ITS - Intelligent Transportation Systems Report ITS Home Page

Introduction

This final report titled "Facilitating the Implementation of Emergency Wireless Communications" summarizes the results of a 54-month program conducted by NENA for the DOT (Federal Highway Administration and National Highway Traffic Safety Administration). The program is generically referred to as the Wireless Implementation Project within DOT and the 9-1-1 community, so there are many references to that Wireless Implementation Project in the final report.

The project had a number of deliverables including the following:

Since October 2001 a number of reports about wireless E9-1-1 have been commissioned or written by selected Federal agencies. Most notable are the following:

All with the exception of the FCC Report have referred extensively to the DOT Wireless Implementation Project and the information contained in the Wireless Deployment Profile.

Wireless Deployment Profile

Perhaps the single most visible product of the Wireless Implementation Project, the Wireless Deployment Profile has provided a four-year picture of the status of Phase I and Phase II implementation at the state and county level. The initial WDP was based on a detailed survey in 2002 of all 3135 counties in the U.S. to determine readiness for and deployment of Phase I and Phase II.

That survey was completed in the Fall of 2002, and showed 37 percent of PSAPs with Phase I and only 9 percent with Phase II. Project staff has continued to update the WDP on a continuous basis, from quarterly reports filed by wireless carriers to the FCC combined with calls to state and county 9-1-1 coordinators. Today wireless Phase I is available for 81 percent of PSAPs and Phase II for 62 percent of PSAPs. On the basis of population served, the number for Phase I is 86 percent and for Phase II the number 74 percent.

Considering that wireless E9-1-1 is funded almost exclusively at the state or local level, without any Federal funding, that amount of penetration since the passage of the Wireless 9-1-1 Act is very high, and shows the importance of emergency communications to the wireless carriers and public safety.

     Initial Survey

The initial survey was developed in early 2002 by NENA staff with review by the DOT project coordinator and staff. The decision was made to focus on state and county 9-1-1 coordinators as the source of information for the Wireless Deployment Profile. Project staff compiled a list of state coordinators, all of whom are members of the National Association of State Nine-One-One Administrators (NASNA), who in turn provided lists of county coordinators within each state. There were approximately 30 state coordinators at the time of survey development. NENA chapters were also a source of county coordinators, particularly for those states where no 9-1-1 coordinator was present. Finally, NENA's PSAP List was a source of county/PSAP coordinators where information from state coordinators and NENA chapters was not found.

     Updates

A number of steps were taken to ensure currency of information in the Wireless Deployment Profile. These included:

An important feature of the WDP was that all maps and summary information were updated daily – thus ensuring that the information was both accurate and accessible via the NENA web site.

As the project progressed, we found that many governmental organizations (e.g. DOT, FCC, GAO, CRS) as well as other organizations such as Cellular Telecommunications and Internet Association (CTIA), the E9-1-1 Institute and the National Governors Association relied solely on the Wireless Deployment Profile for wireless Phase I and Phase II completion information.

Web Site Development

The Wireless Deployment Profile has been posted to the NENA web site under the heading of DOT Project since the results of the first survey became available. State maps and summary tables for important information have been updated daily so anyone going to the WDP will have the latest information.

Congressional Impact

Throughout the Wireless Implementation Project, NENA provided detailed information regarding wireless E9-1-1 Implementation to Congressional representatives and staff. Beginning in March 2003 at NENA's Annual "9-1-1 Goes to Washington" event, state-specific maps depicting wireless Phase I and Phase II completion status by county were prepared to support requests of Congress for 9-1-1 legislation and funding.

In 2005 and 2006 the state maps also had information by Congressional District to further educate Congress on wireless deployment for those areas they serve. These maps generated by project staff received high praise from those attending 9-1-1 Goes to Washington, and from Congressional representatives and staff.

Secretarial Initiative

The DOT Secretarial Initiative was formed to promote wireless E9-1-1 implementation. Under that Initiative, two separate groups were formed - a Steering Council comprised of representatives from leading 9-1-1 organizations and an Expert Working Group, which was a smaller group charged with coming up with a Priority Action Plan to be reviewed by the Steering Council and submitted to the DOT Secretary for action.

     Priority Action Plan

The Priority Action Plan recommended six Priority Action Items. They include the following:

Priority Action Item #1 Establish Support for Statewide Coordination and Make Points-of-Contact

Priority Action Item #2 Help Convene Stakeholders in Appropriate 9-1-1 Regions

Priority Action Item #3 Examine Cost Recovery and Funding Issues

Priority Action Item #4 Initiate Program of Knowledge Transfer and Outreach

Priority Action Item #5 Develop Coordinated Deployment Strategy Encompassing both Rural and Metropolitan Areas

Priority Action Item #6 Implement Model Location Program

Project staff worked with an Expert Working Group made up of selected representatives from 9-1-1 agencies and organizations to develop the Priority Action Plan. The Expert Working Group then submitted the Plan to the Wireless Steering Council, comprised of a broad range of representatives from the 9-1-1 and first responder communities. Once approved by the Wireless Steering Council, the Priority Action Plan was recommended to the Secretary of the Department of Transportation for implementation.

The Priority Action Plan and Priority Action Items are described in detail in Appendix 3.

White Papers

Three white papers were written during the project. The first was prepared by NENA's GIS Subcommittee and addressed GIS and wireless issues. As the project proceeded, a second white paper on technical wireless issues was written. Finally, as accuracy became an issue during the waiver process, a third white paper on accuracy issues was prepared.

All three white papers were placed on the NENA Wireless Implementation Project web site for downloading to those who were interested in learning more about these key areas of wireless implementation. NENA distributed copies of the white papers at its Annual Conferences as the white papers became available, and they proved useful to other organizations (such as the Network Reliability and Interoperability Council (NRIC) and Emergency Service Interconnection Forum (ESIF)) in their work on 9-1-1 issues and future planning.

The three white papers may be found in Appendices 4, 5 and 6.

Wireless Implementation Videos

In 2003 NENA prepared three separate videos in support of the Wireless Implementation Project. Target audiences for the videos were:

     Scope/Audience

The 14-minute video for PSAPs provided a step-by-step process for PSAPs to implement wireless E9-1-1. It discussed how to use the Phase I and Phase II checklists as a guide to implementation.

The 8-minute video for legislative officials and the public was intended to provide general information regarding wireless Phase I and Phase II – information that could be used to garner support and funding for wireless E9-1-1 implementation at the state or county level.

The 12-minute video for wireless carriers was focused primarily on Tier III carriers generally serving primarily rural areas. Major wireless carriers had already begun to implement wireless E9-1-1 phases, mostly Phase I, at the time of video production, yet there remained a need to assist Tier III wireless carriers with their implementation efforts.

A total of 7,500 videos were produced for PSAPs and legislative officials and the public – both the PSAP version and the one for legislative officials and the public were contained on a single video for multiple uses by PSAPs and by local officials. 500 videos were produced for distribution to wireless carriers.

     Distribution of Video Tapes

Distribution of the 7,500 videos was through NASNA in those states with 9-1-1 coordinators, and directly to PSAPs by NENA where 9-1-1 coordinators do not exist. Most NASNA members preferred to distribute the videos within their respective states with an explanatory cover letter on official state letterhead. Others approved distribution directly from NENA to PSAPs within their state. We used NENA's PSAP Registry database to identify PSAPs in each state where no state 9-1-1 coordinator was present.

Distribution to wireless carriers was from a list of carriers obtained from the Federal Communications Commission.

NENA also distributed copies of all videos at the 2003 and 2004 NENA and APCO Annual Conferences. At these conferences, we arranged for a DOT Wireless Implementation Project resource room where conference attendees (primarily PSAP managers and state 9-1-1 representatives) were encouraged to verify and/or update status of wireless E9-1-1 deployment for their respective states/counties/PSAPs. This also encouraged numerous dialogues regarding planning for future implementation. In Denver at the 2004 NENA Annual Conference, we had a continuous video with all three videos shown on a large screen in the Exhibit Hall. Everyone who visited the Exhibit Hall was able to view the video, which was a focal point as attendees entered the exhibit area.

Distribution of the videos included a special issue of NENA News magazine that was devoted to wireless E9-1-1 issues. This further aided PSAPs in their implementation efforts, and was an important component of the project's education of PSAPs, government officials, wireless carriers, and the public.

Technical/Operations Assistance

     Wireless Checklists

During the NENA DOT four-year project, wireless E9-1-1 has increased substantially. From a handful of Public Safety Answering Points (PSAPs) basically serving as trial sites in late 2001/early 2002, Phase II (delivery of caller's location) is now available to almost 75% of the U.S. population. Or, placing it in another perspective, in 2001 there likely were no more than hundreds of wireless 9-1-1 calls with caller location, while this year, after the four year NENA DOT project, there will be 40 to 60 million wireless calls with caller location provided4.

This NENA DOT project has significantly contributed to this major expansion in enhanced emergency services access for the public, while also insuring that such access worked correctly as the wireless industry underwent extensive changes.

During the late 2001 to early 2006 time period when the wireless industry had significant customer growth (an estimated 63%5), wireless E9-1-1 Phase I (routing by cell site/face and delivery of callback number and cell site/face location to PSAP) grew from just over 20% PSAP penetration to 81%6, almost quadrupling.

Simultaneously with the wireless E9-1-1 rollout across the U.S., the wireless industry was involved in extensive technology changes (such as carriers moving from TDMA to GSM, 2G and 3G planning and rollouts), along with digital TTY government-mandated 9-1-1 access hardware/software upgrades and implementation, mergers/buyouts (national providers reduced from six to four, along with regional mergers also), Communications Assistance for Law Enforcement Act requirements, spectrum auctions, growth in consumer use of wireless data devices, and certainly not least, wireless number portability and pooling.

Utilizing the much-needed resources that the NENA DOT project was able to draw from, NENA was able to participate, and serve as lead where appropriate, across the necessary broad range of entities (telecommunications industry, federal government agencies and departments along with state/local government/emergency services authorities, 9-1-1 community, and many others) to not only advance wireless E9-1-1 implementations and access methods, but also eliminate or minimize any negative effects from the many other changes going on simultaneously within the wireless industry and others.

Within months from the start of the NENA DOT project and the available resources it provided, NENA was able to restructure its operational committee structure so that both operational and technical standards and other informational documents could be created, which provided considerable guidance to PSAPs as they considered and began the extensive planning, development, implementation and ongoing operational/technical work necessary to provide wireless E9-1-1 Phase I and II throughout much of the country.

While the NENA DOT project has been a significant contribution to the widespread rollouts of both Phase I and II, along with ensuring that wireless 9-1-1 access continues correctly when major technical and operational changes have happened within the wireless industry, there remains work to do. More than 50% of the counties 7, in the U.S., predominately rural, remain without Phase II, and 25% remain without Phase I. Wireless industry technological and operational changes of significance continue, pointing to the ongoing need to continue ensuring correct 9-1-1 access. The sharply increasing general public use of wireless text devices8 and the significant value and use of such devices in the deaf and hard-of-hearing community, demonstrate the need to substantially improve the existing 9-1-1 networks in use across the country.

Recent months have also shown escalating marketing among younger age groups (particularly 8-12 years of age) by a number of entities within the wireless industry and it is increasingly important that various educational processes be developed to be sure that youth's wireless 9-1-1 access when needed in emergencies, is dealt with appropriately.

Statistics

     Wireless 9-1-1 Progress:9

The United States has 6,153 primary and secondary PSAPs and 3135 Counties which include parishes, independent cities, boroughs and Census areas. Based on NENA's preliminary assessment of the most recent FCC quarterly filings (May, 2006):

Prior to the start of NENA DOT project wireless E9-1-1 implementation tracking by county/PSAP, there were a handful of PSAPs in a few places in the country involved in Phase II implementations, basically termed trials, and there were approximately 1200 PSAPs having implemented Phase I with at least one provider. By early 2003, 37% of PSAPs had implemented Phase I with at least one provider and 9% Phase II.10

At the end of 2001, there were an estimated 128,374,512 subscribers in the U.S. By the end of 2005, there were 207,896,198.11

Wireless 9-1-1 call volume in 2001 was an estimated 56,879,775 while in 2005 it was an estimated 82 million.12

4 Estimate calculated from NENA DOT project wireless implementation percentages and CTIA 9-1-1 call volume estimates, both of which are included elsewhere in this report. The range is offered because of a degree of uncertainty over phase II capable handset penetration among some providers.
5 CTIA market survey reports.
6 NENA DOT wireless E9-1-1 implementation tracking and FCC wireless carrier 9-1-1 quarterly/semi-annual reports.
7 NENA DOT wireless E9-1-1 implementation tracking
8 SMS traffic more than doubles from December 2003 (2 billion messages per month in U.S.) to 4.7 billion per month in December 2004, according the FCC 2005 annual CMRS competition report.
9 NENA DOT project wireless implementation statistics as of March 1, 2006
10 FCC wireless carrier quarterly/semi-annual reports. T-Mobile, formerly Voice Stream, began mandated semi-annual wireless Phase I and II status reports in 2000, while the other national providers began in early 2002. Tier II providers (defined as regional providers with more than 500,000 subscribers in 2001) began mandated quarterly reporting in late 2002.
11 CTIA 2005 market survey
12 CTIA annual market surveys and wireless 9-1-1 estimates.

 

Previous | Next