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5G Americas Whitepaper: 5G Regulatory Policy Considerations & Spectrum Sharing 1 TABLE OF CONTENTS Executive Summary . 2 1. Introduction . 3 2. 5G Support of Communications with Emergency Services . 3 2.1 Overview of Emergency Calls . 3 2.2 5G Requirements for Support of Communications with Emergency Services . 6 2.3 Implications to 5G for Support of Communications with Emergency Services . 7 3. 5G Support of Wireless Emergency Alerts . 8 3.1 Overview of Wireless Emergency Alerts (WEA) . 9 3.2 5G Requirements for Support of Wireless Emergency Alerts . 11 3.3 Implications to 5G for Wireless Emergency Alerts (WEA) . 13 4. 5G Support of Earthquake Early Warnings. 13 4.1 Overview of Earthquake Early Warning Systems . 13 4.2 Earthquake Early Warning System Using Broadcast. 15 4.3 Regional EEWS with Broadcast Capabilities . 16 4.4 EEWS Geo-Targeting . 17 4.5 Potential Earthquake Alert Regulations . 19 4.6 5G Earthquake Early Warning Systems . 19 5. 5G Support of Public Safety Communications . 19 6. 5G Support of Individuals with Disabilities . 20 7. 5G Support of Lawful Surveillance . 21 8. Spectrum Sharing . 21 9. Conclusions and Recommendations . 24 Appendix A: Acronym List . 25 Acknowledgements . 26 5G Americas Whitepaper: 5G Regulatory Policy Considerations & Spectrum Sharing 2 EXECUTIVE SUMMARY As the world moves into the 5G era, significant thought is being given to regulatory requirements that will affect the design and deployment of 5G networks. Regulatory requirements primarily concern the need for 5G networks to support existing emergency and government services such as: Emergency voice calls, including those that may be text in one direction and voice in the other to handle issues such as background noise Use of SMS in emergency situations Multimedia emergency communications (e.g., Next Gen 911) Integration of smaller devices, such as Internet of Things (IoT), into emergency scenarios Wireless Emergency Alerts (WEA), including increased text message size and support for multiple languages Earthquake Early Warning Systems (EEWS) Public safety and first responders Support of persons with disabilities (e.g., real-time text service), including hearing, sight and mobility issue Lawful surveillance In addition to existing emergency and government services, it is expected that 5G systems will provide the ability to offer new public services. Probably one of the most important will be vehicle-to-vehicle communications that can make our roads and travel safer. Three major attributes of new 5G systems will be increased speeds, increased capacity and increased air interface reliability. These attributes will be leveraged and combined in a variety of ways to provide the transport that is required by the systems that provide these emergency and government services. Speed increases will enable the gathering and distribution of emergency information much more quickly than that achieved by 4G LTE systems, thereby saving lives and protecting people and their property. Capacity increases will enable the expanded use of multimedia as a basis for services that will benefit, rather than just as an add-on feature. High-definition x-rays and other medical data will be transported quickly to waiting medical personnel. First responders will have full-color videos of emergency situations in their hands and the details needed to resolve them. Reliability enhancements will provide assured delivery of data and reduce the need for follow-up queries and information transfers to those who make critical decisions. The doctor who is remotely monitoring a patient will know vital signs in real time. Shared spectrum is a building block for new network innovations that will help pave the way to full 5G deployments. The 5G system operates best when given large amounts of spectrum. While sole access to spectrum will continue to be a mainstay of major public networks, the ability to take advantage of additional spectrum that is shared with others will provide expansion capacities that may be extremely important to providing subscribers with the speeds and capacities they expect of 5G. The ability to share spectrum is also being focused on to support the entrance of new operators that may deploy a network in a single facility, such as a mall, refinery or factory. Experience being gathered now in the use of shared spectrum for 4G LTE is expected to provide the foundation for the sharing of spectrum for 5G systems. 5G Americas Whitepaper: 5G Regulatory Policy Considerations & Spectrum Sharing 3 As requirements related to 5G services emerge from the U.S. FCC and other regulatory bodies, the industry should provide the necessary resources to identify standards gaps and develop standards solutions. 1.INTRODUCTION This white paper examines two important aspects of 5G network deployment and use: regulations and shared spectrum. This paper addresses all 5G radio interface technologies, including 3GPP NR. The regulatory aspects are dealt with in sections 2 through 8 as follows: Section 2 discusses the use of 5G for emergency services Section 3 discusses WEA and 5G Section 4 discusses 5G impacts on earthquake early warning Section 5 discusses the use of 5G for public safety Section 6 discusses how individuals with disabilities can take advantage of 5G Section 7 discusses 5G networks and lawful surveillance Section 8 discusses spectrum sharing aspects As readers will note, 5G technologies open even greater capabilities and frontiers to subscribers and operators alike for supporting public communication needs than has been experienced with 4G. In addition to the regulatory aspects discussed in this paper, all services and features offered over 4G, such as those found in the short, non-exclusive list below, are expected to be available over 5G networks: a. Caller id/spoofing b. Lost/stolen handsets c. Cybersecurity aspects d. Manual roaming e. Fraud 2. 5G SUPPORT OF COMMUNICATIONS WITH EMERGENCY SERVICES When an individual needs the assistance of Emergency Services (e.g., police, fire, ambulance), the individual will initiate an emergency call from their mobile device. Support of calls to Emergency Services is a required functionality for generations of wireless and wireline communications and like all previous versions of cellular, 5G networks must support voice and non-voice communications with emergency services such as police and fire departments. 2.1 OVERVIEW OF EMERGENCY CALLS Figure 1 depicts the network architecture for the support of emergency communications from mobile devices using voice, RTT or SMS. Figure 1 is followed by descriptions for these methods of emergency communications. 5G Americas Whitepaper: 5G Regulatory Policy Considerations & Spectrum Sharing 4 Figure 1: Emergency Services Network Architecture. Voice Emergency Call to Emergency Services The general sequence for a voice emergency call from a mobile device to emergency services is as follows: 1. The individual dials the phone number for emergency services (e.g., 911) on her mobile device. 2. The mobile device recognizes the dialed digits as a request for emergency services. The mobile device temporarily disables other services that could interrupt or interfere with the emergency call (e.g., call waiting is disabled for the duration of the emergency call). In some cases, the mobile device may not recognize the phone number as an emergency services number. 3. The call is sent over the cellular network to the originating network with signaling that indicates that the incoming call is an emergency call. If the mobile device does not signal that the phone number is for emergency services but the cellular network recognizes it as such, the cellular network will convert the call to an emergency call and notify the mobile device. 4. The originating network gives the incoming emergency call to specified dedicated network elements for processing. Using the identity of the cell site serving the mobile device, the appropriate emergency services network is selected and the incoming emergency call is routed to the selected emergency services network. Concurrently, the originating network will initiate the location determination procedures to obtain a high-accuracy location of the caller, which is known as a dispatchable address. 5. The emergency services network receives the incoming emergency call and using the identity of the cell site serving the mobile device, the appropriate public safety answering point (PSAP) is selected. The incoming emergency call is routed to the selected PSAP. 5G Americas Whitepaper: 5G Regulatory Policy Considerations & Spectrum Sharing 5 6. A communications path is established between the mobile device and the PSAP. A PSAP telecommunicator will answer the emergency call and will determine the nature of the emergency. The PSAP telecommunicator may then dispatch the appropriate emergency services (e.g., police, fire, paramedics) to the users location. The PSAP telecommunicator can use either the location provided by the caller or the results of the local determination procedures initiated in Step 4 for the users location to be provided to the emergency services personnel. RTT to Emergency Services RTT is an optional media component that proposes full-duplex, bi-directional, character-by-character textual communications between the caller and the PSAP telecommunicator. The sequence of establishing the RTT communications with a PSAP is the same as the previously described sequence description for a voice emergency call. The presence of the RTT media component can be indicated during the initial call set-up or added after voice communications have been established between the caller and the PSAP telecommunicator. The PSAP telecommunicator still receives the incoming audio portion, so he can listen for background noises that might provide additional information. The presence of both the voice and the RTT components on the emergency calls enables the following two special modes of operation that may be especially useful for individuals with disabilities: Voice Carry Over (VCO) In this scenario, the caller speaks to the PSAP telecommunicator but receives the responses as text. This is useful for individuals with impaired hearing or for situations with excessive background noise in the callers environment. Hearing Carry Over (HCO) In this scenario, the caller types his request to the PSAP telecommunicator but receives a voice response. This is useful when the caller is unable to speak. SMS to Emergency Services SMS is another method of text communications with PSAP telecommunicators. Unlike RTT to emergency services described above, SMS to emergency services has no audio component. SMS is asynchronous message-based textual communications. A special standards-based network element converts the SMS communications into pseudo-dialogue-type communications. There is no location determination functionality for SMS messages to determine the individuals location. Consequently, one of the first questions the PSAP tele-communicator asks is, what is the individuals current location? The general sequence for SMS to emergency services is as follows: 1. The individual types their SMS message and enters “911” as the destination. 2. The SMS is sent over the cellular network to the originating network. 5G Americas Whitepaper: 5G Regulatory Policy Considerations & Spectrum Sharing 6 3. The originating network examines the destination address of the SMS message. If the destination address is “911,” the SMS message and the identity of the cell site serving the mobile device are sent to a special SMS-to-911 network element. 4. The special SMS-to-911 network element uses the identity of the cell site serving the mobile device to select the appropriate Public Safety Answering Point (PSAP. The incoming SMS message is routed to the selected PSAP. 5. When the PSAP receives the SMS message and delivers it to a PSAP telecommunicator, the special SMS-to-911 network element now has the communications paths to establish and maintain a pseudo-dialogue path. SMS responses from the PSAP telecommunicator are routed to the special SMS-to-911 network element, which then sends SMS messages to the mobile device. Subsequently, SMS messages from the mobile device are delivered to the special SMS-to-911 network element, which then routes the subsequent SMS messages to the same PSAP telecommunicator. This pseudo-dialogue remains until it is terminated by the PSAP telecommunicator. 6. Via the SMS messages on this pseudo-dialogue path, the PSAP telecommunicator will ask the individual for their current location and will determine the nature of the emergency. The PSAP telecommunicator may then dispatch the appropriate emergency services (e.g., police, fire, paramedics) to the
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