Text-to-9-1-1 Saves Lives - Intrado

Text-to-9-1-1 Saves Lives
Understanding the options for
text-to-9-1-1 implementation.

Text-to-9-1-1 Saves Lives
TABLE OF CONTENTS EXECUTIVE SUMMARY 3
Introduction/Background 4
PSAP Challenges/Concerns 4
How Does Text-to-9-1-1 Work? 5
Traffic Volumes - Service Trial Results 7
Reliability of Text 7
PSAP Display and Delivery 9
CPE/Telephone System Integration 10
Web Viewer 10
TTY 11
Service Provider Interoperability 12
Future Functionality of Text Service 13
Conclusion 14
Know Your Options 15
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Text-to-9-1-1 Saves Lives
Executive Summary
Text-to-9-1-1 Saves Lives
The ability to send a text-to-9-1-1 is a reality. Text-to-9-1-1 can save lives
in many scenarios; natural disasters, when wireless networks are heavily
congested, in remote locations with weak radio signals or in unsafe situations
when a voice call to 9-1-1 could put someone in greater danger.
This white paper describes:
• The potential impacts of text-to-9-1-1 on a public safety answering point
(PSAP)
• How text emergency requests can be delivered from multiple wireless carriers
into a single stream
• Delivery and display options that meet the requirements of the NENA i3
reference architecture and the joint Alliance for Telecommunications Industry
Standards (ATIS) /Telecommunications Industry Association (TIA) Native SMS
to 9-1-1 J-STD-110
• The future of text-to-9-1-1, including delivery of multimedia messaging service
(MMS) from mobile devices to the PSAP and over-the-top (OTT) solutions
offered by smartphone providers that bypass the wireless carrier’s text and
MMS infrastructure
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Text-to-9-1-1 Saves Lives
Introduction / Background
Currently, there are only a few places in the United States where citizens are able to
text-to-9-1-1. However, in December of 2012 Verizon, ATT, Sprint and T-Mobile joined
with the National Emergency Number Association (NENA) and the Association of
Public-Safety Communications Officers (APCO) and made a voluntary commitment
to provide text-to-9-1-1 services by May 15, 2014, and support automatic “bounce
back” notifications to consumers attempting to reach 9-1-1 via text message, when
service is not available in their area, by June 30, 2013. A further mandate by the FCC
in May 2013 requires all Commercial Mobile Radio Service (CMRS) and interconnected
text messaging service providers to provide automatic “bounce back” capabilities by
September 30, 2013.
During 2012, ATIS and TIA developed a joint Native SMS-to-9-1-1 Requirements
and Architecture Specification standard for delivery of text messages to PSAPs. This
standard, J-STD-110, describes the three SMS-to-9-1-1 delivery interface types which
are further described later in this paper. Future enhancements to the standard will
include delivery of MMS-to-9-1-1 and interfacing to OTT solutions.
PSAP Challenges / Concerns
There are some concerns PSAPs have in expanding their means of communications
with the public seeking emergency assistance via text-to-9-1-1:
• How are individual text messages transferred into a dialog between the texter and
call taker?
• Will there be an overwhelming influx of text traffic?
• Will text interfere with handling voice calls?
• How reliable is text messaging?
• How can I get all text to 9-1-1 from every carrier without having to interact with
each carrier separately?
• Will I have to upgrade my PSAP CPE to handle text?
• Will I also have to deal with MMS and OTT solutions?
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Text-to-9-1-1 Saves Lives
How Does Text-to-9-1-1 Work?
When making a text call to 9-1-1, the caller requesting emergency assistance sends
a text to 9 1 1 as they would to any text short code. The text is routed by the wireless
Carrier to an emergency text service provider’s Text Control Center (TCC).
How does SMS Work?
WIRELESS CARRIER RESPONSIBILITY
PSAP RESPONSIBILITY
Commercial
Location
Server
ECRF
ECRF
Short
Message
Center
(SMSC)
Multimedia
Message
Center
(MMSC)
LBS/MSC/HLR
SMPP
MM3, 4, 7
Text
Control
Center
(TCC)
i3/Pre i3
Emergency
Services
Routing Proxy
(ESRP)
WEB
Gateway
i3/Pre i3
Internet
Integrated
Transitional
TTY
Gateway
Existing 9-1-1
Voice Circuit
Selective
Router
Legacy
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Text-to-9-1-1 Saves Lives
The TCC queries the wireless carrier for the location of the caller: routing of the
text is similar to routing Phase 1 accuracy voice calls and is based on which PSAP
jurisdiction the caller is located. This is implemented by the Emergency Services
Routing Proxy (ESRP) querying a PSAP jurisdiction database with the caller location
that, in i3 terms, is referred to as the Emergency Call Routing Function (ECRF). In
this regard, the TCC acts in an equivalent way to a selective router or 9-1-1 tandem
in a voice network. As in the case of the selective router, the TCC delivers texts
from all wireless carriers over a common interface to the PSAP. If the PSAP is not
text equipped or busy (as represented by full text message queues) a bounce-back
message is sent to the caller instructing them to make a voice call to 9-1-1.
All PSAP positions will be notified that a new text has arrived via flashing button on
the text user interface (UI) and/or an audio tone is played. Text distribution across
PSAP positions could be an automatic call distribution (ACD) method, or an all
position notification (as in a key system), and the first to accept the message can
establish a dialog with the text initiator. What this means is that the operator will be
able to send a message to the texter and their response will be displayed back on
that operator’s UI. A typical user interface is shown below.
Web Browser User Interface
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Text-to-9-1-1 Saves Lives
Thereafter, messages can be sent between the operator and texter until the operator
terminates the session. Technically, the dialog is accomplished by the TCC forming
a temporary association between the texter’s telephone number and operator’s
workstation via a SIP session, thus ensuring all subsequent messages are sent to the
same operator.
With the exception of the TTY solution described in this document, text takes a
different path to the PSAP and does not interfere with the delivery of voice calls. Trial
evidence shows that call takers can handle multiple text sessions at the same time,
or voice and text at the same time due to the time between messages. The transcript
of the dialog is laid out on the text UI so the operator can skip between conversations
while waiting for the next message to arrive. PSAP policy will determine how
operators handle text and voice calls, but note that the solution technically supports
this approach if the PSAP chooses to go this route.
Traffic Volumes – Service Trial Results
Intrado has undertaken three extensive text trials over the last four years in Iowa,
North Carolina, and Vermont. Each of these trials displayed the text dialog on the
PSAP call processing equipment (CPE) workstation.
It is estimated that
1 in 10 calls will be
text-to-9-1-1 calls.
To date, we have seen low traffic volumes during these trials even though there was
visibility and advertising in the local communities that text-to-9-1-1 was available.
The messages received weekly have been minimal amounts. We expect significant
traffic growth as additional wireless carriers bring their services online and the
service becomes more accepted by the public. Long term, it is estimated that 1 in
10 calls will be text-to-9-1-1 calls; currently we see approximately 1 in 1,000.
Reliability of Text
In an informal study to determine text delivery reliability, Intrado built trial
components and used them to test text delivery in various parts of the United
States. We used different carrier networks with widely varying radio frequency signal
strengths (some so weak they could not support voice) and tested at different times
of the day, especially busy times. We sent over 34,000 text messages during these
trials in both directions from the caller to PSAP and PSAP to caller through our
TCC infrastructure. We experienced a 100 percent success rate with all messages
getting through; delivery times averaged four seconds, and a single worst case of
60 seconds. There have been similar studies with comparable results from the
University of Colorado.
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Text-to-9-1-1 Saves Lives
There are practical situations where text can work more effectively than voice,
although we are not suggesting that text will be a universal substitute for voice calls:
• For the 36 million deaf and hard of hearing in the U.S.
• Real life situations where callers do not wish to be overheard requesting
emergency assistance; a domestic abuse situation, for example.
• When a voice network gets overloaded, such as during a natural or man-made
disaster (Hurricane Sandy or East Coast power outage).
• When radio signal strength is marginal, for example at a mountain resort where
someone is injured skiing, callers can often text when voice communication may
not be possible due to wireless radio signal strength.
• Since a PSAP operator can often manage multiple text dialogs at once and text
traffic is delivered to the PSAP using an IP path rather than the traditional voice
9-1-1 trunks, more emergency requests can get through and answered.
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Text-to-9-1-1 Saves Lives
PSAP Delivery and Display
Below, we show three alternative methods of delivering text messages to a PSAP; all
three options interact with the wireless carrier networks to establish the terminating
PSAP in the same way. Depending on the choices of the PSAP, text can be delivered
in one of the following three ways:
• CPE Telephone System Integration: Uses an i3 IP protocol (SIP based) that
terminates on the PSAP CPE (and, in the future, the CAD) and is displayed on
the workstation.
• Web Viewer: This option provides PSAPs with a transition path without the need
to upgrade their CPE.
• Teleprinting device TTY: This option uses the current TTY capabilities of the CPE
and can be delivered without the PSAP changing their CPE configuration or TTY
procedures.
Alternative Text Delivery and Display Options
WIRELESS CARRIER RESPONSIBILITY
PSAP RESPONSIBILITY
Commercial
Location
Server
ECRF
ECRF
Short
Message
Center
(SMSC)
Multimedia
Message
Center
(MMSC)
LBS/MSC/HLR
SMPP
MM3, 4, 7
Text
Control
Center
(TCC)
i3/Pre i3
Emergency
Services
Routing Proxy
(ESRP)
WEB
Gateway
i3/Pre i3
Internet
Integrated
Transitional
TTY
Gateway
Existing 9-1-1
Voice Circuit
Selective
Router
Legacy
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Text-to-9-1-1 Saves Lives
CPE/Telephone System Integration
A PSAP can receive and display text-to-9-1-1 calls in the same manner that they
receive voice calls. Text to-9-1-1 messages from all wireless carriers are managed on
the same user interface and workstation as voice calls. The user interface typically
provides the operator with the caller location coordinates as well as the originating
wireless carrier. This solution is least disruptive to the call taker workflow but may
require upgrades to the CPE equipment and private secure IP (ESInet) connections
to the text service provider’s TCC.
While voice and text calls arrive at the same console, voice capacity is not limited
by text messages since voice and text travel across different facilities to the PSAP –
text messages are carried over separate or partitioned IP circuits or ESInet facilities
where these are available.
Integration also enables expansion of the internal management information systems
(MIS) to capture text transcripts in the same way as voice call records; vendors are
also in the mode of building interfaces to computer aided dispatch (CAD) systems to
enable text to be displayed on CAD workstations.
Web Viewer
For PSAPs or CPE vendor who is not yet ready, to support text directly on the CPE
workstation, the Web Viewer solution provides a short-term alternative to the CPE
integration option.
There are two options for how text is displayed:
• On an existing CPE or CAD workstation. While it is displayed on the CPE
workstation screen, it is not integrated to those existing systems nor integrated
into the MIS or CAD systems; it is simply a window in the display.
• On a separate standalone workstation. This creates a “swivel chair” mode of
operations where a call handler must manage between two different systems
and screens for answering voice and text calls.
The Web Viewer solution can be supported over a private ESInet or over the public
Internet. If the public Internet is used, this option opens the connected systems to
potential cyber attacks. Secure connectivity options should be considered if the Web
Viewer is run on the same system as the CPE or CAD.
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Text-to-9-1-1 Saves Lives
TTY
Text delivery to TTY works by setting up a voice call, using existing voice circuits,
from a TTY gateway to the PSAP and transmitting the text messages to and from
the emergency texter using BAUDOT tones into a PSAP’s existing TTY equipment.
While this option does not require a PSAP to upgrade their equipment, it does have
significant usability issues both for texters and PSAP operators. Specifically, texter/
call taker interactions will be very slow and the average text message could take
several minutes to deliver, and is prone to errors that could lead to confusion for
the texter. During this time, the operator is using a voice trunk that could far exceed
normal voice call interactions and prevent other calls to the PSAP from getting
through.
Service Provider Interoperability
One essential attribute of any text service provider is the ability to consolidate text
messages from all wireless carriers in their jurisdiction into a single stream where
they can be displayed at the PSAP CPE, regardless of the delivery method chosen by
the PSAP.
Carriers choose service partners to provide the routing functionality. There are two
main vendors in the market and there is a high probability that both will be selected
by some of the carriers. Similarly, regional entities and individual PSAPs will choose
a text service provider to collect, route and consolidate all wireless carriers’ text
messages within their jurisdiction.
To meet the need to deliver text from all Carriers to all PSAPs, the two leading service
providers have agreed to exchange text messages destined for delivery by the other
service provider, via the service provider TCC/ESRP chosen by the destination PSAP.
The interface between the two TCCs is the i3 defined MSRP with location PIDF-LO
included in the SIP invite message.
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Text-to-9-1-1 Saves Lives
Carriers choose service partners to provide the routing functionality. There are two
main vendors in the market and there is a high probability that both will be selected
by some of the carriers. Similarly, States, PSAP entities (e.g., MEB, NCTCOG) and
individual PSAPs will choose a text service provider to collect, route and consolidate
all wireless carriers text messages within their jurisdiction. The carriers also have
noted that only the one service provider they have chosen should be able to query
the carrier network for location. As a consequence, the two leading service providers
agreed to exchange text messages destined for delivery by the other service provider
as shown in Figure 4, via the service provider TCC/ESRP chosen by the destination
PSAP. The interface between the two TCCs is the i3 defined MSRP with location
PIDF-LO included in the SIP invite message.
Interoperability
CARRIER A
Commercial
Location
Server
Short
Message
Center
(SMSC)
Multimedia
Message
Center
(MMSC)
SMPP
Text
Emergency
Control i3/Pre-i3 Services i3/Pre-i3/WEB
Center
(TCC)
Routing Proxy
(ESRP)
Served PSAPs
i3
(Integrated, WEB, TTY)
CARRIER B
i3 Network
i3
Commercial
Location
Server
i3
Full i3 PSAP
Short
Message
Center
(SMSC)
Multimedia
Message
Center
(MMSC)
SMPP
Text
Emergency
i3/Pre-i3
Control
Services
i3/Pre-i3/WEB
Center
(TCC)
Routing Proxy
(ESRP)
Served PSAPs
(Integrated, WEB, TTY)
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Text-to-9-1-1 Saves Lives
Future Functionality of Text Service
We see the expansion of text services to include the ability to transfer pictures,
sound and video clips taken from cell phones to the PSAP as part of an incident or
related to the incident. NENA i3 reference architecture and the ATIS/TIA Native SMS
to 9-1-1 J- STD-110 are looking forward to supporting these additional capabilities
using common infrastructure with text. Callers requesting emergency assistance in
the future, particularly those using a smartphone, are unlikely to differentiate a textto-9-1-1
from an MMS-to-9-1-1 and these services should work in the same way.
Future messaging capabilities will also address OTT text applications. OTT content
refers to content that is generated by a third party and transported via the Internet.
Well known examples of OTT applications are Skype, Hulu and Netflix.
CARRIER A
Future Funcationality
Commercial
Location
Server
Short
Message
Center
(SMSC)
Multimedia
Message
Center
(MMSC)
SMPP
Text
Control
Center
(TCC)
i3/Pre-i3
Emergency
Services
Routing Proxy
(ESRP)
i3/Pre-i3/WEB
Served PSAPs
i3
(Integrated, WEB, TTY)
MMES
Gateway
i3
i3
i3 Network
i3
i3
Full i3 PSAP
OTT Text
Applications
Emergency
Services
Routing Proxy
(ESRP)
i3/Pre-i3/WEB
Served PSAPs
(Integrated, WEB, TTY)
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Text-to-9-1-1 Saves Lives
Conclusion
Text-to-9-1-1 is a
reality and will
become a viable
alternative to
making a voice call.
Text-to-9-1-1 is a reality and will become a viable alternative to making a voice call
when voice calls are not possible. We have also concluded that text-to-9-1-1 is a
reliable service and can work effectively as a means to communicate with a PSAP
call taker. Once it becomes a mature service, we anticipate the rate of text calls to be
1 in 10 calls that arrive at the PSAP. In the meantime, as the service develops, text
calls will be much less frequent.
The PSAP’s choice of delivery and display can have a profound effect on the
operations at the PSAP. There are three alternative delivery and display mechanisms
being offered by Text Service and CPE Vendors;
• Integrated with the CPE – this has the least impact on PSAP operations but may
require an upgrade to the CPE and IP connectivity;
• Web Viewer- offers an interim step to full CPE integration but will potentially have
larger operational impacts and will not interfere with voice calls;
• TTY - while it affords universal coverage without any form of PSAP
enhancements, has severe limitations for the texterand PSAP call taker and is
not recommended.
The important function of consolidating text from all wireless carriers into a single
stream is being performed by two service providers initially and possibly more in
the future. To enable all text messages to be delivered from all carriers regardless of
which service provider is chosen, there is a need to exchange messages. There is an
agreement in place to support this exchange through standard i3 interfaces.
Finally, looking to the future, we see additional services being added to text-to-9-1-1
to include OTT access from smartphone providers and multimedia to the PSAP
made available across the United States in the same manner as voice.
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Text-to-9-1-1 Saves Lives
Know Your Options
Contact us today to learn more so you can make sure you have all the information you
need to make an informed decision regarding your text-to-9-1-1 implementation.
PSAPinfo@intrado.com or 877-262-3775
About Intrado
In business for more than 30 years, Intrado, a subsidiary of West Corporation, has
maintained a focus and passion for saving lives and supporting the needs of public
safety. Agencies and telecommunication services providers throughout the world
depend on Intrado for emergency communication services and technology. Intrado’s
dedicated focus on emergency communications technology allows the company to
continue pioneering network innovations that improve emergency response.
Intrado TXT29-1-1 is an end-to-end platform for wireless carriers and PSAPs providing
a wireless subscriber the ability to text-to-9-1-1 directly in cases where verbal
communication is not possible or desirable. The PSAP has the ability to communicate
with the citizen through either an integrated solution via integration with the CPE , a
web viewer or TTY. The network infrastructure includes connectivity between Intrado
and the wireless service provider’s network, and Intrado and the PSAP. With the recent
agreement by the four major wireless carriers to provide text-to-9-1-1 service and
others coming onboard, PSAPs now have options and decisions to make as to how
they will deploy text-to-9-1-1 in their centers.
www.Intrado.com
© 2013, Intrado Inc. All rights reserved. The foregoing material (“Material”) is the exclusive property of Intrado Inc., created as a service to the emergency communications
community. The Material may not be copied, reproduced, displayed, broadcast, distributed or otherwise used in whole or in part without Intrado’s written permission, except that
making a limited number of copies of the Material for legitimate educational purposes might qualify as “Fair Use” under U.S. copyright law, and Intrado hereby consents to such
educational use, provided that Intrado is credited as the author of the Material and the following copyright notice accompanies the use: © 2012, Intrado Inc. All rights reserved.
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