VoIP and Emergency Calls - Where is the Caller?
Background
OFCOM (the UK telecommunications regulator) recently mandated that any VoIP Service Provider that allows end users to make calls to the PSTN must also provide access to the Emergency Services number.
They also mandated that “to the extent technically feasible” the Emergency Handling Agencies (EHAs) must be supplied with the location of the caller. This speeds up the emergency response, and also helps in those cases where the caller is unable to provide their location.
This is already done by the existing PSTN and mobile telephone companies and is not a particularly difficult problem for them as they control all elements of the telephony service. However for VoIP the problem is substantially more difficult - VoIP users can connect to their VoIP service provider over any internet connection, from anywhere in the world.
In some parts of the world the customer is required to notify their VoIP service provider of their location. This isn’t feasible however for users who regularly use their VoIP service away from home, e.g. with a WiFi VoIP handset. Also, if this information is out of date then the consequences can be tragic as seen recently in Canada where the initial ambulance dispatch went to the customer’s previous address, 2500 miles away from where it was needed.
Proposed Solution
The proposed architecture currently being developed by NICC (the UK telecoms industry standards group) is to have the VoIP Providers, the Internet Service Providers, and the Access Network Providers all cooperate to provide location information in real-time.
The VoIP provider will know what the end user’s public IP address is, but they don’t know where it is. When they receive an emergency call they’ll pass the call over the PSTN to the EHA, but at the same time they’ll also send a separate message (using TCP/IP) containing that end user IP address.
The EHA will maintain a database derived from BGP4 real-time routeing data that maps from IP addresses to ISPs. Once they know the ISP, they’ll send the ISP’s “Location Information Service” a HELD protocol request containing the IP address as the lookup key (see IETF Draft geopriv-http-location-delivery). The response from the ISP is an XML document in PIDF-LO format (see RFC4119 and RFC5139) which contains either a “civic address” or a “geodetic location” (i.e. latitude/longitude).
A further complication is that many types of internet access run over a separate Access Network Service which is independent of the ISP. Most ADSL in the UK, for example, is provided using BT Wholesale’s “IPStream” access product which is then packaged up by hundreds of different ISPs.
In these networks it’s common for individual users not to be tied to a specific access line. Hence the Access Network needs to tell the ISP exactly which line is being used. In some cases that might be sufficient for the ISP to determine the address, but in many cases it’s expected that the ISP LIS will need to proxy the HELD request onwards to the Access Network where they should have the most accurate and up-to-date address information.
The diagram below is a simplified representation of how it’s expected to work.

Policy Issues
In my opinion the biggest problem with the architecture at the moment is that neither the ISPs nor the Access Networks actually operate Location Information Services. Partly this is because the relevant standards are still in development, but particularly because as yet there’s no regulation requiring them to do so.
All of the OFCOM regulatory changes so far have been focussed on the VoIP providers, without sufficient acknowledgment of the fact that it’s only the ISPs and the Access Networks that really know where any particular IP connection is being made from. However Ofcom are committed to revisit the regulations for the location issue very early next year, once technical standards (national and international) are clarified.
In my opinion most ISPs are at the moment completely unaware that they might need to do anything, and I hope that this article will stimulate further involvement from the ISP industry. I believe that regulation requiring ISPs and Access Networks to operate Location Information Services is inevitable and it would be better to work now towards a practical solution than to be stuck with an unworkable one later.
It should be noted that the implementation costs for this will be significant, and ISPs looking to recover their costs might start looking at how they could sell-on their customers’ location information to third parties. The potential market for location-based advertising is enormous, but so too are the privacy implications.
Ray Bellis - Senior Researcher

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