FCC regulations include procedures for carriers to  discontinue, reduce, or impair service. Carriers Face Challenges Preserving Services on IP Networks during Times of Crisis

As the nation’s telecommunications systems transition to IP networks,  carriers can face challenges during times of crisis that affect end users’  ability to call 911 and receive emergency communications. These  challenges include (1) preserving consumer service and (2) supporting  existing emergency communications services and equipment. When these rules become  effective, FCC will require that telecommunications carriers communicate  information to consumers regarding backup power, such as the  availability of backup power sources, service limitations with and without  backup power, and purchase options. Supporting Existing Emergency Communication Services and Equipment

IP networks may not support existing communication services that key  government officials and others rely on during times of crisis. Agencies and Stakeholders Have Taken Steps to Ensure IP Networks Are Reliable, but FCC Has Little Information to Assess the Effect of the IP Transition

		Efforts to Ensure the Reliability of IP Networks

			FCC Efforts

In addition to addressing the specific challenges affecting IP networks  during times of crisis described above, FCC has taken a variety of other  actions to help ensure the overall reliability of IP networks, including the  following:
Proposed criteria in August 2015 to evaluate and compare the  replacement of legacy services. The plan provides a framework for industry and  government partners to establish a coordinated strategy to protect the  nation’s critical communications infrastructure. Coordinated the development of the 2014 National Emergency  Communications Plan. Telecommunications Carrier’s Efforts

In the private sector, telecommunications carriers have also worked to  ensure their IP networks are functional during times of crisis in the  following ways:
Built resiliency and reliability into IP networks as part of business  operations and planning for emergencies. Although FCC Has Data Collection Efforts Under Way, It Has Limited Information about the Effect of the IP Transition

FCC is collecting data on the IP transition and sought comment on  collecting additional data on the transition’s effect on consumers, but  could do more to ensure it has the information it needs to make data- driven decisions about the IP transition. Furthermore, in its January 2014 order, FCC noted  that one of its statutory responsibilities is to ensure that its core values,  including public safety and consumer protection, endure as the nation  transitions to modernized communications networks. In the order, FCC  noted that fulfilling this responsibility requires that FCC learn more about  how the modernization of communications networks affects consumers. However, it is unclear if FCC will be able  to make data-driven decisions about the IP transition because of the  limited number and scale of the proposed experiments. Furthermore,  FCC’s solicitation of comments about the data-gathering process may not  necessarily result in a change in FCC’s existing policies. Although FCC’s  efforts to collect data represent a good start, we found FCC lacks a  detailed strategy that outlines how it will address its remaining information  needs, including determining what information from states and localities is  available to be leveraged, a methodology for obtaining that information,  and the resources required. Nevertheless, at the time of our review, FCC had little information on the  effect of the transition, namely because the service-based experiments— FCC’s primary method for collecting data on the transition—were very  limited in number and scale, did not cover consumer services in urban  areas, and did not include critical national security or public safety  locations. Developing a strategy for collecting information about  how the IP transition affects public safety and consumers would help FCC  address these areas of uncertainty as it oversees the IP transition and  enable FCC to make data-driven decisions. Appendix I: Objectives, Scope, and Methodology

This report examines the reliability of the nation’s communications  networks in an Internet Protocol (IP) environment. Specifically, we  reviewed (1) the potential challenges affecting IP networks during times of  crisis and how the challenges affect end users, and (2) the actions FCC,  DHS, and other stakeholders have taken to ensure the reliability of IP  communications during times of crisis. To identify challenges affecting IP networks and how the challenges  affect end users, we reviewed relevant documents from the Federal  Communications Commission (FCC) and Department of Homeland  Security (DHS) including orders, notices and proposed rulemakings,  reports, and risk assessments, as well as relevant statutes and  regulations. We reviewed comments filed with FCC regarding the IP  transition and emergency communications. We interviewed officials from FCC and DHS and  representatives from AT&T, Verizon, and CenturyLink.
Why GAO Did This Study

The communications sector is essential to the nation's economy and government operations and for the delivery of public safety services, especially during emergencies. As the sector transitions from legacy networks to IP-based networks, consumer and public safety groups and others have raised concerns about how the communications networks will function during times of crisis.
GAO was asked to examine the reliability of the nation's communications network in an IP environment during times of crisis. GAO examined (1) the potential challenges affecting IP networks in times of crisis and how the challenges may affect end users, and (2) the actions FCC, DHS, and other stakeholders have taken to ensure the reliability of IP communications. GAO reviewed FCC and DHS documents as well as FCC proceedings and comments filed with FCC on the IP transition and emergency communications. GAO assessed FCC's efforts to collect data on the effect of the IP transition. GAO interviewed officials from FCC and DHS, and representatives from the three largest telecommunications carriers, industry associations, and public interest and consumer advocacy groups.

What GAO Found

As the nation's telecommunications systems transition from legacy telephone networks to Internet Protocol (IP)-based networks, telecommunications carriers can face challenges during times of crisis that affect end users' ability to call 911 and receive emergency communications. These challenges include (1) preserving consumer service and (2) supporting existing emergency communications services and equipment. For example, during power outages, consumers with service provided over IP networks and without backup power can lose service. The Federal Communications Commission (FCC) is working to address this issue by adopting rules that will require carriers to provide information to consumers on backup power sources, among other things. Another challenge is that IP networks may not support existing telecommunications “priority” services, which allow key government and public-safety officials to communicate during times of crisis.
FCC, the Department of Homeland Security (DHS), and telecommunications carriers have taken various steps to ensure the reliability of IP communications, for example:
FCC proposed criteria—such as support for 911 services, network security, and access for people with disabilities—to evaluate carriers' replacement of legacy services when carriers seek to discontinue existing service.
DHS coordinated the development of the Communications Sector Specific Plan to help protect the nation's communications infrastructure.
Carriers told GAO they build resiliency and reliability into their IP networks as part of business operations and emergency planning.
FCC is also collecting data on the IP transition, but FCC could do more to ensure it has the information it needs to make data-driven decisions about the transition. FCC has emphasized that one of its statutory responsibilities is to ensure that its core values, including public safety capabilities and consumer protection, endure as the nation transitions to modernized networks. FCC stated that fulfilling this responsibility requires learning more about how the transition affects consumers. FCC plans on collecting data on the IP transition primarily through voluntary experiments proposed and run by telecommunications carriers. However, it is unclear if FCC will be able to make data-driven decisions about the IP transition because of the limited number and scale of the proposed experiments. In particular, there are only three proposed experiments that cover a very limited number of consumers; none of the experiments covers consumer services in high-density urban areas or includes critical national-security or public-safety locations. FCC also sought comment on how to supplement its data-gathering process; however, soliciting comments may not necessarily result in a change in FCC's existing policies. GAO found FCC lacks a detailed strategy that outlines how it will address its remaining information needs. Developing a strategy for collecting information about how the IP transition affects public safety and consumers would help FCC make data-driven decisions and address areas of uncertainty as it oversees the IP transition.

What GAO Recommends

FCC should strengthen its data collection efforts to assess the IP transition's effects. FCC did not agree or disagree with the recommendation and stated it has a strategy in place to oversee the IP transition. However, GAO continues to believe FCC should strengthen its data collection efforts.