Phase II wireless E911 service is more complex to implement than Phase I  because of the need to install equipment to determine the geographic  coordinates of the caller, transfer that information through the telephone  networks, and have a mapping system in place at the PSAP that can display  the latitude and longitude coordinates of the caller as a map location for  dispatching assistance. PSAP readiness  remains a state and local issue because PSAPs serve an emergency  response function that has traditionally fallen under state or local  jurisdiction. Thus, the full rollout of wireless E911 services nationwide  depends in great part on the implementation efforts of the more than 6,000  PSAPs. Looking forward, our survey of state 911 contacts found  that less than half of them believe that wireless E911 services will be fully  in place in their state by 2005. According to NENA, as of October 2003, nearly 65 percent of PSAPs  nationwide had implemented Phase I wireless E911 services, which  provides the call taker with the callback number and the location of the cell  tower and cell sector receiving the 911 call. Phase II, which locates the  caller with more precise geographic coordinates, has been implemented  with at least one wireless carrier in 18 percent of PSAPs. Currently, the  DOT/NENA database does not differentiate between PSAPs that will need  to be upgraded and those that will not, which limits usefulness of the  database in accurately assessing progress toward full wireless E911  implementation. As the estimates from state contacts indicate, no clear picture is emerging  on when Phase II will be fully deployed nationwide, raising the prospect of  piecemeal availability of this service across the country for an indefinite  number of years to come. In addition, poor  coordination among the parties is a factor affecting wireless E911  deployment, although some states and localities have eased this problem  with active and knowledgeable state 911 coordinators who help oversee  the process and work with all the parties. Our survey of state  E911 contacts found that 13 states and the District of Columbia had used  wireless E911 funds for expenditures unrelated to wireless E911  implementation, and 9 other states had attempted to do so. Wireless carriers also incur various costs to implement E911. The Recent Actions of FCC and DOT Are Focused on Enforcing Deadlines on Wireless Carriers and Improving Deployment Coordination

FCC and DOT have been involved in the implementation of wireless E911,  but federal authority in overseeing the deployment is limited because of the  traditional state and local jurisdiction over emergency response services. Beyond enforcing deadlines on wireless carriers, FCC has taken actions to  identify both roadblocks and best practices in wireless E911  implementation. One  major aspect of this plan is the creation of a clearinghouse of wireless E911  planning, implementation, and operations resources. 5. However,  successful wireless E911 deployment is possible, as illustrated in some  areas of the country. Recommendation for Executive Action

In order to provide the Congress and federal and state officials with an  accurate assessment of the progress being made toward the goal of full  deployment of wireless E911, we recommend that the Department of  Transportation work with state-level E911 officials, the National  Emergency Number Association, and other public safety groups to  determine which public safety answering points will need to have their  equipment upgraded.
Why GAO Did This Study

When an emergency call is placed to 911, prompt response depends on knowing the location of the caller. Enhanced 911 (E911) service automatically provides this critical information. E911 is in place in most of the country for traditional wireline telephone service, where the telephone number is linked to a street address. Expanding E911 capabilities to mobile phones is inherently more challenging because of the need to determine the caller's geographic location at the moment the call is made. Concerns have been raised about the pace of wireless E911 implementation and whether this service will be available nationwide. GAO reviewed the progress being made in implementing wireless E911 service, the factors affecting this progress, and the role of the federal government in facilitating the nationwide deployment of wireless E911 service.

What GAO Found

Implementation of wireless E911 is several years away in many states, raising the prospect of piecemeal availability of this service across the country for an indefinite number of years to come. Successful implementation depends on coordinated efforts by wireless carriers, local telephone companies, and more than 6,000 public safety answering points (PSAPs)--the facilities that receive 911 calls and dispatch assistance. According to a database sponsored by the Department of Transportation (DOT), as of October 2003, nearly 65 percent of PSAPs had Phase I wireless E911 service, which provides the approximate location of the caller, while only 18 percent had Phase II, which provides a more precise location and is the ultimate goal of wireless E911 service. Though valuable, the database does not differentiate between PSAPs that will require equipment upgrades and those that will not, thereby limiting its usefulness in accurately assessing progress toward full implementation. Looking forward, 24 state 911 contacts said in response to a GAO survey that their state will have Phase II implemented by 2005 or sooner; however, all other state contacts estimated dates beyond 2005 or were unable to estimate a date. Key factors hindering wireless E911 implementation involve funding and coordination. The wireless carriers, states, and localities must devise the means to fund more than $8 billion in estimated deployment costs over the next 5 years. Some states and localities have established funding mechanisms (such as E911 surcharges on phone bills), but others have not done so or have used their E911 funds for unrelated purposes. In addition, there is also a lack of coordination in some cases among the wireless carriers, local telephone companies, and PSAPs that can lead to delays in wireless E911 implementation. States with knowledgeable and involved coordinators were best able to work through these coordination issues. The Federal Communications Commission (FCC) and DOT are involved in promoting wireless E911, but their authority in overseeing its deployment is limited because PSAPs traditionally fall under state and local jurisdiction. FCC has set deadlines on the wireless carriers' E911 responsibilities and has taken actions to identify best practices and improve coordination among the parties. DOT is developing an action plan and clearinghouse for wireless E911 planning, implementation, and operations.