the TSP system to be effective, it must be incorporated into the day-to-day operating procedures for all ASPs and ASCs. All communications carriers are expected to cooperate in the installation and restoration of services with TSP that involve the facilities of more than one carrier.

6.1 Domestic NS/EP ServicesThe NS/EP TSP system and procedures provide priority treatment to the following domestic telecommunication services (including portions of U.S. international telecommunication services provided by U.S. providers) for which provisioning or restoration priority levels are requested, assigned, and approved:

Commercially provided private services and public switched services:

NOTE: Initially, the NS/EP TSP system’s applicability to public switched services is limited to provisioning of such services (e.g., business, centrex, cellular, foreign exchange, Wide Area Telecommunication Service (WATS) and other services that the selected provider is able to provision) and restoration of services that the selected provider is able to restore.

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ATIS-0300109 Services that are provided by Government and/or non-common carriers and are interconnected to

common carrier services assigned a priority level pursuant to Section 9 of the FCC's TSP system rules.

6.2 Control Services and OrderwiresThe NS/EP TSP system and procedures are not applicable to authorize priority treatment to control services or orderwires owned by a service provider and needed for provisioning, restoration or maintenance of other services owned by that service provider. Such control services and orderwires shall have priority of provisioning and restoration over all other telecommunications servicers (including NS/EP services) and shall be exempt from preemption. However, the NS/EP TSP system and procedures are applicable to control services or orderwires leased by a service provider or user from another service provider.

6.3 Other ServicesThe NS/EP TSP system may apply, at the discretion of and upon special arrangements by the entities involved, to authorized priority treatment to the following telecommunications services:

1) Government or non-common carrier services which are not connected to common carrier-provided services assigned a priority level.

2) Portions of U.S. international services which are provided by foreign correspondents.

6.4 TSP Code IdentificationThe TSP Authorization Code is composed of twelve characters and is divided into two parts. The first nine characters comprise the TSP Control ID, a computer generated number, which is for the government’s tracking purposes. A hyphen is always the tenth character and it separates the TSP Control ID from the TSP Code. The final two characters are the TSP Code. The first character of the TSP Code (the eleventh character of the entire series) indicates the provisioning priority. Acceptable values are: E (Emergency), 1, 2, 3, 4, 5, or 0. A value of "0" indicates no provisioning priority is assigned. The second character of the TSP Code (the twelfth character of the entire series) indicates the restoration priority. Acceptable values: 1, 2, 3, 4, 5, or 0. A value of "0” indicates no restoration priority is assigned.

A TSP Authorization Code is illustrated below:

T S P 1 2 3 4 5 C - 1 2

| |

Control ID Code

Table 1 below depicts the codes (eleventh and twelfth digits) allowable in the TSP system.

Table 1 - TSP Codes Reference Table

TSP Provisioning/Restoration Priority Levels

P-R P-R P-R P-R P-R P-R P-R

E-1 1-1 2-1 3-1 4-1 5-1 0-1

E-2 1-2 2-2 3-2 4-2 5-2 0-2

HIGHER E-3 1-3 2-3 3-3 4-3 5-3 0-3 LOWER

E-4 1-4 2-4 3-4 4-4 5-4 0-4

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ATIS-0300109 E-5 1-5 2-5 3-5 4-5 5-5 0-5

E-0 1-0 2-0 3-0 4-0 5-0 0-0

E = Emergency Priority Level

P = Provisioning Priority Level

R = Restoration Priority Level

A code of “0-0” indicates “Revocation”, the removal of a previously assigned TSP code.

6.5 TSP InstallationCircuits with an E (Emergency) provisioning priority have the highest priority and must be installed As Soon As Possible (ASAP), dispatching outside of normal business hours when necessary. Circuits with TSP provisioning priorities 1 - 5 will be installed by the due date according to the TSP provisioning priority assigned (see reference table above). For example, a circuit with a provisioning priority of "1" would be installed before a circuit with a provisioning priority of "2" when they both carry the same due date.

6.6 TSP MaintenanceAvailable resources should be allocated to restore NS/EP services as quickly as practicable, dispatching outside normal business hours to restore services assigned priority levels "1", "2" and "3" when necessary and services assigned priority levels "4" and "5" when the next business day is more than 24 hours away.

The day-to-day administration for repair and restoral of services assigned a TSP restoration priority is shown in the following examples:

Example 1: If there are several pending Trouble Reports for circuits that do not have TSP restoration codes and a Trouble Report is received for a circuit with a TSP code of 23, the TSP23 circuit Trouble Report moves to the next Trouble Report to be worked ahead of the other circuit Trouble Reports that have no TSP restoration codes. Upon completion of the repair/restoral of the TSP23 circuit, work continues on the Trouble Reports for the circuits that have no TSP restoration codes.

Example 2: If there are several Trouble Reports to be worked (which includes a circuit with a TSP23 code) and two additional Trouble Reports are received for circuits with higher TSP restoration codes (such as TSP21 and TSP22), the circuit Trouble Report with the TSP21 code will move to the next Trouble Report to be worked, followed by the TSP22 circuit Trouble Report. Then, the TSP23 circuit Trouble Report moves ahead of the other Trouble Reports for the circuits that have no TSP codes. Upon completion of the repair/restoral of the TSP21, TSP22 and TSP23 circuits, work then continues on the Trouble Reports for the circuits that have no TSP codes.

6.7 Competition for Resources between Provisioning and Restoration Priorities

In general, service providers should restore existing services assigned TSP priority before provisioning new service; an exception is the provisioning of services assigned emergency priority, which should always be done before the restoration of services assigned restoration priorities "2", "3", "4" or "5". Restoration of any service assigned restoration priority "1" takes precedence over any other service assigned any other provisioning and restoration priority.

When two or more TSP services are competing for resources, the priority sequence listed below will ensure proper handling of these circuits:

Restore TSP services with restoration priority of “1”.

Provision TSP services with provisioning priority of “E”.

Restore TSP services with restoration priority of 2, 3, 4, 5.

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ATIS-0300109 Provision TSP services with provisioning priority of 1, 2, 3, 4, 5.

Using the priority sequence listed above, the following examples of two TSP services competing for the same resources at the same time, the underlined TSP service has the higher priority and should be worked on first:

TSP code 2-1 and E-2 both in trouble status. 2-1

TSP code 2-1 in trouble and E-2 to be provisioned. 2-1

TSP code 2-1 to be provisioned and E2 in trouble. E-2

TSP code 2-1 and E-2 to be provisioned. E-2

6.8 TSP Installation PreemptionWhere facilities and/or equipment are not available to install a service assigned a TSP priority, preemption (interruption of an existing service) of a non-priority or lower priority circuit may be required. User consent is NOT required to preempt any user's existing service to provision an NS/EP service assigned a provisioning priority level "E" (Emergency) or to provision an NS/EP service assigned a provisioning priority level "1" through "5".

6.9 TSP Maintenance PreemptionFacilities of message circuits may be used for restoral of services assigned a TSP restoration priority after ensuring that sufficient message circuits are available for public switched network use.

Where facilities and/or equipment are not available to restore a service assigned a TSP restoration priority preemption (interruption of an active service) may be required. Interruption of a non-priority or lower priority circuit is authorized for the purpose of restoring the service assigned a TSP restoration priority.

To restore interrupted NS/EP services: User consent is not required to preempt any user's existing service to restore any NS/EP service assigned a restoration priority level from "1" through "5".

NS/EP services: If no suitable spare or non-NS/EP services are available, then existing NS/EP services may be preempted to restore NS/EP services with higher priority level assignments. When this is necessary, NS/EP services will be selected for preemption in the inverse order of priority level assignment.

Service providers who are preempting services will ensure their best effort to notify the service user of the preempted service and state the reason for and estimated duration of the preemption.

7 Wireless Emergency Alerts (WEA) “WEA (formerly known as the Commercial Mobile Alert System (CMAS) or Personal Localized Alerting Network (PLAN)) is a public safety system that allows customers who own certain wireless phone models and other enabled mobile devices to receive geographically-targeted, text-like messages alerting them of imminent threats to safety in their area. The technology ensures that emergency alerts will not get stuck in highly congested areas, which can happen with standard mobile voice and texting services. WEA was established pursuant to the Warning, Alert and Response Network (WARN) Act. WEA enables government officials to target emergency alerts to specific geographic areas (e.g. lower Manhattan) through cell towers. The cell towers broadcast the emergency alerts for reception by WEA-enabled mobile devices.”

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