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One of the most compelling reasons why people purchase mobile phones is safety, especially in emergencies.  X49. The number most Americans dial in emergencies is 911. Since the 911 emergency  X4number was introduced in 1968 for wireline services, it has become almost ubiquitous. "O yOw'ԍ Although the Commission recognized the designation of 911 by AT&T as a national emergency number in the N11 rulemaking proceeding, decisions to implement 911 service continue to be made locally. Some States and local jurisdictions still use different emergency numbers particularly for wireless emergency calls from  {O 'highways. See The Use of N11 Codes and Other Abbreviated Dialing Arrangements, CC Docket No. 92105, First Report and Order and Further Notice of Proposed Rulemaking, 12 FCC Rcd 5572, 5586 (para. 23) (1997)  {Oa '(N11 First Report and Order). Moreover, most wireline 911 systems and Public Safety Answering Points (PSAPs) have been upgraded to E911, which adds features that permit more efficient and rapid response by emergency personnel. According to the National Emergency Number Association, 93 percent of the U.S. population is covered by some form of 911 service, 95 percent of which is E911.  X14This includes 50 percent of the country's land area. 1O {O'ԍ See National Emergency Number Association, Resources, History, The Development of 911 (visited May 13, 1999) .  X 4 10. Unfortunately, the advantages of E911 have not been available for wireless calls. Even in locations where wireline E911 capability is in place, the attendant at a PSAP generally does not automatically receive information regarding the telephone number of a wireless phone or, most importantly, its user's location. In response to these shortcomings, the public safety community has long sought to bring the benefits of E911 to wireless phone users.  Xb'X` hp x (#%'0*,.8135@8:. According to the Department of Transportation Fatal Accident Reporting System (FARS), the average Emergency Medical Service (EMS) crash notification time is almost twice as long in rural areas (8.95 minutes) as in urban areas (4.85 minutes). In addition, the average response time for rural areas, 11.47 minutes, is also almost twice that of urban areas (based on 1992 data).  X419. The failure to deliver 911 calls because of coverage gaps can contribute to tragic  X4outcomes in these emergency situations.\X O {O$#'ԍ See, e.g., Michael A. Hiltzik, Cell Phones,Crime Fighters of the '90s, Are Striking Out, Los Angeles Times, Nov. 16, 1997, at A1 (describing how Marcia Spielholz was severely injured when her cellular phone  {O$'failed to connect 911 calls while she was being pursued by carjackers); Alliance Ex parte Filing, Mar. 18, 1998,"$0*%%$" Report Concerning the Failure to Connect Emergency Calls Made from Mrs. Lechuga's AirTouch Cellular Phone on November 29, 1997 (Lechuga Report) (describing how a California couple and their two children, the Lechuga family, died after their cellular phone failed to connect a 911 call in the wake of a highway accident). The record strongly indicates that one specific step" 0*%%ZZ" the Commission can take in the interest of public safety is to improve wireless 911 call completion, especially in rural areas, and thus to facilitate more efficient and rapid emergency response.  X'X` hp x (#%'0*,.8135@8: O {OG'ԍ Alliance Ex parte Filing, Sept. 17, 1998.X Under this proposal, analog cellular 911 calls would be routed to the customer's preferred carrier if that carrier provides an adequate channel of communication as measured in the handset by its forward control channel signal strength. If the preferred carrier does not provide an adequate signal, the call would be routed to whichever analog carrier had the stronger forward control channel signal. Based on a technical study by Trott Communications, Alliance initially proposed that an adequate control  Xchannel signal be defined as one with a strength of at least 80 dBm.~?4j O {OO'ԍ Id. at 1. The proposed measurement, dBm, is a variation of the decibel, a measure of signal strength, that uses a milliwatt as a reference. Specifically, dBm = 10 log P1/1mW, where P1 is the output power. If P1 is greater than 1 mW, dBm is a positive value. When P1 is below 1 mW, the dBm value is negative, and the weaker the signal, the more negative the dBm value becomes. For example, a signal of 80 dBm is stronger  {Oq 'than one of 100 dBm.  See The Decibel and Some of Its Disguises, Appendix I, Singer, Land Mobile Radio Systems, 2d ed., 1994 at 260.~ "?0*%%ZZ "Ԍ X4.47. F38-A F99 The Commission sought comment on this revised proposal.F@O yOy'ԍ September 22 Public Notice. F With the exception of Alliance and ICSA (a group of small cellular companies seeking Commission approval of  X4cellular extension telephones),AXO {O'ԍ See Alliance Additional Reply Comments; ICSA Additional Reply Comments; see also ICSA Ex parte Filing, Oct. 6, 1998. all of the commenters continue to oppose strongest signal, even as modified. For example, public safety organizations continue to express concerns over the use of the strongest control channel signal as the sole criterion for determining the  X4wireless carrier to handle 911 calls.XBO yO 'ԍ Public Safety Additional Reply Comments at 16.X CTIA continues to assert that increased call blockage  Xv4may occur.CvBO {Oi 'ԍ  CTIA Ex parte Filing, Dec. 4, 1998, at 34 (emphasis in original): X[Based on Dallas and Atlanta field data submitted by the Alliance] strongest signal and adequate signal approaches result in 911 calls being processed by the nonpreferred carrier  {O'approximately 50 % of the time. . . . Because the strongest signal and adequate signal approaches will divert 911 calls that could otherwise be completed successfully by the  {O'preferred system, they will cause congestion and blockage, both at the air interface and on the  {O'trunks linking the wireless carrier to the PSAP.  According to CTIA, this result, based on a threshold gate of 80dBm, occurs because forward control signal strength is randomly distributed, so that when the preferred carrier is below the threshold in most instances so is the nonpreferred carrier. The Alliance claims that CTIA misconstrues its study, which concern holes in coverage and does not apply to the entire coverage areas. Using data from Los Angeles, the Alliance assumes that on average 78 percent of calls will be handled by the preferred carrier with a good channel of communication and 22 percent of  {O'the time there will be a problem in reaching 911 over the preferred system. Alliance Ex parte Filing, Feb. 26, 1999, at 4.  In response to comments regarding the threshold signal strength,|Dv$O {OK'ԍ See, e.g., AirTouch Additional Comments at 4; RTG Additional Comments at 34.| Alliance later revised its proposed 80 dBm threshold to a weaker signal level of 85 dBm, which it  XH4suggested could be an interim standard pending further study.EHO {O'ԍ Alliance Additional Reply Comments at 9. See para.  P58HN65 , infra. In later comments, Alliance also proposes to give a range of choices, by requiring that handset manufacturers permit the consumer to select or change handset settings in increments of not more than 4Db to a minimum level of 100 dBm, in order to permit more calls to be routed to the preferred  X 4carrier if the consumer wishes.F HO {O$'ԍ Alliance Ex parte Filing, Mar. 23, 1999. Alliance calls this approach 911 System Selection Process. " F0*%%ZZ "Ԍ X4ԙX` hp x (#%'0*,.8135@8:S O yO!'ԍ EWS Analysis at 3, 5.> This effect would tend to even out 911 call distribution and reduce blocking. " S0*%%ZZ"Ԍ X4352. Moreover, the extent to which any actual increased blocking in metropolitan areas would reduce the provision of public safety assistance is questionable. Many 911 calls from busy locations are duplicative reports about a single incident, such as an auto accident. If the first call gets through and additional calls are blocked there may be no loss of information. Indeed, Alliance asserts that 911 systems are designed to choke such redundant calls to  X4prevent loss of access to 911 for other emergencies.NTO yO'ԍ Alliance Response to CTIA Study at 3.N  X_4453. F51-B  Finally, concerns about increased blockage of 911 calls in high volume, urban areas should be further ameliorated under the revised Adequate/Strongest Signal approach. In contrast to the original proposal, the handset would first attempt to route all calls to a customer's preferred carrier. The only circumstance under which calls would be routed to the other cellular carrier is when the preferred carrier is providing only a relatively low power signal at the location of the call, such that it is less likely that the call could be completed at all. This is unlikely to happen frequently in the high volume, urban situations in which  X 4blockage is a likely problem.BUX XO yO'ԍ For example, the EWS Analysis submitted by CTIA states that [i]n most metropolitan markets where competitive market forces dictate substantial coverage in the entire area, it is very rare to see large regions where only one carrier has dominant coverage. EWS Analysis at 5.B Some increase in call blockage could occur in some cases, when the preferred carrier provides a forward control channel below the threshold gate and both carriers provide relatively similar or randomly distributed forward control channels. We believe this will be an uncommon situation and that any problems caused in this situation will be outweighed by the benefits of improved 911 call completion in many other cases, particularly in rural and suburban areas. Thus, assuming that the threshold gate level is set at an appropriate level, and we believe 85 dBm is appropriate, the record demonstrates that Adequate/Strongest Signal will produce higher 911 call completion rates overall and with little, if any, increase in call blockage when systems are busy.  X'X` hp x (#%'0*,.8135@8:'ԍ See, e.g., TruePosition Additional Comments at 79; Corsair Additional Reply Comments at 34. For example, some suggest that it would increase the number of calls the switch cannot validate and for which the switch cannot  X4provide Phase I call back information.` O {O!'ԍ See, e.g., EWS Analysis at 6; Public Safety Ex parte Filing, Feb. 23, 1998, at 3. We do not believe this is a problem, however,  X4because our rules instruct carriers to forward all 911 calls without respect to their validation  X4processes, which might block or delay them.na O yO%'ԍ Section 20.18(b) of the Commission's Rules, 47 C.F.R.  20.18(b). nF92 NOTE73  In addition, WEIAD is studying the cost of an"a0*%%ZZ" apparently effective method of producing call back information for all calls, even those from  X4handsets that lack valid numbers or are registered with other carriers.WbO yOb'ԍ WEIAD Report to the Commission, Jan. 30, 1998.W  X4:59. Other comments argue that Adequate/Strongest Signal, like the original strongest signal proposal, will discourage early deployment of Phase II ALI and in some cases route  X4calls away from carriers who provide it.cXO {O'ԍ See, e.g., TruePosition Additional Comments at 79; Corsair Additional Reply Comments at 34. With respect to the possible discouragement of Phase II ALI deployment, the claim is that, if customers cannot be assured that their emergency calls will be routed to their preferred carrier, then the carrier will have less  XH4incentive to introduce ALI and promote it to those customers.`dHO {O 'ԍ See, e.g., TruePosition Additional Comments at 7.`  X 4;60. P50PL  Under the Adequate/Strongest Signal approach, however, all calls would in fact be routed to the caller's preferred carrier whenever that carrier provides the specified signal level. Thus, the handset would, in the first instance, attempt to place the call over the preferred carrier, which would be providing whatever E911 features were marketed to the customer.  X 4The strongest signal backup mode would be employed only when signal strength is relatively low. In those circumstances, use of the strongest signal approach, in our view, would help increase the chances that the call would be completed, even if ALI might not be provided. The crucial first step in receiving emergency help is completing at least one 911 call that alerts the PSAP to the fact and nature of the emergency. Location capability is not valuable to the caller or the PSAP if the call does not go through. Thus, improving the rate at which emergency incidents are reported to PSAPs is a primary public safety goal. The real benefits of the Adequate/Strongest Signal as a backup method in improving 911 call completion over the long term thus outweigh the temporary effects it might have on ALI competition.  X'X` hp x (#%'0*,.8135@8:63. BAM suggests that it is not possible to measure forward control channel signal strengths without taking averages of each of the 42 such channels for a duration of 1 to 5 seconds per channel. Thus, it contends that meaningful, accurate measurements could take  X44minutes and these measurements could change in that time.Hh4O yO'ԍ BAM Additional Comments at 23.H The Adequate/Strongest Signal proposal, however, uses the normal call setup process of searching for the strongest control channel of the preferred carrier, and accepts that channel if it is above the threshold gate level. If not, it searches for the strongest control channel for both carriers. Alliance claims that scanning of 21 control channels takes 50 milliseconds, not 1 to 5 seconds per channel,  X4and thus requires only brief extension of the call setup time.]iDO {O'ԍ Alliance Ex parte Filing, Jan. 13, 1999, at 2.] While it might be theoretically desirable to take average readings over longer periods, this has not been found necessary for other calls and Adequate/Strongest Signal represents only a relatively minor variation in the normal, established method of routing cellular calls. Whatever its theoretical limitations, this call completion mode is a practical, effective method that should work equally well under Adequate/Strongest Signal to improve 911 call completion. "7i0*%%ZZ_"Ԍ X4?64. One commenter also suggests that if the signal of the preferred carrier is below the threshold gate, there is no guarantee that the other cellular carrier would be able to handle the  X4call.LjO yOK'ԍ BAM Additional Comments at 4.L This comment appears based on a misconception about how Adequate/Strongest Signal would operate. If the preferred carrier's signal is below the threshold, the call would not automatically be switched to the second carrier but would be switched to whichever carrier provides the strongest signal, whether that is the preferred carrier or the other cellular carrier.  XH4@65. P58HN נSome comments also question the use of 80 dBm initially proposed by Alliance as the threshold gate. RTG states that customers tolerate much lower signal levels and suggests  X 4that a threshold of 92 dBm would be more appropriate.Fk XO yO# 'ԍ RTG Additional Comments at 3.F Others argue that even signals stronger than 80 dBm may not always produce a usable signal on the assigned voice channel. AT&T suggests that any bright line signal strength definition would necessarily be both underinclusive and overinclusive because of differences among systems, geographies, and  X 4equipment.Gl O yOW'ԍ AT&T Additional Comments at 4.G AirTouch states that, according to its expert, the 9 dB margin for attenuation that was used to calculate the 80 dBm threshold is not justified because any signal  X4attenuation is already included in the received signal level.MmxO yO'ԍ AirTouch Additional Comments at 45.M Alliance replies that all commenters on this issue agree that the appropriate threshold is somewhere between 80 and 92 dBm. In response, it proposes an interim standard of 85 dBm, subject to further review  XM4by a standards body.WnMO yO'ԍ Alliance Additional Reply Comments at 9.W We believe that there is a range of signal levels that would be appropriate for use as a threshold signal gate. We also conclude that Alliance's revised proposal of a 85 dBm threshold is a reasonable one, as is its proposal that this be considered  X4an interim figure subject to further study and, if necessary, modification.VoO {OQ'ԍ See para.  F9947 , supra.V  X4A66. CTIA also claims that use of Adequate/Strongest Signal would most likely require all CMRS handset manufacturers to utilize a patented technology and would violate an  X4alleged Commission policy against selecting standards based on a single patent.Tp* O {O#'ԍ CTIA Ex parte Letter, Nov. 12, 1998. T It is  X4important to keep in mind that we are not concluding that the Adequate/Strongest Signal" p0*%%ZZ`"  X4method is the exclusive means by which our basic principles can be satisfied.kqO {Oy'ԍ See paras.  P35FG28 ש P30DZ29 , supra.k We are endorsing in this Order two other methods for satisfying these basic principles, and we also anticipate that other methods could be developed in the future. Thus, no manufacturer or  X4carrier is required to employ any specific patented technology. rFZO yO'ԍ We also note that the claimant to the strongest signal patent, as identified by CTIA, has given representations that the patent would be made available on reasonable terms and conditions without unfair  {OX'discrimination, should any manufacturer choose to use technology within the scope of the patent. Alliance Ex  {O" 'parte Letter, Mar. 8, 1999, at 3; Zicker Letter to CTIA, Nov. 10, 1998, filed as an ex parte submission, Nov. 20, 1998. These representations are consistent with the arrangements the Commission has endorsed in cases involving patented technology. Advanced Television Systems and Their Impact Upon the Existing Television Broadcast Service, 6 FCC Rcd 7024 (1991); Revised Patent Procedures of the Federal Communications  {OD 'Commission, Public Notice (Dec. 1961), reprinted, 3 FCC 2d 26 (1966).   X4B67.ؠOverall, we are approving Adequate/Strongest Signal as one of the means by which carriers can comply with our rules to improve 911 call completion because we believe this record demonstrates that, although Adequate/Strongest Signal is not free from disadvantages in some situations, it generally satisfies the criteria for a reasonable 911only call completion method. It switches 911 calls to the nonpreferred carrier when the preferred carrier is less likely to be able to complete them, but seeks first and primarily to complete calls via the preferred carrier. In particular, we conclude that Adequate/Strongest Signal is  X 4likely to improve 911 call completion in rural and suburban areas for portable phones.(sZ h O yO'ԍ Alliance calculates from the CTIA Study that the strongest signal approach would improve 911 access by  {O'as much as 13.5 percent in suburban areas and 18.3 percent in rural areas. Alliance Ex parte Filing, June 3, 1998, at 4.( It appears to provide a reasonable and effective method of substantially reducing the lockin problem, though it remains possible that 911 calls will not be completed, in cases where the selected carrier has no channels available. In those cases, the customer should be notified by a system busy signal to terminate the call and try again.  Xd4C68. This is not to say, of course, that Adequate/Strongest Signal is a perfect or ultimate solution to 911 call completion problems. Because this method relies solely on the forward control channel to route and complete calls, it is possible that it will in some cases deliver calls to a carrier that is unable to complete the call, because other aspects of call setup prevent call completion. In such cases, the same problem could then reoccur if the caller terminates the first call and dials 911 again, because the same routing procedure would be followed. It is also possible that Adequate/Strongest Signal might increase call blockage in some situations, specifically in urban areas where both carriers provide relatively low forward control channel signal levels, below the 85 dBm threshold gate, and the strength of those" s0*%%ZZ" signals is relatively evenly distributed. The 85dBm threshold gate, though reasonable, is to some extent arbitrary and may not be optimal in all cases. It may, for example, route calls to the nonpreferred carrier in cases where the preferred carrier could provide a usable and acceptable voice channel. Adequate/Strongest Signal also operates only during call setup and does not help maintain calls or reattempt them if the call is disrupted. These limitations, however, do not in our view, and on this record, override the general improvement in 911 call completion that Adequate/Strongest Signal should provide in comparison with current methods. Overall, however, we find that it will substantially improve 911 call completion and otherwise satisfies our criteria for an acceptable 911 call completion mode. Accordingly, we approve its use by handset manufacturers as a method of complying with our rules.  X 'X` hp x (#%'0*,.8135@8::Bibliogrphy"(#  yO'  X 4  X 'X` hp x (#%'0*,.8135@8: