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Telecom Decision CRTC 2006-44
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Ottawa, 28 July 2006 |
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Applications for assignment of the 5-1-1 access code
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Reference: 8698-C142-200601725,
8698-C12-200506719,
8698-J44-200500240,
8698-C12-200415522 |
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In this Decision,
the Commission approves an application by the Intelligent
Transportation Systems Society of Canada, on behalf of the Canada 511
Consortium, requesting the assignment of the 5-1-1 access code for the
provision of weather and traveller information services, on the
condition that the services remain free of charge. |
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The Commission denies an
application by the Canadian Association for Suicide Prevention for
assignment of the 5-1-1 access code for crisis intervention and suicide
prevention services on the basis that the application does not meet all
applicable criteria. |
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Introduction
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1. |
On 10 January 2005, the Intelligent
Transportation Systems Society of Canada (ITS Canada), on behalf of the
Canada 511 Consortium1
(ITS Canada et al.), filed an application pursuant to Part VII of the
CRTC Telecommunications Rules of Procedure (the Rules), proposing
the assignment of the 5-1-1 access code for the purpose of delivering
nationwide public weather and traveller information services. |
2. |
ITS Canada et al. initially proposed to
charge for delivery of weather information but filed an amended
application dated 11 April 2005 that removed the proposed charge, making
all of their proposed services free of charge. |
3. |
On 15 February 2006, the Canadian
Association for Suicide Prevention (CASP) filed an application pursuant
to Part VII of the Rules, proposing the assignment of the 5-1-1 access
code for the purpose of delivering urgent crisis intervention and
suicide prevention services. The application was filed on behalf of the
Canadian Distress Line Network (CDLN).2 |
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ITS Canada et al.'s application
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4. |
ITS Canada et al. submitted that their
proposed 5-1-1 system would provide callers with real-time information
on severe weather conditions, traffic congestion, status of roadway
closures and conditions, as well as trip and schedule information. They
also submitted that the service would allow callers to receive weather
information about any location in Canada, regardless of the call's
origin. |
5. |
ITS Canada et al. submitted that if the
Commission approved their proposal for the assignment of the 5-1-1
access code, their objective was to have the 5-1-1 service available
across Canada, with weather forecasts and warnings available within 90
days after approval and traveller information added as data providers
were able to provide that information. ITS Canada et al. also submitted
that it would be reasonable for the Commission to monitor the roll-out
and use of this resource through monitoring reports or meetings with
5-1-1 leaders across Canada. |
6. |
ITS Canada et al. indicated that the Canada
511 Consortium would establish a single point of contact to act as its
agent for the implementation, operation, and use of the 5-1-1 access
code, and for communications with telecommunications service providers
(TSPs) and the Commission. ITS Canada et al. submitted that they would
select, via a request for proposals process, an entity such as a systems
integration company, management company, or TSP to perform the role of
the 5-1-1 service provider. |
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CASP's application
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7. |
CASP submitted that designating the 5-1-1
access code for urgent crisis intervention and suicide prevention would
enable service providers to fulfill the association's objective of
accessibility. It also submitted that making the 5-1-1 access code
synonymous with crisis intervention and suicide prevention in the same
way that the 9-1-1 access code is synonymous with emergency response
service would develop Canadians' awareness of the number to call if they
were overwhelmed by loneliness, loss, grief, isolation, pain, and
depression. |
8. |
CASP submitted that by developing a network
of crisis lines, its members would ensure that all Canadians had
frontline, direct access to free, confidential crisis intervention and
suicide prevention services at all times, in English and French, as well
as in over 120 other languages. |
9. |
CASP indicated that the purpose of the
telephone crisis interventionist was to listen to a caller's concerns,
assess the nature of the crisis, and reduce a caller's level of anxiety
by defining the source of the crisis, clarifying positive options for
resolving it, and providing appropriate assistance. |
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Process
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10. |
In response to ITS Canada et al.'s application,
the Commission issued ITS Canada application for access code 5-1-1,
Telecom Public Notice CRTC 2005-5,
9 June 2005 (Public Notice 2005-5),
inviting parties to comment on ITS Canada et al.'s application. |
11. |
On 11 July 2005, Aliant Telecom Inc., Bell
Canada, and Saskatchewan Telecommunications (SaskTel) (collectively, the
Companies), TELUS Communications Inc.3
and TELE-MOBILE Company (collectively referred to as TCC), and the
Canadian Wireless Telecommunications Association (CWTA) filed comments. |
12. |
On 5 August 2005, the Companies and MTS
Allstream Inc. (MTS Allstream) submitted interrogatories to ITS Canada
et al. On 19 August 2005, ITS Canada et al. provided responses to the
interrogatories. |
13. |
On 29 September 2005, the Companies, MTS
Allstream, and ITS Canada et al. filed further comments. |
14. |
The Commission received reply comments from
ITS Canada et al. and CASP dated 11 October 2005, from SaskTel
dated 2 November 2005, and from MTS Allstream, ITS Canada et al.
and the 211 Canada Steering Committee (211 CSC) dated 4 November 2005.
The record of the Public Notice 2005-5
proceeding closed on 4 November 2005. |
15. |
On 15 February 2006, CASP filed a Part VII
application requesting that the 5-1-1 access code be assigned for
urgent crisis intervention and suicide prevention services. CASP's
application was served on all parties to the Public Notice 2005-5
proceeding. |
16. |
On 20 February 2006, ITS Canada et al. filed
a letter requesting that the Commission proceed with the CASP Part
VII application. They noted that significant resources had been invested
by the industry in participating in the Public Notice 2005-5
proceeding over the previous year and indicated that participating
in a Part VII process initiated by the CASP application would be the
most efficient way to respond under these circumstances. |
17. |
In a letter dated 9 March 2006, the Commission
advised all parties to Public Notice 2005-5
that the record of the proceeding had been re-opened to deal with
the CASP Part VII application. |
18. |
The Commission received comments regarding
CASP's application from the Ontario 9-1-1 Advisory Board (OAB) dated 10
March 2006; from the 211 CSC dated 15 March 2006; and from the
Companies, MTS Allstream, TCC, and ITS Canada et al. dated 17 March
2006. |
19. |
On 30 March 2006, CASP filed reply
comments. |
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Background
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20. |
Within the North American Numbering Plan
(NANP), which provides the framework for a continent-wide telephone
number system, N-1-1 codes are assigned as an industry standard
to provide access to specific types of services by dialing an
abbreviated telephone number. For example, callers can dial 4-1-1 for
directory assistance and 9-1-1 for emergency services. The 5-1-1 access
code has not been assigned but was used in the past by wireless
customers for roaming purposes. This access code was reclaimed in
December 2004 and the reclamation process was completed by 30 June 2006. |
21. |
In Allocation of three-digit dialing
for public information and referral services, Decision
CRTC 2001-475, 9 August
2001 (Decision 2001-475), the
Commission established the following guidelines to be used when considering
the assignment of unused N-1-1 codes: |
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- there must be a compelling need for three-digit access that cannot
be satisfied by other dialing arrangements or it is demonstrated that
existing dialing arrangements are not suitable for accessing the
needed services;
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- the assignment of an unused N11 code should be to a service or
services rather than a specific organization;
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- the provision of N11 dialing is to be based on a need to serve the
broad public interest (including providing access to the telephone
network to disadvantaged individuals or groups);
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- the N11 dialing should not confer a competitive advantage on the
service provider(s) reached by this number;
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- the services to be provided through N11 dialing are to be widely
available geographically and on a full-time or extended-time basis;
and
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- where possible, the N11 allocation to a service does not conflict
with NANP and is in keeping with the CSCN4
guidelines for N11.
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Issues |
22. |
The following issues must be examined in
the determination of the assignment of the 5-1-1 code: |
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a) The guidelines for assigning N-1-1 codes;
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b) Public awareness campaign;
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c) Implementation time frame; and
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d) Routing, cost recovery, and other issues.
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a) The guidelines for assigning N-1-1 codes
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i) There is a compelling need for N-1-1 access or existing dialing
arrangements are not suitable
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ITS Canada et al.'s
proposal |
23. |
ITS Canada et al. submitted that current
dialing arrangements for traveller and weather services varied from
province to province and within provinces and territories.
ITS Canada et al. noted that those services were currently provided by
federal, provincial, territorial, and local governments, as well as
other service providers across the country, but that they were not
universally and uniformly available. They added that having a
universally available three-digit number would greatly facilitate public
access to traveller and weather information nationwide, eliminating the
need for users to determine local access numbers. |
24. |
ITS Canada et al. argued that every
Canadian would benefit from more efficient transportation systems in
Canada and that there was a very broad public interest in ensuring that
Canadian transportation systems were used as efficiently as possible.
ITS Canada et al. submitted that evidence available from the United
States confirmed that existing multiple-number dialing arrangements were
not effective for public access and that there were significant benefits
to individuals, businesses, and governments from the introduction of
5-1-1 service for weather and traveller information services. |
25. |
TCC submitted that a single access number
for weather and traveller information could overcome the inadequacies of
existing dialing arrangements. |
26. |
CASP was of the view that ITS Canada et al.
had not satisfied this criterion. |
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CASP's proposal |
27. |
CASP submitted that in light of the
multiple telephone numbers that were currently used to provide crisis
intervention and suicide prevention services, and the increasing number
of jurisdictions that were moving from 7- to 10-digit dialing, Canada
must develop a simple way for callers to directly access crisis
intervention and suicide prevention services when they were urgently
needed by individuals in crisis. CASP added that when an individual was
suicidal or suffering from personal crisis, it was essential that they
knew who and where they could call to receive help. According to CASP,
the current dialing requirements undermined the ability of Canadians to
receive the essential, urgent, and appropriate assistance that was
available to individuals in crisis. |
28. |
CASP submitted that the services currently
provided by or planned for the 2-1-1 and 8-1-1 access codes were not
capable of delivering the support that was recognized to be critical in
mitigating a crisis prior to it becoming an emergency.5
CASP added that based on the present state of health information
services in operation in Canadian provinces, callers to 8-1-1 would only
have access to non-urgent health care teletriage services. |
29. |
CASP submitted that the emergency response
services provided by dialing 9-1-1 were not designed to offer support
and counselling at an urgent and critical moment in a caller's life. It
submitted that 9-1-1 service was intended to provide immediate
assistance to those who were at risk of imminent harm or who had
suffered harm as a result of an emergency situation. CASP added that, in
contrast, those who provided crisis intervention and suicide prevention
services were trained to intervene in a crisis and provide urgent
support and assistance prior to the escalation of a crisis to an
emergency. |
30. |
CASP noted that distress lines in British
Columbia had recently developed, in conjunction with 9-1-1 operators and
the local telecommunications carrier, a pilot suicide prevention line –
1-800-SUICIDE – that served all of British Columbia. According to CASP,
a similar toll-free suicide prevention line had operated throughout
Quebec for more than four years. |
31. |
TCC submitted that since distress centres
had supported the assignment of 2-1-1 for the provision of information
and referral services in the proceeding leading to Decision 2001-475,
it could only assume that the distress centres thought that 2-1-1
would, at least in part, meet the needs of callers to their services.
TCC also submitted that the Commission should carefully consider whether
the 8-1-1 access code could address at least some of the needs described
in CASP's application, once such services were fully implemented.
TCC indicated that it was unclear whether there was a compelling need
for a separate, dedicated, three-digit access number that could not
be satisfied by other dialing arrangements. |
32. |
The 211 CSC submitted that 2-1-1 service
assisted callers in crisis to quickly and safely reach the trained help
they needed. The 211 CSC further submitted that building on the
collaborative relationship between 2-1-1 proponents and the crisis
intervention and suicide prevention community would result in a better,
more comprehensive service access and delivery system. The 211 CSC added
that separating access to crisis intervention and suicide prevention
services from the broader 2-1-1 community services access system would
serve to increase the stigma and shame that CASP had identified as one
of the main barriers to care faced by people coping with personal
crisis, emotional turmoil, depression, or mental illness. The 211 CSC
submitted that it did not believe that CASP's application met the
criterion regarding compelling need or unsuitable existing arrangements.
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33. |
The 211 CSC submitted that professional
2-1-1-trained information and referral specialists offered 24-hour,
live, multilingual assistance. It also submitted that each licensed
2-1-1 service provider must meet the standards of the Alliance of
Information and Referral Systems (AIRS) accreditation program and that
their staff must attain and maintain professional certification to
answer 2-1-1 calls. The 211 CSC indicated that a 2-1-1 service provider
must both train its staff in how to handle a crisis call and develop
service delivery protocols with 9-1-1 service providers and area crisis
and suicide prevention telephone services. It submitted that although
crisis or distress lines and 2-1-1 or information and referral (I & R)
lines were unique services, there were also some significant
similarities in service provision, including active listening, risk
assessment, and information on community resources. The 211 CSC noted
that two of the five existing 2-1-1 centres in Canada – in Calgary and
Edmonton – were crisis intervention and suicide prevention service
providers. |
34. |
The OAB submitted that primary public
safety answering points were operated by a variety of police services
across 99 percent of Ontario. The OAB argued that 9-1-1 call-takers in
Ontario were well trained and dealt daily with the responsibility of
dealing with callers in an endless variety of crises. It submitted that,
generally, when a 9-1-1 caller was seeking counselling but was not
deemed to be an immediate danger to themselves or to others, the caller
was referred to an appropriate local crisis line. Conversely, when
advised by a crisis centre about a caller in need of immediate emergency
help, 9-1-1 centres worked closely with that crisis centre to achieve a
safe and effective response. The OAB indicated that it viewed its
relationship with the crisis centres to be a reciprocal one. |
35. |
ITS Canada et al. submitted that they
recognized that the organizations involved in crisis intervention and
suicide prevention provided a valuable social service that was necessary
to the health and well-being of Canadians. They submitted, however, that
CASP's application did not meet the criteria for the allocation of an
N-1-1 access code. ITS Canada et al. suggested that the Commission
should consider that the service was being properly delivered or could
be delivered through the existing assignments of the 2-1-1, 8-1-1, and
9-1-1 access codes or via the toll-free number 1-800-SUICIDE. |
36. |
According to ITS Canada et al., for those
communities that had implemented or were implementing 2-1-1 service, the
CASP application raised important issues regarding proper definition of
roles, service coordination, additional costs to the public, and
duplication of services. They suggested that assigning an additional
N-1-1 number for the single purpose of suicide prevention would create
an overlap, thereby adding to the public's confusion about where to turn
for help. ITS Canada et al. submitted that since the 2-1-1 service was
already able to fulfill the function of providing this crucial, urgent
information, another similar number would add to the very confusion and
frustration that 2-1-1 was intended to alleviate. |
37. |
ITS Canada et al. also submitted that the
8-1-1 access code could provide a viable option for the supply of
critical mental heath care solutions. They suggested that the 8-1-1
service's highly trained medical staff, service arrangements with 9-1-1,
provincial funding, province-wide 24-hour service, and the protocol for
handling callers with urgent medical conditions served to address all
types of medical needs, including mental health conditions such as
severe depression, stress, or suicidal thoughts. |
38. |
ITS Canada et al. added that a coordinated
effort among crisis and distress centres to increase awareness of crisis
and suicide issues in Canada and the use of a highly visible and easily
remembered number similar to 1-800-SUICIDE would serve to improve access
for Canadians, without using an N-1-1 code. They indicated that the
toll-free number 1-800-SUICIDE was used in the United States for suicide
prevention and that similar initiatives existed in British Columbia and
Quebec. ITS Canada et al. was of the view that resolving the
coordination difficulties that might exist among distress and crisis
centres could be accomplished through alternative means, including a
1-800-SUICIDE hotline, along with increased promotion of the 2-1-1
service. |
39. |
In reply, CASP submitted that 2-1-1 was a
referral service that could not and did not provide counselling
services. It also submitted that it was not widely available in Canada
and hence, the majority of Canadians did not have constant access to
this service. |
40. |
CASP also noted that while 8-1-1 service
had not been implemented for health teletriage yet, existing telephone
health triage services did not provide adequate crisis intervention
services. CASP added that based on its experience and observation,
persons contemplating suicide might not call 9-1-1 since police
intervention or emergency hospital admittance was not what the caller
wanted. |
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Commission's analysis |
41. |
The Commission notes that there is broad
support from many parties, including different levels of government, for
ITS Canada et al.'s proposed assignment of the 5-1-1 access code.6 |
42. |
The Commission considers that ITS Canada et
al.'s proposal would provide greater safety and convenience for
travellers as well as benefits for the environment. |
43. |
The Commission notes that none of the
existing or proposed N-1-1 service providers are providing or planning
to provide weather and traveller information as proposed by
ITS Canada et al. The Commission therefore concludes that there would be
no possible confusion with the services to which the other N-1-1 access
codes have been assigned. |
44. |
The Commission notes that
although weather and traveller information is available separately
through a number of sources, such information is not available through
an N-1-1 service and no one-stop integrated service currently exists to
provide both types of information. Accordingly, the Commission considers
that ITS Canada et al. meet the first criterion of the guidelines. |
45. |
The Commission notes that there is also
broad support for CASP's proposed assignment of the 5-1-1 access code
from different organizations as well as 16 individuals and several
government representatives.7 |
46. |
With respect to the suggestions that CASP
use the 8-1-1 service for crisis intervention and suicide prevention,
the Commission notes that in Alberta Health and Wellness' 2004
application for the 8-1-1 access code, crisis intervention and suicide
prevention were not part of the proposed service for non-urgent health
teletriage. The Commission recognizes that those call centres will be
staffed with highly trained health professionals, but that these
professionals may not be trained to provide suicide prevention services.
The Commission does not consider that callers in distress should be
encouraged to dial 8-1-1 since crisis intervention and suicide
prevention are not part of the service's mandate. |
47. |
The Commission notes that 9-1-1 call-takers
are well-trained operators who are used to dealing with people in
crisis, but that the 9-1-1 emergency service is essentially that of a
dispatcher. The Commission recognizes that the 9-1-1 services could at
times complement crisis intervention and suicide prevention, but that
those services are very distinct and different in nature from emergency
services. It is also important to note that 9-1-1 calls must remain
short to ensure that lines are always available so that callers do not
get busy signals. The Commission recognizes that people will dial 9-1-1
for crisis intervention and suicide prevention occasionally but
considers that this practice should not be encouraged. The Commission
notes that the 9-1-1 call-taker's response to these calls is to transfer
them to a crisis intervention service. |
48. |
With respect to the use of the 2-1-1 access
code for crisis intervention and suicide prevention, the Commission
notes that in the proceeding leading to Decision 2001-475,
the United Way submitted that 2-1-1 would provide information and
referrals to individuals on a wide range of services available in
their communities, including but not limited to: food, shelter, and
clothing; emergency assistance; and crisis intervention. The Commission
also notes that in Decision 2001-475,
the Commission approved the allocation of 2-1-1 dialing to provide
information and referral services based on the United Way's proposed
model. |
49. |
The Commission notes that those 2-1-1 call
centres established in collaboration with 211 CSC must meet the
standards of the accreditation program developed by AIRS, and that call
centre staff must attain and maintain professional certification to
answer 2-1-1 calls or to manage 2-1-1 resource databases. |
50. |
The Commission considers that given the
stringent standards of the accreditation for 2-1-1 I & R call centres,
2-1-1 call-takers are sufficiently trained to fulfill an assessment role
in crisis intervention, which CASP indicated was to listen to the
caller's concerns, assess the nature of the crisis, and reduce the
caller's level of anxiety by defining the source of the crisis,
clarifying positive options for resolving it, and providing appropriate
assistance. |
51. |
The Commission notes that two of the
existing 2-1-1 call centres in Canada are crisis centres that have been
accredited to provide I & R services. The Commission considers that the
services to which CASP proposed that the Commission assign the 5-1-1
code are already being provided or could be provided through 2-1-1
services. |
52. |
The Commission recognizes that CASP members
provide a valuable social service that is beneficial to the health and
well-being of Canadians. The Commission considers, however, that
assigning an N-1-1 code for crisis intervention and suicide prevention
would create at the minimum a partial overlap of services with 2-1-1 and
would add to the public's confusion regarding which number to call for
help. The Commission agrees with the 211 CSC submission that building on
the relationship between 2-1-1 service providers and the crisis
intervention and suicide prevention community would result in a better,
more accessible, and more comprehensive service, and a better delivery
system. |
53. |
The Commission notes that the toll-free
number 1-800-SUICIDE is being used in British Columbia, part of Quebec,
and the United States for suicide prevention. The Commission further
notes that this toll-free number is currently available for use in the
remainder of Canada, should other suicide prevention centres choose to
use it. |
54. |
The Commission agrees with ITS Canada et
al.'s position that a coordinated effort among crisis and distress
centres to increase awareness of crisis and suicide issues in Canada,
and the use of a highly visible and easily remembered number such as
1-800-SUICIDE, would serve to improve access by Canadians to the help
they require. The Commission considers that a bilingual number like
1-800-SUICIDE might reduce some of the confusion about which number to
call for help and would also help to reduce the duplication of services
with 2-1-1 service providers. |
55. |
The Commission considers that
1-800-SUICIDE, which is available for use in all of Canada, could
constitute a suitable existing arrangement to provide urgent crisis
intervention and suicide prevention services. |
56. |
The Commission considers that suitable
arrangements other than use of the 5-1-1 code could be used to provide
urgent crisis and suicide prevention service, and that CASP has failed
to demonstrate the contrary. |
57. |
In light of the above the Commission
concludes, therefore, that CASP has not demonstrated a compelling need
that cannot be satisfied by other dialing arrangements or that existing
arrangements are not suitable. CASP did not demonstrate to the
satisfaction of the Commission that the 2-1-1 code would not be suitable
for accessing the needed crisis intervention and suicide prevention
services. |
58. |
In summary, the Commission considers that
only ITS Canada et al.'s application meets the criterion that there is a
compelling need for N-1-1 access that cannot be satisfied by other
dialing arrangements or existing dialing arrangements are not suitable. |
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ii) The N-1-1 code should be assigned to a service, rather than an
organization
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ITS Canada et al.'s
proposal |
59. |
ITS Canada et al. submitted that under
their proposal, the 5-1-1 access code would not be tied to a specific
organization, but would be available for use by all provincial and
territorial jurisdictions across Canada. ITS Canada et al. submitted
that each province would have the authority to determine the overall
design of traveller information within the province, working in
conjunction with the Canada 511 Consortium and the 5-1-1 service
providers. |
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CASP's proposal |
60. |
CASP submitted that its proposed assignment
of the 5-1-1 access code would enable the organizations that made up the
CDLN to coordinate the services provided by dozens of independent but
cooperating crisis line and distress centre organizations. It submitted
that the organizations were working together toward a national
accreditation system that would ensure the maintenance of high standards
by all service providers within the CDLN. |
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Commission's analysis |
61. |
The Commission finds that both applications
meet the criterion that the N-1-1 code be assigned to services rather
than an organization. |
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iii) N-1-1 service should serve the broad public interest
|
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ITS Canada et al.'s
proposal |
62. |
ITS Canada et al.
submitted that an easily remembered number such as 5-1-1 was critical to
providing services in a way that was accessible to all Canadians. ITS
Canada et al. indicated that Environment Canada's current network
received 35 million calls per year and it was anticipated that the
weather information portion of the 5-1-1 service would generate
100 million calls annually. |
63. |
ITS Canada et al. submitted that using the
5-1-1 access code for weather and traveller information would convey
substantial public and private benefits, such as increased efficiency,
reduced traffic congestion and pollution, lower fuel consumption,
superior traffic management, enhanced safety, and better decision-making
during inclement or severe weather. |
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CASP's proposal |
64. |
CASP submitted that the 5-1-1 access code
and services provided would be accessible to all Canadians. CASP
indicated that, collectively, the suicide prevention organizations
received more than 40,000 suicide-related telephone calls alone in a
typical year. CASP added that assigning the 5-1-1 code for provision of
crisis intervention and suicide prevention services would benefit all
Canadians, not just those who called. |
65. |
CASP submitted that the assignment of the
5-1-1 access code to crisis intervention and suicide prevention services
in Canada had several benefits, including improving access to an
essential service; increasing the safety of Canadians by reducing the
burden on 9-1-1 systems, thereby enhancing emergency response time; and
improving service outcomes and consequently improving the general public
health and safety of Canadians. |
66. |
CASP submitted that designating the 5-1-1
code to crisis intervention and suicide prevention services was a means
to save lives, and that the enormous human cost associated with suicide
and self-harming behaviours imposed a significant financial burden on
Canadian society. |
67. |
TCC submitted that ITS Canada et al.'s
proposal would serve the broad public interest. TCC noted that there was
a limited use for 5-1-1 service as contemplated in the CASP application
but added that the Commission would have to balance the lower volume
demand for 5-1-1 to access essential crisis intervention and suicide
prevention services with the much higher volume demand for 5-1-1 to
support transportation and weather information services, although for a
somewhat less essential service. |
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Commission's analysis |
68. |
The Commission notes that easy access to
weather and traveller information can ultimately improve safety on the
roads, reduce congestion and pollution and lower fuel consumption, and
therefore benefit all Canadians. The Commission also notes that suicide
is a significant social and health issue in Canada and that easy,
one-step access to help can save lives. |
69. |
The Commission considers that both proposed
services would serve the broad public interest and be accessible
directly or indirectly by a large number of Canadians, and therefore
concludes that both applications meet this criterion. |
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iv) The N-1-1 service should not confer a competitive advantage on
any service provider(s)
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ITS Canada et al.'s
proposal |
70. |
ITS Canada et al. submitted that the use of
the 5-1-1 access code for weather and traveller information services
would provide a regional service provided jointly by provincial,
territorial, and municipal governments, and would not be commercial in
nature. |
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CASP's proposal |
71. |
CASP submitted that the assignment of the
5-1-1 access code to crisis intervention and suicide prevention services
would not confer a competitive advantage on the service providers
reached by this number. CASP added that the organizations that offered
these services were non-commercial entities that relied on highly
trained volunteers and professionals to provide timely assistance to
Canadians in crisis. |
|
Commission's analysis |
72. |
The Commission considers that both services
would not confer a competitive advantage on any service providers and
therefore meet this criterion. |
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v) The N-1-1 service should be widely available on a full-time or
extended-time basis
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ITS Canada et al.'s
proposal |
73. |
ITS Canada et al. submitted that their
proposed 5-1-1 service would be available 24 hours a
day, 7 days a week to all Canadians. |
|
CASP's proposal |
74. |
CASP submitted that the 5-1-1 access code
would enhance the availability of crisis intervention and suicide
prevention services for all Canadians, 24 hours a day, 7 days a week. |
|
Commission's analysis |
75. |
The Commission is satisfied that both
services would be available on a full-time basis and therefore meet this
criterion. |
|
vi) N-1-1 allocation should not conflict with the NANP and should be
in keeping with CSCN guidelines
|
|
ITS Canada et al.'s
proposal |
76. |
ITS Canada et al. submitted that the
assignment and adoption of the 5-1-1 access code for weather and
traveller information services in Canada would be consistent with both
the NANP and the CSCN policy for the use of N-1-1 access codes. |
77. |
TCC was of the view that the assignment of
the 5-1-1 access code to transport, weather, and transit services did
not conflict with any NANP or CSCN guidelines for N-1-1 access codes.
|
|
CASP's proposal |
78. |
CASP submitted that the adoption of the
5-1-1 access code for crisis intervention and suicide prevention
services in Canada would maintain the integrity of the NANP, and would
be in line with the CSCN policy for the use of N-1-1 numbers. |
79. |
ITS Canada et al. submitted that CASP's
application was inconsistent with the NANP because 5-1-1 access code is
used for the provision of travelling information in the United States.
|
|
Commission's analysis |
80. |
The Commission considers that neither
application conflicts with the NANP and that each application is in
keeping with CSCN guidelines. |
|
Commission's
determinations |
81. |
In light of the fact that only ITS Canada
et al.'s proposal meets all six of the criteria established by the
Commission for the assignment of an N-1-1 access code, the Commission
considers it appropriate to approve ITS Canada et al.'s application. The
Commission notes that ITS Canada et al. initially proposed to charge for
the delivery of weather information and that they later amended their
application, making all of their proposed services free of charge. In
the interest of greater accessibility for all Canadians, the Commission
approves ITS Canada et al.'s application on the condition that
the services remain free of charge. The Commission denies CASP's
application. |
82. |
In Decision 2001-475,
the Commission noted that it would be open to using a public process
to reassign an N-1-1 access code to another service if it believed
the original assignment was not appropriate to the service being delivered.
The N-1-1 is a scarce resource and the Commission considers it necessary
that it be provided with all the information that it needs to monitor
service deployment, if required. |
83. |
The Commission directs the 5-1-1 weather
and travel service providers to track roll-out information, such as
locations where the service is available, which service is available,
and the usage (number of calls). The Commission also directs that these
details be tracked separately for weather and traveller information.
This information should be available upon request by the Commission in
order to evaluate service deployment. This information could eventually
be used as the basis for deciding whether to launch a reclamation
process in the future as the Commission may deem appropriate. |
84. |
The Commission's consideration of
implementation details regarding ITS Canada et al.'s proposal is set out
in the following sections. |
|
b) Public awareness campaign
|
|
Positions of parties |
85. |
ITS Canada et al. submitted that a public
awareness campaign would help to reduce any confusion among the various
N-1-1 services.8 |
86. |
The Companies submitted that it was critically
important that there was no confusion regarding the types of services
available via the 5-1-1 access code versus other N-1-1 access codes,
in particular 9-1-1 emergency services. The Companies added that,
consistent with Assignment of 311 for non-emergency municipal government
services, Telecom Decision CRTC 2004-71,
5 November 2004 (Decision 2004-71),
agencies using the 5-1-1 access code should be required to clearly
communicate in their promotional materials the purposes for which
the proposed 5-1-1 service was intended. |
87. |
TCC requested that the Commission direct
ITS Canada et al. to undertake a comprehensive public awareness
campaign, in which they should clearly indicate to the public the types
of services that would be available through 5-1-1 and provide
information about how those services differed from the other newly
introduced N-1-1 services. |
|
Commission's analysis and
determinations |
88. |
The Commission notes that ITS Canada
et al., the Companies and TCC agreed on the need for effective
public awareness campaigns associated with the implementation of the
5-1-1 service. The Commission also notes that in Decision 2004-71
and Alberta Health and Wellness' request for code 8-1-1 for non-urgent
health teletriage services, Telecom Decision CRTC 2005-39,
6 July 2005 (Decision 2005-39),
the Commission considered that it was necessary and in the public
interest for service providers to promote awareness of their respective
N-1-1 services, especially for the purpose of minimizing confusion
between emergency and non-emergency services. Similarly, the Commission
considers it necessary and in the public interest for weather and
traveller information service providers to promote awareness of their
5-1-1 services for the same purposes. Accordingly, the Commission
directs all 5-1-1 service providers to undertake comprehensive and
effective public awareness campaigns. The Commission also directs
the 5-1-1 weather and travel service providers to track details of
their public awareness campaigns. This information should be available
upon request by the Commission. |
|
c) Implementation time frame
|
|
Positions of parties |
89. |
ITS Canada et al. submitted that their
proposed 5-1-1 service would be implemented nationally for weather
information within 90 days of a decision. They also submitted that the
traveller information would be implemented incrementally based on
provincial, territorial, and/or regional readiness, and with three
months' notice to the TSPs. |
90. |
The Companies submitted that a
telecommunications network's state of readiness to route calls dialed
using N-1-1 access codes would vary by TSP and geographic location. The
Companies also submitted that some TSPs might not be able to provide
5-1-1 abbreviated dialing upon short notice, such as the three-month
notice period proposed by ITS Canada et al. The Companies suggested that
for those reasons the implementation date should be determined based
upon negotiations between the agency endorsed to use the 5-1-1 access
code and the TSPs operating in the area where the service was requested.
The Companies were of the view that, at a minimum, each province or
territory that wished to implement 5-1-1 service in an area should
provide a minimum of six months' notice to the TSPs operating within the
area. |
91. |
MTS Allstream submitted that ITS Canada
et al.'s request for implementation within 90 days of a Commission
decision could not be met due to the complex implementation scheme they
had proposed. |
92. |
TCC suggested that the Commission should
maintain the six-month roll-out timetable used in Decisions 2004-71
and 2005-39. TCC urged the Commission
to consider a more lengthy timetable if ITS Canada et al. proposed
a full national implementation. |
93. |
The CWTA submitted that to expect TSPs to
make all switching and routing modifications within 90 days of a
decision would be inconsistent with the manner in which previous N-1-1
services had been implemented. The CWTA was of the view that TSPs
required a reasonable opportunity to investigate and determine the
routing implication of the proposals. The CWTA submitted that after that
investigative period, a six-month notification period like the one used
to implement 3-1-1 service would likely allow sufficient time for
wireless service providers (WSPs) to plan for implementation. |
|
Commission's analysis and
determinations |
94. |
The Commission considers that implementing
5-1-1 service requires technical modifications to TSPs' networks that
are similar to those required to implement 3-1-1 service or 8-1-1
service, for which a six-month notice was found to be appropriate.
Accordingly, the Commission directs each 5-1-1 service provider to
provide a minimum of six months' notice to the TSPs operating within
that province or territory. A copy of the six-month notice should also
be filed with the Commission for information purposes. |
|
d) Routing, cost recovery, and other issues
|
|
Positions of parties |
95. |
ITS Canada et al. submitted that calls to
the 5-1-1 access code, along with caller identification, would be routed
by local exchange carriers or WSPs to the 5-1-1 service provider.
ITS Canada et al. submitted that 5-1-1 service providers would apply
intelligent call routing and integrated voice response technologies in
order to direct calls to the appropriate information agencies, which
would then provide the weather and traveller information services. |
96. |
ITS Canada et al. submitted that the
precise design of the network and the information content would be
determined by the 5-1-1 service providers following the Commission's
approval of the assignment of the 5-1-1 access code. They proposed that
the TSPs bear the incremental costs of implementing the 5-1-1 service.
|
97. |
The Companies submitted that the
application lacked clarity regarding the overall system design by which
multiple weather and traveller information service providers would share
the use of the 5-1-1 service code and associated call routing
arrangements. The Companies submitted that a clear distinction must be
drawn between basic first-step network routing provided by the 5-1-1
service providers and any enhanced second-step routing to either another
automated system or operators in call centres. The Companies also
submitted that routing arrangements should be based on the wireline
exchange area boundaries and wireless service area boundaries, unless
otherwise negotiated. |
98. |
The Companies submitted that, consistent
with Decision 2004-71, there should
not be any regulatory requirement for the TSPs to complete operator-handled
5-1-1 calls. |
99. |
TCC submitted that a service provider could
only route 5-1-1 calls to one destination in any specific geographic
area and, therefore, it was essential that ITS Canada et al. decide
which of their members was the designated applicant for 5-1-1 services
in any geographic area. |
100. |
TCC indicated that it supported
exchange-based routing concepts for wireline calls and calling area
routing for wireless calls. TCC noted that wireline exchange boundaries
and wireless calling areas might not be aligned with municipal or
regional governmental boundaries. TCC submitted that if ITS Canada
et al. required special routing that aligned with local government
boundaries, it should be negotiated between the parties as required.
|
101. |
TCC submitted that 5-1-1 calls might be
handled on the TELE-MOBILE wireless network as local calls and charged
as per the wireless subscriber's rate plan if the 5-1-1 caller and the
5-1-1 service provider's point of presence were in the same local
wireless calling area. TCC recommended providing 5-1-1 calling from pay
telephones using cash, credit, or prepaid calling cards. TCC submitted
that it was prepared to enable other billing options, provided the 5-1-1
service provider negotiated suitable compensation for 5-1-1 use with
TCC. |
102. |
The Companies noted that there were
difficulties inherent in determining the actual location of a subscriber
to nomadic and non-native voice over Internet protocol (VoIP) services,
as demonstrated by the issues inherent in providing 9-1-1 service to
VoIP customers. The Companies therefore proposed providing VoIP service
providers with the options of a) not delivering 5-1-1 calls, b) routing
5-1-1 calls to a non-geographically limited answering position, or c)
delivering 5-1-1 calls based on the originating number. They noted that
the interim solution developed for the 9-1-1 service issues required the
manual intervention of a third-party answering point. The Companies
submitted that the interim 9-1-1 solution would not be suitable for
5-1-1 service due to the less critical nature of the proposed 5-1-1
service and the anticipated very high level of traffic. |
103. |
TCC noted that it might be impossible for
some VoIP carriers to route 5-1-1 calls to the appropriate 5-1-1 service
provider. TCC recommended, therefore, that ITS Canada et al. retain and
publish toll-free or alternative geographically based 7- or 10-digit
numbers for their 5-1-1 service providers. |
104. |
ITS Canada et al. proposed that 5-1-1
service providers and TSPs negotiate the costs for long distance charges
for 5-1-1 service, and that 5-1-1 service providers pay those costs.
ITS Canada et al. also proposed the recovery of local and long distance
costs for WSPs for 5-1-1 calls by charging users as part of the monthly
charge for use of a wireless service, or otherwise as part of a service
contract with a wireless carrier. |
105. |
The Companies submitted that the costs of
implementing local 5-1-1 routing arrangements should be borne by the
TSPs operating in a given area. The Companies submitted that any other
arrangements required by ITS Canada et al. should be subject to the
applicable tariffs or direct negotiations between ITS Canada et al. and
the TSPs. |
106. |
The Companies and TCC suggested that where
long distance charges would normally apply, the 5-1-1 number be
translated into a toll-free number and routed to ITS Canada et al.'s
system via one or more interexchange carriers' toll-free services, at a
charge to ITS Canada et al. |
107. |
TCC recommended that the municipal,
regional, provincial, and territorial departments and agencies that
chose to implement 5-1-1 dialing bear the implementation and operational
costs for providing the service. TCC submitted that if the Commission
approved the proposed national roll-out and timing, it would be
inappropriate for carriers to bear all the costs of implementing the
necessary switching and routing changes. |
108. |
The CWTA submitted that when the Commission
determined that TSPs would bear the cost of implementing an N-1-1
service on an incremental basis in Decisions 2001-475,
2004-71, and 2005-39,
it did so with the understanding that the changes required would be
implemented over a number of years and scheduled with other work on
switching. The CWTA further submitted that if all the necessary switching
routing modifications required for the implementation of 5-1-1 service
had to be done within 90 days of a decision, it would impose
considerable costs on TSPs. |
109. |
The CWTA submitted that WSPs must be able
to charge regular rates, including regular airtime usage charges for
prepaid subscribers or monthly billed subscribers who exceeded monthly
minute bundles, for all 5-1-1 calls, consistent with Decisions 2001-475,
2004-71, and 2005-39.
|
110. |
ITS Canada et al. recommended the formation
of a CRTC Interconnection Steering Committee (CISC) 5-1-1 subcommittee
to address technical issues. They submitted that, as with other CISC
committees, membership on the committee would be open to all
interested parties. |
111. |
The Companies agreed that technical issues
should be addressed by CISC. The Companies noted that CISC working
groups could address any technical issues that might arise that
were within their mandates, and CISC could address any other issues
related to the implementation of 5-1-1 service if necessary. |
112. |
TCC recommended referring any unresolved
technical and implementation issues to CISC. |
|
Commission's analysis and
determinations |
113. |
The Commission notes that the Companies
and TCC submitted that routing arrangements should be based on the
wireline exchange area boundaries and wireless service area boundaries,
unless otherwise negotiated by the 5-1-1 service provider and the
TSPs operating in that area. The Commission also notes that in Decisions
2001-475, 2004-71,
and 2005-39 it determined that
the routing arrangements for N-1-1 calls would be based on exchange
boundaries, unless otherwise negotiated. The Commission considers
that the routing arrangements determined in those decisions should
apply to the 5-1-1 service. Accordingly, the Commission determines
that call routing arrangements should be based on exchange boundaries,
unless otherwise negotiated by the 5-1-1 service provider and the
TSPs operating in that area. |
114. |
The Commission further notes that both the
Companies and TCC identified problems with routing 5-1-1 calls from VoIP
customers. The Commission considers that call routing to 5-1-1 service
providers from VoIP services should be negotiated between the various
parties, and that these discussions could take place within CISC. |
115. |
With respect to cost recovery for 5-1-1
service, the Commission notes that in Decisions 2004-71
and 2005-39, it directed the TSPs
to assume, on an incremental basis, the costs of the basic switch
modifications and network changes necessary for the implementation
of the 3-1-1 and 8-1-1 services. In the same decisions, the Commission
considered that if special routing arrangements were made upon a service
provider's request, the TSPs should not bear the cost of provisioning
such arrangements. Consistent with Decisions 2004-71
and 2005-39, the Commission directs
TSPs to assume, on an incremental basis, the costs of the basic switch
modifications and network changes necessary for the implementation
of 5-1-1 service. Further, the Commission determines that 5-1-1 service
providers that request special routing arrangements should bear the
cost of provisioning such arrangements. |
116. |
Consistent with Decision 2004-71,
the Commission determines that, with the exception of toll charges,
callers should bear the costs of 5-1-1 calls placed from wireless
networks and from pay telephones. For other types of calls (credit
card, collect, toll, etc.), cost recovery arrangements should be negotiated
between the 5-1-1 service providers and the TSPs. |
117. |
The Commission considers that any purely
technical issues arising from the implementation of the 5-1-1 service
can be addressed by CISC and requests CISC to deal with such matters. |
|
Secretary General |
|
This document is available in alternative
format upon request, and may also be examined in PDF
format or in HTML at the following Internet site: http://www.crtc.gc.ca
|