mason agenda dec - decision on rural call completion · 2016-11-18 · 1.2. summary of key findings...

FILED11-15-1608:00 AM

COM/CJS/mal PROPOSED DECISION Agenda ID #15370 Quasi-Legislative

170044482

Decision PROPOSED DECISION OF COMMR CATHERINE J. SANDOVAL (Mailed 11/15/16) BEFORE THE PUBLIC UTILITIES COMMISSION OF THE STATE OF CALIFORNIA Order Instituting Investigation to Address Intrastate Rural Call Completion Issues.

Investigation 14-05-012 (Filed May 15, 2014)

DECISION ON RURAL CALL COMPLETION ISSUES, OTHER CALL COMPLETION ISSUES AND CALL INITIATION ISSUES INCLUDING LACK

OF 911 ACCESS AND DIAL TONE

I.14-05-012 COM/CJS/mal PROPOSED DECISION

i

TABLE OF CONTENTS

Title Pages

Summary 1

1.� Proceeding History and Summary of Key Findings ...................................................... 5�1.1.�Proceeding History ...................................................................................................... 5�1.2.�Summary of Key Findings ......................................................................................... 7�

2.� Legal Standards Governing the Commission’s Oversight of Call Completion, Dial tone, and 9-1-1 access and Telecommunications Service ............................................ 17�2.1.�Highlights of Duties of Carriers: ............................................................................. 17�2.2.�Highlights of Powers of the Commission: ............................................................. 20�

3.� Rural Call Completion Failures and Issues ................................................................... 22�3.1.�Background of Rural Call Completion Investigation ........................................... 22�3.2.�Findings of Rural Call Completion Investigation ................................................. 25�

3.2.1.� Summary and Recommendations .......................................................... 25�3.2.2.� CAB Data and Public Comment on Rural Call Completion Failures 26�3.2.3.� Analysis of the FCC Data on Long Distance Covered Providers to

California Rural Areas .............................................................................. 27�3.2.3.1.�California Reporting Calling Parties.............................................. 28�3.2.3.2.�Frequency of Rural Call Completion Data Filing ........................ 29�3.2.3.3.�Required format and information .................................................. 29�3.2.3.4.�Call Completion Problems Settlements ......................................... 30�3.2.3.5.�Verizon Business Consent Decree Summary ............................... 30�3.2.3.6.�Discussion and Findings ................................................................. 31�

3.2.4.� Limited Validity of Data .......................................................................... 32�3.2.5.� Call categorization and ratios.................................................................. 32�3.2.6.� Findings ...................................................................................................... 33�3.2.7.� Conclusion, Recommendations, and Orders ........................................ 34�

4.� Other Types of Call Completion Failure Issues: 9-1-1 Call Completion Failures, Short Code Call Completion Failures, 9-1-1 Addressing issues, 9-1-1 Database Access, Public Safety Contact information for Carrier Access .................................................................................................................... 36�4.1.�Definition of 9-1-1 Call Completion Issues and Summary .................................. 36�4.2.�9-1-1 Call Completion Failures of April 9, 2014 .................................................... 39�

4.2.1.� FCC Multistate 9-1-1 Outage Report and Recommendations and Resultant FCC Orders and Settlements ................................................. 39�

4.2.2.� 9-1-1 Service Providers in the Affected California Counties .............. 42�


ii

TABLE OF CONTENTS (cont.)

Title Pages

4.2.3.� FCC Recommendations for Maintaining a Reliable End-to-End 9-1-1 System ......................................................................................................... 44�

4.2.4.� FCC and Washington State Settlements ................................................ 46�4.2.4.1.�April 2014 9-1-1 Outage Consent Decrees and Settlements ....... 46�4.2.4.2.�CenturyLink ...................................................................................... 47�4.2.4.3.� Intrado Communications ................................................................ 48�4.2.4.4.�Verizon Business ............................................................................... 48�

4.2.5.� Conclusion and Recommendations ........................................................ 49�4.3.�Short-code call completion issues ........................................................................... 50�

4.3.1.� Background for Short-Code Call Completion Issues including 2-1-1 Access .......................................................................................................... 50�

4.3.2.� Comments about 2-1-1 and Short Code Call Completion Issues Raised in this OII ....................................................................................... 52�

4.3.3.� Actions to Address 2-1-1 and Short Code Call Completion Issues Raised in this OII ....................................................................................... 55�

4.3.4.� False disconnected messages and Fast Busy Messages for Working Numbers ..................................................................................................... 57�

4.3.4.1.�Summary ............................................................................................ 57�4.4.�Actions and Orders on False Disconnected Messages and Fast Busy Messages

for Working Numbers ............................................................................................... 59�5.� 9-1-1 Access Issues, including Call Initiation Outages, 9-1-1 Addressing Issues, and

9-1-1 Directory Issues for Public Safety ......................................................................... 60�5.1.�911 Access and Call Initiation Issues Associated with Service Outages; Hard

Down ........................................................................................................................... 60�5.1.1.� Background for Review of 9-1-1 Call Completion and Access Issues,

including Loss of Dial Tone ..................................................................... 60�5.1.2.� California’s Public Safety Emergency Management System and the

Critical Role of Communications Services to Public Safety ................ 63�5.1.3.� Frontier post-Verizon April 2016 Transition; Software and Service-

driven 9-1-1 Access issues and Loss of Dial Tone ................................ 67�5.1.3.1.�Commission Approval of the Transfer of Verizon, California to

Frontier, December 2015 .................................................................. 67�5.1.3.2.�Verizon, California and Frontier Transition Preparation and

Post-Transition Dial-tone and 9-1-1 Access Outages .................. 68�


iii

TABLE OF CONTENTS (cont.)

Title Pages 5.1.3.3.�April 2016 Post-Transition Dial-tone and 9-1-1 Access Outages

for Many Frontier Customers ......................................................... 70�5.1.3.3.1.�Frontier Customers Affected by Post-Transition Outages70�5.1.3.3.2.�Software-Driven Cause of Outages ..................................... 73�5.1.3.3.3.�Service Issues Exacerbated the Outages ............................. 75�5.1.3.3.4.�Mislabeling of Customer Premises Equipment by Verizon,

California so it Did not Match Computer Records Delayed Service Restoration ................................................................ 77�

5.1.3.3.5.�Comments about Commission Action to Address Frontier Post-TransitionȱDialȬtoneȱandȱ911ȱOutages ....................... 79�

6.� Referral to Consumer Protection and Enforcement Division ..................................... 80�7.� Merger and Transfer Recommendations for Maintaining Safe, Reliable Service and

Preventing Dial-tone and 9-1-1 Outages ....................................................................... 82�7.1.�Comments on Merger and Transfer Analysis Policy Recommendations ......... 82�7.2.�Directive to Communications Division to Develop Merger and Transfer

Analysis Policy Recommendations to Protect Safe and Reliable Service .......... 83�7.3.�Facility-driven outages, Compounded by Service Issues .................................... 85�

7.3.1.� Maintenance/Repair issues ..................................................................... 85�7.3.1.1.�Maintenance and Facility Issues Raised in this OII that Affect

Call Completion, Dial tone and 9-1-1 Outages ............................. 85�7.3.1.2.�Service Issues Exacerbate Outages Repair Time .......................... 89�7.3.1.3.�Party Comments ............................................................................... 90�7.3.1.4.�Who does 9-1-1 or a Public Safety Official Call When they Need

to Call For Emergency Assistance about a Down Pole or other Telecommunications Safety Hazard? ............................................ 93�

7.3.1.5.�Decision .............................................................................................. 95�7.3.2.� Dial-Tone Outages and 9-1-1 Access Issues Arising from Third Party

Actions, and Response to Such Incidents .............................................. 96�7.3.2.1.�Fiber Cut on August 3, 2014, Mendocino County ....................... 96�7.3.2.2.�Fiber Cut on September 3, 2015 in Mendocino County that

resulted in Loss of Dial tone, Internet, and Wireless Service in Mendocino, Humboldt, and Del Norte Counties ...................... 100�

7.3.2.3.�Party Comments and Recommendations for Actions in Response ........................................................................................................... 106�


iv

7.3.2.4.�Decision ............................................................................................ 112�TABLE OF CONTENTS (cont.)

Title

7.3.3.� Meet and confer on 9-1-1 addressing issues with Federally

recognized Tribes in California and County OES .............................. 113�7.3.3.1.�California Federally Recognized Tribe 9-1-1 Address Issue .... 113�7.3.3.2.�Decision ............................................................................................ 115�7.3.3.3.�Disaster-driven Outages, and Outages During Extended

Emergencies..................................................................................... 115�7.3.3.3.1.�Communications or the Lack Thereof During Wildfires 115�7.3.3.3.2.�Decision ................................................................................. 120�

8.� Data Gap for Information about Dial Tone Outages and Lack of Access to 9-1-1 .............................................................................................................................. 121�8.1.�NORS Data Gap for Outages Under 900,000 User Minutes, and GO-133(D)

Data Gap when the Repair Ticket Standard is Not Prompted ......................... 121�8.2.�Decision ..................................................................................................................... 123�8.3.�Comments about Actions to Address Data Gap, and Legal Basis for

Commission Action ................................................................................................. 125�8.4.�Discussion of Reporting Threshold to Address the Data Gap about California

Communications Outages ...................................................................................... 128�8.5.�Decision ..................................................................................................................... 132�

9.� Conclusion ........................................................................................................................ 135�10.� Categorization and Need for Hearing .......................................................................... 135�11.� Comments on Proposed Decision ................................................................................. 136�12.� Assignment of Proceeding ............................................................................................. 136�13.� Findings of Fact ............................................................................................................... 136�14.� Conclusions of Law ......................................................................................................... 142�ORDER ................................................................................................................................... 147�AppendixȱAȱ–ȱListȱofȱCaliforniaȱRuralȱCarriersȱOperatingȱCompanyȱNumbersȱAppendixȱBȱ–ȱListȱofȱReportingȱCoveredȱProvidersȱAppendixȱCȱ–ȱSampleȱResponseȱCauseȱCodesȱAppendixȱDȱȬȱMapȱofȱAffectedȱCountiesȱinȱCaliforniaȱ


1

DECISION ON RURAL CALL COMPLETION ISSUES, OTHER CALL COMPLETITION ISSUES AND CALL INITIATION ISSUES INCLUDING LACK

OF 911 ACCESS AND DIAL TONE

Summary

WeȱdirectȱcarriersȱtoȱeducateȱtheirȱMultiȬlineȱTelephoneȱSystemȱserviceȱ(MLTS)ȱ

customersȱaboutȱstepsȱtoȱenableȱshortȱcodeȱaccess.ȱȱWeȱdirectȱcarriersȱwhoȱprogramȱ

MLTSȱsystemsȱtoȱenableȱshortȱcodeȱaccess,ȱwithȱanȱoptȬoutȱforȱMultiȬLineȱSystemȱ(MLS)ȱ

operatorsȱforȱsomeȱshortȱcodesȱasȱdiscussedȱherein.ȱȱWeȱdirectȱmeetingsȱwithȱtheȱȱ

2Ȭ1Ȭ1ȱcoalition,ȱtheȱ8Ȭ1Ȭ1ȱcoalition1,ȱasȱdescribedȱbelowȱtoȱeffectivelyȱenableȱthisȱshortȱ

codeȱaccess.ȱȱWeȱreferȱtoȱtheȱproceedingȱthatȱwillȱimplementȱSenateȱBillȱ(SB)ȱ1212ȱtoȱ

bringȱ2Ȭ1Ȭ1ȱstatewideȱtoȱdetermineȱwhetherȱadditionalȱstepsȱareȱprudentȱandȱnecessaryȱ

toȱensureȱ2Ȭ1Ȭ1ȱaccess,ȱincludingȱfromȱMLTSȱusers.ȱ

WeȱdirectȱtheȱCommission’sȱtheȱCommission’sȱConsumerȱAffairsȱBranchȱ(CAB)ȱ

toȱreachȱoutȱtoȱtheȱconsumersȱwhoȱspokeȱatȱtheȱPublicȱParticipationȱHearingsȱ(PPHs)ȱ

aboutȱtheȱlackȱofȱrouteȱdiversityȱorȱresiliencyȱforȱPublicȱSafetyȱAnsweringȱPointsȱ

(PSAPs)ȱandȱCountyȱOfficeȱofȱEmergencyȱServicesȱ(OES)ȱofficesȱandȱofferȱCAB’sȱ

informalȱcomplaintȱresolutionȱservices.ȱȱThoseȱconsumersȱmayȱalsoȱfileȱaȱformalȱ

complaintȱwithȱtheȱCaliforniaȱPublicȱUtilitiesȱCommissionȱ(Commission).ȱȱȱ

Weȱencourageȱcarriersȱtoȱofferȱdiversity,ȱresiliency,ȱandȱredundancyȱoptionsȱtoȱ

EmergencyȱServicesȱOfficesȱandȱpublicȱsafetyȱaccessȱmanagers.ȱ

WeȱreferȱtoȱtheȱCommission’sȱSafetyȱEnforcementȱDivisionȱ(SED)ȱtoȱdetermineȱ

whetherȱpracticesȱsuchȱasȱaffixingȱtelephoneȱlinesȱtoȱtreesȱareȱinconsistentȱwithȱGeneralȱ

Orderȱ(GO)ȱ95.ȱȱSEDȱmayȱissueȱcitations,ȱasȱappropriateȱforȱviolationsȱofȱGOȱ95.ȱȱWeȱ

directȱSEDȱtoȱissueȱguidanceȱclarifyingȱtheȱdutyȱtoȱaffixȱlinesȱtoȱproperȱsupportȱ 1ȱ8Ȭ1Ȭ1ȱisȱaȱcallȱbeforeȱyouȱdigȱprogram,ȱcoordinatedȱbyȱtheȱUndergroundȱServiceȱofȱAmerica,ȱtoȱpreventȱdigȬinsȱofȱundergroundȱutilityȱinfrastructure.ȱ


2

structuresȱandȱaddressingȱtheȱissueȱofȱlinesȱattachedȱtoȱtrees,ȱdead,ȱdiseased,ȱorȱalive.ȱ

WeȱreferȱtoȱSEDȱtoȱdetermineȱwhatȱadditionalȱstepsȱareȱwarrantedȱtoȱensureȱcomplianceȱ

withȱvegetationȱmanagementȱduties,ȱincludingȱthroughȱtheȱcitationȱprogram,ȱissuanceȱ

ofȱguidanceȱaboutȱvegetationȱmanagementȱdutiesȱinȱlightȱofȱtheȱtreeȱmortalityȱepidemic,ȱ

and,ȱifȱwarranted,ȱanȱadjudicatoryȱOrderȱInstitutingȱInvesitgationȱ(OII).ȱ

WeȱreferȱtoȱtheȱCommission’sȱConsumerȱProtectionȱandȱEnforcementȱDivisionȱ

(CPED)ȱtoȱanalyzeȱwhetherȱanȱadjudicatoryȱOIIȱshouldȱbeȱbroughtȱforȱanyȱviolationsȱofȱ

stateȱlawȱorȱthisȱCommission’sȱrules,ȱorders,ȱandȱDecisionsȱarisingȱfrom:ȱ1)ȱtheȱȱ

Aprilȱ9,ȱ2014ȱoutageȱstartedȱbyȱIntrado’sȱsystemsȱinȱColoradoȱthatȱledȱtoȱtheȱlossȱofȱ9Ȭ1Ȭ1ȱ

accessȱinȱseveralȱstatesȱincludingȱinȱeightȱNorthernȱCaliforniaȱcountiesȱwhereȱVerizonȱ

Businessȱsuppliedȱ9Ȭ1Ȭ1ȱaccessȱservicesȱtoȱAT&TȱMobilityȱandȱVerizon,ȱWirelessȱ

customers;ȱ2)ȱtheȱoutagesȱresultingȱfromȱfiberȱcutsȱinȱMendocinoȱandȱHumboldtȱ

countiesȱincludingȱtheȱAugustȱ3,ȱ2014ȱoutage,ȱtheȱSeptemberȱ3,ȱ2015ȱoutage,ȱandȱtheȱ

Decemberȱ9,ȱ2015ȱoutage,ȱeachȱofȱwhichȱresultedȱinȱtheȱlossȱofȱdialȱtoneȱandȱinȱseveralȱ

casesȱ9Ȭ1Ȭ1ȱaccessȱforȱthousandsȱinȱoneȱorȱseveralȱcounties;ȱ3)ȱtheȱoutagesȱfollowingȱtheȱ

VerizonȬFrontierȱtransitionȱinȱAprilȬMayȱ2016.ȱ

WeȱdirectȱtheȱCommission’sȱCPEDȱtoȱinitiateȱinvestigationsȱofȱtheȱtwoȱmajorȱ

CPs,ȱVerizonȱBusinessȱandȱLevelȱ3ȱ(whoȱsettledȱwithȱtheȱFederalȱCommunicationsȱ

Commissionȱ(FCC)ȱandȱpaidȱfinesȱregardingȱCallȱCompletionȱissues,ȱandȱwereȱorderedȱ

toȱtakeȱcorrectiveȱactionsȱonȱtheirȱhandlingȱofȱCCP),ȱtoȱobtainȱmoreȱinformationȱaboutȱ

theȱaboveȱmentionedȱgapsȱinȱtheirȱintrastateȱlongȱdistanceȱtrafficȱdataȱforȱcallsȱ

originatingȱfromȱorȱintendedȱtoȱaȱdestinationȱinȱCalifornia,ȱandȱrecommendȱappropriateȱ

action.ȱȱCPEDȱshallȱrequestȱunderȱthisȱCommission’sȱauthorityȱunderȱtheȱCaliforniaȱ

PublicȱUtiltiesȱCodeȱ(Cal.ȱPub.ȱUtil.ȱCode)ȱsectionȱ313ȱandȱCaliforniaȱlaw,ȱtoȱobtainȱtheȱ

dataȱitȱneedsȱfromȱVerizonȱBusinessȱandȱLevelȱ3ȱtoȱanalyzeȱcomplianceȱwithȱtheȱdutyȱofȱ

aȱcarrierȱoperatingȱinȱCaliforniaȱtoȱcarryȱandȱcompleteȱcalls,ȱunderȱCal.ȱPub.ȱUtil.ȱCodeȱ


3

sectionȱ558,ȱtoȱprovideȱsafe,ȱreliableȱserviceȱunderȱCal.ȱPub.ȱUtil.ȱCodeȱsectionȱ451,ȱandȱ

otherȱCommissionȱrules,ȱorders,ȱDecisions,ȱandȱtheȱCaliforniaȱPublicȱUtilitiesȱCode.ȱ

WeȱdirectȱCommunicationsȱDivisionȱandȱLegalȱDivisionȱtoȱprepareȱaȱresolutionȱ

toȱsubmitȱcommentsȱtoȱtheȱFCCȱtoȱrequestȱreviewȱofȱwhetherȱadequateȱreportingȱwasȱ

submittedȱunderȱNetworkȱOutageȱReportingȱSystemȱ(NORs)ȱandȱFCCȱrules,ȱorders,ȱ

andȱDecisions,ȱandȱfederalȱlawȱforȱtheȱAugustȱ3,ȱ2014,ȱSeptemberȱ3,ȱ2015,ȱandȱDecemberȱ

9,ȱ2015ȱoutagesȱinȱMendocino,ȱHumboldt,ȱandȱDelȱNorteȱCounties.ȱȱTheȱcommentsȱshallȱ

requestȱreviewȱofȱwhetherȱvoiceȱoutagesȱthatȱresultedȱfromȱOpticalȱCarrierȱ3ȱ(OC3)ȱorȱ

transportȱoutagesȱwereȱadequatelyȱreported,ȱincludingȱtheȱlossȱofȱendȬtoȬendȱ9Ȭ1Ȭ1ȱ

serviceȱforȱhundredsȱorȱthousandsȱofȱcustomersȱaffectedȱbyȱtheȱOC3ȱorȱtransportȱ

outage.ȱ

WeȱdirectȱcarriersȱtoȱmeetȱandȱconferȱwithȱCalifornia’sȱfederallyȬrecognizedȱ

tribesȱandȱCountyȱOESȱofficesȱtoȱdetermineȱifȱactionȱisȱneededȱtoȱmakeȱresidentialȱ

addressesȱvisibleȱtoȱtheȱ9Ȭ1Ȭ1ȱdatabase,ȱincludingȱassigningȱaȱuniqueȱaddressȱbyȱmutualȱ

agreementȱinȱareasȱwhereȱallȱhouseholdsȱcurrentlyȱhaveȱtheȱsameȱaddress.ȱȱ

Weȱdirectȱrespondentsȱtoȱprovideȱtoȱcity,ȱcounty,ȱandȱfederallyȱrecognizedȱtribalȱ

OESȱofficialsȱanȱemergencyȱcontactȱnameȱandȱnumberȱavailableȱ24ȱhoursȱaȱday,ȱ7ȱdaysȱaȱ

week,ȱnotȱaȱgeneralȱ800ȱorȱ8xxȱnumber.ȱȱWeȱdirectȱaȱmeetȱandȱconferȱwithȱOESȱofficials,ȱ

CommunicationsȱDivision,ȱandȱSEDȱtoȱdiscussȱcommunicationsȱduringȱandȱafterȱ

emergenciesȱsuchȱasȱfiresȱandȱmeansȱtoȱshortenȱtheȱtimeȱforȱaccessibleȱcommunications.ȱ

WeȱdirectȱCommunicationsȱDivisionȱtoȱprepareȱandȱmakeȱavailableȱtoȱcarriersȱ

withinȱ90ȱdaysȱofȱtheȱadoptionȱofȱthisȱDecisionȱaȱformatȱforȱreportingȱoutagesȱ300,000ȱ

userȱminutesȱthatȱlastȱ30ȱminutesȱorȱmore,ȱandȱtheȱnumberȱofȱuserȱminutesȱaffectedȱbyȱ

anȱOC3ȱorȱtransportȱoutage.ȱȱThisȱorderȱdoesȱnotȱlimitȱtheȱCommission’sȱauthorityȱtoȱ

requireȱotherȱdataȱandȱrecordsȱunderȱCal.ȱPub.ȱUtil.ȱsectionȱ313,ȱandȱinspectionȱrightsȱ

underȱCal.ȱPub.ȱUtil.ȱCodeȱsectionȱ314.ȱȱȱȱ


4

Weȱencourageȱallȱrespondentsȱtoȱonȱaȱvoluntaryȱbasisȱreportȱoutagesȱofȱ300,000ȱ


anȱOC3ȱorȱtransportȱoutageȱtoȱCalȱOES,ȱCity,ȱandȱCountyȱOES,ȱandȱCaliforniaȱfederallyȱ

recognizedȱtribalȱOESȱofficialȱcontacts.ȱWeȱencourageȱsuchȱreportsȱtoȱbeȱmadeȱasȱsoonȱ

asȱpossible,ȱandȱsuchȱreportsȱshouldȱbeȱcommunicatedȱnoȱlaterȱthanȱ60ȱminutesȱafterȱ

theirȱdiscoveryȱofȱsuchȱoutages.ȱȱȱ

ThisȱDecisionȱdirectsȱthatȱPhaseȱIIȱofȱthisȱProceedingȱwillȱexploreȱwhetherȱtheȱ

CommissionȱshouldȱrequireȱCarriersȱofȱLastȱResortȱ(COLRs)ȱorȱotherȱrespondentsȱtoȱ

reportȱoutagesȱtoȱCalȱOES,ȱCity,ȱandȱCountyȱOES,ȱandȱCaliforniaȱfederallyȱrecognizedȱ

tribalȱOESȱofficialȱcontacts.ȱȱPhaseȱIIȱshallȱconsiderȱwhetherȱoutageȱreportingȱshouldȱbeȱ

madeȱtoȱthoseȱOESȱofficialȱcontacts,ȱwhatȱlevelȱofȱoutagesȱshouldȱbeȱreported,ȱandȱ

whichȱtypesȱofȱcarriers,ȱifȱany,ȱshouldȱbeȱrequiredȱtoȱprovideȱoutageȱsuchȱreporting.ȱȱȱ

AȱWorkingȱGroupȱshallȱbeȱconvenedȱinȱPhaseȱIIȱincludingȱCommunicationsȱDivision,ȱ

SafetyȱandȱEnforcementȱDivision,ȱtheȱparties,ȱandȱinvitingȱCalȱOES,ȱCity,ȱCounty,ȱandȱ

federallyȱrecognizedȱtribalȱOESȱofficialsȱtoȱdiscussȱandȱrecommendȱoutageȱreportingȱ

thresholds,ȱrequirements,ȱandȱprotocolsȱthatȱreflectȱCalifornia’sȱpublicȱsafetyȱneedsȱandȱ

thisȱCommission’sȱresponsibilities.ȱȱTheȱCommissionȱshallȱconsiderȱthoseȱ

recommendationsȱinȱPhaseȱIIȱofȱthisȱproceeding.ȱ

WeȱdirectȱCommunicationsȱDivisionȱtoȱmonitorȱreportsȱofȱoutagesȱsubmittedȱtoȱ

theȱCommissionȱofȱ300,000ȱuserȱminutesȱlastingȱ30ȱminutesȱorȱmore,ȱOC3ȱoutagesȱandȱ

theirȱeffectȱonȱuserȱminutes,ȱandȱotherȱoutagesȱthatȱfallȱbelowȱtheȱMajorȱServiceȱ

InterruptionȱthresholdȱofȱGOȱ133ȬD,ȱSectionȱ4.ȱȱCommunicationsȱDivisionȱretainsȱtheȱ

authorityȱunderȱCal.ȱPub.ȱUtil.ȱCodeȱsectionȱ313ȱtoȱrequestȱdataȱaboutȱotherȱoutages.ȱ

CommunicationsȱDivisionȱisȱdirectedȱtoȱprepareȱandȱsubmitȱanalysisȱofȱoutageȱ

informationȱforȱconsiderationȱinȱPhaseȱIIȱofȱthisȱDecision.ȱ

WeȱdirectȱtheȱCommission’sȱNewsȱandȱPublicȱInformationȱOfficeȱcontinueȱandȱ

enhanceȱtheȱCallȱCompletionȱsurveyȱandȱreportingȱtoolȱnowȱavailableȱonȱtheȱCPUC’sȱ


5

Commission’sȱwebȱsiteȱdevelopedȱduringȱthisȱOII,ȱandȱtoȱlookȱintoȱtheȱfeasabilityȱofȱ

developingȱanȱAppȱtoȱallowȱforȱeasyȱmobileȱinputȱandȱviewingȱofȱmaterialȱrelevantȱtoȱ

telephoneȱcorporationȱcomplianceȱwithȱCommissionȱrulesȱincludingȱoutages,ȱ9Ȭ1Ȭ1ȱ

accessȱȱandȱinitiationȱfailures,ȱcallȱcompletionȱfailures,ȱandȱanyȱassociatedȱcausesȱsuchȱ

asȱcomplianceȱwithȱpoleȱsafetyȱrulesȱandȱGOȱ95ȱandȱGOȱ128.ȱ

Thisȱproceedingȱremainsȱopen.ȱ

1. Proceeding History and Summary of Key Findings 1.1. Proceeding History TheȱCommissionȱopenedȱthisȱOrderȱInstitutingȱInvestigationȱ(OII)ȱinȱMayȱ2014,ȱ

I.14Ȭ05Ȭ012,ȱtoȱreviewȱintrastateȱcallȱcompletionȱfailuresȱinȱCalifornia,ȱparticularlyȱinȱ

ruralȱareasȱofȱtheȱstate.2ȱȱTheȱOIIȱstatedȱ“weȱseekȱcommentsȱtoȱbetterȱunderstandȱcausesȱ

ofȱruralȱcallȱcompletionȱfailures,ȱevaluateȱhowȱintrastateȱcallȱcompletionȱfailuresȱcanȱbeȱ

addressedȱatȱtheȱstateȱlevel,ȱhowȱcarriersȱcanȱbeȱencouragedȱtoȱaddressȱcallȱcompletionȱ

failures,ȱwhatȱexistingȱrulesȱcouldȱbeȱrevisedȱorȱamended,ȱandȱwhatȱnewȱrulesȱmightȱbeȱ

adopted.”ȱInȱthisȱOII,ȱcallȱcompletionȱissuesȱandȱfailuresȱareȱdefinedȱasȱcallsȱthatȱwereȱ

initiated,ȱbutȱnotȱcompletedȱbyȱaȱcarrier,ȱforȱanyȱreason,ȱwhetherȱfromȱanȱurbanȱtoȱaȱ

ruralȱarea,ȱ[hereinafterȱ“ruralȱcallȱcompletionȱproblems”ȱorȱ“RCCP”],ȱorȱotherȱtypesȱofȱ

callsȱnotȱcompletedȱincludingȱcallsȱtoȱ9Ȭ1Ȭ1,ȱshortȱcodeȱcallsȱthatȱcannotȱaccessȱaȱshortȱ

codeȱsuchȱasȱ2Ȭ1Ȭ1ȱorȱ8Ȭ1Ȭ1ȱ(aȱproblemȱweȱfoundȱthroughȱthisȱOIIȱwithȱsomeȱMultiȬlineȱ

TelephoneȱSystemȱ(MLTS),ȱalsoȱknownȱasȱPBXȱsystems),ȱorȱotherȱissuesȱwithȱcallȱ

completionȱsuchȱasȱfalseȱdisconnectedȱmessagesȱasȱdescribedȱinȱmoreȱdetailȱbelow.ȱȱ

Californiaȱlawȱcreatesȱaȱstatutoryȱdutyȱforȱtelephoneȱcorporationsȱtoȱcarryȱandȱ

completeȱcalls.ȱCAȱPub.ȱUtil.ȱCodeȱ§ȱ558ȱstates:ȱ

EveryȱtelephoneȱcorporationȱandȱtelegraphȱcorporationȱoperatingȱinȱthisȱStateȱshallȱreceive,ȱtransmit,ȱandȱdeliver,ȱwithoutȱdiscriminationȱorȱdelay,ȱ

2ȱOII,ȱI.14Ȭ05Ȭ012,ȱp.ȱ2.ȱ


6

theȱconversationsȱandȱmessagesȱofȱeveryȱotherȱsuchȱcorporationȱwithȱwhoseȱlineȱaȱphysicalȱconnectionȱhasȱbeenȱmade.ȱȱȱ

Aȱcarrierȱthatȱdoesn’tȱcompleteȱcallsȱviolatesȱthisȱstateȱlawȱduty.ȱȱȱ

InȱMayȱ2015ȱtheȱAssignedȱCommissioner’sȱScopingȱMemoȱandȱRulingȱamendedȱ

theȱscopeȱofȱtheȱOIIȱtoȱincludeȱaȱ“reviewȱofȱ911ȱcallȱcompletionȱandȱaccessȱissues,ȱ

including,ȱbutȱnotȱlimitedȱto,ȱthoseȱdueȱtoȱlossȱofȱdialȬtoneȱforȱreasonsȱotherȱthanȱserviceȱ

cancellation.”3ȱȱTheȱAmendedȱScopingȱMemoȱobserved:ȱ

SinceȱtheȱissuanceȱofȱthisȱOrderȱInstitutingȱInvestigationȱ(OII),ȱaȱnumberȱofȱ911ȱoutagesȱandȱinvestigationsȱhaveȱoccurred,ȱincluding:ȱ1)ȱanȱinquiryȱbyȱtheȱFederalȱCommunication’sȱPublicȱSafetyȱandȱHomelandȱSecurityȱBureauȱintoȱtheȱcircumstancesȱofȱaȱmultiȬstateȱ911ȱoutageȱonȱAprilȱ9ȱandȱ10,ȱ2014,ȱwhichȱresultedȱinȱaȱConsentȱDecreeȱbetweenȱtheȱFCC’sȱEnforcementȱBureauȱandȱVerizonȱBusiness,ȱandȱaȱfineȱofȱ$3.4ȱmillion;ȱȱ2)ȱtheȱrecentȱ911ȱoutageȱinȱtheȱNapaȱareaȱafterȱtheȱAugustȱ24,ȱ2014ȱearthquake;ȱandȱ3)ȱreportsȱofȱextendedȱ911ȱoutagesȱassociatedȱwithȱlossȱofȱdialȬtoneȱafterȱrainstormsȱinȱDecemberȱ2014ȱandȱinȱ2015.4ȱ

SinceȱtheȱadoptionȱofȱtheȱScopingȱMemoȱinȱMayȱ2015,ȱmoreȱoutagesȱoccurredȱandȱwereȱ

reportedȱtoȱtheȱCommissionȱthroughȱthisȱOII.ȱȱTheȱAmendedȱScopingȱMemoȱOrderingȱ

Paragraphȱ2(a)ȱamendedȱthisȱproceedingȱtoȱincludeȱ“(a)ȱreviewȱofȱ911ȱcallȱcompletionȱ

andȱaccessȱissues,ȱincluding,ȱbutȱnotȱlimitedȱto,ȱthoseȱdueȱtoȱlossȱofȱdialȬtoneȱforȱreasonsȱ

otherȱthanȱserviceȱcancellation.”ȱȱThisȱamendedȱscopeȱwasȱestablishedȱ“(b)asedȱonȱaȱ

reviewȱofȱparties’ȱcommentsȱandȱrepliesȱtoȱtheȱquestionsȱposedȱinȱI.14Ȭ05Ȭ012,ȱ

considerationȱofȱtheȱrequirementsȱofȱCal.ȱPub.ȱUtil.ȱCodeȱ§§ȱ451ȱandȱ2883ȱ[requiringȱallȱ

localȱtelephoneȱcorporationsȱwithȱtheȱexceptionȱofȱcertainȱmobileȱtelephonyȱandȱmobileȱ

3ȱAmendedȱScopingȱMemo,ȱp.ȱ4.ȱȱThisȱdocumentȱisȱtitledȱ“AmendedȱScopingȱMemo,”ȱasȱitȱamendsȱtheȱpreliminaryȱscopingȱmemoȱinȱtheȱOII.ȱ4ȱScopingȱMemo,ȱp.ȱ2.ȱ


7

satelliteȱservicesȱtoȱprovideȱ“everyȱsubscriberȱofȱtariffedȱresidentialȱbasicȱexchangeȱ

serviceȱwithȱaccessȱtoȱ‘911’ȱemergencyȱservice.”].5ȱ

ȱ InȱthisȱproceedingȱweȱtookȱcommentȱonȱtheȱadoptionȱofȱtheȱOIIȱandȱonȱtheȱ

AmendedȱScopingȱMemo.ȱȱCommunicationsȱDivisionȱissuedȱseveralȱdataȱrequestsȱ

throughoutȱthisȱproceedingȱrelevantȱtoȱcallȱcompletionȱandȱcallȱaccessȱissues.ȱȱWeȱheldȱ

PublicȱParticipationȱHearingsȱ(PPHs)ȱinȱSanȱAndreas,ȱUkiah,ȱHappyȱCamp,ȱEureka,ȱ

Guernville,ȱMiddletown,ȱSantaȱCruz,ȱLongȱBeach,ȱandȱVisalia.ȱȱWeȱheldȱaȱWorkshopȱtoȱ

discussȱseveralȱproceedingȱissuesȱinȱSanȱFrancisco.ȱȱAnȱAssignedȱCommissionerȱRulingȱ

(ACR)ȱsoughtȱpartyȱcommentsȱonȱtheȱthemesȱraisedȱinȱtheȱWorkshopȱandȱPPHs,ȱandȱ

weȱappreciateȱtheȱpartyȱandȱpublicȱcommentsȱandȱparticipationȱthatȱinformedȱthisȱ

Decision.ȱȱ

1.2. Summary of Key Findings Thisȱproceedingȱinvestigatedȱtwoȱkeyȱcategoriesȱofȱtopics,ȱCallȱCompletionȱ

issuesȱandȱCallȱAccessȱofȱInitiationȱissuesȱincludingȱ9Ȭ1Ȭ1ȱandȱdialȱtoneȱaccess.ȱȱThisȱ

Decisionȱmakesȱfindings,ȱrecommendations,ȱdirectsȱstaffȱaction,ȱandȱordersȱcertainȱ

measuresȱtoȱtakeȱactionȱtoȱappropriatelyȱaddressȱthoseȱissues.ȱȱȱ

TheȱfirstȱsetȱofȱissuesȱconcernsȱCallȱCompletion.ȱȱTheȱOIIȱidentifiedȱseveralȱtypesȱ

ofȱcallȱcompletionȱproblemsȱforȱcallsȱthatȱwereȱinitiatedȱbyȱaȱcaller,ȱbutȱnotȱcarriedȱandȱ

completedȱtoȱtheȱintendedȱrecipientȱofȱtheȱcall.ȱȱTheseȱare:ȱ1)ȱruralȱcallȱcompletionȱ

problemsȱ(RCCP);ȱ2)ȱshortȱcodeȱcallȱproblems,ȱwhereȱaȱcustomerȱdialsȱaȱshortȱsuchȱasȱ

2Ȭ1Ȭ1ȱtoȱconnectȱtoȱsocialȱservicesȱorȱ8Ȭ1Ȭ1ȱsuchȱasȱcallȱbeforeȱyouȱdig,ȱorȱotherȱ

5ȱAmendedȱScopingȱMemo,ȱOrderingȱparagraphȱ2;ȱId.,ȱp.ȱ2ȱ(citingȱCal.ȱPub.ȱUtil.ȱCodeȱ451ȱ(mandatingȱthatȱeveryȱpublicȱutilityȱprovideȱ“adequate,ȱefficient,ȱjust,ȱandȱreasonableȱservice,ȱinstrumentalities,ȱequipment,ȱandȱfacilities,ȱincludingȱtelephoneȱfacilities,ȱasȱdefinedȱinȱSectionȱ54.1ȱofȱtheȱCivilȱCode,ȱasȱareȱnecessaryȱtoȱpromoteȱtheȱsafety,ȱhealth,ȱcomfort,ȱandȱconvenienceȱofȱitsȱpatrons,ȱemployees,ȱandȱtheȱpublic”)ȱandȱCal.ȱPub.ȱUtil.ȱCodeȱ2883(2)(b)ȱ(requiringȱallȱlocalȱtelephoneȱcorporationsȱwithȱtheȱexceptionȱofȱcertainȱmobileȱtelephonyȱandȱmobileȱsatelliteȱservicesȱtoȱprovideȱ“everyȱsubscriberȱofȱtariffedȱresidentialȱbasicȱexchangeȱserviceȱwithȱaccessȱtoȱ‘911’ȱemergencyȱservice.”)).ȱ


8

establishedȱshortȱcodes,ȱandȱisȱunableȱtoȱreachȱthatȱservice,ȱaȱproblemȱweȱfoundȱ

associatedȱwithȱmultiȬlineȱtelephoneȱsystemsȱ(MLTS),ȱalsoȱknownȱasȱPBXȱsystems,ȱ

whereȱtheȱcallerȱdialsȱ9ȱorȱanotherȱnumberȱtoȱgetȱanȱoutsideȱline,ȱand;ȱ3)ȱotherȱissuesȱ

whereȱcallsȱareȱnotȱcompletedȱsuchȱasȱfalseȱdisconnectedȱmessages.ȱ

Theȱsecondȱsetȱofȱissuesȱconcernsȱlackȱofȱdialȱtoneȱorȱ9Ȭ1Ȭ1ȱaccess.ȱȱSuchȱfailuresȱ

resultȱinȱtheȱinabilityȱtoȱinitiateȱaȱcallȱincludingȱanȱemergencyȱcall.ȱȱInȱsuchȱ

circumstances,ȱtheȱcallerȱmayȱdialȱtheȱdigitsȱusedȱtoȱmakeȱaȱcall,ȱbutȱdueȱtoȱlackȱofȱdialȱ

toneȱorȱ9Ȭ1Ȭ1ȱroutingȱorȱotherȱfailures,ȱtheȱcallȱisȱnotȱinitiated.ȱȱForȱcallȱinitiationȱfailures,ȱ

theȱcallȱdoesȱnotȱmoveȱtoȱandȱthroughȱtheȱcarrier’sȱroutingȱsystemȱwhenȱnoȱdialȱtoneȱisȱ

presentȱorȱifȱaspectsȱofȱtheȱ9Ȭ1Ȭ1ȱcallingȱsystemȱfails.ȱȱForȱcallȱinitiationȱfailures,ȱsuchȱ

callsȱareȱneverȱcompletedȱtoȱtheȱcalledȱpartyȱbecauseȱtheȱsystemȱdoesȱnotȱrecognizeȱthatȱ

aȱcallȱwasȱmade.ȱȱ

Thisȱproceedingȱreceivedȱcommentȱonȱseveralȱsignificantȱoutages,ȱeachȱleavingȱ

hundreds,ȱthousands,ȱandȱinȱsomeȱcasesȱmoreȱthanȱtenȱthousandȱpeople,ȱwithoutȱdialȱ

toneȱorȱ9Ȭ1Ȭ1ȱaccessȱforȱhours,ȱdays,ȱorȱevenȱweeks.ȱȱTheȱoutagesȱthatȱwereȱtheȱfocusȱonȱ

thisȱOIIȱwere:ȱ1)ȱtheȱAprilȱ9,ȱ2014ȱoutageȱstartedȱbyȱIntrado’sȱsystemsȱinȱColoradoȱthatȱ

ledȱtoȱtheȱlossȱofȱ9Ȭ1Ȭ1ȱaccessȱinȱseveralȱstatesȱincludingȱinȱeightȱNorthernȱCaliforniaȱ

countiesȱwhereȱVerizonȱBusinessȱsuppliedȱ9Ȭ1Ȭ1ȱaccessȱservicesȱtoȱAT&TȱMobilityȱandȱ

Verizon,ȱWirelessȱcustomers;ȱ2)ȱtheȱoutagesȱresultingȱfromȱfiberȱcutsȱinȱMendocinoȱandȱ

HumboldtȱcountiesȱincludingȱtheȱAugustȱ3,ȱ2014ȱoutage,ȱtheȱSeptemberȱ3,ȱ2015ȱoutage,ȱ

andȱtheȱDecemberȱ9,ȱ2015ȱoutage,ȱeachȱofȱwhichȱresultedȱinȱtheȱlossȱofȱdialȱtoneȱandȱinȱ

severalȱcasesȱ9Ȭ1Ȭ1ȱaccessȱforȱthousands,ȱifȱnotȱtensȱofȱthousandsȱinȱoneȱorȱmoreȱ

counties;ȱ3)ȱtheȱdialȱtoneȱandȱ9Ȭ1Ȭ1ȱaccessȱoutagesȱthanȱmoreȱthanȱ1,200ȱcustomersȱ

experiencedȱfollowingȱtheȱVerizonȬFrontierȱtransitionȱinȱAprilȬMayȱ2016.ȱ

Weȱidentifiedȱseveralȱkeyȱfactorsȱassociatedȱwithȱthoseȱoutages.ȱȱKeyȱoutageȱ

driversȱinclude:ȱ1)ȱSoftwareȬdrivenȱoutages;ȱ2)ȱfacilitiesȬdrivenȱoutagesȱrangingȱfromȱ

maintenanceȱissuesȱtoȱfiberȱcuts;ȱ3)ȱserviceȱissuesȱthatȱexacerbateȱoutagesȱsuchȱasȱwhenȱ


9

customerȱrepairȱticketȱrequestsȱareȱnotȱproperlyȱenteredȱorȱwhenȱcustomersȱhaveȱ

difficultyȱreportingȱoutagesȱorȱhaveȱtoȱgoȱtoȱgreatȱlengthsȱtoȱreportȱoutagesȱandȱwaitȱ

daysȱforȱrepair;ȱ4)ȱnetworkȱdesignȱissuesȱsuchȱasȱrouteȱdiversityȱofȱtheȱlackȱthereof,ȱ

particularlyȱforȱoutagesȱofȱtransportȱfacilitiesȱthatȱcarryȱdataȱandȱcallsȱforȱthousandsȱofȱ

customers;ȱ5)ȱemergenciesȱorȱdisastersȱsuchȱasȱwildfiresȱthatȱresultȱinȱlargeȱscaleȱ

outagesȱresultingȱfromȱburningȱofȱlines,ȱpoles,ȱandȱfacilities,ȱorȱsmokeȱblockingȱcallȱ

transportȱfacilitiesȱsuchȱasȱmicrowaveȱdishes;ȱ6)ȱdataȱgapsȱaboutȱtheȱextentȱofȱoutagesȱinȱ

Californiaȱnotȱcapturedȱbyȱtheȱrepairȱticketȱtriggerȱifȱtroubleȱticketsȱareȱnotȱinitiatedȱbyȱ

theȱcustomerȱorȱtheȱcarrier,ȱȱorȱifȱtheȱoutageȱfallsȱbelowȱtheȱMajorȱServiceȱInterruptionȱ

thresholdȱusedȱinȱGOȱ133ȬD,ȱpeggedȱatȱtheȱFCCȱNetworkȱOutageȱReportingȱSystemȱ

(NORS)ȱthreshold,ȱcurrentlyȱ900,000ȱuserȱminutesȱforȱ30ȱminutes.ȱ

Inȱanalyzingȱtheseȱissuesȱweȱalsoȱlearnedȱaboutȱ9Ȭ1Ȭ1ȱaccessȱissuesȱincludingȱ

publicȱsafetyȱaccessȱtoȱtheȱ9Ȭ1Ȭ1ȱdatabase,ȱaddressingȱissuesȱforȱsomeȱNativeȱAmericanȱ

tribesȱwhereȱallȱtribalȱmembersȱlivingȱonȱaȱreservationȱshowȱonȱtheȱ9Ȭ1Ȭ1ȱsystemȱasȱ

havingȱtheȱsameȱaddressȱ,ȱandȱtheȱlackȱofȱaȱreadyȱcontactȱpersonȱatȱaȱcommunicationsȱ

providerȱforȱpublicȱsafetyȱofficialsȱsuchȱasȱcityȱorȱcountyȱOfficeȱofȱEmergencyȱServicesȱ

(OES)ȱofficialsȱtoȱcommunicateȱemergencyȱrequestsȱsuchȱasȱaboutȱaȱdownedȱpoleȱ

blockingȱtrafficȱorȱtheȱstatusȱofȱoutagesȱcreatingȱorȱexacerbatingȱanȱemergency.ȱȱThisȱOIIȱ

ordersȱstepsȱtoȱaddressȱeachȱofȱthoseȱpublicȱsafetyȱissuesȱtoȱensureȱsafeȱandȱreliableȱ

serviceȱandȱ9Ȭ1Ȭ1ȱaccess.ȱ

ThisȱOIIȱgatheredȱcommentsȱandȱdataȱfromȱCaliforniaȱresidents,ȱbusinesses,ȱ

publicȱsafetyȱofficials,ȱgovernments,ȱandȱcarriersȱaboutȱcallȱfailures,ȱoutages,ȱtheirȱ

causes,ȱandȱpotentialȱsolutionsȱtoȱimproveȱserviceȱandȱfulfillȱobligationsȱtoȱprovideȱsafe,ȱ

reliableȱserviceȱatȱjustȱandȱreasonableȱratesȱunderȱCal.ȱPub.ȱUtil.ȱCodeȱsectionȱ451.ȱȱInȱ

thisȱOIIȱweȱheardȱpublicȱandȱpartyȱcommentsȱaboutȱtheȱconsequencesȱtoȱpublicȱsafety,ȱ

theȱeconomy,ȱhealth,ȱandȱeducationȱandȱotherȱsectorsȱarisingȱfromȱtheȱfailureȱtoȱ

completeȱcalls,ȱasȱwellȱasȱfromȱdialȬtoneȱoutagesȱthatȱledȱtoȱtheȱlossȱofȱtheȱabilityȱtoȱcallȱ


10

9Ȭ1Ȭ1ȱorȱinitiateȱotherȱcalls.ȱȱWeȱreceivedȱcommentsȱaboutȱseverelyȱdegradedȱserviceȱ

characterizedȱbyȱrecurringȱoutagesȱorȱveryȱpoorȱquality.ȱȱWeȱreceivedȱreportsȱofȱlongȱ

delaysȱofȱthreeȱtoȱfiveȱdaysȱorȱmoreȱthatȱthousandsȱexperiencedȱinȱgettingȱvoiceȱandȱȱ

9Ȭ1Ȭ1ȱserviceȱrestored,ȱandȱcallȱqualityȱproblemsȱaddressed.ȱ

AlthoughȱmostȱRuralȱLocalȱExchangeȱCarriersȱ(RLECs)ȱinȱCaliforniaȱreportedȱ

CallȱCompletionȱfailuresȱandȱissuesȱatȱtheȱtimeȱweȱopenedȱthisȱOII,ȱweȱareȱpleasedȱtoȱ

reportȱthatȱruralȱcallȱcompletionȱproblemsȱhaveȱabated,ȱbutȱweȱareȱconcernedȱthatȱsuchȱ

problemsȱhaveȱnotȱstopped.ȱȱSomeȱCaliforniaȱruralȱcarriersȱstillȱreportȱoccasionalȱ

intrastate,ȱasȱwellȱasȱinterstate,ȱcallȱcompletionȱproblemsȱasȱdiscussedȱbelow.ȱȱAsȱ

detailedȱbelow,ȱcarriersȱthatȱexperienceȱcallȱcompletionȱproblemsȱgoingȱforwardȱshallȱ

provideȱinformationȱaboutȱtheȱissueȱinȱaȱdetailedȱletterȱtoȱCommunicationsȱDivision.ȱȱ

TheȱCommission’sȱAlternativeȱDisputeȱResolutionȱmechanismȱisȱavailableȱtoȱmediateȱ

interȬcarrierȱissuesȱthatȱmayȱaffectȱcallȱcompletion.ȱȱCarriersȱmayȱalsoȱfileȱaȱformalȱ

complaintȱaboutȱcallȱcompletionȱproblems.ȱ

Toȱenableȱaccessȱtoȱservicesȱavailableȱthroughȱshortȱcodes,ȱweȱdirectȱcarriersȱtoȱ

educateȱtheirȱMLTSȱcustomersȱaboutȱstepsȱtoȱenableȱshortȱcodeȱaccess.ȱȱWeȱdirectȱ

carriersȱwhoȱprogramȱMLTSȱsystemsȱtoȱenableȱshortȱcodeȱaccess,ȱwithȱanȱoptȬoutȱforȱ

MLSȱoperatorsȱforȱsomeȱshortȱcodesȱasȱdiscussedȱherein.ȱȱWeȱdirectȱmeetingsȱwithȱtheȱ

2Ȭ1Ȭ1ȱcoalitionȱand,ȱtheȱ8Ȭ1Ȭ1ȱcoalition,ȱasȱdescribedȱbelowȱtoȱeffectivelyȱenableȱthisȱshortȱ

codeȱaccess.ȱȱWeȱreferȱtoȱtheȱproceedingȱthatȱwillȱimplementȱSBȱ1212ȱtoȱbringȱ2Ȭ1Ȭ1ȱ

statewideȱtoȱdetermineȱwhetherȱadditionalȱstepsȱareȱprudentȱandȱnecessaryȱtoȱensureȱ

2Ȭ1Ȭ1ȱaccess,ȱincludingȱfromȱMLTSȱusers.ȱ

WeȱreferȱtoȱtheȱNetworkȱStudyȱanalysisȱofȱAT&T,ȱCaliforniaȱandȱFrontierȱweȱ

orderedȱinȱD.15Ȭ08Ȭ041,ȱinȱR.11Ȭ12Ȭ001ȱanalysisȱofȱseveralȱissuesȱidentifiedȱandȱ

examinedȱinȱthisȱproceeding:ȱ1)ȱallegationsȱofȱfalseȱdisconnectedȱmessages,ȱfastȱbusyȱ

messagesȱforȱwhatȱshouldȱbeȱworkingȱlines,ȱandȱextremelyȱpoorȱcallȱqualityȱcomments;ȱ

2)ȱnetworkȱandȱcallȱpathȱdiversityȱ(theȱnumberȱofȱwaysȱaȱcallȱcanȱtravelȱtoȱbeȱ


11

completed),ȱredundancy,ȱandȱresiliencyȱissuesȱhighlightedȱbyȱlargeȬscaleȱoutages;ȱȱ

3)ȱtheȱphysicalȱconditionȱofȱtheȱAT&T,ȱCaliforniaȱandȱFrontierȱnetworksȱtoȱbeȱstudied,ȱ

includingȱnetworkȱmaintenanceȱandȱserviceȱpracticesȱthatȱmayȱcontributeȱtoȱoutagesȱ

andȱinfluenceȱtheirȱbreadth,ȱlength,ȱandȱoccurrence;ȱ4)ȱtroubleȱticketȱresponseȱtimeȱandȱ

outagesȱreportedȱthroughȱGOȱ133ȬD,ȱandȱreportsȱofȱoutagesȱofȱ300,000ȱuserȱminutesȱorȱ

more,ȱlastingȱatȱleastȱ30ȱminutes.ȱȱAtȱtheȱtimeȱofȱthisȱwriting,ȱtheȱNetworkȱStudyȱ

RequestȱforȱProposalȱ(RFP)ȱisȱgoingȱthroughȱtheȱCommission’sȱcontractingȱprocessȱandȱ

onceȱthatȱisȱcompletedȱanȱRFPȱwillȱbeȱissuedȱforȱtheȱstudy.ȱ

WeȱtakeȱofficialȱnoticeȱunderȱEvidenceȱCodeȱ§ȱ452(h)ȱthatȱColoradoȱrequiresȱ

diverseȱroutingȱforȱ9Ȭ1Ȭ1ȱfacilities.6ȱȱInȱlightȱofȱtheȱpublicȱsafetyȱissuesȱraisedȱbyȱlackȱofȱ

routeȱdiversityȱorȱresiliencyȱforȱPSAPsȱandȱCountyȱOESȱoffices,ȱandȱallȱCaliforniaȱ

customers,ȱweȱencourageȱcarriersȱtoȱofferȱdiversity,ȱresiliency,ȱandȱredundancyȱoptionsȱ

toȱEmergencyȱServicesȱOfficesȱandȱpublicȱsafetyȱaccessȱmanagers.ȱ

WeȱdirectȱtheȱCommission’sȱConsumerȱAffairsȱBranchȱ(CAB)ȱtoȱreachȱoutȱtoȱtheȱ

consumersȱwhoȱspokeȱatȱtheȱPPHsȱaboutȱtheseȱissuesȱandȱofferȱCAB’sȱinformalȱ

complaintȱresolutionȱservices.ȱȱThoseȱconsumersȱmayȱalsoȱfileȱaȱformalȱcomplaintȱwithȱ

theȱCommission.ȱȱȱ

Ourȱreviewȱofȱoutagesȱandȱ9Ȭ1Ȭ1ȱaccessȱfailuresȱincludedȱcustomerȱandȱpublicȱ

safetyȱofficialȱdiscussionȱofȱtheȱstatusȱofȱcommunicationsȱfacilitiesȱandȱnetworksȱasȱaȱ

contributorȱtoȱoutages.ȱȱThisȱincludedȱcommentsȱandȱphotographsȱsubmittedȱinȱPPHsȱ

andȱinȱTURN’sȱresponseȱtoȱtheȱACRȱaboutȱcommunicationsȱlinesȱattachedȱtoȱtrees,ȱdeadȱ

orȱalive,ȱhangingȱorȱimproperlyȱrepairedȱlines,ȱleaningȱandȱoverloadedȱpoles,ȱ“buddyȱ

poles”ȱwithȱcommunicationsȱlinesȱonȱaȱpoleȱstandingȱbyȱaȱmetalȱpeg,ȱandȱotherȱ

maintenanceȱandȱphysicalȱnetworkȱstatusȱissues.ȱȱȱ

6ȱ4ȱCodeȱOfȱColoradoȱRegulationsȱ(CCR)ȱ723Ȭ2ȱPartȱ2ȱ“Facilitiesȱ forȱ9Ȭ1Ȭ1ȱserviceȱ shallȱbeȱdiverselyȱ routed,ȱusingȱdifferentȱcircuitȱ routesȱwhereverȱfeasible.”ȱ


12

ManyȱofȱtheȱcommentsȱreceivedȱinȱthisȱOIIȱaddressedȱphysicalȱfacilitiesȱ

associatedȱwithȱpoorȱserviceȱorȱoutagesȱfocusedȱonȱpoles,ȱandȱwires,ȱandȱpracticesȱthatȱ

seemȱinconsistentȱwithȱGOȱ95.ȱȱGOȱ95ȱrequiresȱtelephoneȱcorporationsȱandȱthoseȱusingȱ

polesȱandȱwiresȱtoȱengageȱinȱvegetationȱmanagementȱincludingȱforȱdead,ȱrottenȱorȱ

diseasedȱtreesȱandȱvegetation.ȱȱWithȱtheȱGovernor’sȱDeclarationȱofȱtheȱTreeȱMortalityȱ

StateȱofȱEmergency,ȱpromptȱcomplianceȱwithȱvegetationȱmanagementȱdutiesȱisȱ

imperative.ȱȱThisȱCommissionȱonȱNovemberȱ10,ȱ2016ȱadoptedȱaȱResolutionȱtoȱapproveȱaȱ

citationȱprogramȱforȱviolationsȱofȱGOȱ95ȱandȱGOȱ128ȱtoȱencourageȱcomplianceȱandȱ

monitoringȱofȱthisȱCommission’sȱrulesȱregardingȱpoleȱandȱundergroundȱlineȱandȱ

facilityȱsafety.ȱȱȱ

WeȱreferȱtoȱSEDȱtoȱdetermineȱwhetherȱpracticesȱsuchȱasȱaffixingȱtelephoneȱlinesȱ

toȱtreesȱareȱinconsistentȱwithȱGOȱ95.ȱȱSEDȱmayȱissueȱcitations,ȱasȱappropriateȱforȱ

violationsȱofȱGOȱ95.ȱȱWeȱdirectȱSEDȱtoȱissueȱguidanceȱclarifyingȱtheȱdutyȱtoȱaffixȱlinesȱtoȱ

properȱsupportȱstructuresȱandȱaddressingȱtheȱissueȱofȱlinesȱattachedȱtoȱtrees,ȱdead,ȱ

diseased,ȱorȱalive.ȱȱWeȱreferȱtoȱSEDȱtoȱdetermineȱwhatȱadditionalȱstepsȱareȱwarrantedȱtoȱ

ensureȱcomplianceȱwithȱvegetationȱmanagementȱduties,ȱincludingȱthroughȱtheȱcitationȱ

program,ȱissuanceȱofȱguidanceȱaboutȱvegetationȱmanagementȱdutiesȱinȱlightȱofȱtheȱtreeȱ

mortalityȱepidemic,ȱand,ȱifȱwarranted,ȱanȱadjudicatoryȱOII.ȱ

WeȱreferȱtoȱtheȱCommission’sȱCPEDȱtoȱanalyzeȱwhetherȱanȱadjudicatoryȱOIIȱ

shouldȱbeȱbroughtȱforȱanyȱviolationsȱofȱstateȱlawȱorȱthisȱCommission’sȱrules,ȱorders,ȱ

andȱDecisionsȱarisingȱfrom:ȱ1)ȱtheȱAprilȱ9,ȱ2014ȱoutageȱstartedȱbyȱIntrado’sȱsystemsȱinȱ

Coloradoȱthatȱledȱtoȱtheȱlossȱofȱ9Ȭ1Ȭ1ȱaccessȱinȱseveralȱstatesȱincludingȱinȱeightȱNorthernȱ

CaliforniaȱcountiesȱwhereȱVerizonȱBusinessȱsuppliedȱ9Ȭ1Ȭ1ȱaccessȱservicesȱtoȱAT&Tȱ

MobilityȱandȱVerizon,ȱWirelessȱcustomers;ȱ2)ȱtheȱoutagesȱresultingȱfromȱfiberȱcutsȱinȱ

MendocinoȱandȱHumboldtȱcountiesȱincludingȱtheȱAugustȱ3,ȱ2014ȱoutage,ȱtheȱSeptemberȱ

3,ȱ2015ȱoutage,ȱandȱtheȱDecemberȱ9,ȱ2015ȱoutage,ȱeachȱofȱwhichȱresultedȱinȱtheȱlossȱofȱ


13

dialȱtoneȱandȱinȱseveralȱcasesȱ9Ȭ1Ȭ1ȱaccessȱforȱthousandsȱinȱoneȱorȱseveralȱcounties;ȱ

3)ȱtheȱoutagesȱfollowingȱtheȱVerizonȬFrontierȱtransitionȱinȱAprilȬMayȱ2016.ȱ

WeȱdirectȱtheȱCommission’sȱCPEDȱtoȱinitiateȱinvestigationsȱofȱtheȱtwoȱmajorȱ

CPs,ȱVerizonȱBusinessȱandȱLevelȱ3ȱ(whoȱsettledȱwithȱtheȱFCCȱandȱpaidȱfinesȱregardingȱ

CallȱCompletionȱissues,ȱandȱwereȱorderedȱtoȱtakeȱcorrectiveȱactionsȱonȱtheirȱhandlingȱofȱ

CCP),ȱtoȱobtainȱmoreȱinformationȱaboutȱtheȱaboveȱmentionedȱgapsȱinȱtheirȱintrastateȱ

longȱdistanceȱtrafficȱdataȱforȱcallsȱoriginatingȱfromȱorȱintendedȱtoȱaȱdestinationȱinȱ

California,ȱandȱrecommendȱappropriateȱaction.ȱȱCPEDȱshallȱrequestȱunderȱthisȱ

Commission’sȱauthorityȱunderȱCal.ȱPub.ȱUtil.ȱCodeȱsection313ȱandȱCaliforniaȱlaw,ȱtheȱ

dataȱitȱneedsȱfromȱVerizonȱBusinessȱandȱLevelȱ3ȱtoȱanalyzeȱcomplianceȱwithȱtheȱdutyȱofȱ

aȱcarrierȱoperatingȱinȱCaliforniaȱtoȱcarryȱandȱcompleteȱcalls,ȱunderȱCal.ȱPub.ȱUtil.ȱCodeȱ

sectionȱ558,ȱtoȱprovideȱsafe,ȱreliableȱserviceȱunderȱCal.ȱPub.ȱUtil.ȱCodeȱsectionȱ451,ȱandȱ

otherȱCommissionȱrules,ȱorders,ȱDecisions,ȱandȱtheȱCaliforniaȱPublicȱUtilitiesȱCode.ȱ

ThisȱOIIȱreceivedȱinformationȱfromȱmanyȱCaliforniansȱthatȱserviceȱcallsȱwereȱ

oftenȱscheduleȱbyȱcarriersȱfiveȱdaysȱlater,ȱevenȱforȱOutȬofȬServiceȱ(OOS)ȱcalls.ȱInȱ

analyzingȱtheȱreferralsȱfromȱthisȱDecision,ȱweȱdirectȱCPEDȱtoȱconsiderȱtheȱGOȱ133ȬDȱ

standard,ȱasȱwellȱasȱtheȱobligationȱtoȱprovideȱsafe,ȱreliableȱserviceȱwithȱadequateȱ

facilities,ȱ9Ȭ1Ȭ1ȱaccess,ȱandȱtheȱdutyȱtoȱensureȱthatȱdifferentȱlocalitiesȱdoȱnotȱ“maintainȱ

anyȱunreasonableȱdifferenceȱasȱtoȱrates,ȱcharges,ȱservice,ȱfacilities,ȱ…betweenȱlocalitiesȱ

orȱasȱbetweenȱclassesȱofȱservice”ȱunderȱCal.ȱPub.ȱUtil.ȱCodeȱsectionsȱ451,ȱ709,ȱ2883(2)(b),ȱ

andȱ453,ȱrespectively,ȱandȱotherȱobligationsȱunderȱCaliforniaȱlawȱandȱtheȱCommission’sȱ

rules,ȱDecisions,ȱandȱorders.ȱ

WeȱdirectȱCommunicationsȱandȱLegalȱDivisionȱtoȱprepareȱaȱmemoȱtoȱproposeȱ

submittingȱcommentsȱtoȱtheȱFCCȱtoȱrequestȱreviewȱofȱwhetherȱserviceȱfailuersȱwereȱ

adequatelyȱreportedȱunderȱNORsȱandȱFCCȱrules,ȱorders,ȱandȱDecisions,ȱandȱfederalȱlawȱ

forȱtheȱAugustȱ3,ȱ2014,ȱSeptemberȱ3,ȱ2015,ȱandȱDecemberȱ9,ȱ2015ȱoutagesȱinȱMendocino,ȱ

Humboldt,ȱandȱDelȱNorteȱCounties.ȱȱTheȱcommentsȱshallȱrequestȱreviewȱofȱwhetherȱ


14

voiceȱoutagesȱthatȱresultedȱfromȱOC3ȱorȱtransportȱoutagesȱwereȱadequatelyȱreported,ȱ

includingȱtheȱlossȱofȱendȬtoȬendȱ9Ȭ1Ȭ1ȱserviceȱforȱhundredsȱorȱthousandsȱofȱcustomersȱ

affectedȱbyȱtheȱOC3ȱorȱtransportȱoutage.ȱ

Toȱaddressȱ9Ȭ1Ȭ1ȱaccessȱissuesȱraisedȱinȱtheȱcourseȱofȱthisȱproceeding,ȱweȱdirectȱ

carriersȱtoȱmeetȱandȱconferȱwithȱCalifornia’sȱfederallyȬrecognizedȱtribesȱandȱCountyȱ

OESȱofficesȱtoȱdetermineȱifȱactionȱisȱneededȱtoȱmakeȱresidentialȱaddressesȱvisibleȱtoȱtheȱ

9Ȭ1Ȭ1ȱdatabase,ȱincludingȱassigningȱaȱuniqueȱaddressȱbyȱmutualȱagreementȱinȱareasȱ

whereȱallȱhouseholdsȱcurrentlyȱhaveȱtheȱsameȱaddress.ȱȱ

Weȱdirectȱrespondentsȱtoȱprovideȱtoȱcity,ȱcounty,ȱandȱfederallyȱrecognizedȱtribalȱ


week,ȱandȱnotȱjustȱaȱgeneralȱ800ȱorȱ8xxȱnumber.ȱȱWeȱdirectȱaȱmeetȱandȱconferȱwithȱOESȱ

officials,ȱCommunicationsȱDivision,ȱandȱSafetyȱandȱEnforcementȱDivisionȱ(SED)ȱtoȱ

discussȱcommunicationsȱduringȱandȱafterȱemergenciesȱsuchȱasȱfiresȱandȱmeansȱtoȱ

shortenȱtheȱtimeȱforȱaccessibleȱcommunications.ȱȱ

ThisȱOIIȱfindsȱaȱdataȱgapȱforȱinformationȱaboutȱoutagesȱnotȱcapturedȱbyȱtheȱ

repairȱticketȱtriggerȱofȱGOȱ133ȬD,ȱorȱifȱtheȱoutageȱfallsȱbelowȱtheȱMajorȱServiceȱ

InterruptionȱthresholdȱusedȱinȱGOȱ133ȬD,ȱpeggedȱatȱtheȱFCCȱNetworkȱOutageȱ

ReportingȱSystemȱ(NORS)ȱthreshold,ȱcurrentlyȱ9000,00ȱuserȱminutesȱforȱ30ȱminutes.ȱȱ

UnderȱthisȱCommission’sȱauthorityȱtoȱrequireȱcarrierȱrecordsȱunderȱCal.ȱPub.ȱUtil.ȱCodeȱ

sectionȱ313,ȱtoȱensureȱcomplianceȱwithȱresponsibilityȱtoȱprovideȱsafeȱandȱreliableȱserviceȱ

(Cal.ȱPub.ȱUtil.ȱCodeȱsectionȱ451),ȱprovideȱhighȬqualityȱserviceȱthroughoutȱCaliforniaȱ

(Cal.ȱPub.ȱUtil.ȱCodeȱsectionsȱ709,ȱ275.6,ȱandȱ2896),ȱ9Ȭ1Ȭ1ȱaccessȱ(Cal.ȱPub.ȱUtil.ȱCodeȱ

sectionȱ2883(2)(b)ȱandȱCal.ȱPub.ȱUtil.ȱCodeȱsectionȱ451),ȱcarrierȱdutiesȱtoȱmaintainȱandȱ

operateȱfacilitiesȱtoȱprotectȱpublicȱandȱworkerȱsafetyȱ(Cal.ȱPub.ȱUtil.ȱCodeȱsectionȱ453),ȱ

andȱcarrierȱdutiesȱtoȱcompleteȱcallsȱ(Cal.ȱPub.ȱUtil.ȱCodeȱsectionȱ558),ȱandȱtheȱstatutoryȱ

authorityȱforȱtheȱCommissionȱtoȱdoȱallȱthingsȱnecessaryȱinȱtheȱexerciseȱofȱourȱ

jurisdictionȱ(Cal.ȱPub.ȱUtil.ȱCodeȱsectionȱ701),ȱweȱorderȱCarriersȱofȱLastȱResortȱ(COLRs)ȱ


15

toȱprovideȱdataȱtoȱtheȱCommissionȱaboutȱmoreȱoutagesȱthanȱareȱcurrentlyȱreportedȱ

underȱtheȱGOȬ133ȱ(D)ȱMajorȱServiceȱInterruptionȱstandard,ȱorȱthroughȱFCCȱNORSȱ

reporting.ȱȱȱ

Inȱlightȱofȱtheȱpublicȱsafetyȱimplicationsȱofȱcommunicationsȱoutagesȱthatȱaffectȱ

hundredsȱorȱthousandsȱofȱCaliforniansȱandȱourȱauthorityȱunderȱCal.ȱPub.ȱUtil.ȱCodeȱ

sectionȱ313ȱwhichȱallowsȱtheȱCommissionȱaccessȱtoȱutilityȱrecords,ȱimmediatelyȱ

followingȱtheȱadoptionȱofȱthisȱDecision,ȱRespondentȱCOLRsȱshallȱreportȱtoȱtheȱ

Commissionȱwithinȱ120ȱminutesȱofȱanȱoutageȱofȱ300,000ȱuserȱminutesȱthatȱlastȱ30ȱ

minutesȱorȱmore,ȱtheȱextentȱofȱtheȱoutages,ȱtheȱnumberȱofȱusersȱaffected,ȱtheȱestimatedȱ

repairȱtimeȱandȱcause.ȱȱForȱanyȱoutageȱofȱOC3ȱminutesȱorȱtransportȱoutage,ȱCOLRsȱshallȱ

reportȱtoȱtheȱCommissionȱtheȱnumberȱofȱuserȱminutesȱaffectedȱbyȱtheȱOC3ȱoutage.ȱ

Threeȱhundredȱthousandȱ(300,000)ȱuserȱminutesȱreflectsȱtheȱnumberȱofȱusersȱthatȱmayȱ

triggerȱcountyȬlevelȱpublicȱsafetyȱobligationsȱunderȱCalifornia’sȱStandardizedȱ

EmergencyȱManagementȱSystemȱ(SEMS),ȱdetailedȱinȱCaliforniaȱCodeȱofȱRegulationsȱ

(CCR)ȱTitleȱ19,ȱ§ȱ2401.ȱȱReceivingȱtimelyȱinformationȱaboutȱsuchȱoutagesȱisȱcriticalȱtoȱ

enablingȱthisȱCommissionȱtoȱensureȱthatȱcarriersȱprovideȱserviceȱinȱcomplianceȱwithȱ

Californiaȱlaw,ȱandȱthisȱCommission’sȱDecisions,ȱrules,ȱandȱOrders.ȱ

WeȱdirectȱCommunicationsȱDivisionȱtoȱprepareȱandȱmakeȱavailableȱtoȱcarriersȱ

withinȱ90ȱdaysȱofȱtheȱadoptionȱofȱthisȱDecisionȱaȱformatȱforȱreportingȱoutagesȱ300,000ȱ


anȱOC3ȱorȱtransportȱoutage.ȱȱThisȱorderȱdoesȱnotȱlimitȱtheȱCommission’sȱauthorityȱtoȱ

requireȱotherȱdataȱandȱrecordsȱunderȱCal.ȱPub.ȱUtil.ȱCodeȱsectionȱ313,ȱandȱinspectionȱ

rightsȱunderȱCal.ȱPub.ȱUtil.ȱCodeȱsectionȱ314.ȱȱȱȱ

Weȱencourageȱallȱrespondentsȱonȱaȱvoluntaryȱbasisȱtoȱreportȱoutagesȱofȱ300,000ȱ





16

asȱpossibleȱafterȱtheȱoutageȱhasȱbegun,ȱandȱsuchȱreportsȱshouldȱbeȱcommunicatedȱnoȱ

laterȱthanȱ60ȱminutesȱafterȱtheirȱdiscoveryȱofȱsuchȱoutages.ȱȱȱ

ThisȱDecisionȱdirectsȱthatȱPhaseȱIIȱofȱthisȱProceedingȱwillȱexploreȱwhetherȱtheȱ

CommissionȱshouldȱrequireȱCOLRsȱorȱotherȱrespondentsȱtoȱreportȱoutagesȱtoȱCalȱOES,ȱ

City,ȱandȱCountyȱOES,ȱandȱCaliforniaȱfederallyȱrecognizedȱtribalȱOESȱofficialȱcontacts.ȱȱ

PhaseȱIIȱshallȱconsiderȱwhetherȱoutageȱreportingȱshouldȱbeȱmadeȱtoȱthoseȱOESȱofficialȱ

contacts,ȱwhatȱlevelȱofȱoutagesȱshouldȱbeȱreported,ȱandȱwhichȱtypesȱofȱcarriers,ȱifȱany,ȱ

shouldȱbeȱrequiredȱtoȱprovideȱoutageȱsuchȱreporting.ȱȱAȱWorkingȱGroupȱshallȱbeȱ

convenedȱinȱPhaseȱIIȱincludingȱCommunicationsȱDivision,ȱSafetyȱandȱEnforcementȱ

Division,ȱtheȱparties,ȱandȱinvitingȱCalȱOES,ȱCity,ȱCounty,ȱandȱfederallyȱrecognizedȱ

tribalȱOESȱofficialsȱtoȱdiscussȱandȱrecommendȱoutageȱreportingȱthresholds,ȱ

requirements,ȱandȱprotocolsȱthatȱreflectȱCalifornia’sȱpublicȱsafetyȱneedsȱandȱthisȱ

Commission’sȱresponsibilities.ȱȱTheȱCommissionȱshallȱconsiderȱthoseȱrecommendationsȱ

inȱPhaseȱIIȱofȱthisȱproceeding.ȱ

InȱD.16Ȭ01Ȭ008ȱinȱR.14Ȭ12Ȭ014ȱweȱdirectedȱelectricȱutilitiesȱunderȱtheȱ

Commission’sȱjurisdictionȱtoȱmakeȱoutageȱinformationȱavailableȱtoȱindividualȱ

customers,ȱandȱtoȱpostȱdataȱonȱtheirȱwebsiteȱaboutȱhowȱtoȱaccessȱthatȱinformation.ȱȱWeȱ

takeȱofficialȱnoticeȱunderȱEvidenceȱCodeȱ§ȱ452(h)ȱthatȱtheȱStateȱofȱOhioȱrequiresȱcarriersȱ

toȱnotifyȱ“theȱcommissionȇsȱoutageȱcoordinatorȱandȱwhenȱappropriate,ȱtheȱnewsȱmediaȱ

inȱtheȱaffectedȱarea,”ȱaffectingȱatȱleastȱ900,000ȱuserȬminutesȱthatȱlastsȱ30ȱminutesȱorȱ

more.7ȱȱPhaseȱIIȱofȱthisȱProceedingȱwillȱconsiderȱoutageȱreportingȱrequirements,ȱ

includingȱwhetherȱpublicȱreportingȱorȱreportingȱtoȱtheȱmediaȱshouldȱbeȱrequiredȱasȱthisȱ

Commissionȱrequiresȱforȱelectricȱcorporations.ȱ

7ȱȱOhioȱAdministrativeȱCode,ȱ4901:1Ȭ6Ȭ31,ȱEmergencyȱandȱoutageȱoperations,ȱhttp://codes.ohio.gov/oac/4901:1Ȭ6Ȭ31v1.ȱ


17

WeȱdirectȱCommunicationsȱDivisionȱtoȱmonitorȱreportsȱofȱoutagesȱsubmittedȱtoȱ



InterruptionȱthresholdȱofȱGOȱ133ȬD,ȱSectionȱ4.ȱȱCommunicationsȱDivisionȱretainsȱtheȱ

authorityȱunderȱCal.ȱPub.ȱUtil.ȱCodeȱsectionȱ313ȱtoȱrequestȱdataȱaboutȱotherȱoutages.ȱ

CommunicationsȱDivisionȱisȱdirectedȱtoȱprepareȱandȱsubmitȱanalysisȱofȱoutageȱ

informationȱforȱconsiderationȱinȱPhaseȱIIȱofȱthisȱDecision.ȱ

Toȱprovideȱmoreȱaccountabilityȱtoȱtheȱpublic,ȱinformationȱaboutȱcomplianceȱwithȱ

Commissionȱrules,ȱandȱtoȱpromoteȱpublicȱsafetyȱandȱserviceȱreliability,ȱweȱdirectȱtheȱ

Commission’sȱNewsȱandȱPublicȱInformationȱOfficeȱcontinueȱandȱenhanceȱtheȱCallȱ

CompletionȱsurveyȱandȱreportingȱtoolȱnowȱavailableȱonȱtheȱCommission’sȱwebȱsiteȱ

developedȱduringȱthisȱOII.ȱȱSomeȱcustomersȱtodayȱoccasionallyȱpostȱinformationȱaboutȱ

outagesȱonȱsocialȱmedia,ȱbutȱthatȱinformationȱisȱsporadicȱandȱnotȱlinkedȱtoȱcomplianceȱ

withȱtheȱCommission’sȱrules,ȱorder,ȱandȱDecisions,ȱandȱCaliforniaȱlaw.ȱȱEnablingȱ

customerȱsharingȱaboutȱoutageȱinformation,ȱasȱwellȱasȱaboutȱviolationsȱofȱCommissionȱ

rulesȱrelevantȱtoȱoutagesȱorȱcallȱcompletionȱfailures,ȱisȱaȱprudentȱandȱreasonableȱstepȱtoȱ

enableȱthisȱCommission’sȱoversightȱresponsibility.ȱȱ

2. Legal Standards Governing the Commission’s Oversight of Call Completion, Dial tone, and 9-1-1 access and Telecommunications ServiceListedȱbelowȱisȱanȱoutlineȱofȱsomeȱofȱtheȱlegalȱstatutesȱthatȱguideȱthisȱproceeding.ȱȱ

TheȱlegalȱbackgroundȱisȱalsoȱframedȱbyȱthisȱCommission’sȱrules,ȱorders,ȱandȱDecisions.ȱ

2.1. Highlights of Duties of Carriers: Adequateȱfacilitiesȱtoȱpromoteȱpublicȱsafetyȱandȱconvenienceȱatȱjustȱandȱreasonableȱrates:ȱ

AsȱnotedȱinȱtheȱOIIȱthatȱopenedȱthisȱinvestigation,ȱunderȱPub.ȱUtil.ȱCodeȱ§ȱ451,ȱ

theȱCommissionȱisȱresponsibleȱforȱensuringȱsafeȱandȱreliableȱserviceȱatȱjustȱandȱ

reasonableȱrates:ȱȱ


18

Allȱchargesȱdemandedȱorȱreceivedȱbyȱanyȱpublicȱutility...shallȱbeȱjustȱandȱreasonable.ȱEveryȱpublicȱutilityȱshallȱfurnishȱandȱmaintainȱsuchȱadequate,ȱefficient,ȱjust,ȱandȱreasonableȱservice,ȱinstrumentalities,ȱequipment,ȱandȱfacilities...asȱareȱnecessaryȱtoȱpromoteȱtheȱsafety,ȱhealth,ȱcomfort,ȱandȱconvenienceȱofȱitsȱpatrons,ȱemployees,ȱandȱtheȱpublic.ȱȱ

CallȱCompletion:ȱCaliforniaȱhasȱenshrinedȱinȱstatuteȱtheȱdutyȱofȱtelephoneȱcorporationsȱ

toȱcarryȱandȱcompleteȱcalls.ȱȱCaliforniaȱPub.ȱUtil.ȱCodeȱ§ȱ558ȱstates:ȱȱ

EveryȱtelephoneȱcorporationȱandȱtelegraphȱcorporationȱoperatingȱinȱthisȱStateȱshallȱreceive,ȱtransmit,ȱandȱdeliver,ȱwithoutȱdiscriminationȱorȱdelay,ȱtheȱconversationsȱandȱmessagesȱofȱeveryȱotherȱsuchȱcorporationȱwithȱwhoseȱlineȱaȱphysicalȱconnectionȱhasȱbeenȱmade.ȱȱ

Allȱcarriers,ȱwhetherȱwholesale,ȱintermediate,ȱorȱretailȱtrafficȱhaulers,ȱmustȱterminateȱ

trafficȱforȱoneȱanotherȱandȱfromȱanȱendȱuserȱtoȱanotherȱendȱuserȱinȱeveryȱinstance.8ȱȱTheȱ

Commissionȱfoundȱinȱ1997ȱthatȱ“[t]heȱobligationȱtoȱcompleteȱcallsȱappliesȱnotȱjustȱtoȱ

IncumbentȱLocalȱExchangeȱCarriersȱ(ILECs)ȱ,ȱbutȱequallyȱtoȱallȱcarriersȱinvolvedȱinȱtheȱ

origination,ȱrouting,ȱandȱcompletionȱofȱcalls.”9ȱ

ȱ

UniversalȱService:ȱCal.ȱPub.ȱUtil.ȱCodeȱ§ȱ709(a).ȱ“affordabilityȱandȱwidespreadȱ

availabilityȱofȱhighȬqualityȱtelecommunicationsȱservicesȱtoȱallȱCalifornians.”ȱ

Cal.ȱPub.ȱUtil.ȱCodeȱsectionȱ453ȱprohibitsȱaȱpublicȱutilityȱfromȱmaintainingȱanyȱ

unreasonableȱdifferenceȱasȱtoȱrates,ȱcharges,ȱservice,ȱfacilities,ȱ…betweenȱlocalitiesȱorȱasȱ

betweenȱclassesȱofȱservice.”ȱȱȱ

ȱ

Cal.ȱPub.ȱUtil.ȱCodeȱ§ȱ275.6ȱprovidesȱforȱrateȱsupportȱthroughȱ“rateȬofȬreturnȱregulationȱ

inȱfurtheranceȱofȱtheȱstateȇsȱuniversalȱserviceȱcommitmentȱtoȱtheȱcontinuedȱaffordabilityȱ 8ȱOII,ȱI.14Ȭ05Ȭ012,ȱp.ȱ3.ȱ9ȱId.,ȱcitingȱOrderȱInstitutingȱRulemakingȱonȱtheȱCommissionȇsȱOwnȱMotionȱIntoȱCompetitionȱforȱLocalȱExchangeȱService;ȱOrderȱInstitutingȱInvestigationȱonȱtheȱCommissionȇsȱOwnȱMotionȱIntoȱCompetitionȱforȱLocalȱExchangeȱServiceȱ[D.97Ȭ11Ȭ024]ȱ(1997),ȱ76ȱCal.Pub.ȱUtil.C.odeȱsectionȱȱ458,ȱatȱ460.ȱȱȱ


19

andȱwidespreadȱavailabilityȱofȱsafe,ȱreliable,ȱhighȬqualityȱcommunicationsȱservicesȱinȱ

ruralȱareasȱofȱtheȱstate.”ȱȱItȱrequiresȱtheȱCommissionȱtoȱ“maintainȱtheȱCaliforniaȱHighȬ

CostȱFundȬAȱProgramȱtoȱprovideȱuniversalȱserviceȱrateȱsupportȱtoȱsmallȱindependentȱ

telephoneȱcorporationsȱinȱamountsȱsufficientȱtoȱmeetȱtheȱrevenueȱrequirementsȱ

establishedȱbyȱtheȱcommissionȱthroughȱ“rateȬofȬreturnȱregulation”ȱinȱlieuȱofȱmarketȬ

basedȱpricing.ȱ

ȱ

Serviceȱqualityȱstandards:ȱCaliforniaȱPublicȱUtilitiesȱCodeȱsectionȱ2896(c)ȱrequiresȱ

utilitiesȱtoȱprovideȱreasonableȱstatewideȱserviceȱqualityȱstandards,ȱincludingȱcustomerȱ

service,ȱinstallationȱandȱrepair.ȱȱTheȱCommissionȱadoptedȱGoȬ133ȬDȱinȱ2016,ȱreplacingȱ

theȱformerȱGOȱ133ȬC,ȱtoȱestablishȱserviceȱqualityȱrulesȱandȱaȱscheduleȱofȱfinesȱforȱ

violations.ȱ

ȱ

9Ȭ1Ȭ1ȱAccessȱandȱEmergencyȱInformation:ȱȱ

Cal.ȱPub.ȱUtil.ȱCodeȱsectionȱ2883(2)(b)ȱAllȱlocalȱtelephoneȱcorporations,ȱexcludingȱ

providersȱofȱmobileȱtelephonyȱserviceȱandȱmobileȱsatelliteȱtelephoneȱservice,ȱasȱdefinedȱ

inȱSectionȱ224.4,ȱtoȱtheȱextentȱpermittedȱbyȱexistingȱtechnologyȱorȱfacilities,ȱshallȱ

provideȱeveryȱsubscriberȱofȱtariffedȱresidentialȱbasicȱexchangeȱserviceȱwithȱaccessȱtoȱ

Ȉ911Ȉȱemergencyȱservice.ȱ

Cal.ȱPub.ȱUtil.ȱCodeȱsectionȱ2889.6.ȱȱTheȱcommissionȱshall,ȱbyȱruleȱorȱorder,ȱrequireȱallȱ

localȱexchangeȱcarriersȱtoȱdoȱbothȱofȱtheȱfollowing:ȱȱ

(a)ȱIncludeȱinȱtheirȱtelephoneȱdirectoryȱinformationȱconcerningȱemergencyȱsituationsȱwhichȱmayȱaffectȱtheȱtelephoneȱnetwork.ȱTheȱinformationȱshallȱincludeȱtheȱproceduresȱwhichȱtheȱcorporationȱwillȱfollowȱduringȱemergencies,ȱhowȱtelephoneȱsubscribersȱcanȱbestȱuseȱtheȱtelephoneȱnetworkȱinȱanȱemergencyȱsituation,ȱandȱtheȱemergencyȱservicesȱavailableȱbyȱdialingȱȈ911.Ȉȱȱ

b)ȱAnnuallyȱprovideȱtoȱallȱsubscribersȱinȱtheȱformȱofȱaȱbillingȱinsert,ȱwhichȱneedȱnotȱbeȱaȱseparateȱdocument,ȱinformationȱconcerningȱemergencyȱ


20

situationsȱwhichȱmayȱaffectȱtheȱtelephoneȱnetwork.ȱTheȱinformationȱshallȱincludeȱtheȱproceduresȱwhichȱtheȱcorporationȱwillȱfollowȱduringȱemergencies,ȱhowȱtelephoneȱsubscribersȱcanȱbestȱuseȱtheȱtelephoneȱnetworkȱinȱanȱemergencyȱsituation,ȱandȱtheȱemergencyȱservicesȱavailableȱbyȱdialingȱȈ911.ȈȱTheȱbillingȱinsertȱshallȱadditionallyȱdirectȱtheȱsubscriberȱtoȱconsultȱtheȱtelephoneȱdirectoryȱforȱsimilarȱinformationȱconcerningȱtheȱuseȱofȱtheȱtelephoneȱinȱemergencyȱsituations.ȱ

ȱ

Dutiesȱregardingȱpoles,ȱconduits,ȱandȱrightsȬofȬwayȱwhetherȱaerialȱorȱunderground:ȱȱ

GeneralȱOrderȱ95ȱ(RulesȱforȱOverheadȱElectricȱLineȱConstruction),ȱGeneralȱOrderȱ128ȱ(Rulesȱ

forȱConstructionȱofȱUndergroundȱElectricȱSupplyȱandȱCommunicationȱSystems)ȱregulateȱ

accessȱtoȱpoles,ȱconduits,ȱandȱrightsȬofȬwayȱbyȱoverheadȱorȱundergroundȱfacilitiesȱandȱ

conduits.ȱAmongȱotherȱrequirements,ȱGOȱ95ȱrequiresȱcarriersȱtoȱmanageȱvegetationȱ

nearȱwiresȱandȱpoles,ȱandȱtoȱsetsȱstandardsȱforȱtheȱstrengthȱandȱintegrityȱofȱpolesȱtoȱ

supportȱwiresȱandȱattachments.ȱ

ȱ

DutyȱtoȱComplyȱwithȱCommissionȱOrders,ȱDecisions,ȱandȱRules:ȱ

Asȱmandatedȱinȱ§ȱ702:ȱEveryȱpublicȱutilityȱshallȱobeyȱandȱcomplyȱwithȱeveryȱorder,ȱ

decision,ȱdirection,ȱorȱruleȱmadeȱorȱprescribedȱbyȱtheȱcommissionȱinȱtheȱmattersȱ

specifiedȱinȱthisȱpart,ȱorȱanyȱotherȱmatterȱinȱanyȱwayȱrelatingȱtoȱaffectingȱitsȱbusinessȱasȱ

aȱpublicȱutility,ȱandȱshallȱdoȱeverythingȱnecessaryȱorȱproperȱtoȱsecureȱcomplianceȱ

therewithȱbyȱallȱofȱitsȱofficers,ȱagents,ȱandȱemployees.ȱ

2.2. Highlights of Powers of the Commission: Cal.ȱPub.ȱUtil.ȱCodeȱ§ȱ701ȱprovidesȱthat:ȱȱ

TheȱCommissionȱmayȱsuperviseȱandȱregulateȱeveryȱpublicȱutilityȱinȱtheȱStateȱandȱmayȱdoȱallȱthings,ȱwhetherȱspecificallyȱdesignatedȱinȱthisȱpartȱorȱinȱadditionȱthereto,ȱwhichȱareȱnecessaryȱandȱconvenientȱinȱtheȱexerciseȱofȱsuchȱpowerȱandȱjurisdiction.ȱȱ

ȱCal.ȱPub.ȱUtil.ȱCodeȱ§ȱ313ȱprovides:ȱ


21

ȱȱTheȱcommissionȱmayȱrequire,ȱbyȱorderȱservedȱonȱanyȱpublicȱutility,ȱtheȱproductionȱwithinȱthisȱStateȱatȱsuchȱtimeȱandȱplaceȱasȱitȱdesignates,ȱofȱanyȱbooks,ȱaccounts,ȱpapers,ȱorȱrecordsȱkeptȱbyȱtheȱpublicȱutilityȱinȱanyȱofficeȱorȱplaceȱwithoutȱthisȱState,ȱor,ȱatȱitsȱoption,ȱverifiedȱcopiesȱinȱlieuȱthereof,ȱsoȱthatȱanȱexaminationȱthereofȱmayȱbeȱmadeȱbyȱtheȱcommissionȱorȱunderȱitsȱdirection.ȱ

ȱCal.ȱPub.ȱUtil.ȱCodeȱ§ȱ314ȱprovides:ȱȱ

(a)ȱTheȱcommission,ȱeachȱcommissioner,ȱandȱeachȱofficerȱandȱpersonȱemployedȱbyȱtheȱcommissionȱmay,ȱatȱanyȱtime,ȱinspectȱtheȱaccounts,ȱbooks,ȱpapers,ȱandȱdocumentsȱofȱanyȱpublicȱutility.ȱ

ȱCal.ȱPub.ȱUtil.ȱCodeȱ§ȱ315ȱprovides:ȱȱ

TheȱcommissionȱshallȱinvestigateȱtheȱcauseȱofȱallȱaccidentsȱoccurringȱwithinȱthisȱStateȱuponȱtheȱpropertyȱofȱanyȱpublicȱutilityȱorȱdirectlyȱorȱindirectlyȱarisingȱfromȱorȱconnectedȱwithȱitsȱmaintenanceȱorȱoperation,ȱresultingȱinȱlossȱofȱlifeȱorȱinjuryȱtoȱpersonȱorȱpropertyȱandȱrequiring,ȱinȱtheȱjudgmentȱofȱtheȱcommission,ȱinvestigationȱbyȱit,ȱandȱmayȱmakeȱsuchȱorderȱorȱrecommendationȱwithȱrespectȱtheretoȱasȱinȱitsȱjudgmentȱseemsȱjustȱandȱreasonable.ȱȱ

ȱ

Pursuantȱtoȱ§ȱ2101,ȱtheȱCommissionȱisȱdirectedȱto:…ȱ[S]eeȱthatȱtheȱprovisionsȱofȱtheȱ

constitutionȱandȱtheȱstatutesȱofȱthisȱStateȱaffectingȱpublicȱutilities,ȱtheȱenforcementȱofȱ

whichȱisȱnotȱspecificallyȱvestedȱinȱsomeȱotherȱofficerȱorȱtribunal,ȱareȱenforcedȱandȱ

obeyedȱandȱthatȱviolationsȱthereofȱareȱpromptlyȱprosecutedȱandȱpenaltiesȱdueȱtheȱstateȱ

thereforȱrecoveredȱandȱcollected…”ȱ

ȱ

Cal.ȱPub.ȱUtil.ȱCodeȱSectionȱ2107ȱet.ȱal.ȱauthorizesȱfinesȱandȱpenalties.ȱ

ȱ


22

Cal.ȱPub.ȱUtil.ȱCodeȱSectionȱ768ȱprovidesȱthatȱtheȱCommissionȱ“may,ȱafterȱaȱhearing,ȱ

requireȱeveryȱpublicȱutilityȱtoȱconstruct,ȱmaintain,ȱandȱoperateȱitsȱline,ȱplant,ȱsystem,ȱ

equipment,ȱapparatus,ȱtracks,ȱandȱpremisesȱinȱaȱmannerȱsoȱasȱtoȱpromoteȱandȱsafeguardȱ

theȱhealthȱandȱsafetyȱofȱitsȱemployees,ȱpassengers,ȱcustomers,ȱandȱtheȱpublic.ȱ.ȱ.ȱTheȱ

commissionȱmayȱestablishȱuniformȱorȱotherȱstandardsȱofȱconstructionȱorȱequipment,ȱ

andȱrequireȱtheȱperformanceȱofȱanyȱotherȱactȱwhichȱtheȱhealthȱorȱsafetyȱofȱitsȱ

employees,ȱpassengers,ȱcustomers,ȱorȱtheȱpublicȱmayȱdemand.”ȱȱGOȱ95ȱandȱGOȱ128ȱ

wereȱadoptedȱpursuantȱtoȱCAȱPUȱCodeȱ768.ȱ

ȱ

Cal.ȱPub.ȱUtil.ȱCodeȱ§ȱ710(c)(7)ȱpreservesȱtheȱCommission’sȱauthorityȱrelativeȱtoȱ

theȱconstructionȱandȱmaintenanceȱofȱsupportȱstructuresȱandȱotherȱcommunicationsȱ

facilitiesȱpursuantȱtoȱGeneralȱOrdersȱ95ȱandȱ128.ȱȱItȱalsoȱpreservesȱtheȱCommission’sȱ

authorityȱrelativeȱtoȱTheȱWarrenȱ911ȱEmergencyȱCommunicationsȱAct,ȱCaliforniaȱ

GovernmentȱCodeȱ53100(b)ȱwhichȱdeclaresȱthatȱ“itȱisȱinȱtheȱpublicȱinterestȱtoȱshortenȱ

theȱtimeȱrequiredȱforȱaȱcitizenȱtoȱrequestȱandȱreceiveȱemergencyȱaid.”ȱȱ

3. Rural Call Completion Failures and Issues 3.1. Background of Rural Call Completion Investigation WeȱinitiatedȱthisȱOIIȱonȱMayȱ15,ȱ2014ȱinȱlightȱofȱreportsȱofȱcallȱcompletionȱ

failures,ȱparticularlyȱtoȱruralȱareasȱofȱCalifornia.ȱȱBeforeȱinitiatingȱtheȱOII,ȱtheȱ

Commission’sȱCommunicationsȱDivisionȱ(CD)ȱsurveyedȱ20ȱruralȱandȱmajorȱurbanȱ

telephoneȱcarriersȱduringȱNovemberȱ2012ȱthroughȱFebruaryȱ2013.ȱȱCDȱaskedȱtheȱ

carriersȱtoȱreportȱtheirȱintrastateȱcallȱcompletionȱfailures.ȱȱAtȱthatȱtime,ȱ14ȱcarriersȱwereȱ

ruralȱ“RateȱofȱReturn”ȱcarriersȱeligibleȱtoȱreceiveȱCaliforniaȱHighȱCostȱFundȬAȱ(CHCFȬ

A)ȱsubsidies,ȱfourȱwereȱmajorȱurbanȱareaȱcarriers,ȱandȱtwoȱwereȱruralȱbutȱnonȬRateȱofȱ

ReturnȱcarriersȱwhoȱareȱnotȱeligibleȱforȱCHCFȬAȱsubsidies.ȱȱAsȱstatedȱinȱtheȱOIIȱCDȱ

learnedȱthat:ȱȱ


23

Noneȱofȱtheȱrespondingȱurbanȱmajorȱcarriersȱreportedȱcallȱcompletionȱfailure.ȱ

NoneȱofȱtheȱruralȱnonȬRateȱofȱReturnȱcarriersȱreportedȱcallȱcompletionȱfailure.ȱȱ

ElevenȱofȱtheȱfourteenȱruralȱCHCFȬAȬeligibleȱcarriersȱreportedȱcallȱcompletionȱfailure.10ȱȱ

Basedȱonȱthisȱdata,ȱtheȱOIIȱaskedȱ“WhyȱruralȱcustomersȱinȱterritoriesȱofȱnonȬCHCFȬAȱ

eligibleȱruralȱcarriersȱdoȱnotȱseemȱtoȱexperienceȱcallȱcompletionȱfailure,ȱwhileȱCHCFȬAȱ

eligibleȱruralȱcarriersȱdo?”11ȱ

TheȱOIIȱnotedȱtheȱimpactȱofȱcallȱcompletionȱfailuresȱonȱpublicȱsafety,ȱbusiness,ȱ

economicȱopportunity,ȱandȱsecurity:ȱ

Theseȱproblemsȱnegativelyȱaffectȱtheȱlivesȱofȱruralȱtelephoneȱcustomers,ȱinȱparticular,ȱasȱtheyȱmayȱresultȱinȱtheȱlossȱofȱpotentialȱbusinessȱopportunities,ȱadverselyȱimpactȱcustomers’ȱlivesȱ(e.g.ȱmissedȱemploymentȱopportunities,ȱappointments,ȱnotices),ȱandȱpossiblyȱinterfereȱwithȱsecurityȱandȱpersonalȱhealthȱand/orȱsafetyȱcontactȱeffortsȱ(e.g.ȱ911).ȱGivenȱtheȱpotentiallyȱadverseȱimpactȱthatȱcallȱcompletionȱfailureȱcanȱhaveȱonȱruralȱCalifornians,ȱweȱbelieveȱtheȱCommissionȱneedsȱtoȱundertakeȱaȱmoreȱdetailedȱandȱformalȱinvestigationȱofȱintrastateȱcallȱcompletionȱfailureȱtoȱbetterȱunderstandȱtheȱrootȱcauses,ȱandȱtoȱfindȱremediesȱorȱsolutionsȱtoȱminimizeȱcallȱcompletionȱfailureȱfrequency.12ȱ

TheȱOIIȱorderȱlistedȱtheȱissuesȱandȱquestionsȱtoȱbeȱconsideredȱinȱthisȱproceedingȱinȱtheȱ

PreliminaryȱScopingȱMemoȱherein,ȱ“andȱincludeȱwhetherȱthereȱisȱaȱspecificȱneedȱtoȱtakeȱ

remedialȱactionȱregardingȱcallȱcompletionȱfailuresȱinȱlightȱofȱmarketȱandȱtechnologicalȱ

developments.”ȱȱTheȱOIIȱcreatedȱaȱforumȱforȱthisȱproceedingȱtoȱyieldȱproposalsȱforȱ

remedialȱactionȱtoȱaddressȱcallȱcompletionȱfailuresȱandȱtheȱtopicsȱdefinedȱinȱtheȱ

AmendedȱScopingȱMemoȱadoptedȱinȱ2015.ȱ

10ȱOII,ȱI.14Ȭ05Ȭ012,ȱp.ȱ5.ȱ11ȱOII,ȱI.14Ȭ05Ȭ012,ȱp.ȱ6.ȱ12ȱOII,ȱI.14Ȭ05Ȭ012,ȱp.ȱ4.ȱȱ


24

ȱ AtȱtheȱtimeȱtheȱCommissionȱopenedȱthisȱOIIȱinȱMayȱ2014,ȱtheȱFCCȱhadȱonȱ

Octoberȱ28,ȱ2014ȱadoptedȱaȱReportȱandȱOrderȱandȱFurtherȱNoticeȱofȱProposedȱ

Rulemakingȱ(“FCCȱRuralȱCallȱCompletionȱOrder”)ȱprohibitingȱsomeȱofȱtheȱpracticesȱ

thatȱcontributedȱtoȱruralȱcallȱcompletionȱfailures,ȱandȱaffirmedȱtheȱdutyȱofȱcarriersȱtoȱ

completeȱcalls.13ȱȱTheȱFCCȱandȱCongressȱhaveȱrecognizedȱthatȱtheȱproblemȱofȱruralȱcallȱ

completionȱisȱfrequentlyȱassociatedȱwithȱcarrierȱuseȱofȱintermediateȱcarriers,ȱsuchȱasȱ

LeastȱCostȱRoutersȱ(ȈLCRsȈ),ȱwhoȱtransportȱcallsȱusingȱmethodsȱtoȱminimizeȱcosts,ȱbutȱ

someȱofȱwhomȱfailȱtoȱtransportȱtelephoneȱtrafficȱsoȱitȱneverȱreachesȱaȱsmallȱorȱruralȱ

LECsȇȱnetworks.14ȱȱTheȱFCCȱlargelyȱreaffirmedȱthatȱOrderȱinȱitsȱNovemberȱ2014ȱOrderȱ

onȱReconsideration,ȱmodifyingȱtheȱrecordkeeping,ȱretention,ȱandȱreportingȱ

requirementsȱadoptedȱinȱtheȱOrderȱdoȱnotȱapplyȱtoȱaȱlimitedȱsubsetȱofȱcalls,ȱparticularlyȱ

certainȱintraLATAȱ(withȱaȱLocalȱAreaȱTelephoneȱNetwork)ȱcalls.15ȱȱ

WeȱopenedȱthisȱOIIȱtoȱdetermineȱwhetherȱthereȱwasȱevidenceȱofȱviolationsȱofȱ

Californiaȱlaw,ȱsuchȱasȱviolationsȱofȱtheȱstateȬlawȱdutyȱtoȱcarryȱandȱcompleteȱcallsȱ

underȱCal.ȱPub.ȱUtil.ȱCodeȱsectionȱ558.ȱȱWeȱalsoȱexaminedȱwhetherȱthereȱwasȱaȱneedȱtoȱ

takeȱremedialȱactionȱtoȱaddressȱtheseȱissuesȱinȱCaliforniaȱandȱensureȱthatȱCaliforniansȱ

receiveȱsafe,ȱreliableȱserviceȱatȱjustȱandȱreasonableȱratesȱ(Cal.ȱPub.ȱUtil.ȱCodeȱsectionȱ

451),ȱandȱhighȱqualityȱtelephoneȱserviceȱthroughoutȱCalifornia.ȱȱ(Cal.ȱPub.ȱUtil.ȱCodeȱ

sectionȱ709).ȱTheȱOIIȱstatedȱ“Ifȱactualȱintrastateȱdataȱshowsȱaȱconsistentȱcallȱcompletionȱ

13ȱRuralȱCallȱCompletion,ȱWCȱDocketȱNo.ȱ13Ȭ39,ȱReportȱandȱOrderȱandȱFurtherȱNoticeȱofȱProposedȱRulemaking,ȱ28ȱFCCȱRcdȱ16154ȱ(2013)ȱ[hereinafterȱ“FCCȱRuralȱCallȱCompletionȱOrder”).ȱ14ȱId.,ȱ¶¶16Ȭ17.ȱ15ȱRuralȱCallȱCompletion,ȱWCȱDocketȱNo.ȱ13Ȭ39,ȱOrderȱonȱReconsideration,ȱ28ȱFCCȱRcdȱ16154ȱ(2013)ȱ[hereinafterȱ“FCCȱRuralȱCallȱCompletionȱOrderȱonȱReconsideration”)ȱ(excludingȱfromȱreportingȱrequirementsȱ“intraLATAȱtollȱcallsȱthatȱareȱcarriedȱentirelyȱoverȱtheȱcoveredȱprovider’sȱnetwork,ȱandȱintraLATAȱtollȱcallsȱthatȱareȱhandedȱoffȱbyȱtheȱcoveredȱproviderȱdirectlyȱtoȱtheȱterminatingȱlocalȱexchangeȱcarrierȱ(LEC)ȱorȱtoȱtheȱtandemȱthatȱtheȱterminatingȱLEC’sȱendȱofficeȱsubtends.”)ȱȱWeȱnoteȱthatȱmanyȱofȱtheȱintraLATAȱcallsȱareȱlikelyȱtoȱbeȱintrastateȱcalls.ȱ


25

issue,ȱthenȱtheȱCommissionȱcanȱtakeȱactionȱtoȱcontrolȱandȱeliminateȱcallȱcompletionȱ

failuresȱasȱitȱpertainsȱtoȱintrastateȱcarrierȱtraffic.”16ȱ

3.2. Findings of Rural Call Completion Investigation 3.2.1. Summary and Recommendations Throughoutȱthisȱproceedingȱweȱcontinuedȱtoȱmonitorȱruralȱcallȱcompletionȱ

failuresȱinȱCalifornia,ȱtheirȱcauses,ȱprevention,ȱandȱresolutionȱofȱtheseȱissues.ȱȱTheȱOIIȱ

soughtȱcommentsȱtoȱbetterȱunderstandȱcausesȱofȱruralȱcallȱcompletionȱfailures,ȱevaluateȱ

howȱintrastateȱcallȱcompletionȱfailuresȱcanȱbeȱaddressedȱatȱtheȱstateȱlevel,ȱhowȱcarriersȱ

canȱbeȱencouragedȱtoȱaddressȱcallȱcompletionȱfailures,ȱwhatȱexistingȱrulesȱcouldȱbeȱ

revisedȱorȱamended,ȱandȱwhatȱnewȱrulesȱmightȱbeȱadopted.ȱȱȱ

Weȱexploredȱareasȱwhereȱthereȱshouldȱbeȱaȱcoordinatedȱeffortȱamongȱtheȱ

Commission,ȱitsȱcounterpartsȱinȱneighboringȱstates,ȱandȱtheȱFederalȱCommunicationsȱ

Commissionȱ(FCC),ȱsoȱthatȱallȱCaliforniansȱcanȱsendȱandȱreceiveȱphoneȱcallsȱwithoutȱ

discriminationȱorȱdelay.ȱ

WeȱareȱpleasedȱthatȱCHCFȬAȬfundȱeligibleȱruralȱcarriersȱreportedȱthatȱcallȱ

completionȱfailuresȱhaveȱsubsidedȱsinceȱtheȱopeningȱofȱthisȱOIIȱandȱtheȱFCC’sȱ2013ȱandȱ

2014ȱdecisions,ȱthoughȱtheyȱstillȱsporadicallyȱappear.ȱȱSpeakersȱtestifiedȱatȱtheȱPPHsȱ

andȱWorkshopsȱinȱHappyȱCamp,ȱSanȱAndreas,ȱandȱSanȱFrancisco,ȱCaliforniaȱaboutȱtheȱ

occurrenceȱandȱeffectsȱofȱruralȱcallȱcompletionȱproblems,ȱandȱtheȱdifficultyȱofȱlearningȱ

whenȱtheyȱoccurȱandȱtracingȱtheȱcausesȱofȱsuchȱfailures.17ȱȱȱ

AtȱtheȱJulyȱ2016ȱPPHȱinȱHappyȱCamp,ȱCalifornia,ȱCHCFȬAȱFundȱCalȬOreȱ

Presidentȱstatedȱthatȱcallȱcompletionȱfailuresȱstillȱoccasionallyȱreoccur,ȱparticularlyȱforȱ

16ȱOII,ȱI.14Ȭ05Ȭ012,ȱp.ȱ7.ȱ17ȱSanȱFranciscoȱWorkshop,ȱTr.,ȱpȱ94;ȱHappyȱCampȱPPH,ȱTr.,ȱpp.ȱ568ff.;ȱSanȱAndreasȱPPH,ȱTr.,ȱpp.ȱ335Ȭ359;ȱRLECȱCommentsȱonȱtheȱACR.ȱ


26

callsȱfromȱOregon,ȱandȱforȱsomeȱintrastateȱcalls,ȱthoughȱtheyȱareȱnotȱconstant.18ȱȱCalȬOreȱ

andȱtheȱCHCFȬAȬfundȱcarriersȱurgeȱthisȱCommissionȱtoȱremainȱvigilantȱaboutȱcallȱ

completionȱissues,ȱandȱtoȱbeȱavailableȱtoȱmediateȱinterȬcarrierȱdisputesȱaboutȱintrastateȱ

callȱcompletionȱfailures,ȱandȱtoȱworkȱwithȱtheȱFCCȱonȱfederalȱeffortsȱtoȱaddressȱ

intrastateȱcallȱcompletion.19ȱȱWeȱdiscussȱinȱmoreȱdetailȱbelowȱourȱfindingsȱonȱthisȱtopicȱ

andȱtheȱstepsȱweȱtakeȱtoȱinitiateȱthoseȱrecommendations.ȱȱȱ

PursuantȱtoȱtheȱFCC’sȱRuralȱCallȱCompletionȱOrderȱandȱOrderȱonȱ

Reconsideration,ȱtheȱFCCȱrequiresȱcertainȱlongȱdistanceȱprovidersȱtoȱsubmitȱdataȱonȱ

theirȱlongȱdistanceȱtrafficȱasȱaȱmeansȱforȱfurtherȱinquiriesȱintoȱtheȱruralȱcallȱcompletionȱ

problemsȱ(RCCP).ȱȱThroughȱthisȱOII,ȱtheȱCommission’sȱCommunicationsȱDivisionȱ

requestedȱtheȱFCCȱtoȱshareȱwithȱtheȱCPUCȱtheȱdataȱrelatedȱtoȱlongȱdistanceȱtrafficȱcallsȱ

madeȱtoȱCaliforniaȱRuralȱLocalȱExchangeȱCarriersȱ(RLECs).ȱȱ

TheȱFCCȱsuppliedȱdataȱisȱnotȱdesignedȱtoȱidentifyȱcallȱfailures.ȱCommunicationsȱ

DivisionȱdiscoveredȱthatȱtheȱFCCȱdataȱshowsȱgapsȱbetweenȱcallsȱattemptedȱandȱcallsȱ

completedȱforȱsomeȱcarriers.ȱȱTheȱFCCȱdataȱrevealedȱthatȱinȱCalifornia,ȱVerizonȱ

BusinessȱandȱLevelȱ3ȱaccountȱforȱthreeȬfourthsȱofȱlongȱdistanceȱcallȱdeliveryȱtoȱRuralȱ

LocalȱExchangeȱCarriers.ȱȱTheȱFCCȱdataȱshowedȱthatȱbothȱVerizonȱBusinessȱandȱLevelȱ3ȱ

hadȱtheȱlargestȱgapsȱbetweenȱattemptedȱcallsȱandȱcompletedȱcalls.ȱȱȱ

3.2.2. CAB Data and Public Comment on Rural Call Completion Failures

ȱ WeȱreachedȱoutȱtoȱtheȱCPUCȬȱConsumerȱAffairȱBranchȱ(CAB)ȱandȱaskedȱthemȱtoȱ

identifyȱconsumerȱreportedȱruralȱcallȱproblems.ȱȱCABȱdidȱnotȱidentifyȱanyȱconsumerȱ

reportedȱCCP.ȱȱItȱisȱoftenȱdifficultȱforȱaȱconsumerȱtoȱdetectȱwhetherȱaȱfailureȱofȱaȱcallȱtoȱ

goȱthrough,ȱorȱtheȱapparentȱfailureȱofȱtheȱpersonȱcalledȱtoȱanswerȱtheȱphone,ȱisȱtheȱ

18ȱHappyȱCampȱPPH,ȱTr.,ȱp.ȱ577.ȱ19ȱSanȱFranciscoȱWorkshop,ȱTr.,ȱpp.ȱ123;ȱHappyȱCampȱPPH,ȱTr.,ȱp.ȱ569.ȱ


27

resultȱofȱaȱRCCP,ȱasȱopposedȱtoȱtheȱreceivingȱpartyȱbeingȱnotȱnearȱtheirȱphoneȱorȱanȱ

issueȱwithȱtheȱruralȱphoneȱcompanyȱthatȱwouldȱterminateȱtheȱcallȱifȱitȱwasȱsentȱtoȱitsȱ

exchange.ȱȱ

ȱ AtȱtheȱPPHȱinȱSanȱAndreasȱRoseȱCullenȱfromȱCalaverasȱTelephoneȱ(CalTel),ȱaȱ

CHCFȬAȱFundȱcarrier,ȱexplainedȱthatȱCalaverasȱTelephoneȱreceivedȱcomplaintsȱstartingȱ

inȱlateȱ2011ȱandȱpeakingȱinȱAugustȱ2012ȱfromȱ“residentialȱcustomersȱ[who]ȱcallȱ

complainingȱthatȱtheyȱweren’tȱreceivingȱcallsȱfromȱfamilyȱmembersȱofȱfriends.ȱȱWeȱalsoȱ

hadȱaȱlocalȱbusinessȱcallȱandȱcomplainedȱnumerousȱtimesȱthinkingȱthatȱweȱwereȱtheȱ

problem,ȱthatȱweȱwereȱcausingȱit,ȱthatȱitȱwasȱourȱnetworkȱthatȱwasȱnotȱcompletingȱtheȱ

callsȱforȱthem.”20ȱȱȱRosvallȱechoedȱthoseȱcommentsȱatȱtheȱSanȱAndreasȱPPHȱonȱbehalfȱofȱ

theȱCaliforniaȱCHCFȬAȱFundȱcarriers.ȱHeȱreportedȱthatȱforȱmanyȱsmallȱRuralȱLocalȱ

ExchangeȱCompaniesȱ(SmallȱRLECs),ȱparticularlyȱinȱ2011Ȭ2012,ȱ“oneȱofȱourȱlocalȱ

customersȱwouldȱcallȱusȱandȱsayȱso,ȱoneȱofȱmyȱfamilyȱmembers,ȱwhoeverȱitȱmayȱbe,ȱwasȱ

tryingȱtoȱcallȱmeȱandȱtheyȱwereȱunableȱtoȱcompleteȱtheȱcall,ȱ’Soȱwhatȱisȱwrongȱwithȱyourȱ

network?...Soȱthenȱweȱwouldȱdoȱaȱlittleȱmoreȱinvestigation,ȱandȱtypicallyȱtheȱoriginatingȱ

carrierȱwouldȱtryȱtoȱsortȱoutȱtheȱproblem.’”21ȱȱȱ

ȱ Weȱfindȱthatȱrelyingȱonȱcustomerȱreportsȱofȱruralȱcallȱcompletionȱfailuresȱwouldȱ

yieldȱaȱveryȱincompleteȱpictureȱofȱtheȱdimensionsȱandȱcausesȱofȱthisȱissue.ȱAccordingly,ȱ

ourȱanalysisȱfocusedȱonȱtheȱFCCȱsuppliedȱdata,ȱcommentsȱfromȱtheȱcarriersȱinȱresponseȱ

toȱthisȱOII,ȱandȱtheȱrecordȱasȱindicatedȱinȱtheȱPPHȱtranscriptsȱandȱthisȱproceeding.ȱ

3.2.3. Analysis of the FCC Data on Long Distance Covered Providers to California Rural Areas

TheȱFCCȱcollectsȱdataȱfromȱcoveredȱoriginatingȱlongȱdistanceȱprovidersȱ

(hereinafterȱ“CoveredȱProviderȱorȱ(CP)”)ȱtoȱcollectȱandȱreportȱaggregateȱdataȱfourȱtimesȱ

20ȱSanȱAndreasȱPPH,ȱTr.,ȱp.ȱ348.ȱ21ȱSanȱAndreasȱPPH,ȱTr.,ȱpp.ȱ338Ȭ339.ȱ


28

aȱyearȱonȱcallsȱmadeȱtoȱindividualȱRuralȱLocalȱExchangeȱCarriersȱ(RLECs)ȱandȱtoȱ

nonruralȱLocalȱExchangeȱCarriers.ȱTheȱFCCȱintendsȱtoȱuseȱtheseȱdataȱtoȱidentifyȱ

possibleȱareasȱforȱfurtherȱinquiry.ȱȱ

OnȱOctoberȱ10,ȱ2015,ȱtheȱCommissionȱrequestedȱtheȱFCCȱtoȱshareȱtheȱrelevantȱ

dataȱonȱsuchȱcallsȱmadeȱtoȱCaliforniaȱRLECsȱidentifiedȱbyȱtheirȱOperatingȱCompanyȱ

Numberȱ(OCN)22ȱ(seeȱAppendixȱAȱforȱtheȱlistȱofȱtheseȱcarriers).ȱȱTheȱFCCȱprovidedȱtheȱ

CommissionȱtheȱfirstȱdataȱsetȱthatȱcoversȱthreeȱmonthsȱofȱdataȱforȱApril,ȱMay,ȱandȱJuneȱ

2015.23ȱȱ

Inȱwhatȱfollows,ȱweȱwillȱdiscussȱwhatȱkindȱofȱdataȱisȱprovided,ȱitsȱlimitations,ȱ

andȱwhatȱcanȱbeȱdecipheredȱforȱtheȱbenefitȱofȱourȱcurrentȱOII.ȱȱFinally,ȱalthoughȱthisȱisȱ

theȱanalysisȱofȱreportingȱforȱtheȱsecondȱquarterȱofȱ2015,ȱtheȱfundamentalȱargumentsȱ

relatedȱtoȱtheȱlimitationsȱofȱtheȱdataȱandȱgeneralȱobservationsȱremainȱvalidȱforȱtheȱlatterȱ

quarters.ȱȱOurȱdiscussionȱisȱconsistentȱwithȱtheȱFCC’sȱrequirementsȱforȱmaintainingȱtheȱ

confidentialityȱofȱtheȱdataȱasȱweȱprovideȱaȱhighȬlevelȱanalysisȱofȱtheȱdata,ȱandȱidentifyȱaȱ

basisȱforȱfurtherȱinquiryȱthatȱisȱnotȱlimitedȱtoȱtheȱFCCȱdataȱset.ȱ

3.2.3.1. California Reporting Calling Parties TheȱfirstȱsetȱdataȱweȱreceivedȱfromȱtheȱFCCȱprovidedȱdataȱfromȱ47ȱCPsȱȱ

SeeȱAppendixȱBȱforȱtheȱlistȱofȱtheseȱCPs)ȱthatȱprovideȱlongȬdistanceȱvoiceȱserviceȱ

makingȱtheȱinitialȱlongȬdistanceȱcallȱpathȱchoiceȱtoȱRLECsȱinȱCalifornia.ȱȱTheȱlistȱofȱCPsȱ

servingȱCaliforniaȱisȱlikelyȱtoȱchangeȱoverȱtimeȱasȱnewȱplayersȱmayȱbeȱaddedȱorȱsomeȱ

mayȱbeȱdroppedȱfromȱtheȱlistȱofȱCPs.ȱȱForȱaȱnumberȱofȱreasons,ȱtheȱFCCȱmayȱnotȱrequireȱ

someȱcarriersȱnowȱorȱinȱtheȱfutureȱtoȱfileȱCPȱdataȱwithȱtheȱFCC.ȱȱThus,ȱthisȱFCCȬ

22ȱ47ȱC.F.R.ȱ§ȱ64.2109(b)ȱallowsȱstatesȱtoȱobtainȱcallȱcompletionȱdataȱ“ifȱtheȱstatesȱareȱableȱtoȱmaintainȱtheȱconfidentialityȱofȱthisȱinformation.”ȱ23ȱWeȱreceivedȱtheȱsecondȱquarterȱofȱ2015ȱasȱtheȱfirstȱsetȱdataȱfollowedȱbyȱthirdȱandȱtheȱlatestȱfourthȱquarterȱreceivedȱonȱ12Ȭ24Ȭ2016.ȱȱȱ


29

gatheredȱdataȱcouldȱcoverȱanȱexhaustiveȱlistȱofȱallȱprovidersȱofȱlongȱdistanceȱtelephoneȱ

servicesȱtoȱruralȱcarriers.ȱȱ

3.2.3.2. Frequency of Rural Call Completion Data Filing TheȱFCCȱcollectsȱdataȱfromȱCPȱfourȱtimesȱaȱyear.24ȱȱThisȱinformationȱconcernsȱtheȱ

deliveryȱofȱcallsȱtoȱRuralȱLocalȱExchangeȱCarriersȱ(RLECs)25ȱandȱisȱusedȱtoȱidentifyingȱ

possibleȱareasȱforȱfurtherȱinquiry.ȱ

3.2.3.3. Required Format and Information ȱ TheȱFCCȱprovidesȱanȱExcelȱbasedȱtemplateȱforȱquarterlyȱreportingȱpurposes.26ȱ

TheȱExcelȱworkbookȱconsistsȱofȱtheȱfollowingȱworksheets:ȱThreeȱmonthlyȱworksheets,ȱ

oneȱforȱeachȱmonthȱinȱtheȱquarterlyȱreportingȱperiod,ȱonȱwhichȱaȱCPȱmustȱreportȱtheȱ

mandatoryȱdetailȱinformationȱonȱcallȱattemptsȱbyȱterminatingȱOCN.ȱThreeȱmonthlyȱ

worksheets,ȱoneȱforȱeachȱmonthȱinȱtheȱquarterlyȱreportingȱperiod,ȱonȱwhichȱaȱCPȱmayȱ

voluntarilyȱbreakȬoutȱtheȱsubsetȱofȱinformationȱforȱcallȱattemptsȱoriginatingȱonȱ

autodialerȱfacilities.ȱȱOneȱworksheetȱforȱprovidingȱexplanationsȱofȱtheȱtechniquesȱ

concerningȱtheȱdataȱfiled.ȱ

ȱ ForȱeachȱruralȱOperatingȱCompanyȱNumberȱ(OCN),ȱaȱcellȱisȱprovidedȱinȱwhichȱ

toȱreportȱeachȱofȱtheȱfollowing:ȱtheȱnumberȱofȱinterstateȱcallsȱattempted;ȱtheȱnumberȱofȱ

Interstateȱcallȱattemptsȱthatȱwereȱanswered;ȱtheȱnumberȱofȱInterstateȱcallȱattemptsȱthatȱ

wereȱnotȱanswered,ȱreportedȱseparatelyȱforȱcallȱattemptsȱsignaledȱasȱbusy,ȱringȱnoȱ

answer,ȱorȱunassignedȱnumber;ȱtheȱnumberȱofȱIntrastateȱcallsȱattempted;ȱtheȱnumberȱofȱ

Intrastateȱcallȱattemptsȱthatȱwereȱanswered;ȱandȱtheȱnumberȱofȱIntrastateȱcallȱattemptsȱ

thatȱwereȱnotȱanswered,ȱreportedȱseparatelyȱforȱcallȱattemptsȱsignaledȱasȱbusy,ȱringȱnoȱ

24ȱFilingȱDeadlinesȱȱareȱFirstȱQuarter:ȱMayȱ1ȱ(effectiveȱ2016),ȱSecondȱQuarter:ȱAugustȱ1,ThirdȱQuarter:ȱNovemberȱ1,FourthȱQuarter:ȱFebruaryȱ1.Theȱelectronicȱfilingȱsystemȱbecomesȱavailableȱforȱaȱnewȱfilingȱroundȱapproximatelyȱoneȱmonthȱbeforeȱtheȱdeadlineȱforȱthatȱfiling.ȱ25ȱOfȱapproximatelyȱ1,350ȱruralȱOCNs,ȱ16ȱareȱCaliforniaȱRLECs.ȱ26ȱFCCȱFormȱ480.ȱ


30

answer,ȱorȱunassignedȱnumber.27ȱȱTheȱCP’sȱworkbookȱmustȱpreciselyȱmatchȱtheȱFCC’sȱ

templateȱbutȱtheȱFCCȱrulesȱdoȱnotȱspecifyȱtheȱtechniqueȱbyȱwhichȱaȱcoveredȱproviderȱ

mustȱidentifyȱhowȱtoȱclassifyȱaȱcallȱmadeȱtoȱaȱparticularȱruralȱILEC.ȱ

3.2.3.4. Call Completion Problems Settlements ȱ ToȱthisȱdateȱtheȱFCCȱinvestigatedȱseveralȱcarriersȱandȱenteredȱintoȱsettlementȱ

agreementsȱandȱconsentȱdecreesȱonȱtheirȱhandlingȱtheirȱCCPs.ȱTheyȱincludeȱaȱFCCȱ

settlementȱorȱconsentȱdecreeȱwith:ȱLevelȱ3ȱonȱMarchȱ2013;28ȱWindstreamȱinȱFebruaryȱ

2014;29ȱMatrixȱTelecomȱinȱJuneȱ2014;30ȱandȱVerizonȱBusinessȱinȱJanuaryȱ2015.31ȱȱTheȱ

followingȱsectionȱsummarizesȱtheȱVerizonȱBusinessȱconsentȱdecreeȱasȱVerizonȱBusinessȱ

hasȱaȱmajorȱpresenceȱinȱCalifornia’sȱtelecommunicationȱmarket.ȱWeȱnoteȱthatȱVerizonȱ

BusinessȱwasȱaȱseparateȱfromȱVerizon,ȱCalifornia,ȱandȱwasȱnotȱaȱpartyȱtoȱtheȱtransferȱofȱ

Verizon,ȱCaliforniaȱtoȱFrontier,ȱCalifornia.ȱ

ȱ TheȱVerizonȱBusinessȱruralȱcallȱcompletionȱconsentȱdecreeȱisȱnotableȱinȱthatȱtheȱ

companyȱwasȱanȱincumbentȱcarrierȱthatȱtheȱFCCȱdeemedȱdeficientȱinȱitsȱhandlingȱofȱ

callsȱinȱitsȱroleȱasȱaȱretailȱprovider.ȱPreviousȱruralȱcallȱcompletionȱconsentȱdecreesȱ

primarilyȱinvolvedȱcompetitiveȱcarriersȱsuchȱasȱMatrixȱTelecomȱandȱLevelȱ3,ȱoftenȱinȱ

theirȱroleȱasȱintermediateȱcarriersȱhiredȱbyȱaȱretailȱproviderȱtoȱcompleteȱcalls.ȱ

3.2.3.5. Verizon Business Consent Decree Summary ȱ TheȱVerizonȱBusinessȬFCCȱRCCPȱ2015ȱconsentȱdecreeȱisȱtheȱlatestȱofȱconsentȱ

decreesȱwithȱtheȱFCCȱrelatedȱtoȱruralȱcallȱcompletionȱproblems.ȱȱVerizonȱBusinessȱ

27ȱNonruralȱLECȱOCNȱdataȱisȱonlyȱreportedȱtoȱtheȱFCCȱinȱtheȱaggregateȱasȱtheȱnonruralȱtotal,ȱi.e.ȱnonruralȱcallȱattemptsȱareȱnotȱbrokenȱdownȱbyȱindividualȱOCNs.ȱCPUCȱdidȱnotȱrequestȱnonruralȱdata.ȱ28ȱTheȱFCC,ȱDAȱ13Ȭ371A1.ȱ29ȱTheȱFCC,ȱDAȱ14Ȭ152.ȱ30ȱTheȱFCC,ȱDAȱ14Ȭ679.ȱ31ȱTheȱFCC,ȱDAȱ15Ȭ74.ȱ


31

agreedȱtoȱpayȱtwoȱmillionȱdollarsȱandȱtoȱimplementȱaȱcomplianceȱplanȱtoȱwhichȱitȱhasȱ

committedȱanȱadditionalȱthreeȱmillionȱdollars.32ȱȱ

ȱ TheȱFCCȱdeterminedȱthatȱVerizonȱBusinessȱfailedȱtoȱinvestigateȱevidenceȱofȱlowȱ

callȱanswerȱratesȱtoȱ26ȱdifferentȱruralȱareas,ȱalthoughȱtheȱFCCȱdidȱnotȱspecifyȱinȱwhichȱ

statesȱtheseȱruralȱareasȱwereȱlocated.33ȱTheȱFCCȱdeterminedȱthatȱVerizonȱBusinessȱ

shouldȱhaveȱinvestigatedȱtheȱreasonsȱforȱtheȱlowerȱcallȱcompletionȱrateȱtoȱruralȱareas,ȱ

andȱtakenȱactionȱtoȱdetermineȱwhetherȱanȱintermediateȱcarrierȱorȱanyȱVerizonȱBusinessȱ

practicesȱmightȱbeȱatȱfaultȱorȱcontributingȱtoȱtheȱlowerȱcallȱcompletionȱrate.ȱȱ

ȱ VerizonȱBusiness’sȱconsentȱdecreeȱwithȱtheȱFCCȱincludedȱprovisionsȱsimilarȱtoȱ

thoseȱinvolvedȱwithȱpreviousȱRCCPȱconsentȱdecrees,ȱandȱaddedȱseveralȱnewȱ

provisions.ȱȱTheȱFCCȱrequiredȱVerizonȱBusinessȱto:ȱ

• Appointȱaȱruralȱcallȱcompletionȱombudsmanȱwithȱtheȱcompanyȱtoȱcentralizeȱanalysisȱofȱruralȱcallȱcompletionȱproblemsȱ

• Developȱaȱsystemȱtoȱautomaticallyȱidentifyȱcustomerȱcomplaintsȱthatȱmayȱbeȱrelatedȱtoȱruralȱcallȱcompletionȱissuesȱ

• Limitȱtheȱuseȱofȱintermediateȱprovidersȱ• Monitorȱcallȱanswerȱratesȱtoȱindividualȱruralȱareasȱandȱconductȱanȱ

investigationȱwhenȱratesȱtoȱanȱareaȱfallȱbelowȱanȱestablishedȱthresholdȱ• Hostȱindustryȱworkshopsȱandȱsponsorȱanȱacademicȱstudyȱonȱmethodsȱ

toȱdetectȱandȱresolveȱruralȱcallȱcompletionȱproblemsȱ• ProvideȱquarterlyȱsummariesȱofȱitsȱinvestigationsȱtoȱtheȱFCCȱandȱmeetȱ

periodicallyȱwithȱcommissionȱstaffȱtoȱidentifyȱlessonsȱlearnedȱ• Prepareȱaȱreportȱtoȱbeȱpubliclyȱfiledȱwithȱtheȱcommissionȱatȱtheȱendȱofȱ

theȱthreeȬyearȱcomplianceȱperiodȱ

3.2.3.6. Discussion and Findings ȱ Forȱtheȱpurposeȱofȱfindingȱusefulȱdataȱrelatedȱtoȱcallȱcompletionȱissuesȱinȱruralȱ

California,ȱCommunicationsȱDivisionȱanalyzedȱonlyȱtheȱintrastateȱportionȱofȱdataȱ

32ȱTheȱFCC,ȱDAȱ15Ȭ74.ȱ33ȱId.ȱ


32

submittedȱtoȱtheȱFCC,ȱandȱattemptedȱtoȱextrapolateȱfromȱtheȱprovidedȱdata.ȱȱWeȱ

observedȱdataȱlimitationsȱandȱadoptȱremediesȱtoȱbeȱableȱtoȱextractȱusefulȱfindings.ȱ

3.2.4. Limited Validity of Data ȱ TheȱvalidityȱofȱtheȱfindingsȱasȱaȱmeasurementȱofȱCCPȱisȱlimitedȱforȱtheȱreasonsȱ

listedȱbelow,ȱasȱareȱtheȱstepsȱattemptedȱtoȱovercomeȱthisȱlimitations:ȱ

A. InȱspiteȱofȱtheȱFCCȱattemptȱtoȱobtainȱstandardizedȱsetȱofȱdataȱfromȱCPsȱrequiringȱthemȱtoȱformatȱdataȱpreciselyȱmatchȱtheȱFormȱ480,ȱinȱmanyȱinstances,ȱCPsȱdeviatedȱfromȱtheȱtemplateȱbyȱchangingȱformatȱorȱleavingȱcellsȱblank.ȱDoingȱsoȱmadeȱitȱimpossibleȱtoȱdetermineȱifȱtheȱdataȱwasȱnotȱavailableȱtoȱtheȱCP,ȱorȱtheȱCPȱknewȱtheȱdataȱandȱdidȱnotȱreport,ȱorȱdataȱequaledȱzeroȱoccurrences.ȱ

RemedyȬȱCommunicationsȱDivisionȱattemptedȱtoȱreformatȱaffectedȱdataȱifȱpossible.ȱInȱthoseȱinstancesȱthatȱblankȱdataȱwasȱreported,ȱCommunicationsȱDivisionȱputȱitȱasideȱfromȱitsȱfindings.ȱȱ

B. TheȱFCCȱleftȱitȱtoȱtheȱCPȱtoȱdetermineȱhowȱtheyȱwouldȱcategorizeȱcallsȱattempted,ȱcallsȱanswered,ȱbusyȱcalls,ȱandȱringȱnoȱanswer.ȱȱThus,ȱdataȱconsistencyȱwasȱcompromised,ȱlimitingȱtheȱabilityȱtoȱextrapolateȱdata.ȱ

RemedyȬȱCommunicationsȱDivisionȱattemptedȱtoȱmatchȱCP’sȱtechniquesȱasȱmuchȱasȱpossibleȱtoȱdrawȱaȱreasonableȱfinding.ȱȱȱ

C. TheȱFCCȱleftȱitȱtoȱtheȱCPsȱtoȱreportȱtheirȱautodialerȱdataȱseparatelyȱifȱsoȱtheyȱchoose.ȱTheȱdataȱdoȱnotȱinformȱtheȱreaderȱwhetherȱtheȱCPȱdidȱnotȱhaveȱaȱseparateȱautodialerȱdata,ȱwhetherȱtheȱdataȱaggregatedȱtheirȱautodialerȱandȱnonȱautodialerȱdata,ȱorȱwhetherȱtheȱCPȱdidȱnotȱhaveȱautodialingȱfacilities.ȱ

RemedyȬȱCommunicationsȱDivisionȱcombinedȱseparateȱautodialerȱdataȱwithȱnonȬautodialerȱdataȱwhereverȱreportedȱasȱseparateȱsubsets.ȱCommunicationsȱDivisionȱassumedȱthoseȱCPsȱwhoȱdidȱnotȱreportȱseparateȱautodialerȱdataȱinȱfactȱreportedȱcombinedȱdataȱthatȱincludesȱtheirȱautodialingȱdata.ȱ

3.2.5. Call Categorization and Ratios ȱ TheȱFCCȱrequiredȱCPsȱtoȱbreakȱdownȱcallȱdataȱintoȱcallsȱattempted,ȱanswered,ȱ

busy,ȱringȱnoȱanswer,ȱandȱunassignedȱnumber.ȱȱTheȱFCCȱleftȱtoȱtheȱCPsȱtoȱdetermineȱ

howȱaȱcallȱfitsȱintoȱthoseȱcategoriesȱbutȱaskedȱCPsȱtoȱexplainȱtheirȱcategorization.ȱȱForȱ


33

exampleȱsomeȱCPsȱexplainȱtheirȱdecisionȱinȱgeneralȱasȱ“causeȱcodes’ȱdriven,ȱothersȱreferȱ

toȱanyȱofȱstandardsȱsuchȱasȱSIP,ȱSS7,ȱetc.34ȱȱWeȱthenȱusedȱratiosȱofȱansweredȱcallsȱandȱ

completedȱcallsȱandȱidentifiedȱsomeȱcarrierȱwithȱlessȱthanȱperfectȱcompletedȱcallȱratio.ȱȱ

ȱ Theȱreferencedȱratiosȱareȱcalculatedȱas:ȱ

Ratioȱofȱansweredȱcallsȱ=ȱAttemptedȱ/ȱȱ(Answeredȱ–ȱUnassignedȱnumber)ȱ

Completedȱcallsȱareȱcalculatedȱasȱ:ȱ(Attemptedȱcallȱ–ȱAnsweredȱ–ȱBusyȱ–ȱRingȱnoȱAnswerȱ–ȱUnassignedȱǃȱZero)ȱȱȱ

Ratioȱofȱcompletedȱcallsȱ=ȱ(Answeredȱ+ȱBusyȱ+ȱRingȬnoȬanswer)ȱ/ȱ(Answeredȱ–ȱUnassignedȱnumber)ȱ

3.2.6. Findings ȱ TheȱFCCȱrequiredȱCPȱdataȱisȱintendedȱtoȱbeȱusedȱtoȱidentifyȱpossibleȱareasȱforȱ

furtherȱinquiryȱandȱnotȱspecificallyȱtoȱidentifyȱcallȱfailures.ȱȱDataȱreportedȱbyȱCPsȱdoesȱ

notȱidentifyȱfailedȱcallsȱandȱdoesȱnotȱaddressȱrootȱcausesȱofȱsuchȱfailuresȱeither.ȱȱByȱtheȱ

sameȱtoken,ȱotherȱissuesȱassociatedȱwithȱcallȱcompletionȱproblemsȱe.g.ȱpoorȱqualityȱofȱ

callsȱorȱnetworkȱcongestionȱdelaysȱareȱnotȱaccountedȱforȱinȱtheseȱreports.ȱȱWithȱtheseȱ

caveatsȱinȱmind,ȱasȱweȱsummarizedȱreportedȱdataȱinȱtheȱAppendixȱD,ȱweȱfoundȱtheseȱ

findingsȱnoteworthy:ȱ

A. TwelveȱCPs,ȱorȱmoreȱthanȱquarterȱofȱtheȱtotalȱCPs,ȱeitherȱdidȱnotȱhaveȱattemptedȱcallsȱtoȱruralȱareasȱorȱtheyȱdidȱnotȱreportȱthemȱbecauseȱtheyȱeitherȱreportedȱzeroȱcallsȱorȱleftȱcategoriesȱofȱcallsȱblankȱwithȱnoȱexplanation.ȱ

B. Ofȱthoseȱthatȱreportedȱmoreȱthanȱzeroȱcalls,ȱsevenȱhadȱ1,000ȱorȱlessȱattemptedȱcallsȱfromȱArmstrongȱwithȱsixȱattemptedȱcallsȱtoȱMomentumȱwithȱ950ȱattemptedȱcalls.ȱ

34ȱCarriersȱuseȱaȱvarietyȱofȱstandardsȱtoȱidentifyȱcallsȱspecificsȱsuchȱasȱhowȱattempted,ȱduration,ȱconnected,ȱinterrupted,ȱterminatedȱandȱmore.ȱȱThereȱareȱnumberȱofȱstandardsȱthatȱserveȱoneȱorȱmoreȱvoiceȱdeliveryȱtechnology.ȱȱForȱexample,ȱSessionȱInitiationȱProtocolȱ(SIP),ȱSignalingȱSystemȱ7ȱ(SS7)ȱisȱanȱinternationalȱtelecommunicationsȱstandardȱthatȱdefinesȱhowȱnetworkȱelementsȱinȱaȱpublicȱswitchedȱtelephoneȱnetworkȱ(PSTN)ȱexchangeȱinformationȱoverȱaȱdigitalȱsignalingȱnetwork.ȱForȱaȱsampleȱlistȱofȱcauseȱcodesȱseeȱAppendixȱC.ȱ


34

C. OneȬhalfȱofȱthoseȱwhoȱreportedȱmoreȱthanȱzeroȱattemptedȱcallsȱhadȱlessȱthanȱ50,000ȱcalls.ȱ

D. VerizonȱBusinessȱwithȱoverȱ11ȱmillionȱattemptedȱcallsȱhadȱtheȱhighestȱnumberȱcallsȱattemptedȱfollowedȱbyȱLevelȱ3ȱatȱaroundȱ1.5ȱmillionȱcalls.ȱTogether,ȱtheyȱrepresentȱ¾ȱofȱallȱattemptedȱcalls.ȱ

E. VerizonȱBusinessȱandȱLevelȱ3ȱsettledȱwithȱtheȱFCCȱafterȱtheȱFCCȱinvestigatedȱtheirȱhandlingȱofȱCCP.ȱȱ

F. VerizonȱBusinessȱandȱLevelȱ3ȱhadȱaȱ75%ȱandȱ88%ȱcompletedȱcallȱratio,ȱrespectively.ȱ

G. TwentyȱthreeȱofȱCPsȱhadȱaȱcallȱcompletionȱratioȱofȱmoreȱthanȱ90%ȱwithȱattemptedȱcallȱrangeȱfromȱ6ȱtoȱlessȱthanȱhalfȱaȱmillion.ȱȱ

H. WithȱtheȱexceptionȱofȱsevenȱCPsȱatȱ100%ȱcompletionȱandȱtwelveȱblank/zeroȱreportingȱCPs,ȱtheȱremainderȱofȱCPsȱhaveȱdiscrepanciesȱbetweenȱtheirȱattemptedȱcallsȱandȱtheirȱcompletedȱcallsȱtoȱvaryingȱdegrees.ȱNeitherȱFormȱ480ȱnorȱtheȱCPsȱprovidedȱsufficientȱinformationȱtoȱidentifyȱtheȱdifferencesȱinȱattemptedȱtoȱcompletedȱcalls,ȱorȱrevealȱtheirȱcauses.ȱ

I. TheȱCommission’sȱCABȱdataȱsearchȱrevealedȱnoȱconsumerȱinitiatedȱcallȱcompletionȱconcernȱorȱcomplaint,ȱalthoughȱinȱtheȱCallȱCompletionȱOIIȱPPHsȱseveralȱRLECsȱreportedȱcomplaintsȱtheyȱreceivedȱfromȱcustomers.ȱ

3.2.7. Conclusion, Recommendations, and Orders ȱ Interstateȱcallȱcompletionȱmonitoringȱrequiresȱcooperationȱamongȱstatesȱandȱtheȱ

FCCȱatȱtheȱnationalȱlevel,ȱthoughȱtheȱstatesȱhaveȱanȱimportantȱroleȱtoȱplay,ȱasȱ

recognizedȱbyȱtheȱFCCȱinȱidentifyingȱandȱmonitoringȱtheȱproblem.ȱȱStatesȱlikeȱ

California,ȱmustȱaddressȱstateȬlevelȱissuesȱunderȱstateȱlaw,ȱwhereȱappropriate,ȱbothȱforȱ

interstateȱandȱintrastateȱcalls.ȱȱTelephoneȱcorporationsȱhaveȱaȱdutyȱtoȱcarryȱandȱ

completeȱcallsȱunderȱCal.ȱPub.ȱUtil.ȱCodeȱ558,ȱandȱthatȱcodeȱdoesȱnotȱlimitȱthatȱdutyȱtoȱ

intrastateȱcalls.ȱȱWeȱareȱalsoȱconcernedȱaboutȱCalȬOre’sȱcomplaintsȱthatȱcallȱcompletionȱ

problems,ȱbothȱinterstateȱbetweenȱCaliforniaȱandȱOregon,ȱandȱintrastate,ȱbetweenȱ


35

certainȱcarriersȱandȱCalȬOre,ȱhaveȱoccasionallyȱreoccurredȱoverȱtheȱpendencyȱofȱthisȱ

OII.35ȱȱ

ȱ TheȱOIIȱthatȱopenedȱthisȱproceedingȱstatedȱ“(C)ontingentȱuponȱfindingsȱinȱthisȱ

OII,ȱweȱwillȱthenȱconsiderȱopeningȱanȱOrderȱInstitutingȱRulemakingȱ(OIR)ȱproceedingȱ

toȱproposeȱremediesȱtoȱaddressȱproblemsȱidentifiedȱinȱthisȱInvestigation.36ȱȱWeȱhaveȱ

consideredȱthisȱoptionȱandȱinȱlieuȱofȱanȱOIRȱtoȱconsiderȱremedies,ȱweȱmakeȱtheȱ

followingȱdirectives:ȱ

A. WeȱdirectȱtheȱCommission’sȱCPEDȱtoȱinitiateȱinvestigationsȱofȱtheȱtwoȱmajorȱCPs,ȱVerizonȱBusinessȱandȱLevelȱ3ȱ(whoȱsettledȱwithȱtheȱFCCȱandȱpaidȱfinesȱregardingȱCallȱCompletionȱissues,ȱandȱwereȱorderedȱtoȱtakeȱcorrectiveȱactionsȱonȱtheirȱhandlingȱofȱCCP),ȱtoȱobtainȱmoreȱinformationȱaboutȱtheȱaboveȱmentionedȱgapsȱinȱtheirȱintrastateȱlongȱdistanceȱtrafficȱdataȱforȱcallsȱoriginatingȱfromȱorȱintendedȱtoȱaȱdestinationȱinȱCalifornia,ȱandȱrecommendȱappropriateȱaction.ȱȱWeȱnoteȱthatȱtheȱFCCȱdataȱdoȱnotȱbreakȱdownȱtheȱCPȱdataȱbyȱstate.ȱȱCPEDȱshallȱrequestȱunderȱthisȱCommission’sȱauthorityȱandȱCaliforniaȱlawȱtheȱdataȱitȱneedsȱfromȱVerizonȱBusinessȱandȱLevelȱ3ȱtoȱanalyzeȱcomplianceȱwithȱtheȱdutyȱofȱaȱcarrierȱoperatingȱinȱCaliforniaȱtoȱcarryȱandȱcompleteȱcalls,ȱunderȱCal.ȱPub.ȱUtil.ȱCodeȱsectionȱ558,ȱtoȱprovideȱsafe,ȱreliableȱserviceȱunderȱCal.ȱPub.ȱUtil.ȱCodeȱsectionȱ451,ȱandȱotherȱCommissionȱrules,ȱorders,ȱDecisions,ȱandȱtheȱCaliforniaȱPublicȱUtilitiesȱCode.ȱ

B. CarriersȱthatȱexperienceȱcallȱcompletionȱproblemsȱgoingȱforwardȱshallȱprovideȱinformationȱaboutȱtheȱissueȱinȱaȱdetailedȱletterȱtoȱCommunicationsȱDivision.ȱWeȱdirectȱCommissionȱDivisionȱtoȱanalyzeȱsuchȱletters,ȱrequestȱdata,ȱandȱrecommendȱappropriateȱactionȱasȱneeded.ȱȱWeȱdelegateȱtoȱCommunicationsȱDivisionȱtoȱdevelopȱreportingȱtemplatesȱorȱguidelinesȱforȱreportingȱcallȱcompletionȱproblemsȱforȱCaliforniaȱintrastateȱorȱinterstateȱcalls.ȱȱ

C. WeȱremindȱcarriersȱthatȱtheȱCommission’sȱAlternativeȱDisputeȱResolutionȱmechanismȱisȱavailableȱtoȱmediateȱinterȬcarrierȱissuesȱthatȱ

35ȱHappyȱCampȱPPH,ȱTr.ȱp.ȱ577ȱ(CalȬOreȱstatedȱtheȱcompanyȱfoundȱcallȱcompletionȱfailureȱforȱcallsȱfromȱOregonȱandȱforȱsomeȱintrastateȱcallsȱfromȱCharterȱtoȱCalȬOre).ȱ36ȱOII,ȱI.14Ȭ05Ȭ012,ȱp.ȱ2.ȱ


36

mayȱaffectȱcallȱcompletion.ȱȱCarriersȱmayȱalsoȱfileȱaȱformalȱcomplaintȱaboutȱcallȱcompletionȱproblems.ȱ

D. TheȱFCCȱcontinuesȱtoȱreceiveȱdataȱfromȱCPsȱwithȱgoalȱofȱidentifyingȱareasȱforȱfurtherȱinquiries.ȱAlthoughȱweȱcanȱobserveȱgapsȱbetweenȱcallsȱattemptedȱandȱcallsȱcompletedȱforȱseveralȱCPs,ȱthereȱisȱnoȱexplainedȱreasonȱwhyȱtheȱdiscrepanciesȱexist,ȱsoȱitȱshouldȱbeȱanȱareaȱdeservingȱfurtherȱinvestigationȱatȱtheȱnationalȱlevel,ȱinȱadditionȱtoȱCPED’sȱinvestigationȱunderȱCaliforniaȱlawȱandȱthisȱCommission’sȱjurisdiction.ȱ

E. WeȱdirectȱCommunicationsȱDivisionȱandȱourȱLegalȱDivisionȱtoȱdraftȱcommentsȱforȱourȱconsiderationȱtoȱfileȱatȱtheȱFCCȱaboutȱtheȱdataȱgapsȱandȱinconsistenceȱinȱtheirȱRCCPȱdatabase,ȱandȱseekȱimprovementsȱinȱtheȱreporting,ȱdataȱgathering,ȱandȱmonitoringȱprocess.ȱ

F. WeȱadoptȱtheȱCHCFȬAȱFundȱCarriersȱsuggestionȱthatȱweȱdirectȱtheȱCommission’sȱNewsȱandȱPublicȱInformationȱOfficeȱandȱConsumerȱAffairsȱBranchȱtoȱdevelopȱandȱpostȱonȱtheȱwebȱandȱthroughȱbrochuresȱconsumerȱinformationȱaboutȱruralȱcallȱcompletionȱfailureȱissuesȱandȱstepsȱtoȱtakeȱtoȱhelpȱtheȱCommissionȱidentifyȱandȱresolveȱthem.ȱȱCustomersȱshouldȱbeȱencouragedȱtoȱtrackȱtheȱtimeȱandȱdateȱofȱtheȱfailedȱcalls,ȱtheȱtelephoneȱnumbersȱofȱtheȱcalledȱandȱcallingȱparties,ȱtheȱcarriersȱforȱtheȱcalledȱandȱcallingȱpartiesȱincludingȱtheȱcallingȱpartiesȇȱinterexchangeȱ(longȬdistance)ȱcarrier.ȱCABȱshallȱrequestȱthisȱinformationȱifȱitȱreceivesȱaȱcallȱcompletionȱcomplaintȱfromȱtheȱpublic.ȱ

ȱWeȱdirectȱtheȱCommission’sȱNewsȱandȱPublicȱInformationȱOfficeȱtoȱcontinueȱandȱenhanceȱtheȱCallȱCompletionȱsurveyȱandȱreportingȱtoolȱnowȱavailableȱonȱtheȱCommission’sȱwebȱsiteȱdevelopedȱduringȱthisȱOII.ȱ

4. Other Types of Call Completion Failure Issues: 9-1-1 Call Completion Failures, Short Code Call Completion Failures, 9-1-1 Addressing issues, 9-1-1 Database Access, Public Safety Contact information for Carrier Access 4.1. Definition of 9-1-1 Call Completion Issues and Summary TheȱAmendedȱScopingȱMemoȱissuedȱinȱMayȱ2015ȱexpandedȱtheȱscopeȱofȱthisȱ

proceedingȱtoȱincludeȱ“reviewȱofȱ911ȱcallȱcompletionȱandȱaccessȱissues,ȱincluding,ȱbutȱ

notȱlimitedȱto,ȱthoseȱdueȱtoȱlossȱofȱdialȬtoneȱforȱreasonsȱotherȱthanȱserviceȱ


37

cancellation.”37ȱȱTheȱinclusionȱofȱthisȱissueȱinȱtheȱOIIȱscopeȱwasȱmadeȱurgentȱbyȱreportsȱ

ofȱfailuresȱofȱ9Ȭ1Ȭ1ȱcallsȱtoȱreachȱtheȱPSAP,ȱincludingȱthoseȱmadeȱduringȱtheȱmultiȬstateȱ

outageȱofȱAprilȱ9,ȱ2014ȱaffectingȱnineȱCaliforniaȱcountiesȱandȱ13ȱPSAPs.38ȱȱTheȱFCCȱ

notedȱthatȱtheseȱnineȱCaliforniaȱcountiesȱ“coverȱaȱgeographicȱareaȱofȱoverȱ24,000ȱsquareȱ

milesȱandȱhaveȱaȱpopulationȱofȱmoreȱthanȱ748,000.ȱItȱwasȱaȱclassicȱ“sunnyȱday”ȱ

outage—oneȱthatȱdidȱnotȱresultȱfromȱanȱextraordinaryȱdisasterȱorȱotherȱunforeseeableȱ

catastrophe.”39ȱ

WeȱareȱconcernedȱaboutȱtheȱCaliforniansȱwhoȱtriedȱtoȱcallȱ9Ȭ1Ȭ1ȱonȱAprilȱ9,ȱ2014,ȱ

andȱonȱotherȱoccasionsȱasȱreportedȱinȱthisȱOII,ȱandȱonȱthoseȱoccasionsȱaboutȱwhichȱweȱ

areȱnotȱinformed.ȱTheȱCountyȱofȱSonomaȱdidȱnotȱparticipateȱasȱaȱpartyȱinȱthisȱOII.ȱȱWeȱ

heldȱaȱPPHȱinȱGuernevilleȱinȱAugustȱ2016.ȱȱWeȱreceivedȱnoȱadditionalȱinformationȱ

aboutȱtheȱ9Ȭ1Ȭ1ȱoutageȱinȱtheȱNapaȱareaȱafterȱtheȱAugustȱ24,ȱ2014ȱearthquake,ȱthoughȱ

weȱreceivedȱextensiveȱcommentsȱaboutȱtheȱphysicalȱconditionȱofȱtheȱnetworkȱincludingȱ

attachmentȱofȱtelephoneȱlinesȱtoȱdeadȱtreesȱandȱpoorȱmaintenance,ȱallegedȱtoȱ

deteriorateȱcallȱqualityȱandȱcallingȱaccess.ȱȱNeitherȱdidȱthisȱOIIȱreceiveȱinformationȱ

aboutȱreportsȱofȱextendedȱ911ȱoutagesȱassociatedȱwithȱlossȱofȱdialȬtoneȱafterȱrainstormsȱ

inȱDecemberȱ2014ȱandȱinȱ2015,ȱthoughȱweȱdidȱreceiveȱreportsȱofȱtelephoneȱserviceȱgoingȱ

outȱafterȱrainȱstorms,ȱandȱthatȱpoorȱlineȱmaintenanceȱpermittedȱwaterȱintrusionȱintoȱ

linesȱthatȱallegedlyȱinterferesȱwithȱcallȱqualityȱandȱcanȱcontributeȱtoȱlackȱofȱdialȱtoneȱ

andȱ9Ȭ1Ȭ1ȱaccess.ȱȱȱ

Californiansȱshouldȱbeȱableȱtoȱreachȱ9Ȭ1Ȭ1ȱwhenȱtheyȱmakeȱtheȱmostȱimportantȱ

callȱofȱtheirȱlife.ȱȱ

37ȱAmendedȱScopingȱMemo,ȱOrderingȱparagraphȱ2(a).ȱ38ȱFCC,ȱPublicȱSafetyȱandȱHomelandȱSecurityȱBureau,ȱAprilȱ2014ȱMultistateȱOutage,ȱCausesȱandȱImpact,ȱReportȱandȱRecommendations,ȱDocketȱNo.ȱ14Ȭ72,ȱPSHSBȱCaseȱFileȱNos.ȱ14ȬCCRȬ0001Ȭ0007,ȱp.ȱ4ȱ[hereinafter,ȱFCC,ȱAprilȱ2014ȱMultistateȱOutageȱReport].ȱ39ȱId.ȱ


38

Theȱ9Ȭ1Ȭ1ȱemergencyȱsystemȱisȱdesignedȱtoȱquicklyȱrouteȱcallsȱtoȱemergencyȱ

servicesȱoperators.ȱȱTheȱshortȱcodeȱdigitsȱ9Ȭ1Ȭ1ȱactivateȱroutingȱdirectionsȱtoȱaȱspecificȱ

trunkȱgroupȱwithȱinformationȱthatȱanotherȱfunctionȱ(theȱselectiveȱrouter,ȱS/R)ȱusesȱtoȱ

routeȱtheȱcallȱoverȱspecificȱtrunksȱtoȱtheȱPSAP.ȱȱTheȱarchitectureȱofȱtheȱ9Ȭ1Ȭ1ȱsystemȱhasȱ

evolvedȱoverȱtimeȱandȱInternetȱProtocolȱ(IP)ȱisȱincreasinglyȱusedȱandȱitsȱuseȱmayȱdifferȱ

alterȱtheȱroutingȱpathȱdescribedȱabove.ȱȱMaintainingȱreliableȱandȱresilientȱaccessȱtoȱ9Ȭ1Ȭ1ȱ

isȱbothȱimperativeȱandȱaȱdutyȱofȱcarriersȱunderȱCaliforniaȱlaw.ȱ

Aȱcarrier’sȱobligationsȱtoȱcarryȱandȱcompleteȱcallsȱunderȱCal.ȱPub.ȱUtil.ȱCodeȱ

sectionȱ558ȱappliesȱtoȱallȱcalls.ȱTheȱWarrenȱ911ȱEmergencyȱCommunicationsȱAct,ȱ

CaliforniaȱGovernmentȱCodeȱ53100(b)ȱdeclaresȱthatȱ“itȱisȱinȱtheȱpublicȱinterestȱtoȱ

shortenȱtheȱtimeȱrequiredȱforȱaȱcitizenȱtoȱrequestȱandȱreceiveȱemergencyȱaid.”ȱȱCal.ȱPub.ȱ

Util.ȱCodeȱ§ȱ2883ȱstatesȱthatȱtelecommunicationsȱutilitiesȱshallȱ“continue[s]ȱtoȱprovideȱaȱ

publicȱsafetyȱnetȱinȱaȱcompetitiveȱtelecommunicationsȱmarket.ȱItȱalsoȱrequiresȱthat,ȱ“ȱ

(b)ȱAllȱlocalȱtelephoneȱcorporations,ȱexcludingȱprovidersȱofȱmobileȱtelephonyȱserviceȱ

andȱmobileȱsatelliteȱtelephoneȱservice,ȱasȱdefinedȱinȱSectionȱ224.4,ȱtoȱtheȱextentȱ

permittedȱbyȱexistingȱtechnologyȱorȱfacilities,ȱshallȱprovideȱeveryȱsubscriberȱofȱtariffedȱ

residentialȱbasicȱexchangeȱserviceȱwithȱaccessȱtoȱ‘911’ȱemergencyȱservice.“ȱȱȱ

ThisȱOIIȱanalyzedȱexamplesȱofȱbothȱ9Ȭ1Ȭ1ȱcallsȱthatȱCaliforniansȱinitiatedȱbutȱthatȱ

didȱnotȱreachȱ9Ȭ1Ȭ1ȱdispatch,ȱdefinedȱhereinȱasȱ“9Ȭ1Ȭ1ȱCallȱCompletionȱfailures.”ȱȱItȱalsoȱ

identifiedȱandȱanalyzedȱreportsȱofȱcustomerȱproblemsȱreachingȱ9Ȭ1Ȭ1ȱdueȱtoȱlackȱofȱdialȬ

tone,ȱoutages,ȱorȱqualityȱsoȱpoorȱthatȱalthoughȱtheȱserviceȱisȱpaidȱforȱandȱshouldȱbeȱ

working,ȱCaliforniansȱfacingȱthoseȱcircumstancesȱareȱunableȱtoȱinitiateȱaȱ9Ȭ1Ȭ1ȱcall,ȱ

definedȱhereinȱasȱ“9Ȭ1Ȭ1ȱaccessȱfailures.”ȱȱWeȱfocusȱinȱthisȱsectionȱonȱtheȱ9Ȭ1Ȭ1ȱCallȱ

CompletionȱoutageȱofȱAprilȱ9,ȱ2014.ȱȱThereȱmayȱbeȱotherȱexamplesȱofȱ9Ȭ1Ȭ1ȱCallȱ

CompletionȱissuesȱnotȱfullyȱbroughtȱtoȱlightȱinȱthisȱOII.ȱTheȱpoliciesȱweȱdiscussȱhereinȱ

affirmȱtheȱimportanceȱofȱ9Ȭ1Ȭ1ȱandȱdialȱtoneȱaccess.ȱȱȱȱ


39

4.2. 9-1-1 Call Completion Failures of April 9, 2014 4.2.1. FCC Multistate 9-1-1 Outage Report and Recommendations

and Resultant FCC Orders and Settlements ȱ OnȱAprilȱ9,ȱ2014,ȱColoradoȬbasedȱIntrado,ȱInc.’sȱ40ȱ9Ȭ1Ȭ1ȱcallȬroutingȱfacilityȱ

stoppedȱdirectingȱemergencyȱcallsȱtoȱeightyȬoneȱ9Ȭ1Ȭ1ȱcallȱcentersȱ(PublicȱSafetyȱ

AnsweringȱPointsȱ(PSAPs)ȱinȱsevenȱstatesȱCalifornia,ȱFlorida,ȱMinnesota,ȱNorthȱ

Carolina,ȱPennsylvania,ȱSouthȱCarolina,ȱandȱWashington.ȱWashingtonȱStateȱwasȱmostȱ

affectedȱwhereȱallȱtheȱstate’sȱPSAPsȱexperienceȱitȱtoȱsomeȱdegreeȱandȱtheȱaffectedȱ

populationȱwasȱ6,971,406.ȱInȱCalifornia,ȱ30,000ȱpeopleȱinȱnineȱcountiesȱwereȱpotentiallyȱ

affectedȱbyȱtheȱfailuresȱthatȱleftȱAT&TȱMobilityȱandȱVerizon,ȱWirelessȱcustomersȱunableȱ

toȱreachȱtheȱthirteenȱPSAPsȱinȱthoseȱNorthernȱCaliforniaȱcounties.ȱ

ȱ InȱitsȱconsentȱdecreeȱwithȱVerizonȱBusiness,ȱtheȱFCCȱdeterminedȱthatȱnineȱ

Californiaȱcountiesȱlostȱaccessȱtoȱ9Ȭ1Ȭ1ȱforȱwirelessȱcallersȱfromȱVerizon,ȱWirelessȱandȱ

AT&TȱMobilityȱasȱaȱresultȱofȱwhatȱtheȱFCCȱconcludedȱwasȱ“aȱsoftwareȱcodingȱerror”ȱinȱ

Intrado,ȱInc.’sȱColoradoȱfacilityȱ(aȱsubcontractorȱtoȱVerizon,ȱBusinessȱwhichȱcontractedȱ

withȱtheȱCaliforniaȱOfficeȱofȱEmergencyȱServicesȱ(CalȱOES)ȱtoȱprovideȱaȱ9Ȭ1Ȭ1ȱtrialȱforȱ

InternetȱProtocolȱ(IP)Ȭbasedȱ911.41ȱȱTheȱFCCȱfoundȱthatȱtheȱIntradoȱoutageȱinȱColoradoȱ

“resultedȱinȱaȱlossȱofȱ911ȱserviceȱforȱmoreȱthanȱ11ȱmillionȱpeopleȱnationallyȱforȱupȱtoȱsixȱ

hours,”ȱandȱaffectedȱ13ȱPublicȱServiceȱAnsweringȱPointȱ(PSAPs)ȱinȱCalifornia.42ȱ

40ȱIntrado:ȱTheȱCompanyȱisȱaȱproviderȱofȱ9Ȭ1Ȭ1ȱrelatedȱservicesȱinȱmanyȱstates.ȱȱInȱsomeȱstatesȱsuchȱasȱSouthȱCarolina,ȱitȱisȱtheȱdirectȱproviderȱofȱ9Ȭ1Ȭ1ȱserviceȱandȱinȱsomeȱothers,ȱitȱisȱaȱthirdȱpartyȱcontactor.ȱSuchȱareȱtheȱcasesȱinȱwithȱCenturyLinkȱȱinȱWashingtonȱandȱwithȱVerizonȱBusinessȱinȱCalifornia.ȱȱSeeȱFCC,ȱAprilȱ2014ȱMultistateȱOutageȱReport,ȱp.ȱ1.ȱ41ȱFCC,ȱPublicȱSafetyȱandȱHomelandȱSecurityȱBureau,ȱAprilȱ2014ȱMultistateȱOutage,ȱCausesȱandȱImpact,ȱReportȱandȱRecommendations,ȱDocketȱNo.ȱ14Ȭ72,ȱPSHSBȱCaseȱFileȱNos.ȱ14ȬCCRȬ0001Ȭ0007,ȱp.ȱ1ȱ[hereinafter,ȱFCC,ȱAprilȱ2014ȱMultistateȱOutageȱReport].ȱ42ȱId.;ȱFCC,ȱInȱtheȱMatterȱofȱVerizon,ȱFileȱNumberȱEBȬSEDȬ14Ȭ00017189,ȱEBȬSEDȬ14Ȭ00017676,ȱEBȬSEDȬ14Ȭ00017373,ȱMarchȱ18,ȱ2015,ȱOrderȱandȱConsentȱDecree,ȱp.ȱ2ȱ[hereinafterȱ“FCCȱVerizonȱBusinessȱOrderȱandȱConsentȱDecree,ȱ9Ȭ1Ȭ1ȱMultistateȱFailure.”]ȱ


40

ȱ TheȱFCC’sȱinvestigatedȱtheȱcausesȱandȱimpactsȱofȱaȱmultistateȱ9Ȭ1Ȭ1ȱserviceȱ

outageȱthatȱoccurredȱonȱAprilȱ9,ȱ2014ȱandȱreportedȱitsȱfindingsȱandȱrecommendationsȱinȱ

Octoberȱ2014.ȱȱTheȱFCCȱconcludedȱthatȱtheȱ2014ȱmultistateȱcausedȱbyȱaȱsoftwareȱcodingȱ

errorȱresultingȱinȱaȱsixȬhourȱlossȱofȱ9Ȭ1Ȭ1ȱservicesȱtoȱmoreȱthanȱ11ȱmillionȱpeople.ȱTheȱ

reportȱfoundȱthatȱtheȱmultistateȱoutageȱwasȱpreventable.ȱ

ȱ TheȱFCCȱobservedȱthatȱtheȱAprilȱ9,ȱ2014ȱmultiȬstateȱ9Ȭ1Ȭ1ȱoutageȱwasȱnotȱanȱ

anomaly,ȱbutȱaȱflashȱpointȱthatȱindicatesȱaȱpatternȱofȱsoftwareȬdrivenȱoutages.ȱȱTheȱFCCȱ

concludedȱ“Whatȱisȱmostȱtroublingȱisȱthatȱthisȱisȱnotȱanȱisolatedȱincidentȱorȱanȱactȱofȱ

nature.ȱSoȬcalledȱ“sunnyȱday”ȱoutagesȱareȱonȱtheȱrise.ȱȱThat’sȱbecause,ȱasȱ911ȱhasȱ

evolvedȱintoȱaȱsystemȱthatȱisȱmoreȱtechnologicallyȱadvanced,ȱtheȱinteractionȱofȱnewȱandȱ

oldȱsystemsȱisȱintroducingȱfragilityȱintoȱtheȱcommunicationsȱsystemȱthatȱisȱmoreȱ

importantȱinȱtimesȱofȱdireȱneed.”43ȱȱTheȱFCCȱcautionedȱaboutȱtheȱneedȱforȱcloseȱ

monitoringȱofȱnetworkȱperformanceȱandȱissueȱinȱlightȱofȱtheȱongoingȱtransitionȱtoȱ

InternetȬProtocolȱ(IP)Ȭbasedȱnetworks:ȱ

“TheȱcausesȱofȱthisȱoutageȱhighlightȱvulnerabilitiesȱofȱnetworksȱasȱtheyȱtransitionȱfromȱtheȱlongȬfamiliarȱmethodsȱofȱreachingȱ911ȱtoȱIPȬsupportedȱtechnologies.ȱInȱparticular,ȱtheȱtechnicalȱandȱoperationalȱfailuresȱthatȱcausedȱandȱprolongedȱtheȱoutageȱsuggestȱtheȱneedȱforȱaȱcloseȱexaminationȱofȱtheȱtransitionȱtoȱIPȬsupportedȱ911ȱservices.44ȱ

WeȱconcurȱwithȱtheȱFCC,ȱandȱsimilarlyȱareȱconcernedȱaboutȱtheȱrisksȱrelatedȱtoȱ

softwareȬdrivenȱoutages.ȱȱAsȱweȱdiscussȱbelow,ȱFrontierȱcitedȱsoftwareȬdrivenȱissuesȱasȱ

aȱkeyȱreasonȱwhyȱmoreȱthanȱ1,500ȱcustomers,ȱasȱestimatedȱbyȱcomplaintsȱtoȱtheȱFCCȱ

andȱtheȱCPUC,ȱwhoȱhadȱfunctioningȱlinesȱwhenȱtheyȱwereȱVerizon,ȱCaliforniaȱ

customers,ȱlostȱdialȬtoneȱserviceȱincludingȱ9Ȭ1Ȭ1ȱaccessȱshortlyȱafterȱtheȱVerizon,ȱ

CaliforniaȬFrontierȱtransitionȱinȱAprilȱ2016.ȱȱȱ

43ȱFCC,ȱAprilȱ2014ȱMultistateȱOutageȱReport,ȱp.ȱ1.ȱ44ȱId.ȱ


41

Serviceȱissuesȱcompoundedȱbothȱofȱthoseȱincidents.ȱȱForȱtheȱAprilȱ9,ȱ2014ȱoutage,ȱVerizonȱBusinessȱreportedȱtoȱtheȱFCCȱthatȱ“IntradoȱallegedlyȱdidȱnotȱinformȱVerizonȱofȱtheȱoutageȱuntilȱafterȱitȱwasȱresolved.ȱAfterȱVerizonȱBusinessȱwasȱinformedȱaboutȱtheȱimpactȱofȱtheȱoutageȱonȱtheȱtrial,ȱitȱnotifiedȱtheȱStateȱofȱCaliforniaȱOfficeȱofȱEmergencyȱCommunications,ȱtheȱentityȱwithȱwhichȱVerizonȱcontractedȱtoȱprovideȱserviceȱunderȱtheȱtrial.”45ȱȱTheȱFCCȱconsentȱdecreeȱisȱbasedȱinȱpartȱofȱVerizonȱBusiness’sȱfailureȱtoȱtimelyȱnotifyȱtheȱ13ȱCaliforniaȱPSAPsȱaffectedȱbyȱtheȱoutage.ȱ“Pursuantȱtoȱtheȱ[FederalȱCommunications]ȱCommission’sȱrules,ȱVerizonȱwasȱrequiredȱtoȱtimelyȱnotifyȱallȱaffectedȱPublicȱSafetyȱAnsweringȱPointsȱ(PSAPs)ȱofȱtheȱAprilȱ2014ȱoutage,ȱbutȱVerizonȱfailedȱtoȱdoȱso.”46ȱȱȱ

ȱ

ȱ PSAPsȱthroughoutȱtheȱareasȱaffectedȱbyȱtheȱAprilȱ2014ȱoutageȱsuchȱasȱCaliforniaȱ

wereȱleftȱtoȱshareȱinformationȱasȱitȱfilteredȱintoȱthroughȱotherȱpublicȱsafetyȱsourcesȱorȱ

thoseȱwhoȱstillȱhadȱworkingȱlines.ȱȱTheȱPSAPsȱandȱpublicȱsafetyȱofficialsȱfacedȱanȱ

informationȱvacuumȱaboutȱtheȱoutages.ȱȱLackingȱthatȱinformation,ȱpublicȱsafetyȱofficialsȱ

wereȱnotȱableȱtoȱrequestȱcarriersȱtoȱseekȱmethodsȱtoȱrerouteȱcalls,ȱorȱtoȱinformȱtheȱpublicȱ

toȱuseȱaȱlandlineȱtoȱcallȱ9Ȭ1Ȭ1,ȱnotȱaȱcellȱphoneȱusingȱtheȱnetworksȱofȱtheȱaffectedȱ

carriers.ȱTheȱFCCȱreportedȱthatȱPSAPȱofficialsȱfirstȱbecameȱawareȱofȱtheȱimpactȱonȱtheȱ

publicȱinȱtheirȱareaȱwhenȱtheȱFCCsȱstaffȱcontactedȱthemȱinȱtheȱcourseȱofȱthisȱ

investigation.47ȱ

ȱ Thisȱinformationȱgapȱandȱfailureȱtoȱcomplyȱwithȱlegalȱrequirementsȱtoȱnotifyȱ

PSAPsȱleftȱCaliforniansȱvulnerableȱtoȱ9Ȭ1Ȭ1ȱcallsȱnotȱgoingȱthrough.ȱȱThisȱisȱanȱespeciallyȱ

troublingȱprospectȱinȱtheȱruralȱnorthernȱCaliforniaȱcountiesȱwhereȱthisȱoccurred,ȱasȱtheyȱ

areȱliterallyȱbearsȱoutȱthere,ȱandȱtheseȱareȱplacesȱwhereȱhelpȱmayȱbeȱfarȱaway.ȱȱTheȱ

45ȱFCC,ȱInȱtheȱMatterȱofȱVerizon,ȱFileȱNumberȱEBȬSEDȬ14Ȭ00017189,ȱEBȬSEDȬ14Ȭ00017676,ȱȱEBȬSEDȬ14Ȭ00017373,ȱMarchȱ18,ȱ2015,ȱOrderȱandȱConsentȱDecree,ȱp.ȱ2ȱ[hereinafterȱ“FCCȱVerizonȱBusinessȱOrderȱandȱConsentȱDecree,ȱ9Ȭ1Ȭ1ȱMultistateȱFailure.”]ȱ46ȱFCCȱVerizonȱBusinessȱConsentȱDecree,ȱ9Ȭ1Ȭ1ȱMultistateȱFailure,ȱp.ȱ2.ȱ47ȱTheȱFCCȱAprilȱ2014ȱMultistateȱOutageȱReport,ȱp.ȱ6.ȱ


42

conductȱofȱVerizonȱBusinessȱwithȱregardȱtoȱtheȱAprilȱ9,ȱ2014ȱfailuresȱofȱ9Ȭ1Ȭ1ȱserviceȱ

reflectsȱnotȱonlyȱaȱfailureȱtoȱobserveȱfederalȱlaw,ȱbutȱraisesȱquestionsȱaboutȱwhetherȱ

theyȱprovidedȱserviceȱisȱconsistentȱwithȱtheirȱdutiesȱunderȱCaliforniaȱlaw.ȱȱȱ

4.2.2. 9-1-1 Service Providers in the Affected California Counties ȱ AsȱtheȱFCCȱnotedȱinȱitsȱVerizonȱBusinessȱConsentȱDecree,ȱVerizonȱBusinessȱ

providesȱ911ȱserviceȱ“(P)ursuantȱtoȱaȱcontractȱwithȱtheȱStateȱofȱCaliforniaȱOfficeȱofȱ

EmergencyȱCommunications.”48ȱȱTheȱFCCȱexplained:ȱ

Verizonȱ[Business]ȱisȱtheȱ911ȱserviceȱproviderȱasȱpartȱofȱaȱtrialȱinȱanȱareaȱofȱNorthernȱCalifornia.ȱTheȱtrial,ȱwhichȱbeganȱinȱ2012,ȱisȱdesignedȱtoȱtestȱaȱnewȱwayȱofȱroutingȱwirelessȱ911ȱcallsȱtoȱtheȱappropriateȱPSAPȱusingȱtheȱlatitude/longitudeȱlocationȱofȱtheȱcaller.ȱTheȱcallȱroutingȱbeingȱtestedȱinȱtheȱtrialȱwouldȱeliminateȱasȱmanyȱcallȱtransfersȱamongȱPSAPsȱasȱpossibleȱinȱanȱeffortȱtoȱminimizeȱtheȱtimeȱitȱtakesȱforȱaȱwirelessȱ911ȱcallerȱtoȱreachȱtheȱappropriateȱPSAPȱforȱherȱorȱhisȱlocation.ȱTheȱtrialȱisȱlimitedȱtoȱ911ȱcallsȱoriginatingȱfromȱAT&TȱMobilityȱandȱVerizon,ȱWirelessȱinȱtheȱspecifiedȱarea.ȱVerizonȱsubcontractsȱperformanceȱofȱcertainȱfunctionsȱofȱtheȱtrialȱtoȱIntrado,ȱaȱproviderȱofȱ911ȱandȱemergencyȱcommunicationsȱinfrastructure,ȱsystemsȱandȱservicesȱtoȱtelecommunicationsȱserviceȱprovidersȱandȱpublicȱsafetyȱagenciesȱthroughoutȱtheȱUnitedȱStates.49ȱȱ

ȱ

Theȱlimitedȱgeographicȱnatureȱofȱtheȱ9Ȭ1Ȭ1ȱtrialȱinvolvingȱVerizonȱBusinessisȱtheȱonlyȱ

reasonȱtheȱAprilȱ9,ȱ2014ȱmultiȬstateȱ9Ȭ1Ȭ1ȱoutageȱaffectedȱnineȱnorthernȱCaliforniaȱ

countiesȱandȱnotȱevenȱlargerȱportionsȱofȱCalifornia.ȱȱ“AllȱofȱWashingtonȱState’sȱ39ȱ

countiesȱwereȱaffectedȱbyȱtheȱmultistateȱoutage.”50ȱȱ

48ȱFCC,ȱInȱtheȱMatterȱofȱVerizon,ȱFileȱNumberȱEBȬSEDȬ14Ȭ00017189,ȱEBȬSEDȬ14Ȭ00017676,ȱEBȬSEDȬ14Ȭ00017373,ȱMarchȱ18,ȱ2015,ȱOrderȱ¶1.ȱ49ȱFCC,ȱInȱtheȱMatterȱofȱVerizon,ȱFileȱNumberȱEBȬSEDȬ14Ȭ00017189,ȱEBȬSEDȬ14Ȭ00017676,ȱEBȬSEDȬ14Ȭ00017373,ȱMarchȱ18,ȱ2015,ȱOrderȱ¶1.ȱ50ȱFCC,ȱAprilȱ2014ȱMultistateȱOutageȱReport,ȱp.ȱ17,ȱfn.ȱ48ȱ(“TheȱStateȱofȱWashington,ȱthroughȱitsȱMilitaryȱDepartment,ȱhasȱaȱcontractȱwithȱCenturyLinkȱforȱtheȱlatterȱtoȱbeȱ“theȱsoleȱwirelineȱ911ȱserviceȱproviderȱforȱtheȱStateȱofȱWashingtonȱandȱhasȱpartneredȱwithȱIntradoȱtoȱprovideȱthisȱservice.ȱTheȱcontractȱwasȱexecutedȱbetweenȱQwestȱandȱtheȱStateȱofȱWashingtonȱinȱ2008ȱandȱ

(footnote continued on next page)


43

ȱ Forȱtheȱ9Ȭ1Ȭ1ȱcontractȱbetweenȱVerizonȱBusinessȱandȱtheȱCalȱOES,ȱVerizonȱ

BusinessȱsubcontractedȱtoȱIntradoȱforȱcertainȱfunctions,ȱincludingȱIPȱselectiveȱroutingȱofȱ

9Ȭ1Ȭ1ȱcallsȱfromȱtheseȱproviders.ȱCallsȱtoȱ9Ȭ1Ȭ1ȱfromȱAT&TȱMobilityȱandȱVerizon,ȱ

WirelessȱsubscribersȱwereȱaffectedȱbyȱtheȱAprilȱ2014ȱoutage.ȱ

ȱ VerizonȱBusinessȱalsoȱprovidesȱanȱIPȱtrialȱ9Ȭ1Ȭ1ȱnetworkȱtoȱtheseȱsameȱPSAPsȱforȱ

callsȱoriginatingȱwithȱotherȱproviders.ȱCallsȱtoȱ9Ȭ1Ȭ1ȱinȱtheȱtrialȱareasȱofȱCaliforniaȱfromȱ

providersȱotherȱthanȱAT&TȱMobilityȱandȱVerizon,ȱWirelessȱuseȱaȱdifferentȱ9Ȭ1Ȭ1ȱ

networkȱthatȱwasȱunaffectedȱbyȱtheȱeventȱinȱIntrado’sȱnetwork.ȱAllȱwirelineȱusers,ȱallȱ

VoIPȱusers,ȱandȱcustomersȱofȱwirelessȱprovidersȱotherȱthanȱAT&TȱMobilityȱandȱ

Verizon,ȱWirelessȱwereȱnotȱimpactedȱbyȱtheȱ9Ȭ1Ȭ1ȱcallȱcompletionȱfailureȱandȱoutageȱ

thatȱbeganȱwithȱsoftwareȱissuesȱatȱIntradoȱonȱAprilȱ9,ȱ2014.ȱ

ȱ Whileȱgreaterȱpercentagesȱofȱotherȱstatesȱwereȱaffectedȱbyȱtheȱ9Ȭ1Ȭ1ȱCallȱ

CompletionȱfailuresȱinȱAprilȱ2014,ȱthirteenȱCaliforniaȱPSAPsȱlostȱtheirȱabilityȱtoȱreceiveȱ

9Ȭ1Ȭ1ȱcallsȱfromȱAT&TȱMobilityȱandȱVerizon,ȱWirelessȱcustomers.ȱȱThisȱincidentȱaffectedȱ

aȱlargeȱgeographicalȱareaȱcharacterizedȱbyȱlongȱdistancesȱtoȱreachȱhelp.51ȱ(seeȱAppendixȱ

D).ȱCalifornia’sȱaffectedȱpopulationȱwasȱ30,000.ȱApproximatelyȱoneȬthousandȱcallsȱ

failedȱinȱCalifornia,ȱFlorida,ȱandȱSouthȱCarolina,ȱbutȱtheȱFCCȱreportȱdidȱnotȱgiveȱaȱstateȱ

byȱstateȱbreakdownȱofȱ9Ȭ1Ȭ1ȱCallȱCompletionȱfailuresȱduringȱthisȱincident.52ȱȱ

effectiveȱinȱ2009.ȱServiceȱwasȱturnedȱupȱinȱ2009ȱandȱaȱtransitionȱbeganȱatȱthatȱtimeȱfromȱlegacyȱ911ȱtoȱEmergencyȱServicesȱIPȱNetworkȱ(“ESINet”).”ȱSeeȱCenturyLinkȱCommentsȱatȱ3Ȭ4.”)ȱ51ȱFCC,ȱAprilȱ2014ȱMultistateȱOutageȱReport,ȱp.ȱ17ȱ(identifyingȱtheȱaffectedȱCaliforniaȱcountiesȱas:ȱButte,ȱColusa,ȱLassen,ȱPlumas,ȱShasta,ȱSiskiyou,ȱSutter,ȱandȱYuba).ȱȱTheȱFCCȱVerizonȱBusinessȱOrderȱandȱConsentȱDecree,ȱ9Ȭ1Ȭ1ȱMultistateȱFailure,ȱp.ȱ1ȱstatesȱthatȱtheȱ9Ȭ1Ȭ1ȱfailuresȱonȱAprilȱ2014ȱaffectedȱnineȱCaliforniaȱcountiesȱbutȱdoesȱnotȱlistȱtheȱnineȱcounties.ȱ52ȱId.,ȱp.ȱ4.ȱ


44

4.2.3. FCC Recommendations for Maintaining a Reliable End-to-End 9-1-1 System

ȱ TheȱFCC’sȱMultistateȱ9Ȭ1Ȭ1ȱoutageȱreportȱrecommendedȱthatȱtheȱFCC,ȱstateȱ

governments,ȱandȱ9Ȭ1Ȭ1ȱindustryȱparticipantsȱtakeȱstepsȱtoȱpreserveȱtheȱreliabilityȱandȱ

integrityȱofȱtheȱ9Ȭ1Ȭ1ȱsystemȱnowȱandȱthroughoutȱtransitionȱtoȱNG9Ȭ1Ȭ1ȱ(nextȱgenerationȱ

9Ȭ1Ȭ1)ȱandȱbeyond.ȱȱTheȱFCCȱexplainedȱthatȱ“NG911ȱnetworks,ȱwhichȱrelyȱonȱIPȬ

supportedȱarchitectureȱratherȱthanȱtraditionalȱcircuitȬswitchedȱtimeȱdivisionȱ

multiplexingȱ(TDM)ȱarchitecture,ȱintroduceȱpromisingȱnewȱcapabilities,ȱsuchȱasȱmoreȱ

flexibleȱcallȱroutingȱandȱtheȱabilityȱtoȱprovideȱPSAPsȱwithȱaȱgreaterȱrangeȱofȱ

informationȱ(suchȱasȱvideo).ȱAtȱtheȱsameȱtime,ȱhowever,ȱtheyȱcanȱalsoȱintroduceȱnewȱ

vulnerabilitiesȱandȱchallenges.”53ȱȱ

ȱ TheȱFCCȱcontrastedȱtraditional,ȱlocalȬbasedȱ9Ȭ1Ȭ1ȱsystems,ȱandȱIPȬbasedȱ9Ȭ1Ȭ1ȱ

networkȱwhichȱmayȱbeȱdeployedȱoutȬofȬstateȱandȱcrossȱmanyȱstateȱandȱjurisdictionalȱ

boundaries.ȱȱ“Forȱexample,ȱcallȱcontrolȱinȱlegacyȱ911ȱnetworksȱwasȱprimarilyȱperformedȱ

inȱaȱcentralȱofficeȱswitchȱthatȱwasȱcloseȱtoȱtheȱcustomersȱitȱserved,ȱwhereasȱIPȬ

supportedȱnetworksȱincreasingȱrelyȱonȱgeographicallyȬremoteȱserversȱandȱsoftwareȬ

basedȱcomponentsȱtoȱsupportȱkeyȱ911ȱfunctions,ȱsuchȱasȱ911ȱcallȱrouting,ȱacrossȱ

multipleȱstatesȱandȱjurisdictions.”54ȱThisȱshiftȱtoȱcentralizedȱIPȱnetworksȱhasȱintroducedȱ

newȱvulnerabilities.ȱȱTheȱFCCȱconcluded,ȱ“aȱ911ȱoutageȱinȱanȱIPȬsupportedȱnetworkȱhasȱ

theȱpotentialȱtoȱaffectȱaȱmuchȱgreaterȱnumberȱofȱPSAPsȱandȱpeople,ȱacrossȱmultipleȱ

states,ȱasȱdemonstratedȱbyȱtheȱmultistateȱeffectsȱofȱtheȱAprilȱoutage.”55ȱ

ȱ TheȱFCCȱalsoȱemphasizedȱthatȱtheȱAprilȱ2014ȱ9Ȭ1Ȭ1ȱoutageȱ“highlightsȱtheȱ

ongoingȱtrendȱamongȱcommunicationsȱprovidersȱandȱPSAPsȱtoȱ“contractȱout”ȱ911ȱ

53ȱId.ȱ54ȱFCC,ȱAprilȱ2014ȱMultistateȱOutageȱReport,ȱp.ȱ2.ȱ55ȱId.,ȱpp.ȱ1Ȭ2.ȱȱ


45

serviceȱfunctionsȱtoȱthirdȬpartyȱvendors.”56ȱTheȱFCCȱnotedȱthatȱcontractingȱandȱ

consolidationȱ“hasȱconcentratedȱcriticalȱfunctionsȱinȱfewerȱlocationsȱthatȱareȱmoreȱ

distantȱfromȱtheȱPSAPȱandȱtheȱendȱuser,ȱandȱcreatedȱaȱcorrespondingȱneedȱtoȱensureȱ

suchȱcontractualȱarrangementsȱdoȱnotȱcompromiseȱsituationalȱawarenessȱandȱ

accountabilityȱforȱtheȱendȬtoȬendȱ911ȱcallȬtoȬcompletionȱprocess.”57ȱTheȱFCCȱ

underscored,ȱ“Redundancyȱandȱresponsibilityȱareȱbothȱendangered”ȱbyȱtheseȱtrends.58ȱȱ

TheȱFCCȱandȱemphasizedȱtheȱneedȱforȱmonitoringȱtoȱmaintainȱanȱ“endȬtoȬend”ȱ9Ȭ1Ȭ1ȱ

network,ȱandȱtheȱcriticalȱroleȱofȱtheȱstatesȱinȱthisȱimportantȱwork.59ȱȱ

ȱ TheȱFCCȱrecommendedȱthatȱtheȱ“[FederalȱCommunications]ȱCommission,ȱstateȱ

governmentsȱandȱ911ȱindustryȱparticipantsȱtakeȱtheȱfollowingȱstepsȱtoȱpreserveȱtheȱ

reliabilityȱandȱintegrityȱofȱtheȱ911ȱsystemȱthroughoutȱthisȱtransitionȱandȱbeyond.”ȱȱ

Specifically:ȱ

• DevelopȱandȱImplementȱNG9Ȭ1Ȭ1ȱTransitionȱBestȱPractices:ȱTheȱFCCȱshouldȱchargeȱTheȱCommunicationsȱSecurity,ȱReliabilityȱandȱInteroperabilityȱCouncilȱwithȱdevelopingȱandȱrefiningȱaȱcomprehensiveȱsetȱofȱbestȱpracticesȱinȱthisȱarea.ȱ

• FCCȱProceedingsȱonȱ9Ȭ1Ȭ1ȱReliability:ȱȱTheȱFCCȱshouldȱconductȱfurtherȱproceedingsȱasȱnecessaryȱtoȱensureȱthatȱreliabilityȱofȱ9Ȭ1Ȭ1ȱserviceȱinȱtheȱUnitedȱStatesȱcontinuesȱtoȱpromoteȱtheȱsafetyȱofȱlifeȱandȱpropertyȱbyȱmaintainingȱpaceȱwithȱevolvingȱtechnologiesȱandȱchallenges,ȱandȱthatȱbothȱincumbentȱ9Ȭ1Ȭ1ȱserviceȱprovidersȱandȱnewȱentrantsȱremainȱfullyȱaccountableȱtoȱtheȱpublicȱtheyȱserve.ȱ

• IntergovernmentalȱandȱStakeholderȱInformationȱSharing:ȱȱTheȱtransitionȱtoȱNG9Ȭ1Ȭ1ȱcreatesȱaȱneedȱforȱcloserȱcoordinationȱofȱevolvingȱpracticesȱandȱexpectationsȱregardingȱ9Ȭ1Ȭ1ȱamongȱallȱgovernmentalȱandȱcommercialȱentities,ȱasȱwellȱasȱaȱbroadȬbasedȱunderstandingȱ

56ȱId.,ȱpp.ȱ2.ȱȱ57ȱId.ȱ58ȱId.ȱ59ȱId.,ȱpp.ȱ24Ȭ25.ȱ


46

amongȱallȱstakeholdersȱregardingȱtheȱstatusȱofȱdeploymentȱofȱNG9Ȭ1Ȭ1ȱfromȱallȱstakeholdersȱinvolved.ȱ

• SituationalȱAwareness:ȱȱPartiesȱinvolvedȱinȱ9Ȭ1Ȭ1ȱendȬtoȬendȱcallȱcompletion,ȱasȱwellȱasȱsafetyȱauthorities,ȱneedȱtoȱtakeȱstepsȱtoȱimproveȱsituationalȱawarenessȱduringȱanȱoutage.ȱ

• ExerciseȱofȱEnforcementȱPowers:ȱȱTheȱFCCȱshouldȱuseȱenforcementȱactionȱasȱnecessaryȱtoȱsafeguardȱreliableȱendȬtoȬendȱ9Ȭ1Ȭ1ȱservice.ȱ9Ȭ1Ȭ1ȱserviceȱprovidersȱmustȱremainȱvigilantȱandȱensureȱcomplianceȱwithȱtheȱFCC’sȱ9Ȭ1Ȭ1ȱrequirements,ȱincludingȱoutageȱreportingȱrequirements,ȱparticularlyȱasȱtheyȱtransitionȱtoȱNG9Ȭ1Ȭ1ȱnetworks.ȱ

• ContractualȱRelationshipȱMonitoring:ȱȱPrimaryȱ9Ȭ1Ȭ1ȱserviceȱprovidersȱshouldȱmonitorȱtheirȱcontractualȱrelationshipsȱtoȱestablishȱclearȱoperationalȱrolesȱandȱresponsibilitiesȱforȱsituationalȱawarenessȱandȱinformationȱsharing,ȱandȱexerciseȱoperationalȱoversightȱwithȱrespectȱtoȱtheirȱsubcontractorsȱandȱimplementȱtheȱappropriateȱmechanismsȱtoȱretainȱmeaningfulȱcontrols.60ȱ

4.2.4. FCC and Washington State Settlements ȱ TheȱFCCȱalsoȱinvestigatedȱonȱanȱadȬhocȱbasis,ȱcarriersȱandȱprovidersȱofȱtheȱ

telecommunicationsȱservicesȱrelatedȱtoȱAprilȱ2014ȱ9Ȭ1Ȭ1ȱoutagesȱandȱcallȱcompletionȱ

problems.ȱ

4.2.4.1. April 2014 9-1-1 Outage Consent Decrees and Settlements ȱ TheȱFCCȱhasȱinvestigatedȱseveralȱ9Ȭ1Ȭ1ȱserviceȱprovidersȱinvolvedȱinȱtheȱȱ

Aprilȱ9,ȱ2014ȱMultistateȱ9Ȭ1Ȭ1ȱoutage,ȱandȱenteredȱintoȱsettlementȱagreementsȱwithȱ

severalȱproviders.ȱȱTheȱconsentȱdecreesȱincludeȱtheȱJulyȱ2015,ȱTȬMobileȱsettlementȱthatȱ

representsȱtheȱlargestȱfineȱofȱ$17.5ȱmillionȱthatȱtheȱFCCȱhasȱassessedȱagainstȱaȱcarrierȱinȱ

connectionȱwithȱaȱ9Ȭ1Ȭ1ȱoutage,ȱandȱtheȱfourthȱmajorȱenforcementȱactionȱinvolvingȱ9Ȭ1Ȭ1ȱ

outagesȱthatȱtheȱFCCȱhasȱtakenȱinȱ2015.ȱȱInȱAprilȱ2015,ȱtheȱFCCȱenteredȱaȱsettlementȱ

withȱCenturyLinkȱandȱaȱsettlementȱwithȱIntradoȱCommunicationsȱinȱconnectionȱwithȱ

theȱAprilȱ2014ȱmultiȬstateȱ9Ȭ1Ȭ1ȱoutageȱthatȱlastedȱforȱoverȱsixȱhours.ȱȱInȱMarchȱ2015,ȱtheȱ

60ȱId.,ȱpp.ȱ25Ȭ26.ȱ


47

FCCȱsettledȱwithȱVerizonȱBusinessȱinȱconnectionȱwithȱthisȱoutageȱinȱCalifornia.ȱȱTheȱ

StateȱofȱWashingtonȱreachedȱaȱseparateȱsettlementȱwithȱCenturyȱLinkȱinȱFebruaryȱ2016.ȱȱ

ȱ Inȱtheȱfollowingȱsection,ȱweȱsummarizeȱtheȱFCC’sȱsettlementȱagreementȱwithȱ

VerizonȱBusiness,ȱtheȱ9Ȭ1Ȭ1ȱserviceȱproviderȱinȱpartsȱofȱCalifornia,ȱwhoȱcontractedȱwithȱ

Intradoȱforȱcertainȱ9Ȭ1Ȭ1ȱservices.ȱȱTheȱFCCȱandȱtheȱStateȱofȱWashingtonȱalsoȱ

investigatedȱCenturyLink’sȱroleȱinȱtheȱAprilȱ9,ȱ2014ȱoutagesȱofȱ9Ȭ1Ȭ1ȱservice.ȱ

4.2.4.2. CenturyLink ȱ TheȱEnforcementȱBureauȱofȱtheȱFCCȱandȱCenturyLink,ȱInc.ȱ(CenturyLink)ȱ

enteredȱintoȱaȱConsentȱDecreeȱtoȱresolveȱtheȱBureau’sȱinvestigationȱintoȱtheȱAprilȱ2014ȱ

9Ȭ1Ȭ1ȱserviceȱoutage.ȱPursuantȱtoȱtheȱFCC’sȱrules,ȱCenturyLinkȱwasȱrequiredȱtoȱtimelyȱ

notifyȱallȱaffectedȱPSAPsȱofȱtheȱAprilȱ2014ȱoutage,ȱbutȱCenturyLinkȱfailedȱtoȱdoȱso.ȱToȱ

settleȱthisȱmatter,ȱCenturyLinkȱwillȱimplementȱaȱfarȬreachingȱcomplianceȱplanȱtoȱ

developȱandȱimplementȱproactiveȱriskȱmanagementȱprinciplesȱdesignedȱtoȱreduceȱtheȱ

likelihoodȱandȱimpactȱofȱ9Ȭ1Ȭ1ȱfailures,ȱensureȱreliableȱ9Ȭ1Ȭ1ȱcallȱcompletion,ȱandȱplanȱ

forȱandȱprovideȱexpeditiousȱnotificationȱtoȱPSAPsȱaffectedȱbyȱ9Ȭ1Ȭ1ȱoutages.ȱȱTheȱ

complianceȱplanȱrecognizesȱtheȱchallengesȱtoȱ9Ȭ1Ȭ1ȱserviceȱasȱnetworksȱtransitionȱfromȱ

traditionalȱarchitecturesȱtoȱnextȱgenerationȱIPȬsupportedȱnetworksȱandȱisȱaȱsignificantȱ

stepȱtowardsȱensuringȱtheȱreliabilityȱofȱtheȱnation’sȱ9Ȭ1Ȭ1ȱsystems.ȱInȱaddition,ȱ

CenturyLinkȱwillȱpayȱaȱfineȱofȱ$16ȱmillion.61ȱ

ȱ InȱFebruaryȱ2016,ȱinȱseparateȱsettlementȱtheȱstateȱofȱWashingtonȱandȱtheȱ

CenturyLinkȱreachedȱaȱsettlementȱagreementȱtoȱresolveȱissuesȱrelatedȱtoȱtheȱAprilȱ2014ȱ

9Ȭ1Ȭ1ȱserviceȱoutage.ȱCenturyLinkȱwasȱfinedȱ$2,854,750ȱandȱagreedȱtoȱdevelopȱandȱ

implementȱsystemȱchangesȱtoȱminimizeȱtheȱpotentialȱforȱfurfureȱoutages.62ȱ

61ȱhttps://apps.fcc.gov/edocs_public/attachmatch/DAȬ15Ȭ406A1.pdf.ȱ62ȱWashingtonȱUtilitiesȱandȱTransportationȱCommission,ȱComplainantȱv.ȱQWESTȱCorporationȱdbaȱCenturyLink,ȱQC,ȱRespondent,ȱȱDocketȱUTȬ140597,ȱOrderȱ03.ȱ


48

4.2.4.3. Intrado Communications ȱ TheȱEnforcementȱBureauȱofȱtheȱFCCȱandȱIntradoȱCommunicationsȱInc.ȱ(Intradoȱ

Communications)ȱenteredȱintoȱaȱConsentȱDecreeȱtoȱresolveȱtheȱBureau’sȱinvestigationȱ

intoȱtheȱAprilȱ2014ȱoutage.ȱPursuantȱtoȱtheȱFCC’sȱrules,ȱIntradoȱCommunicationsȱwasȱ

requiredȱtoȱtimelyȱnotifyȱallȱaffectedȱPublicȱSafetyȱAnsweringȱPointsȱ(PSAPs)ȱofȱtheȱ

Aprilȱ2014ȱoutage,ȱbutȱIntradoȱCommunicationsȱfailedȱtoȱdoȱso.ȱToȱsettleȱthisȱmatter,ȱ

IntradoȱCommunicationsȱwillȱimplementȱaȱfarȬreachingȱcomplianceȱplanȱtoȱdevelopȱandȱ

implementȱproactiveȱriskȱmanagementȱprinciplesȱdesignedȱtoȱreduceȱtheȱlikelihoodȱandȱ

impactȱofȱ9Ȭ1Ȭ1ȱfailures,ȱensureȱreliableȱ9Ȭ1Ȭ1ȱcallȱcompletion,ȱandȱplanȱforȱandȱprovideȱ

expeditiousȱnotificationȱtoȱPSAPsȱaffectedȱbyȱ9Ȭ1Ȭ1ȱoutages.ȱTheȱcomplianceȱplanȱ

recognizesȱtheȱchallengesȱtoȱ9Ȭ1Ȭ1ȱserviceȱasȱnetworksȱtransitionȱfromȱtraditionalȱ

architecturesȱtoȱnextȱgenerationȱIPȬsupportedȱnetworksȱandȱisȱaȱsignificantȱstepȱtowardsȱ

ensuringȱtheȱreliabilityȱofȱtheȱnation’sȱ9Ȭ1Ȭ1ȱsystems.ȱInȱaddition,ȱIntradoȱ

Communicationsȱwillȱpayȱaȱfineȱofȱ$1.4ȱmillion.63ȱ

4.2.4.4. Verizon Business ȱ TheȱFCCȱEnforcementȱBureauȱandȱMCIȱCommunicationsȱServices,ȱInc.ȱd/b/aȱ

VerizonȱBusinessȱServicesȱ(Verizon)ȱenteredȱintoȱaȱConsentȱDecreeȱtoȱresolveȱtheȱ

Bureau’sȱinvestigationȱintoȱtheȱAprilȱ2014ȱoutage.ȱDuringȱthisȱoutage,ȱconsumersȱinȱ

nineȱCaliforniaȱcounties64ȱwereȱunableȱtoȱmakeȱcallsȱtoȱ9Ȭ1Ȭ1.ȱPursuantȱtoȱtheȱ

Commission’sȱrules,ȱVerizonȱBusinessȱwasȱrequiredȱtoȱtimelyȱnotifyȱallȱaffectedȱPSAPsȱ

ofȱtheȱoutage,ȱbutȱVerizonȱfailedȱtoȱdoȱso.ȱȱ

ȱ ToȱsettleȱthisȱmatterȱwithȱtheȱFCC,ȱVerizonȱBusinessȱwillȱimplementȱaȱfarȬ

reachingȱcomplianceȱplanȱtoȱdevelopȱandȱimplementȱproactiveȱriskȱmanagementȱ

principlesȱdesignedȱtoȱreduceȱtheȱlikelihoodȱandȱimpactȱofȱ9Ȭ1Ȭ1ȱfailures,ȱensureȱreliableȱ 63ȱhttps://apps.fcc.gov/edocs_public/attachmatch/DAȬ15Ȭ421A1.pdf.ȱ64ȱTheȱFCCȱreportȱidentifiesȱnineȱcounties.ȱ


49

9Ȭ1Ȭ1ȱcallȱcompletion,ȱandȱplanȱforȱandȱprovideȱexpeditiousȱnotificationȱtoȱPSAPsȱ

affectedȱbyȱ9Ȭ1Ȭ1ȱoutages.ȱTheȱcomplianceȱplanȱrecognizesȱtheȱchallengesȱtoȱ9Ȭ1Ȭ1ȱserviceȱ

asȱnetworksȱtransitionȱfromȱtraditionalȱarchitecturesȱtoȱnextȱgenerationȱIPȬsupportedȱ

networksȱandȱisȱaȱsignificantȱstepȱtowardsȱensuringȱtheȱreliabilityȱofȱtheȱnation’sȱ9Ȭ1Ȭ1ȱ

systems.ȱInȱaddition,ȱVerizonȱBusinessȱwillȱpayȱtoȱtheȱfederalȱtreasuryȱaȱfineȱofȱ$3.4ȱ

million.65ȱȱVerizonȱBusinessȱisȱtheȱ9Ȭ1Ȭ1ȱserviceȱproviderȱinȱtheȱNorthernȱCaliforniaȱ

countiesȱwhereȱtheȱAprilȱ2014ȱ9Ȭ1Ȭ1ȱoutagesȱoccurred.ȱȱȱ

ȱ Asȱdiscussedȱbelow,ȱweȱdirectȱtheȱCommission’sȱCPEDȱtoȱinitiateȱanȱ

investigationȱintoȱwhetherȱstepsȱareȱmeritedȱtoȱbringȱanȱadjudicatoryȱproceedingȱ

againstȱVerizonȱBusinessȱandȱIntrado,ȱInc.ȱforȱtheȱactionsȱassociatedȱwithȱtheȱAprilȱ9,ȱ

2014ȱfailuresȱofȱ9Ȭ1Ȭ1ȱserviceȱinȱCalifornia,ȱtoȱdetermineȱwhetherȱCaliforniaȱlawȱorȱthisȱ

Commission’sȱrules,ȱorders,ȱorȱDecisionsȱwereȱviolated,ȱandȱifȱapproproiate,ȱtoȱ

recommendȱsanctionsȱbeȱimposed,ȱorȱcorrectiveȱactionȱrequired.ȱ

4.2.5. Conclusion and Recommendations WeȱdetermineȱthatȱthisȱCommissionȱshouldȱinitiateȱanȱinvestigationȱofȱVerizonȱ

Businessȱasȱtheȱ9Ȭ1Ȭ1ȱproviderȱinvolvedȱinȱtheȱaffectedȱoutageȱareas,ȱandȱalsoȱtoȱ

investigateȱtheȱactionsȱofȱIntradoȱthatȱledȱtoȱ9Ȭ1Ȭ1ȱCallȱCompletionȱfailuresȱinȱCaliforniaȱ

onȱAprilȱ9,ȱ2014.ȱWeȱnoteȱthatȱtheȱWashingtonȱUtilitiesȱandȱTransportationȱCommissionȱ

alsoȱinvestigatedȱtheȱissuesȱinvolvingȱtheȱoutageȱandȱimposedȱsanctionsȱforȱviolationsȱ

ofȱstateȱlaw.ȱ

WeȱdirectȱCPEDȱtoȱcommenceȱanȱinvestigationȱofȱVerizonȱBusinessȱandȱIntradoȱ

forȱpossibleȱviolationsȱofȱCommissionȱrules,ȱorder,ȱandȱDecisions,ȱandȱofȱCaliforniaȱlaw,ȱ

forȱtheirȱhandlingȱofȱandȱactionsȱregardingȱ9Ȭ1Ȭ1ȱcallsȱduringȱthisȱoutageȱinȱaffectedȱ

Californiaȱcounties.ȱȱCPEDȱshallȱrecommendȱwhetherȱtoȱinitiateȱanȱadjudicatoryȱOIIȱforȱ

65ȱhttps://apps.fcc.gov/edocs_public/attachmatch/DAȬ15Ȭ308A1.pdf.ȱ


50

violationsȱofȱCaliforniaȱlawȱassociatedȱwithȱthatȱoutage,ȱandȱanalyzeȱoptionsȱsuchȱasȱanȱ

agreementȱtoȱaȱcomplianceȱorȱmonitoringȱplan,ȱcontinuedȱCommissionȱmonitoring,ȱandȱ

workȱwithȱtheȱFCCȱonȱthisȱandȱsimilarȱincidents,ȱasȱwellȱasȱanyȱappropriateȱpenaltiesȱorȱ

remediesȱunderȱstateȱlaw.ȱCPEDȇsȱinvestigationȱmayȱuseȱallȱofȱtheȱmaterialsȱgatheredȱ

throughȱthisȱOIIȱincluding,ȱbutȱnotȱlimitedȱto,ȱallȱdataȱrequestsȱandȱallȱmaterialsȱ

gatheredȱinȱthisȱrecordȱasȱpertinentȱtoȱtheirȱanalysis.ȱ

4.3. Short-code call completion issues 4.3.1. Background for Short-Code Call Completion Issues

including 2-1-1 Access InȱSeptemberȱ2016ȱGovernorȱBrownȱsignedȱSBȱ1212ȱsponsoredȱbyȱSenatorȱHuesoȱ

toȱsupportȱexpansionȱofȱ2Ȭ1Ȭ1ȱstatewide.ȱȱAsȱSBȱ1212ȱwhichȱamendsȱCAȱPUȱCodeȱ280ȱ

explains,ȱ“2Ȭ1Ȭ1ȱserviceȱisȱaȱfree,ȱaccessible,ȱthreeȬdigitȱtelephoneȱnumberȱthatȱgivesȱ

everyoneȱinȱcoveredȱareasȱaccessȱtoȱneededȱcommunityȱservices.ȱFirstȱestablishedȱinȱ

2005,ȱ2Ȭ1Ȭ1ȱserviceȱnowȱcoversȱ38ȱCaliforniaȱcounties.ȱItȱisȱavailableȱ24ȱhoursȱaȱday,ȱ

sevenȱdaysȱaȱweek,ȱallowingȱresidentsȱtoȱaccessȱinformationȱaboutȱhealthȱandȱhumanȱ

services,ȱemergencyȱcare,ȱcrisisȱintervention,ȱandȱdisasterȱpreparedness,ȱresponse,ȱandȱ

recoveryȱwhenȱtheyȱneedȱitȱmost.”ȱ

SBȱ1212ȱexplainsȱtheȱcriticalȱroleȱofȱ2Ȭ1Ȭ1ȱduringȱandȱafterȱdisastersȱandȱ

widespreadȱemergencies,ȱandȱtheȱreliefȱ2Ȭ1Ȭ1ȱcanȱprovideȱbyȱtakingȱcallsȱ9Ȭ1Ȭ1ȱoperatorsȱ

wouldȱotherwiseȱreceive.ȱȱ“2Ȭ1Ȭ1ȱserviceȱisȱaȱnaturalȱhubȱforȱdisasterȬrelatedȱinformationȱ

andȱplaysȱaȱcriticalȱroleȱduringȱemergenciesȱandȱdisasters,ȱsuchȱasȱfires,ȱfloods,ȱ

earthquakes,ȱterroristȱattacks,ȱandȱepidemics,ȱreducingȱnonemergencyȱcallȱvolumeȱonȱȱ

9Ȭ1Ȭ1ȱlines,ȱwhichȱfreesȱupȱemergencyȱrespondersȱtoȱdealȱwithȱtrueȱlifeȬorȬdeathȱ

situations,ȱthusȱleveragingȱlocalȱpublicȱsafetyȱresources.”ȱȱSBȱ1212ȱSectionȱ(1)(a)(3).ȱȱ

“2Ȭ1Ȭ1ȱserviceȱalsoȱincreasesȱtheȱreachȱofȱgovernment,ȱnonprofit,ȱandȱcommunityȱ

programsȱbyȱofferingȱcallersȱinformationȱonȱandȱaccessȱtoȱaȱvarietyȱofȱhealthȱandȱ

humanȱservices,ȱrentȱandȱutilityȱassistance,ȱphysicalȱandȱmentalȱhealthȱresources,ȱ


51

employmentȱopportunities,ȱsupportȱforȱolderȱAmericansȱandȱpersonsȱwithȱdisabilities,ȱ

andȱsupportȱforȱfamiliesȱwithȱspecialȱneeds.”ȱSBȱ1212ȱSectionȱ(1)(a)(4).ȱ

PursuantȱtoȱSBȱ1212ȱtheȱCommissionȱwillȱconductȱaȱproceedingȱtoȱdetermineȱ

whetherȱitȱisȱappropriateȱtoȱuseȱupȱtoȱ$1.5ȱmillionȱfromȱtheȱCaliforniaȱTeleconnectȱFundȱ

toȱexpandȱaccessȱtoȱ2Ȭ1Ȭ1ȱtoȱCaliforniaȱcountiesȱthatȱcurrentȱlackȱ2Ȭ1Ȭ1ȱservice.ȱȱUnderȱSBȱ

1212,ȱCAȱPUȱCodeȱ280ȱ(g)ȱ(1)ȱrequires:ȱ

ConsistentȱwithȱDecisionȱ11Ȭ09Ȭ016ȱ(Septemberȱ8,ȱ2011)ȱDecisionȱGrantingȱAuthorityȱtoȱProvideȱEmergencyȱAccessȱtoȱ211ȱServicesȱinȱCountiesȱandȱLocalitiesȱWithoutȱExistingȱ211ȱCentersȱandȱtoȱAppointȱaȱ211ȱLeadȱEntity,ȱifȱitȱdeterminesȱthatȱdoingȱsoȱisȱanȱappropriateȱuseȱofȱfundsȱcollectedȱfromȱratepayers,ȱtheȱcommissionȱmayȱexpendȱupȱtoȱoneȱmillionȱfiveȱhundredȱthousandȱdollarsȱ($1,500,000)ȱfromȱtheȱCaliforniaȱTeleconnectȱFundȱAdministrativeȱCommitteeȱFundȱforȱoneȬtimeȱcostsȱtoȱhelpȱcloseȱ2Ȭ1Ȭ1ȱserviceȱgapsȱinȱcountiesȱlackingȱaccessȱtoȱdisasterȱpreparedness,ȱresponse,ȱandȱrecoveryȱinformationȱandȱreferralȱservices,ȱwhereȱtechnicallyȱfeasible,ȱthroughȱavailableȱ2Ȭ1Ȭ1ȱservice.ȱAsȱtheȱleadȱagencyȱappointedȱbyȱtheȱcommissionȱinȱDecisionȱ11Ȭ09Ȭ016,ȱ2Ȭ1Ȭ1ȱCaliforniaȱmayȱapplyȱtoȱtheȱcommissionȱforȱuseȱofȱtheȱfundsȱinȱtheȱcountiesȱthatȱlackȱ2Ȭ1Ȭ1ȱservice.ȱIfȱtheȱcommissionȱdeterminesȱthatȱdoingȱsoȱisȱanȱappropriateȱuseȱofȱfundsȱcollectedȱfromȱratepayers,ȱtheseȱcostsȱmayȱincludeȱlocalȱimplementationȱofȱaȱcoordinatedȱdatabaseȱthatȱisȱownedȱbyȱaȱcityȱorȱcountyȱtoȱprovideȱreferralsȱtoȱhelpȱwithȱnonemergencyȱaspectsȱofȱdisasterȱplanning,ȱrecovery,ȱandȱresponse.ȱȱ

InȱlightȱofȱSBȱ12ȱ12ȱandȱthisȱCommission’sȱDecisionȱ11Ȭ09Ȭ016ȱgrantingȱaccessȱtoȱ2Ȭ1Ȭ1ȱ

forȱCaliforniaȱcountiesȱandȱlocalities,ȱitȱisȱimportantȱthatȱweȱtakeȱactionȱtoȱensureȱthatȱ

Californiansȱwhoȱwishȱtoȱreachȱ2Ȭ1Ȭ1ȱareȱableȱtoȱdoȱso,ȱwhetherȱtheyȱareȱcallingȱfromȱanȱ

MLTSȱorȱPBXȱphoneȱ(whichȱoftenȱrequiresȱdialingȱ9ȱtoȱgetȱdialȬtone),ȱorȱphoneȱwithȱ

directȱaccessȱtoȱdialȬtoneȱtoȱreachȱtheȱ2Ȭ1Ȭ1ȱshortȱcodeȱorȱotherȱshortȱcodesȱinȱadditionȱtoȱ

9Ȭ1Ȭ1.ȱ


52

4.3.2. Comments about 2-1-1 and Short Code Call Completion Issues Raised in this OII

AtȱtheȱSeptemberȱ20,ȱ2016ȱCallȱCompletionȱPPHȱinȱEureka,ȱJeanetteȱHurst,ȱ

Directorȱofȱ2Ȭ1Ȭ1ȱHumboldtȱCounty,ȱreportedȱthatȱtheȱCountyȱwasȱinformedȱthatȱaȱcallȱ

toȱ2Ȭ1Ȭ1ȱfromȱtheȱHoopaȱTribe’sȱTemporaryȱAssistanceȱfromȱNeedyȱFamiliesȱ(TANF)ȱ

OfficeȱinȱHumboldtȱCountyȱandȱtheȱFortunaȱRiverȱLodgeȱwereȱunableȱtoȱreachȱtheȱ2Ȭ1Ȭ1ȱ

service.ȱȱInsteadȱtheyȱreceivedȱaȱ“youȱcan’tȱbeȱreachedȱsignal,”ȱusuallyȱanȱinterceptȱ

messageȱindicatingȱthatȱthisȱnumberȱhasȱbeenȱdisconnectedȱorȱisȱnotȱinȱservie.66ȱȱMs.ȱ

Hurstȱofferedȱanotherȱexampleȱofȱaȱlocalȱcallȱtoȱ2Ȭ1Ȭ1ȱthatȱresultedȱinȱaȱfalseȱ

disconnectedȱmessage:ȱ”[HumboldtȱCounty]ȱHRȱ(HumanȱResources)ȱcan’tȱcallȱus…ȱ

Theyȱgetȱtheȱ“I’mȱsorry.ȱTheȱnumberȱyouȱhaveȱdialedȱisȱdisconnected”ȱmessage,ȱthoughȱ

theyȱareȱinȱtheȱsameȱofficeȱbuildingȱasȱ2Ȭ1Ȭ1ȱHumboldt.67ȱȱAsȱdescribedȱbelow,ȱweȱ

reasonablyȱsurmiseȱthatȱtheseȱcallȱfailuresȱmayȱbeȱdueȱtoȱlackȱofȱsoftwareȱprogrammingȱ

forȱMLTSȱorȱPBSȱsystemsȱtoȱrecognizeȱtheȱ2Ȭ1Ȭ1ȱshortȱcode.ȱȱȱ

Otherȱspeakersȱreportedȱreceivingȱfalseȱdisconnectedȱnumberȱmessagesȱwhenȱ

callingȱfromȱdirectȱdialȱphones,ȱnotȱMLTSȱsystems,ȱandȱtryingȱtoȱreachȱresidentsȱorȱ

businesses.ȱȱAtȱtheȱEurekaȱPPHȱtwoȱcommunityȱmembersȱfromȱKneelandȱinȱtheȱ

mountainsȱnearȱEurekaȱandȱArcata,ȱEarlȱBootierȱandȱCherylȱFurman,ȱreportedȱthatȱtheyȱ

receivedȱdisconnectedȱnumberȱmessagesȱwhenȱtryingȱtoȱreachȱ“businessesȱthatȱIȱ

continueȱtoȱdoȱbusinessȱwith.”68ȱȱNeitherȱofȱtheseȱspeakersȱsaidȱtheyȱwereȱtryingȱtoȱ

reachȱbusinessesȱfromȱMLTSȱbusinessȱphone,ȱraisingȱtheȱquestionȱofȱwhetherȱotherȱ

callersȱareȱinappropriatelyȱreceivingȱdisconnectedȱmessages.ȱȱȱȱ

66ȱEurekaȱPPH,ȱTr.,ȱp.ȱ699.ȱ67ȱEurekaȱPPH,ȱTr.,ȱp.ȱ700.ȱ68ȱEurekaȱPPH,ȱTr.,ȱpp.ȱ655Ȭ657ȱ(remarksȱofȱEarlȱBootier);ȱEurekaȱPPH,ȱTr.,ȱpp.ȱ659ȱ(remarksȱofȱCherylȱFurman).ȱ


53

TheȱAssignedȱCommissionerȱissuedȱaȱRulingȱdirectingȱrespondentsȱAT&T,ȱ

California,ȱComcast,ȱFrontier,ȱandȱSuddenȱLink,ȱallȱofȱwhichȱserveȱinȱHumboldtȱ

County,ȱtoȱholdȱaȱmeetȱandȱconferȱtoȱdetermineȱwhetherȱandȱwhyȱsomeȱ2Ȭ1Ȭ1ȱcallsȱwereȱ

notȱableȱtoȱbeȱcompleted,ȱandȱtoȱidentifyȱwhetherȱotherȱnumbersȱwereȱreceivingȱfalseȱ

disconnectedȱmessages.ȱȱThoseȱrespondentsȱwereȱdirectedȱtoȱreportȱatȱtheȱSeptemberȱ20,ȱ

2016ȱPPHȱinȱSantaȱCruzȱonȱtheȱresultsȱofȱtheirȱmeetȱandȱconferȱandȱanalysis.ȱ

CommunicationsȱDivisionȱissuedȱaȱdataȱrequestȱtoȱcarriersȱtoȱaskȱthemȱtoȱinvestigateȱ

routingȱandȱotherȱtechnicalȱissuesȱthatȱmayȱbeȱassociatedȱwithȱmisidentifyingȱtheȱ

locationȱofȱaȱcall.ȱȱȱ

AtȱtheȱSantaȱCruzȱPPHȱAT&T,ȱCalifornia’sȱrepresentativeȱallegedȱthatȱtheȱ2Ȭ1Ȭ1ȱ

callȱfromȱtheȱHoopaȱTribe’sȱTANFȱofficeȱdidȱnotȱgoȱthroughȱbecauseȱsheȱassertedȱthatȱ

thoseȱcallsȱcameȱfromȱTrinityȱCountyȱwhichȱdoesȱnotȱcurrentlyȱhaveȱ2Ȭ1Ȭ1.”ȱȱTressaȱ

Bader,ȱViceȬPresidentȱforȱFrontier,ȱinȱNorthernȱCaliforniaȱclarifiedȱthatȱtheȱHoopaȱTribeȱ

andȱtheirȱTANFȱOfficeȱareȱFrontierȱcustomersȱlocatedȱinȱHumboldtȱCounty.ȱȱȱ

InȱresponseȱtoȱtheȱACRȱaskingȱforȱcommentsȱonȱtheȱWorkshopȱReportsȱandȱtheȱ

themesȱraisedȱinȱtheȱWorkshopsȱandȱPPHs,ȱFrontierȱinformedȱtheȱCommissionȱthatȱitȱ

metȱwithȱtheȱHoopaȱTribe’sȱTANFȱOfficeȱandȱdeterminedȱthatȱtheirȱMLTSȱserviceȱwasȱ

notȱprogrammedȱtoȱrecognizeȱtheȱ2Ȭ1Ȭ1ȱshortȱcode,ȱsoȱcallsȱtoȱ2Ȭ1Ȭ1ȱdidȱnotȱgoȱthrough.ȱȱ

FrontierȱworkedȱwithȱtheȱHoopaȱTribeȱtoȱreprogramȱtheȱphoneȱsoȱ2Ȭ1Ȭ1ȱcallsȱareȱnowȱ

enabled.ȱ

Similarly,ȱonȱaȱvisitȱtoȱtheȱYurokȱreservationȱofficeȱnearȱWeitchpec,ȱCalifornia,ȱ

followingȱtheȱCommission’sȱLowȱIncomeȱOversightȱBoardȱmeetingȱinȱSeptemberȱ2015,ȱ

attemptedȱcallȱtoȱ2Ȭ1Ȭ1ȱfromȱtheȱtribe’sȱMLTSȱyieldedȱnoȱtone,ȱnoȱ“fastȱbusy,”ȱandȱnoȱ

messageȱwhenȱdialingȱ2Ȭ1Ȭ1,ȱorȱ9Ȭ2Ȭ1Ȭ1,ȱorȱ9Ȭ1Ȭ2Ȭ1Ȭ1.ȱȱTheȱYurokȱTribe’sȱInformationȱ

ServicesȱDirectorȱPaulȱRomeroȱstatedȱthatȱheȱbelievedȱthisȱresultedȱfromȱtheȱMLTSȱlinesȱ

notȱbeingȱprogrammedȱtoȱrecognizeȱ2Ȭ1Ȭ1.ȱȱTheȱYurokȱTribeȱcanȱremedyȱthisȱissueȱbyȱ

reprogrammingȱtheirȱMLTSȱsystemȱasȱtheyȱcontrolȱtheȱsystem’sȱprogramming.ȱȱForȱ


54

otherȱMLTSȱusers,ȱtheȱcarrierȱprogramsȱtheȱsystemȱforȱusersȱandȱcanȱenable,ȱorȱfailȱtoȱ

enableȱshortȱcodeȱaccessȱsuchȱasȱtoȱ2Ȭ1Ȭ1,ȱ8Ȭ1Ȭ1,ȱ7Ȭ1Ȭ1ȱforȱTDDȱandȱrelayȱserviceȱforȱtheȱ

deaf,ȱandȱotherȱshortȱcodesȱinȱadditionȱtoȱ9Ȭ1Ȭ1.ȱȱ

InȱresponseȱtoȱtheȱACRȱrequiringȱaȱmeetȱandȱconferȱbetweenȱcertainȱrespondentsȱ

aboutȱtheȱ2Ȭ1Ȭ1ȱaccessȱandȱcallȱcompletionȱissue,ȱ2Ȭ1Ȭ1ȱHumboldtȱdevelopedȱaȱlistȱofȱfiveȱ

knownȱ2Ȭ1Ȭ1ȱcallȱfailures.ȱȱTwoȱofȱtheȱfailedȱcallsȱwereȱmadeȱfromȱhomesȱinȱHumboldtȱ

County,ȱtheȱothersȱfromȱMLTSȱsystems.69ȱȱThusȱwhileȱtheȱ2Ȭ1Ȭ1ȱaccessȱissueȱappearsȱtoȱ

beȱmoreȱprevalentȱwhenȱcallingȱfromȱMLTSȱorȱPBXȱsystemsȱnotȱprogrammedȱtoȱ

recognizeȱthatȱshortȱcode,ȱitȱappearsȱthatȱsomeȱresidentsȱhaveȱdifficultyȱaccessingȱ2Ȭ1Ȭ1,ȱ

evenȱwhenȱitȱisȱofferedȱinȱtheirȱCounty.ȱȱ

InȱresponseȱtoȱtheȱmeetȱandȱconferȱandȱMs.ȱHurst’sȱstatementȱthatȱcallsȱfromȱtheȱ

FortunaȱRiverȱLodgeȱtoȱ2Ȭ1Ȭ1ȱwereȱfailing,ȱAT&Tȱreportedȱthatȱtheȱlodgeȱandȱconferenceȱ

center,ȱownedȱbyȱtheȱCityȱofȱFortuna,ȱusesȱaȱPBXȱsystemȱandȱȈthatȱtheȱCityȱofȱFortunaȱ

hasȱaȱblockȱonȱtheirȱentireȱaccountȱpreventingȱcallsȱtoȱ611,ȱ411,ȱ211,ȱetc.”70ȱȱCustomerȱ

educationȱisȱappropriateȱtoȱeducateȱcustomersȱaboutȱtheseȱshortȱcodes,ȱandȱtoȱverifyȱ

thatȱcustomersȱdoȱnotȱblockȱtheȱ7Ȭ1Ȭ1ȱshortȱcodeȱforȱdeafȱandȱdisabledȱphoneȱservice.ȱȱ

WeȱareȱconcernedȱthatȱnoȱoneȱcallingȱfromȱtheȱCityȱofȱFortunaȱPBXȱsystemȱcouldȱreachȱ

8Ȭ1Ȭ1,ȱcallȱbeforeȱyouȱdig.ȱȱAccessȱtoȱsocialȱservicesȱprovidedȱbyȱ2Ȭ1Ȭ1ȱmayȱbeȱcriticalȱforȱ

theȱjobȱofȱtheȱCityȱofȱFortuna,ȱandȱforȱworkers,ȱandȱvisitorsȱtoȱitsȱfacilities.ȱ

TheȱACRȱofȱSeptemberȱ8,ȱ2016ȱaskedȱpartiesȱ“WhatȱstepsȱshouldȱtheȱCommissionȱ

takeȱtoȱensureȱthatȱbusinessȱnetworkȱoperatorsȱareȱinformedȱaboutȱtheȱstepsȱtheyȱcanȱ

takeȱtoȱenableȱcallersȱtoȱreachȱ2Ȭ1Ȭ1ȱorȱotherȱshortȱcodesȱsuchȱasȱ8Ȭ1Ȭ1ȱ(callȱbeforeȱyouȱ

dig),ȱasȱwellȱasȱ9Ȭ1Ȭ1,ȱandȱthatȱcarriersȱtakeȱstepsȱtoȱenableȱsuchȱcalls?”ȱCarrierȱ

69ȱTURNȱACRȱComments,ȱSept.ȱ2016,ȱpp.ȱ33Ȭ34.ȱ70ȱId.,ȱp.ȱ33.ȱ


55

respondentsȱcommentedȱthatȱtheȱmeetȱandȱconferȱwasȱaȱpositiveȱstep.ȱTURNȱ

recommendedȱcustomerȱeducationȱaboutȱ2Ȭ1Ȭ1ȱaccess.ȱȱ

WhileȱweȱdidȱnotȱreceiveȱanyȱdirectȱcommentsȱorȱinformationȱinȱthisȱOIIȱthatȱ

customersȱwereȱhavingȱsimilarȱissuesȱreachingȱ8Ȭ1Ȭ1,ȱ7Ȭ1Ȭ1,ȱorȱotherȱnonȬ9Ȭ1Ȭ1ȱshortȱ

codesȱfromȱMLTSȱorȱPBXȱlines,ȱweȱanticipateȱthatȱifȱtheȱMLTSȱsystemȱisȱnotȱproperlyȱ

enabled,ȱcallersȱwouldȱnotȱbeȱableȱtoȱreachȱ8Ȭ1Ȭ1ȱtoȱcallȱbeforeȱtheyȱdigȱandȱhaveȱlinesȱ

marked,ȱorȱotherȱshortȱcodes.ȱȱ8Ȭ1Ȭ1ȱisȱanȱimportantȱserviceȱforȱallȱCaliforniansȱ

includingȱbusinessesȱandȱresidentsȱwhoȱmayȱwishȱtoȱlandscapeȱorȱdig.ȱȱInȱlightȱofȱourȱ

responsibilitiesȱforȱ8Ȭ1Ȭ1ȱasȱaȱmeansȱtoȱprotectȱpublicȱsafety,ȱworkerȱsafety,ȱandȱutilityȱ

infrastructureȱforȱnaturalȱgas,ȱelectric,ȱandȱwaterȱutilities,ȱweȱextendȱtheȱeducationȱ

requirementsȱorderedȱhereinȱtoȱ8Ȭ1Ȭ1ȱandȱotherȱshortȱcodes.ȱ

Weȱnoteȱtheȱimportanceȱofȱotherȱshortȱcodes,ȱsuchȱasȱ3Ȭ1Ȭ1ȱtoȱreachȱmunicipalȱ

governmentȱnonȬemergencyȱservices.ȱȱ4Ȭ1Ȭ1ȱisȱusedȱforȱdirectoryȱassistance,ȱwhileȱ5Ȭ1Ȭ1ȱ

providesȱtrafficȱinformation.ȱȱ6Ȭ1Ȭ1ȱisȱusedȱtoȱreachȱtelephoneȱcompanyȱcustomerȱserviceȱ

orȱrepair.ȱȱ7Ȭ1Ȭ1ȱisȱusedȱforȱTDDȱandȱRelayȱServicesȱforȱtheȱDeafȱandȱHardȱofȱHearing.ȱȱ

Inȱadditionȱtoȱ9Ȭ1Ȭ1,ȱ2Ȭ1Ȭ1,ȱandȱ8Ȭ1Ȭ1ȱdiscussedȱmoreȱextensivelyȱherein,ȱandȱuponȱwhichȱ

weȱreceivedȱcommentsȱinȱthisȱOII,ȱeachȱofȱtheseȱshortȱcodesȱisȱimportantȱandȱshouldȱbeȱ

includedȱinȱMLTSȱorȱPBXȱcustomerȱeducation,ȱandȱcarrierȱcodeȱenabling.ȱ

4.3.3. Actions to Address 2-1-1 and Short Code Call Completion Issues Raised in this OII

FirstȱweȱdetermineȱthatȱaddressingȱShortȱCodeȱCallȱCompletionȱissuesȱisȱwithinȱ

thisȱproceeding’sȱscopeȱasȱaȱformȱofȱCallȱCompletionȱfailureȱwhereȱtheȱshortȱcodeȱcallȱ

cannotȱbeȱcompleted;ȱtheȱattemptedȱcallȱdoesȱnotȱreachȱitsȱintendedȱdestination,ȱandȱ

mayȱnotȱevenȱleaveȱaȱMLTSȱorȱPBXȱsystemȱifȱnotȱproperlyȱprogrammedȱbyȱtheȱcarrierȱ

orȱtheȱsystemȱoperator.ȱȱComcastȱarguedȱinȱresponseȱtoȱtheȱSeptemberȱ2016ȱACRȱthatȱȱ

2Ȭ1Ȭ1ȱisȱnotȱwithinȱtheȱscopingȱmemoȱforȱthisȱproceeding.ȱTURNȱpointsȱoutȱthatȱtheȱ

Commissionȱisȱtheȱleadȱagencyȱchargedȱwithȱgrantingȱauthorityȱtoȱoperateȱasȱaȱ211,ȱandȱ


56

arguesȱthatȱitȱshouldȱactȱtoȱrequireȱeducationȱtoȱMLTSȱcustomersȱandȱtoȱinvestigateȱ

otherȱexamplesȱofȱ2Ȭ1Ȭ1ȱcallȱfailuresȱasȱcallȱcompletionȱissues.71ȱȱȱȱ

IfȱanȱMLTSȱorȱPBXȱsystemȱisȱnotȱprogrammedȱtoȱallowȱshortȱcodesȱotherȱthanȱ9Ȭ

1Ȭ1ȱsuchȱasȱ2Ȭ1Ȭ1,ȱ8Ȭ1Ȭ1,ȱ3Ȭ1Ȭ1,ȱ7Ȭ1Ȭ1,ȱandȱtheȱlike,ȱtheȱcallȱwillȱnotȱevenȱreachȱtheȱcarrier’sȱ

switchȱorȱfacilities.ȱȱItȱcan’tȱbeȱcompletedȱbecauseȱtheȱMLTSȱsystemȱdoesn’tȱrecognizeȱ

theȱshortȱcode.ȱȱTheȱcallerȱexperiencesȱthisȱasȱaȱcallȱcompletionȱfailureȱandȱwondersȱifȱ

somethingȱisȱwrongȱwithȱ2Ȭ1Ȭ1ȱorȱtheȱserviceȱtheyȱareȱtryingȱtoȱreach.ȱȱThus,ȱweȱ

determineȱthisȱissueȱisȱwithinȱtheȱscopeȱofȱthisȱproceeding.ȱȱItȱisȱimportantȱtoȱenableȱ

theseȱcallsȱforȱwhichȱCaliforniaȱhasȱinvestedȱmillionsȱtoȱprovideȱreadyȱaccessȱtoȱtheseȱ

servicesȱthroughȱaȱshortȱcode.ȱȱȱȱ

ToȱaddressȱandȱpreventȱshortȱcodeȱCallȱCompletionȱissuesȱthisȱDecisionȱordersȱ

carriersȱtoȱprovideȱeducationȱtoȱtheirȱMLTSȱandȱPBXȱcustomersȱinȱtheȱformȱofȱbillȱ

insertsȱandȱeducationalȱmaterialsȱavailableȱonȱtheȱcarrierȱwebsiteȱaboutȱtheȱimportanceȱ

ofȱandȱprocessȱbyȱwhichȱcustomersȱmayȱprogramȱMLTSȱsystemsȱtoȱallowȱcallersȱtoȱ

reachȱshortȱcodeȱnumbersȱsuchȱasȱ2Ȭ1Ȭ1,ȱ8Ȭ1Ȭ1,ȱ7Ȭ1Ȭ1ȱandȱotherȱshortȱcodes.ȱ

Weȱorderȱcarriersȱwhoȱdoȱsuchȱprogrammingȱonȱbehalfȱofȱtheirȱcustomerȱorȱ

provideȱMTLSȱsystemsȱ(whetherȱpremise,ȱcloud,ȱorȱcentrexȬbased)ȱtoȱenableȱshortȱ

codes,ȱwithȱanȱoptȬoutȱforȱcustomersȱforȱshortȱcodesȱexceptȱforȱ9Ȭ1Ȭ1,ȱ8Ȭ1Ȭ1,ȱ2Ȭ1Ȭ1,ȱandȱȱ

7Ȭ1Ȭ1ȱinȱlightȱofȱtheȱpublicȱsafetyȱandȱhealthȱservicesȱavailableȱuponȱreachingȱtheseȱshortȱ

codes.ȱȱCarriersȱshallȱmaintainȱtheȱproperȱunderlyingȱcallȱdirectionsȱtoȱcompleteȱtheȱcallȱ

toȱtheȱproperȱagencyȱorȱshortȱcodeȱdestination.ȱ

WeȱdirectȱrespondentȱcarriersȱwhoȱserveȱMLTSȱorȱPBXȱcustomersȱtoȱholdȱaȱmeetȱ

andȱconferȱwithȱ2Ȭ1Ȭ1ȱCaliforniaȱtoȱcoordinateȱeducationȱandȱinformationalȱmaterialȱonȱ

2Ȭ1Ȭ1ȱprogrammingȱissuesȱandȱawareness.ȱȱWeȱdirectȱrespondentȱcarriersȱwhoȱserveȱ

71ȱTURNȱACRȱComments,ȱSept.ȱ2016,ȱpp.ȱ33Ȭ34.ȱ


57

MLTSȱorȱPBXȱcustomersȱtoȱholdȱaȱmeetȱandȱconferȱwithȱtheȱCaliforniaȱUtilitiesȱ

EmergencyȱAssociationȱ(CUEA)ȱregardingȱ8Ȭ1Ȭ1ȱeducationȱandȱinformationalȱmaterialȱ

relevantȱtoȱMLTSȱandȱPBXȱprogrammingȱandȱenablingȱofȱthatȱshortȱcode.ȱȱȱ

WeȱdirectȱtheȱCommission’sȱNewsȱandȱPublicȱInformationȱOfficeȱtoȱreachȱoutȱtoȱ

organizationsȱworkingȱwithȱotherȱshortȱcodesȱtoȱdetermineȱifȱtheyȱwouldȱlikeȱtoȱrequestȱ

aȱmeetȱandȱconferȱwithȱcarriersȱaboutȱthatȱshortȱcodeȱandȱtheȱneedȱforȱMLTSȱorȱotherȱ

educationȱregardingȱthatȱshortȱcode,ȱandȱtoȱcoordinateȱwithȱCommunicationsȱDivisionȱ

toȱprovideȱtoȱcarriersȱrequestsȱforȱsuchȱmeetȱandȱconferȱdiscussionsȱaboutȱshortȱcodeȱ

access.ȱȱWeȱalsoȱdirectȱtheȱCommission’sȱNewsȱandȱPublicȱInformationȱOfficeȱtoȱ

developȱeducationalȱmaterialsȱforȱMLTSȱcustomersȱandȱusersȱaboutȱprogrammingȱtheirȱ

phoneȱsystemȱforȱshortȱcodeȱaccessȱincludingȱ9Ȭ1Ȭ1,ȱ2Ȭ1Ȭ1,ȱ8Ȭ1Ȭ1,ȱandȱotherȱshortȱcodes.ȱȱ

Thisȱeducationalȱmaterialȱshouldȱleverageȱotherȱeducationalȱmaterialsȱandȱeffortsȱaboutȱ

8Ȭ1Ȭ1ȱawareness.ȱ

WeȱreferȱtoȱtheȱproceedingȱtoȱcarryȱoutȱSBȱ1212ȱandȱimplementȱ2Ȭ1Ȭ1ȱaccessȱ

statewideȱwhetherȱanyȱadditionalȱactionsȱareȱwarrantedȱtoȱensureȱthatȱ2Ȭ1Ȭ1ȱremainsȱ

accessibleȱtoȱCaliforniansȱattemptingȱtoȱreachȱ211ȱfromȱMLTSȱorȱPBXȱsystemsȱorȱfromȱ

directȱdialȱtelephones.ȱThatȱproceedingȱmayȱaccessȱtheȱrecordȱdevelopedȱinȱthisȱ

proceedingȱonȱ2Ȭ1Ȭ1ȱandȱshortȱcodeȱaccessȱissues.ȱȱ

4.3.4. False disconnected messages and Fast Busy Messages for Working Numbers

4.3.4.1. Summary TheȱEurekaȱPPHȱweȱreceivedȱreportsȱofȱsomeȱcallersȱreceivingȱfalseȱmessagesȱ

thatȱtheȱcalledȱnumberȱtheyȱhadȱcalledȱhadȱbeenȱdisconnectedȱorȱwasȱnotȱinȱservice.ȱȱ

Mr.ȱBootierȱandȱMs.ȱFurmanȱalsoȱrecountedȱaȱharrowingȱexperienceȱofȱreceivingȱaȱ

disconnectedȱnumberȱmessageȱwhenȱtryingȱtoȱcallȱtheȱwifeȱofȱaȱmanȱtheyȱencounteredȱ

inȱearlyȱ2016ȱ“(c)overedȱinȱblood,ȱbrainȱbleed,ȱfaceȱfall,ȱsideȱofȱtheȱroad,ȱcomatose,”ȱwhoȱ


58

hadȱaȱstrokeȱandȱneededȱtoȱgoȱtoȱtheȱemergencyȱroom.72ȱȱTheyȱknewȱtheȱmanȱwhoȱhadȱ

fallen,ȱandȱwhenȱtheyȱtriedȱtoȱcallȱhisȱwifeȱtoȱinformȱherȱtheyȱwereȱtakingȱhimȱtoȱtheȱ

emergencyȱroomȱ“numerousȱtimesȱweȱwereȱjustȱtoldȱtheȱphoneȱhadȱbeenȱ

disconnected,”ȱandȱwhenȱtheȱman’sȱwifeȱpickedȱupȱonȱtheȱsixthȱcallȱsheȱsaidȱsheȱhadȱ

beenȱmakingȱcalls.73ȱȱ“Iȱshouldȱhaveȱgotȱaȱbusyȱsignal,”ȱMs.ȱFurmanȱadded.74ȱȱȱ

AtȱtheȱSantaȱCruzȱPPH,ȱoneȱpublicȱspeaker,ȱJamesȱLewisȱofȱSantaȱCruz,ȱ

describedȱreceivingȱ“numerousȱ“allȱcircuitsȱareȱbusyȈȱrecordedȱmessagesȱandȱfastȱbusyȱ

signalsȱ(indicationsȱthatȱeitherȱtheȱnumberȱheȱisȱtryingȱtoȱreachȱisȱinvalidȱorȱthatȱallȱ

facilitiesȱareȱbusy)ȱwhenȱtryingȱtoȱplaceȱlocalȱcalls”ȱfromȱhisȱwirelineȱservice.75ȱȱCforATȱ

inȱitsȱCommentsȱonȱtheȱACRȱnotedȱthatȱatȱtheȱPPHȱinȱEureka,ȱCA,ȱSeanȱMcLaughlinȱofȱ

AccessȱHumboldtȱprovidedȱexamplesȱofȱsimilarȱproblemsȱinȱHumboldtȱCounty,ȱwhereȱ

residentsȱdoȱnotȱhaveȱaccessȱtoȱreliableȱserviceȱandȱsometimesȱgetȱcallsȱthatȱdon’tȱringȱ

throughȱorȱdisconnectedȱmessagesȱforȱnumbersȱthatȱshouldȱbeȱworking.ȱCforATȱ

highlightedȱMr.ȱMcLaughlin’sȱexperience:ȱ

Heȱspecificallyȱdescribedȱtheȱsituationȱofȱanȱelderlyȱwidowȱlivingȱalone,ȱwhoȱwasn’tȱreceivingȱcallsȱthatȱsheȱregularlyȱexpectedȱfromȱherȱson.ȱȱTheȱwidowȱaskedȱMr.ȱMcLaughlinȱtoȱcallȱherȱphoneȱtoȱmakeȱsureȱitȱwasȱworking,ȱandȱfoundȱthatȱcallsȱwereȱnotȱgoingȱthrough.ȱȱTheȱAT&Tȱlinemanȱwhoȱcameȱoutȱtoȱaddressȱtheȱproblemȱdescribedȱtheȱveryȱoldȱfacilitiesȱthatȱwereȱstillȱinȱuseȱforȱtheirȱservice,ȱleadingȱMr.ȱMcLaughlinȱtoȱconcludeȱthatȱserviceȱinȱtheȱareaȱisȱunreliableȱbecauseȱthereȱhasȱbeenȱnoȱincentiveȱforȱtheȱserviceȱproviderȱtoȱmaintainȱandȱupgradeȱit.76ȱȱȱ

TheȱSeptemberȱ8,ȱ2016ȱACRȱaskedȱrespondentȱcarriersȱinȱHumboldtȱCountyȱtoȱ

investigateȱthisȱandȱsimilarȱcommentsȱaboutȱfalseȱdisconnectedȱmessages,ȱandȱreportȱatȱ 72ȱEurekaȱPPH,ȱTr.,ȱpp.ȱ656Ȭ658.ȱ73ȱId.,ȱp.ȱ658.ȱ74ȱId.ȱ75ȱSantaȱCruzȱPPHȱTr.,ȱp.ȱ926Ȭ927.ȱ76ȱEurekaȱPPHȱTr.,ȱpp.ȱ647Ȭ648.ȱ


59

theȱPPHȱinȱSantaȱCruzȱonȱSeptemberȱ20,ȱ2016.ȱInȱresponseȱtoȱtheȱSeptemberȱ8,ȱ2016ȱ

ACRȱAT&T,ȱCaliforniaȱstatedȱthatȱitȱfoundȱnoȱreportedȱfalseȱdisconnectedȱmessagesȱtoȱ

businessesȱinȱHumboldtȱCounty.77ȱȱȱ

Theseȱreportsȱofȱsporadicȱreceiptȱofȱfalseȱdisconnectedȱorȱfastȱbusyȱmessagesȱforȱ

numbersȱthatȱshouldȱbeȱworkingȱareȱworrisome,ȱparticularlyȱwhenȱthereȱisȱnotȱanȱ

emergencyȱsuchȱasȱaȱlargeȱvolumeȱofȱcallȱattemptsȱfollowingȱanȱearthquake.ȱȱTheyȱmayȱ

beȱsymptomaticȱofȱfacilitiesȱorȱmaintenanceȱissues,ȱorȱnetworkȱdesignȱissuesȱthatȱwouldȱ

leaveȱtoȱaȱfastȱbusyȱmessageȱsignalingȱoverloadedȱcircuits.ȱWeȱdirectȱanalysisȱofȱthisȱ

issueȱbothȱwithȱregardȱtoȱspecificȱcustomersȱreportingȱtheseȱproblems,ȱandȱasȱpartȱofȱ

thisȱCommission’sȱNetworkȱStudyȱorderedȱinȱD.15Ȭ08Ȭ041.ȱ

4.4. Actions and Orders on False Disconnected Messages and Fast Busy Messages for Working Numbers

CarriersȱhaveȱaȱdutyȱunderȱCaliforniaȱLawȱtoȱcarryȱandȱcompleteȱcallsȱunderȱCAȱ

Cal.ȱPub.ȱUtil.ȱCodeȱsectionȱ558,ȱdutiesȱtoȱprovideȱsafe,ȱreliableȱserviceȱunderȱCal.ȱPub.ȱ

Util.ȱCodeȱsectionȱ451,ȱandȱhighȬqualityȱtelecommunicationsȱserviceȱthroughoutȱ

CaliforniaȱunderȱCal.ȱPub.ȱUtil.ȱCodeȱsectionȱ709.ȱȱCustomersȱreceivingȱfalseȱ

disconnectedȱmessagesȱorȱaȱfastȱbusyȱonȱaȱSunnyȱDayȱraiseȱreasonableȱquestionsȱaboutȱ

whetherȱtheyȱareȱgettingȱtheȱserviceȱforȱwhichȱtheyȱpaid,ȱandȱwhetherȱtheirȱcarriersȱ

compliedȱwithȱCaliforniaȱlaw,ȱandȱthisȱCommission’sȱrules,ȱordersȱandȱDecisions.ȱ

WeȱdirectȱCABȱtoȱtrackȱinformationȱaboutȱcustomerȱconcernsȱaboutȱincidentsȱofȱ

falseȱdisconnectedȱmessages,ȱfastȱbusyȱsignalsȱforȱwhatȱshouldȱbeȱworkingȱlines,ȱpoorȱ

orȱjitteryȱcallȱquality,ȱorȱotherȱtypesȱofȱcallȱfailuresȱforȱworkingȱlines.ȱȱ

WeȱdirectȱtheȱCommission’sȱNewsȱandȱPublicȱInformationȱOfficeȱtoȱincludeȱinȱ

theȱwebȱsiteȱsurveyȱandȱtoolȱforȱreportingȱCallȱCompletionȱissuesȱtheȱabilityȱtoȱreportȱ

77ȱSantaȱCruzȱPPH,ȱpp.ȱ947;ȱAT&T,ȱstatementȱsubmittedȱinȱresponseȱtoȱACR.ȱ


60

concernsȱaboutȱfalseȱdisconnectedȱmessages,ȱfastȱbusyȱsignals,ȱorȱotherȱtypesȱofȱcallȱ

failuresȱforȱworkingȱlines.ȱȱ

WeȱreferȱtoȱtheȱCommission’sȱNetworkȱStudyȱorderedȱinȱD.15Ȭ08Ȭ041ȱtoȱanalyzeȱ

informationȱaboutȱtheȱincidents,ȱfrequency,ȱandȱoccurrenceȱofȱfalseȱdisconnectedȱ

messages,ȱfastȱbusyȱsignals,ȱorȱotherȱtypesȱofȱcallȱfailuresȱforȱworkingȱlinesȱasȱpartȱofȱ

theirȱexaminationȱofȱAT&T,ȱCalifornia’sȱandȱFrontier,ȱCalifornia’sȱNetworks.ȱȱȱȱ

5. 9-1-1 Access Issues, including Call Initiation Outages, 9-1-1 Addressing Issues, and 9-1-1 Directory Issues for Public Safety 5.1. 911 Access and Call Initiation Issues Associated with Service

Outages; Hard Down 5.1.1. Background for Review of 9-1-1 Call Completion and Access

Issues, including Loss of Dial Tone TheȱAmendedȱScopingȱMemoȱforȱthisȱproceedingȱincludedȱaȱ“reviewȱofȱ911ȱcallȱ

completionȱandȱaccessȱissues,ȱincluding,ȱbutȱnotȱlimitedȱto,ȱthoseȱdueȱtoȱlossȱofȱdialȬtoneȱ

forȱreasonsȱotherȱthanȱserviceȱcancellation.”78ȱȱAccordingly,ȱthisȱOIIȱexaminedȱ9Ȭ1Ȭ1ȱcallȱ

completionȱandȱaccessȱissuesȱthatȱaffectȱaȱcustomer’sȱabilityȱtoȱinitiateȱaȱ9Ȭ1Ȭ1ȱcallȱsuchȱ

asȱlackȱofȱdialȬtone.ȱȱȱ

ThisȱsectionȱofȱtheȱOIIȱfocusesȱonȱ“Hardȱdown”ȱoutagesȱasȱtheȱFCCȱcallsȱthemȱ

“outagesȱthatȱresultȱinȱlossȱofȱservice,ȱasȱopposedȱtoȱperformanceȱdegradations.”79ȱȱWeȱ

receivedȱmanyȱcommentsȱaboutȱpoorȱorȱdegradedȱservice,ȱandȱsuchȱserviceȱoftenȱ

reflectsȱmaintenance,ȱnetworkȱorȱotherȱissuesȱthatȱoftenȱleadsȱtoȱlossȱofȱdialȬtoneȱandȱ

inabilityȱtoȱcallȱ911.ȱȱThisȱOII’sȱexaminationȱofȱdialȱtoneȱandȱ9Ȭ1Ȭ1ȱaccessȱissuesȱelicitedȱ

commentsȱthatȱalsoȱfocusedȱonȱ“HardȱDown”ȱoutagesȱthatȱaffectedȱlargeȱgroupsȱofȱ

78ȱAmendedȱScopingȱMemoȱp.ȱ4.ȱȱThisȱdocumentȱisȱtitledȱ“AmendedȱScopingȱMemo,”ȱasȱitȱamendsȱtheȱpreliminaryȱscopingȱmemoȱinȱtheȱOII.ȱ79ȱFCC,ȱReportȱandȱOrderȱandȱFurtherȱNoticeȱofȱProposedȱRulemakingȱonȱAmendmentsȱtoȱPartȱ4ȱofȱtheȱCommission’sȱRulesȱConcerningȱDisruptionsȱtoȱCommunications,ȱ¶ȱ1(PSȱDocketȱNo.ȱ15Ȭ80;ȱETȱDocketȱNo.ȱ04Ȭ35;ȱPSȱDocketȱNo.ȱ11Ȭ82),ȱMayȱ26,ȱ2016ȱ[hereinafterȱFCC,ȱNORSȱR&OȱandȱFNPRM].ȱ


61

customers,ȱoftenȱthousandsȱorȱtensȱofȱthousands.ȱȱCustomersȱimpactedȱbyȱoutagesȱthatȱ

lastȱhoursȱorȱdaysȱincludeȱresidents,ȱbusinesses,ȱpublicȱsafetyȱofficials,ȱhealthȱcareȱ

providers,ȱgovernmentȱofficesȱincludingȱjailsȱandȱcourts,ȱandȱnonȬprofitȱinstitutions.ȱȱȱ

ForȱpurposesȱofȱFCCȱrules,ȱPt.ȱ4.5ȱ(1)ȱofȱtheȱCodeȱofȱFederalȱRegisterȱprovidesȱ

thatȱ“(a)ȱOutageȱisȱdefinedȱasȱaȱsignificantȱdegradationȱinȱtheȱabilityȱofȱanȱendȱuserȱtoȱ

establishȱandȱmaintainȱaȱchannelȱofȱcommunicationsȱasȱaȱresultȱofȱfailureȱorȱ

degradationȱinȱtheȱperformanceȱofȱaȱcommunicationsȱproviderȇsȱnetwork.”ȱȱTheȱ

CaliforniaȱPublicȱUtilitiesȱCodeȱdoesȱnotȱcontainȱaȱdefinitionȱofȱoutage.ȱȱNeitherȱdoesȱ

theȱfederalȱdefinitionȱprecludeȱCalifornia’sȱabilityȱtoȱdefineȱandȱassessȱoutagesȱandȱ

developȱoutageȱreportingȱrequirementsȱforȱcarriersȱunderȱthisȱCommission’sȱ

jurisdiction,ȱtailoredȱtoȱCalifornia’sȱneeds.ȱ

ȱ Ourȱanalysisȱrevealedȱseveralȱmajorȱdriversȱofȱ9Ȭ1Ȭ1ȱaccessȱandȱlossȱofȱdialȱtoneȱ

outages.ȱȱTheseȱinclude:ȱ1)ȱSoftwareȱdrivenȱoutages,ȱasȱillustratedȱbyȱtheȱFrontierȱ

outagesȱinȱAprilȱ2016ȱfollowingȱtheȱVerizon,ȱCaliforniaȬFrontier,ȱCaliforniaȱtransition,ȱ

andȱsoftwareȱissuesȱatȱIntrado’sȱfacilityȱinȱColoradoȱthatȱresultedȱinȱ9Ȭ1Ȭ1ȱaccessȱissuesȱ

inȱsevenȱstatesȱandȱinȱeightȱnorthernȱCaliforniaȱcountiesȱforȱAT&TȱMobilityȱandȱ

Verizon,ȱWirelessȱcustomersȱwhoȱreceivedȱ9Ȭ1Ȭ1ȱservicesȱthroughȱVerizonȱBusiness;ȱȱ

2)ȱFacilitiesȬdrivenȱoutages,ȱstemmingȱfromȱmaintenanceȱissues,ȱfallingȱtrees,ȱfaultyȱ

plant,ȱthirdȬpartyȱcuts,ȱetc.;ȱ3)ȱServiceȬdrivenȱissuesȱthatȱmayȱextendȱtimeȱtoȱinitiateȱorȱ

respondȱtoȱOutȬOfȬServiceȱrepairȱrequests,ȱandȱextendȱrepairȱtime,ȱand;ȱ4)ȱdisasterȬ

drivenȱoutagesȱsuchȱasȱthoseȱcausedȱbyȱfire,ȱfloods,ȱsevereȱrain,ȱearthquake,ȱetc.ȱȱTheseȱ

outageȱtypesȱwillȱbeȱexploredȱbelow,ȱalongȱwithȱactionsȱweȱadoptȱtoȱaddressȱsuchȱ

outagesȱandȱensureȱthatȱcarriersȱprovideȱsafe,ȱreliableȱservice,ȱandȱhighȬqualityȱ

telephoneȱserviceȱconsistentȱwithȱCaliforniaȱlawȱandȱthisȱCommission’sȱrules,ȱorders,ȱ

andȱDecisions.ȱCal.ȱPub.ȱUtil.ȱCodeȱsectionsȱ451,ȱ709.ȱ

Asȱaȱconsequenceȱofȱcommunicationsȱoutages,ȱotherȱutilitiesȱregulatedȱbyȱthisȱ

Commissionȱincludingȱelectric,ȱgas,ȱandȱwaterȱutilities,ȱandȱtelecommunicationsȱcarriersȱ


62

whoȱdependȱinȱpartȱonȱtheȱfacilitiesȱofȱotherȱcarriers,ȱmayȱloseȱtheȱabilityȱtoȱ

communicateȱwithȱremoteȱfacilities,ȱcustomers,ȱofȱtheȱpublic.ȱSuchȱoutagesȱcanȱreduceȱ

orȱeliminateȱinformationȱaȱSupervisoryȱControlȱandȱDataȱAcquisitionȱSystemȱ(SCADA)ȱ

willȱshowȱaboutȱaȱplantȱorȱfacility.ȱAnȱelectricȱsubstationȱcanȱeffectivelyȱdisappearȱfromȱ

aȱSCADAȱsystemȱdueȱtoȱlossȱofȱcommunications,ȱsettingȱoffȱalarmsȱandȱcausingȱtheȱ

utilityȱtoȱdecideȱtoȱdeployȱpersonnelȱtoȱverify,ȱinȱperson,ȱtheȱstatusȱofȱtheȱplant.ȱȱȱ

Theseȱfailuresȱmayȱoccurȱonȱaȱ“SunnyȱDay,”ȱnotȱbroughtȱonȱbyȱbadȱweatherȱorȱaȱ

disaster,ȱbutȱbyȱotherȱfactorsȱincludingȱsoftwareȬdrivenȱoutages,ȱfacilitiesȬdrivenȱ

outagesȱincludingȱmaintenanceȱissues,ȱorȱlackȱofȱdiversityȱsoȱthatȱaȱsingleȱcutȱresultsȱinȱ

hundredsȱorȱthousandsȱlosingȱservice.ȱȱSuchȱoutagesȱareȱtooȱoftenȱexacerbatedȱandȱ

elongatedȱbyȱserviceȱissuesȱasȱdescribedȱbelow.ȱȱȱ

Californiaȱhasȱalsoȱbeenȱplaguedȱbyȱ“worstȱday”ȱoutagesȱdueȱtoȱtheȱravagesȱofȱ

firesȱduringȱtheȱdroughtȱofȱtheȱpastȱfourȱyears.ȱFiresȱinȱmanyȱpartsȱofȱtheȱstateȱledȱtoȱ

manyȱpeopleȱ“runningȱforȱtheirȱlivesȱandȱcomingȱoutȱofȱtheȱfireȱareas.”80ȱFiresȱburnedȱ

homes,ȱbusinesses,ȱandȱmanyȱresources,ȱasȱwellȱasȱphoneȱlines,ȱpoles,ȱandȱsomeȱcellȱ

servicesȱsoȱthatȱresidentsȱandȱbusinessesȱcouldȱnotȱmakeȱ9Ȭ1Ȭ1ȱcallsȱorȱreceiveȱaȱcallȱ

fromȱ9Ȭ1Ȭ1ȱtoȱevacuate.ȱȱDuringȱandȱafterȱtheseȱ“worstȱday”ȱdisasters,ȱwhichȱoftenȱ

stretchedȱintoȱweeksȱorȱmonths,ȱmanyȱCaliforniansȱremainedȱwithoutȱtelephoneȱserviceȱ

inȱtheȱdisasterȱarea,ȱasȱcarriersȱworkedȱforȱoneȱtoȱtwoȱweeksȱtoȱprovideȱemergencyȱ

serviceȱtoȱfirstȱrespondersȱthroughȱaȱCellȱonȱWheelsȱ(COW)ȱorȱCellȱonȱLightȱTruckȱ

(COLT)ȱtoȱprovideȱfireȱandȱotherȱpublicȱsafetyȱpersonnelȱwithȱconnectivityȱtoȱimproveȱ

theirȱsituationalȱawarenessȱandȱabilityȱtoȱfightȱfires.81ȱȱȱ

80ȱCalaverasȱCountyȱSupervisorȱCliffȱEdson,ȱSanȱAndreasȱPPH,ȱTr.,ȱp.ȱ370.ȱ81ȱSee,ȱe.g.ȱSanȱAndreasȱPPH,ȱTr.,ȱp.ȱ303ȱ(DuringȱtheȱRimȱfireȱ“Iȱwentȱtoȱincidentȱcommandȱeveryȱmorningȱinȱtimeȱforȱbriefingȱwithȱtheȱpeopleȱandȱthereȱwasȱvirtuallyȱzeroȱcoverageȱthere.ȱItȱwasn’tȱenoughȱbandwidthȱtoȱsendȱaȱtextȱmessage.ȱIȱwasȱtryingȱtoȱcommunicate…andȱcouldn’tȱdoȱitȱuntilȱIȱdroveȱmostȱofȱtheȱhourȱbackȱtowardsȱSonora…OnȱdayȱaboutȱnineȱandȱaȱhalfȱAT&Tȱ



63

ThisȱCommissionȱisȱchargedȱwithȱtheȱresponsibilityȱtoȱensureȱthatȱcarriersȱ

provideȱsafeȱandȱreliableȱserviceȱunderȱCal.ȱPub.ȱUtil.ȱCodeȱsectionȱ451.ȱȱCal.ȱPub.ȱUtil.ȱ

Codeȱsectionȱ2883(2)(b)ȱrequiresȱthatȱallȱlocalȱtelephoneȱcorporations…toȱtheȱextentȱ

permittedȱbyȱexistingȱtechnologyȱorȱfacilities,ȱshallȱprovideȱeveryȱsubscriberȱofȱtariffedȱ

residentialȱbasicȱexchangeȱserviceȱwithȱaccessȱtoȱȈ911Ȉȱemergencyȱservice.ȱCal.ȱPub.ȱUtil.ȱ

Codeȱsectionȱ453ȱprohibitsȱaȱpublicȱutilityȱfromȱmaintainingȱanyȱunreasonableȱ

differenceȱasȱtoȱrates,ȱcharges,ȱservice,ȱfacilities…betweenȱlocalitiesȱorȱasȱbetweenȱ

classesȱofȱservice.”ȱȱCal.ȱPub.ȱUtil.ȱCodeȱsectionȱ709ȱrequiresȱhighȬqualityȱserviceȱ

throughoutȱCalifornia.ȱȱExaminingȱlargeȬscale,ȱhardȱdownȱoutages,ȱtheirȱcausesȱandȱ

consequences,ȱtoȱdetermineȱwhatȱactionsȱtheȱCommissionȱshouldȱtakeȱaboutȱtheseȱ

outagesȱisȱimportantȱtoȱtheȱcarriageȱofȱourȱresponsibilitiesȱandȱtoȱpublicȱsafety.ȱ

5.1.2. California’s Public Safety Emergency Management System and the Critical Role of Communications Services to Public Safety

Aȱwidespreadȱcommunicationsȱoutageȱisȱanȱemergency.ȱȱLackȱofȱ

communicationsȱservicesȱmakesȱtheȱjobȱofȱemergencyȱrespondersȱmoreȱdifficultȱasȱtheirȱ

responsibilityȱincludesȱcommunicationȱandȱcoordination.ȱȱCommunicationsȱfacilitiesȱ

andȱservicesȱareȱkeyȱtheȱabilityȱofȱfield,ȱlocal,ȱcounty,ȱregionalȱandȱstateȱpersonnelȱtoȱ

executeȱtheirȱemergencyȱandȱIncidentȱCommentȱ(ICT)ȱdutiesȱassignedȱbyȱCaliforniaȱ

stateȱlawȱunderȱtheȱStateȱEmergencyȱManagementȱSystemȱ(SEMS)ȱduties.ȱ

Publicȱsafetyȱofficials,ȱoperatorsȱofȱcriticalȱinfrastructure,ȱjails,ȱschools,ȱcourts,ȱ

hospitals,ȱbusiness,ȱandȱtheȱpublicȱmustȱmakeȱdecisionsȱaboutȱwhatȱtoȱdoȱinȱtheȱabsenceȱ

ofȱvoiceȱandȱdataȱcommunicationsȱservices.ȱȱPublicȱSafetyȱofficialsȱmustȱmakeȱdecisionsȱ

duringȱoutages.ȱȱOfficialsȱhaveȱtoȱdecideȱwhetherȱtoȱdeployȱofficersȱtoȱintersectionsȱorȱ

showedȱupȱwithȱaȱCOWȱandȱthingsȱimproved.”ȱRemarksȱofȱTuolumneȱCountyȱSupervisorȱRandyȱHanvelt.)ȱ


64

areasȱtoȱhelpȱtheȱpublicȱaccessȱemergencyȱservices,ȱandȱwhetherȱtoȱsendȱofficersȱtoȱ

checkȱonȱjailsȱorȱotherȱfacilitiesȱoperatingȱwithoutȱtheȱabilityȱtoȱcommunicateȱfromȱoneȱ

wingȱtoȱanother.ȱȱKnowledgeȱaboutȱanȱoutageȱincident,ȱitsȱextent,ȱexpectedȱduration,ȱ

cause,ȱoptionsȱforȱresiliency,ȱandȱotherȱfactors,ȱisȱcriticalȱtoȱincidentȱresponse,ȱplanning,ȱ

andȱpreparation.ȱȱȱ

Duringȱaȱcommunicationsȱoutage,ȱincidentȱcommandȱmustȱdecideȱwhetherȱtoȱ

sendȱSheriffȱDeputiesȱorȱpoliceȱofficersȱtoȱlocalȱjailsȱwhereȱphonesȱareȱdownȱandȱguardsȱ

cannotȱcallȱfromȱoneȱwingȱtoȱanother,ȱorȱtoȱcourthousesȱwhereȱprisonersȱareȱbeingȱ

transferredȱforȱaȱhearing,ȱorȱtoȱlocalȱintersectionsȱorȱfireȱstationsȱtoȱpositionȱofficesȱtoȱ

helpȱpeopleȱwithȱemergenciesȱwhoȱhaveȱlostȱtheirȱabilityȱtoȱcallȱ9Ȭ1Ȭ1.ȱȱDuringȱaȱfire,ȱlossȱ

ofȱcommunicationsȱfacilitiesȱand/orȱservicesȱrequiresȱtheȱincidentȱcommanderȱtoȱ

determineȱwhetherȱtoȱdeployȱpublicȱsafetyȱpersonnelȱtoȱdriveȱthroughȱneighborhoodsȱ

andȱuseȱtheirȱloudspeakersȱorȱbullhornsȱtoȱannounceȱevacuations.ȱȱOfficialsȱmustȱdecideȱ

duringȱanȱoutageȱwhetherȱtoȱactivateȱsirensȱorȱtheȱlocalȱHamȱradioȱcommunity,ȱandȱ“goȱ

oldȬschool”ȱwhenȱphonesȱandȱtheȱInternetȱdon’tȱwork.ȱȱȱ

Publicȱsafetyȱpersonnelȱmustȱmakeȱthoseȱdecisionsȱtoȱexecuteȱtheirȱdutyȱtoȱ

protectȱtheȱpublicȱandȱtheirȱresponsibilitiesȱforȱincidentȱcommandȱunderȱSEMS.ȱTheȱ

StateȱofȱCaliforniaȱallocatesȱemergencyȱcommunication,ȱcoordination,ȱandȱincidentȱ

commandȱresponsibilityȱthroughȱSEMSȱandȱ(ICT).ȱȱUnderȱtheȱCaliforniaȱCodeȱofȱ

Regulationsȱ(CCR)ȱTitleȱ19,ȱ§ȱ2401,ȱSEMSȱdividesȱbyȱgovernmentalȱlevelȱresponsibilityȱ

forȱincidentȱcommand.ȱȱ“ThereȱareȱfiveȱdesignatedȱlevelsȱinȱtheȱSEMSȱorganization:ȱ

fieldȱresponse,ȱlocalȱgovernment,ȱoperationalȱarea,ȱregional,ȱandȱstate.ȱEachȱlevelȱisȱ

activatedȱasȱneeded.”82ȱ

82ȱCCRȱTitleȱ19,ȱ§ȱ2403ȱ(b).ȱ


65

ȱ “Fieldȱresponseȱlevel”ȱcommandsȱemergencyȱresponseȱpersonnelȱandȱresourcesȱ

toȱcarryȱoutȱtacticalȱdecisionsȱandȱactivitiesȱinȱdirectȱresponseȱtoȱanȱincidentȱorȱthreat.ȱ

(2)ȱ“Localȱgovernmentȱlevel”ȱmanagesȱandȱcoordinatesȱtheȱoverallȱemergencyȱresponseȱ

andȱrecoveryȱactivitiesȱwithinȱtheirȱjurisdiction.ȱ(3)ȱ“Operationalȱareaȱlevel”ȱmanagesȱ

and/orȱcoordinatesȱinformation,ȱresources,ȱandȱprioritiesȱamongȱlocalȱgovernmentsȱ

withinȱtheȱoperationalȱareaȱandȱservesȱasȱtheȱcoordinationȱandȱcommunicationȱlinkȱ

betweenȱtheȱlocalȱgovernmentȱlevelȱandȱtheȱregionalȱlevel.ȱ(4)ȱ“Regionalȱlevel”ȱmanagesȱ

andȱcoordinatesȱinformationȱandȱresourcesȱamongȱoperationalȱareasȱwithinȱtheȱmutualȱ

aidȱregionȱdesignatedȱpursuantȱtoȱGovernmentȱCodeȱ8600ȱandȱbetweenȱtheȱoperationalȱ

areasȱandȱtheȱstateȱlevel.ȱTheȱRegionalȱlevel,ȱalongȱwithȱtheȱstateȱlevel,ȱcoordinatesȱ

overallȱstateȱagencyȱsupportȱforȱemergencyȱresponseȱactivities.ȱ(5)ȱ“Stateȱlevel”ȱ

managesȱstateȱresourcesȱinȱresponseȱtoȱtheȱemergencyȱneedsȱofȱtheȱotherȱlevels,ȱ

managesȱandȱcoordinatesȱmutualȱaidȱamongȱtheȱmutualȱaidȱregionsȱandȱbetweenȱtheȱ

regionalȱlevelȱandȱstateȱlevel,ȱandȱservesȱasȱtheȱcoordinationȱandȱcommunicationȱlinkȱ

withȱtheȱfederalȱdisasterȱresponseȱsystem.83ȱ

ȱ TheȱoperationalȱareaȱlevelȱisȱmanagedȱbyȱcountiesȱthroughȱCountyȱOfficesȱofȱ

EmergencyȱServices,ȱinȱcoordinationȱwithȱorȱunderȱcommandȱofȱtheȱCountyȱSheriff.ȱȱ

Theȱoperationalȱareaȱlevelȱ“servesȱasȱtheȱcoordinationȱandȱcommunicationȱlinkȱbetweenȱ

theȱlocalȱgovernmentȱlevelȱandȱtheȱregionalȱlevel.”ȱCommunicationsȱfacilitiesȱandȱ

servicesȱareȱvitalȱtoȱperformingȱthatȱfunctionȱtoȱcoordinateȱandȱcommunicateȱaboutȱ

fieldȱandȱlocalȱresponse,ȱandȱregionalȱassistanceȱasȱneeded.ȱȱȱ

UnderȱCCRȱTitleȱ19,ȱ§ȱ2407ȱ(b)ȱ“WhenȱaȱlocalȱgovernmentȱEOCȱisȱactivated,ȱ

communicationsȱandȱcoordinationȱshallȱbeȱestablishedȱbetweenȱtheȱIncidentȱ

Commander(s)ȱandȱtheȱdepartmentȱoperationsȱcenter(s)ȱtoȱtheȱEOCȱorȱbetweenȱtheȱ

83ȱCCRȱTitleȱ19,ȱ§ȱ2403ȱ(b).ȱ


66

IncidentȱCommander(s)ȱandȱtheȱEOC.”ȱȱAtȱtheȱlocalȱgovernmentȱlevel,ȱ“Integratedȱ

communicationsȱareȱmanagedȱthroughȱtheȱuseȱofȱaȱcommonȱcommunicationsȱplanȱandȱ

anȱincidentȬbasedȱcommunicationsȱcenterȱestablishedȱforȱtheȱuseȱofȱtacticalȱandȱsupportȱ

resourcesȱassignedȱtoȱtheȱincident.”84ȱȱCommunicationsȱisȱcriticalȱtoȱresponseȱtoȱanȱ

incident,ȱwhetherȱatȱtheȱlocal,ȱcounty,ȱregional,ȱstate,ȱorȱfederalȱlevel.ȱ

CCRȱTitleȱ19,ȱ§ȱ2409(d)ȱprovidesȱthatȱ“Theȱcountyȱgovernmentȱshallȱserveȱasȱtheȱ

leadȱagencyȱofȱtheȱoperationalȱareaȱunlessȱanotherȱmemberȱagencyȱofȱtheȱoperationalȱ

areaȱassumesȱthatȱresponsibilityȱbyȱwrittenȱagreementȱwithȱcountyȱgovernment.”ȱȱStateȱ

lawȱchargesȱcountiesȱwithȱcoordinationȱofȱemergencyȱresponseȱbeyondȱtheȱlocalȱlevel.ȱȱ

Communicationsȱbetweenȱtheȱcountyȱoperationalȱlevelȱforȱincidentȱcommandȱandȱlocalȱ

politicalȱsubdivisions,ȱasȱwellȱasȱtoȱtheȱstateȱemergencyȱoperationsȱcentersȱareȱ

foundationalȱresponsibilitiesȱorȱtheȱoperationalȱareasȱlevel,ȱandȱcommunicationsȱ

facilitiesȱandȱservicesȱareȱkeyȱtoȱexecutingȱtheseȱduties.ȱ

CountyȱOfficesȱofȱEmergencyȱServicesȱoperateȱanȱEmergencyȱOperationsȱCenterȱ

(EOC),ȱoftenȱlocatedȱinȱtheȱSheriff’sȱOffice.ȱȱTheȱCountyȱOESȱservesȱasȱtheȱoperationalȱ

areaȱlevelȱmanagerȱandȱactivatesȱtheȱEOC.ȱȱAȱCountyȱEOCȱmayȱbeȱlaunchȱwhenȱaȱlocalȱ

governmentȱhasȱactivatedȱitsȱEOCȱandȱrequestsȱcountyȬlevelȱoperationalȱEOCȱsupport,ȱ

whenȱtwoȱorȱmoreȱcitiesȱinȱtheȱcountyȱhaveȱdeclaredȱaȱlocalȱemergency,ȱwhenȱtheȱ

countyȱorȱoneȱorȱmoreȱcitiesȱhaveȱdeclaredȱaȱlocalȱemergency,ȱwhenȱaȱcityȱand/orȱ

countyȱhaveȱrequestedȱtheȱGovernor’sȱproclamationȱofȱaȱstateȱofȱemergency,ȱwhenȱtheȱ

governorȱhasȱproclaimedȱaȱstateȱofȱemergencyȱforȱtheȱcountyȱorȱtwoȱorȱmoreȱcitiesȱinȱ

theȱcounty,ȱtheȱcountyȱoperationalȱareaȱisȱrequestingȱorȱhasȱreceivedȱemergencyȱ

resourcesȱfromȱoutsideȱofȱitsȱboundaries,ȱasideȱfromȱnormalȱmutualȱaid.85ȱȱ

84ȱCCRȱTitleȱ19,ȱ§ȱ2405(a)(3)(h).ȱ85ȱCCRȱTitleȱ19,ȱ§ȱ2409ȱ(f).ȱ


67

InȱCaliforniaȱmostȱPSAPsȱthatȱreceiveȱ9Ȭ1Ȭ1ȱcallsȱandȱdoȱemergencyȱdispatchȱforȱ

thoseȱincidentsȱareȱrunȱbyȱcities.86ȱȱWhileȱPSAPsȱhandleȱindividualȱcalls,ȱSEMSȱisȱ

activatedȱtoȱcoordinateȱ“emergencyȱresponseȱtoȱincidentsȱthatȱexceedȱdailyȱlocalȱpoliceȱ

andȱfireȱresponsibility.”87ȱCommunicationsȱareȱvitalȱtoȱeachȱofȱtheseȱpublicȱsafetyȱ

functions.ȱȱȱ

5.1.3. Frontier post-Verizon April 2016 Transition; Software and Service-driven 9-1-1 Access issues and Loss of Dial Tone

5.1.3.1. Commission Approval of the Transfer of Verizon, California to Frontier, December 2015

TheȱCommissionȱapprovedȱtheȱtransferȱofȱVerizon,ȱCaliforniaȱtoȱFrontierȱinȱ

December,ȱ2015ȱthroughȱD.15Ȭ12Ȭ005.ȱȱTheȱDecisionȱwasȱadoptedȱafterȱeightȱPPHsȱ

includingȱtoursȱofȱmanyȱareasȱservedȱbyȱVerizon,ȱCaliforniaȱtoȱhearȱfromȱtheȱpublicȱandȱ

observeȱnetworkȱconditionsȱthatȱFrontierȱwouldȱinheritȱthroughȱtheȱtransfer.ȱTheȱstatusȱ

ofȱVerizonȱCaliforniaȇsȱnetworkȱwasȱaȱmajorȱissueȱexploredȱinȱtheȱVerizon/Frontierȱ

proceedingȱandȱtheȱsubjectȱofȱaȱCommissionȱhearing,ȱdataȱrequestsȱandȱswornȱ

testimony.ȱ

TheȱCommission’sȱD.15Ȭ12Ȭ005,ȱapprovedȱseveralȱsettlementsȱandȱimposedȱ

conditionsȱonȱtheȱpartiesȱtoȱapproveȱtheȱVerizon,ȱCaliforniaȬFrontierȱtransfer,ȱincludingȱ

anȱorderȱthatȱFrontierȱandȱVerizon,ȱCaliforniaȱcoordinateȱtheȱtransitionȱofȱtheȱVerizonȱ

Californiaȱ911ȱfunctionalityȱorȱdatabaseȱsystems.ȱFrontierȱcommittedȱtoȱreportingȱ

informationȱforȱthreeȱyearsȱtoȱtheȱCommissionȱandȱtheȱpartiesȱaboutȱtraditionalȱvoiceȱ

(plainȱoldȱtelephoneȱservice),ȱandȱresidentialȱVoIPȱperformanceȱmeasuredȱbyȱ

CommissionȱGeneralȱOrderȱ133ȬCȱthatȱrequiresȱ90%ȱofȱOutȬOfȬServiceȱrepairsȱtoȱbeȱ

86ȱFCC,ȱ911ȱMasterȱPSAPȱregistry,ȱ(lastȱupdatedȱAugustȱ23,ȱ2016),ȱhttps://www.fcc.gov/general/9Ȭ1Ȭ1ȬmasterȬpsapȬregistry.ȱ87ȱCCRȱTitleȱ19,ȱ§ȱ2401.ȱ


68

completedȱwithinȱ24ȱhours.ȱ(D.15Ȭ12Ȭ005,ȱOrderingȱParagraphȱ9).88ȱTheȱCommissionȱ

orderedȱFrontierȱtoȱprovideȱtheȱCommissionȱandȱtheȱpartiesȱwithȱanyȱFederalȱ

CommunicationsȱCommissionȱ(FCC)ȱNetworkȱOutageȱReportingȱSystemȱ(NORs)ȱ

reportsȱfiledȱforȱVerizon,ȱCaliforniaȱorȱFrontierȱCaliforniaȱincidentsȱreachingȱtheȱNORSȱ

thresholdȱofȱ900,000ȱuserȱminutesȱofȱoutage,ȱwithinȱthreeȱdaysȱofȱfilingȱtheȱreport.ȱ

5.1.3.2. Verizon, California and Frontier Transition Preparation and Post-Transition Dial-tone and 9-1-1 Access Outages

AtȱtheȱPPHsȱinȱLongȱBeachȱandȱSanȱFrancisco,ȱFrontierȱexplainedȱtheȱpreparationȱ

itȱengagedȱinȱwithȱVerizon,ȱCaliforniaȱandȱitsȱaffiliatesȱtoȱensureȱsmoothȱtransferȱofȱdataȱ

necessaryȱtoȱensureȱcustomersȱcouldȱmakeȱcalls.ȱȱVerizon,ȱCaliforniaȱandȱFrontierȱhadȱ

eachȱplannedȱtheȱtransitionȱinȱanticipationȱofȱCommissionȱapprovalȱofȱtheȱtransaction.ȱȱ

Theyȱbeganȱcoordinationȱtoȱtransferȱdata,ȱassets,ȱprocesses,ȱpersonnel,ȱandȱcustomersȱ

fromȱVerizon,ȱCaliforniaȱtoȱFrontierȱonȱtheȱ“flashȱcutȬover”ȱdateȱtheyȱchooseȱofȱȱ

Aprilȱ1,ȱ2016,ȱalmostȱfourȱmonthsȱafterȱtheȱCommission’sȱapprovalȱofȱtheȱVerizonȬ

Frontierȱtransfer.ȱȱ

Verizon,ȱCaliforniaȱandȱFrontierȱdevelopedȱaȱjointȱcutoverȱplanȱinȱFebruaryȱ2015ȱ

toȱtransferȱprocessesȱandȱprogramsȱbetweenȱtheȱcompaniesȱwithȱaȱscheduleȱofȱ

deliverablesȱincludingȱaccessȱtoȱdataȱpriorȱtoȱclosing.ȱȱTheyȱconductedȱfourȱpreȬcutoverȱ

“mockȱdataȱexchanges”ȱtoȱtestȱprocesses,ȱvalidateȱandȱconfirmȱsuccessfulȱtransferȱofȱ

data.ȱȱFrontierȱdevelopedȱaȱlabȱinȱFt.ȱWayne,ȱIndianaȱtoȱtestȱVerizonȱequipmentȱwithȱtheȱ

Frontierȱnetwork.ȱȱMichaelȱGolob,ȱFrontierȱViceȬPresidentȱtestifiedȱthatȱFrontierȱwasȱnotȱ

ableȱtoȱobtainȱallȱVerizonȱcustomerȱequipment,ȱincludingȱcertainȱOpticalȱNetworkȱ

Terminalsȱ(ONT)ȱthatȱsomeȱcustomersȱwhoȱexperiencedȱoutagesȱinȱtheȱpostȬtransitionȱ

88ȱTheȱCommission’sȱServiceȱQualityȱGeneralȱOrderȱwasȱrevisedȱinȱSeptemberȱ2016ȱthroughȱD.16Ȭ10Ȭ019ȱwhichȱadoptedȱtheȱrevisedȱserviceȱqualityȱGeneralȱOrderȱasȱGOȱ133ȬD.ȱȱTheȱpriorȱserviceȱqualityȱGeneralȱOrderȱwasȱadoptedȱinȱGOȱ133ȬC.ȱ


69

periodȱinȱAprilȱ2016ȱhadȱonȱtheirȱpremises.89ȱȱFrontier’sȱRootȱCauseȱAnalysisȱexplainedȱ

“(W)ithȱrespectȱtoȱtheȱincorrectȱorȱmissingȱdata,ȱFrontierȱconductedȱtestingȱpriorȱtoȱtheȱ

cutover,ȱbutȱthisȱtestingȱdidȱnotȱ(andȱcouldȱnot)ȱidentifyȱthatȱFrontier’sȱsystemsȱcouldȱ

notȱprocessȱaȱsmallȱpercentageȱofȱtheȱdataȱwithinȱtheȱVerizonȱnetworkȱextractȱafterȱitȱ

wasȱtransferredȱtoȱFrontier’sȱnetwork.”90ȱȱȱȱȱ

Frontier’sȱRootȱCauseȱAnalysisȱstatedȱthatȱ“VerizonȱprovidedȱtoȱFrontierȱallȱ

relevantȱdataȱthatȱwasȱinȱVerizon’sȱsystems;ȱindeed,ȱhundredsȱofȱmillionsȱofȱdataȱitemsȱ

wereȱtransferredȱfromȱVerizonȱtoȱFrontier.ȱȱHowever,ȱVerizonȱandȱFrontierȱhaveȱ

differentȱsystemsȱwithȱdifferentȱprocessesȱtoȱresolveȱdataȱissues.ȱȱFrontier’sȱsystemsȱ

wereȱnotȱableȱtoȱcommunicateȱproperlyȱwithȱtheȱequipmentȱinȱtheȱnetworkȱinȱsomeȱ

cases.“91ȱFrontierȱaddedȱthatȱ“(o)nceȱFrontierȱdiscoveredȱtheȱissue,ȱitȱimmediatelyȱ

respondedȱbyȱteamingȱwithȱVerizonȱandȱoutsideȱvendorȱexpertsȱtoȱunderstandȱtheȱissueȱ

andȱtoȱrecreateȱtheȱmissingȱdataȱinȱorderȱtoȱresolveȱtheȱissue.”92ȱȱȱȱ

MelindaȱWhite,ȱWesternȱRegionȱPresidentȱofȱFrontier,ȱstatedȱthatȱonȱtheȱfirstȱdayȱ

afterȱtheȱVerizon,ȱCaliforniaȬFrontierȱtransition,ȱFrontierȱplannedȱtoȱstartȱtrainingȱoverȱ

4,000ȱVerizon,ȱCaliforniaȱemployeesȱwhoȱcameȱoverȱtoȱFrontier.ȱȱThisȱincludedȱfieldȱ

techniciansȱwhoȱFrontierȱplannedȱtoȱtrainȱduringȱtheȱfirstȱtwoȱweeksȱfollowingȱtheȱ

transition.ȱȱInsteadȱ“FIOSȱ[aȱformȱofȱVerizonȱVoIP]ȱtechsȱwentȱoutȱintoȱtheȱfieldȱonȱdayȱ

two…theyȱneverȱleftȱtheȱfield.ȱȱAndȱtheyȱhaveȱbeenȱoutȱthereȱworkingȱlikeȱyouȱwouldn’tȱ

believeȱtoȱresolve.”93ȱ

89ȱLongȱBeachȱPPH,ȱTr.,ȱpp.ȱ26Ȭ28.ȱȱ90ȱFrontier,ȱResponseȱtoȱSept.ȱ8,ȱ2016ȱACR,ȱRootȱCauseȱAnalysis,ȱSept.ȱ20,ȱ2016,ȱAttachmentȱA,ȱp.ȱ1.ȱ91ȱId.ȱ92ȱId.ȱ93ȱLongȱBeachȱPPH,ȱTr.,ȱp.ȱ41.ȱ


70

ToȱprepareȱforȱanticipatedȱserviceȱquestionsȱpostȬȱtransitionȱFrontierȱretainedȱtheȱ

offshoreȱcustomerȱcallȱcenterȱinȱtheȱPhilippinesȱthatȱVerizon,ȱCaliforniaȱused.94ȱȱMs.ȱ

WhiteȱsaidȱFrontierȱanticipatedȱtheȱquestionsȱwouldȱbeȱaboutȱ“whoȱareȱyou,ȱwhoȱisȱ

Frontier,ȱIȱhaveȱmyȱbill,ȱIȱdon’tȱunderstandȱit,ȱIȱhaveȱtroubleȱonȱmyȱline,ȱallȱofȱtheȱmanyȱ

reasonsȱthatȱpeopleȱcall.”95ȱȱMs.ȱWhiteȱaddedȱ“Theȱoffshoreȱcallȱcenterȱhasȱbeenȱveryȱ

disappointing…outȱofȱserviceȱtroubleȱthatȱweȱreceivedȱcouldȱhaveȱbeenȱmoreȱ

manageableȱhadȱtheȱcallȱcenterȱexperienceȱbeenȱmuchȱimproved.”96ȱ

5.1.3.3. April 2016 Post-Transition Dial-tone and 9-1-1 Access Outages for Many Frontier Customers

5.1.3.3.1. Frontier Customers Affected by Post-Transition Outages AfterȱtheȱtransitionȱfromȱVerizon,ȱCaliforniaȱtoȱFrontierȱfollowingȱthisȱ

Commission’sȱapprovalȱofȱtheȱtransactionȱinȱD.15Ȭ12Ȭ005,ȱcomplaintsȱspikedȱfromȱmanyȱ

customersȱofȱFrontierȱinȱSouthernȱCaliforniaȱwhoȱapparentlyȱlostȱdialȱtone,ȱasȱwellȱasȱ

Internetȱandȱvideoȱaccess.ȱȱManyȱcustomersȱsufferedȱoutagesȱlastingȱoneȱtoȱthreeȱ

weeks.97ȱȱOutagesȱwereȱconcentratedȱamongȱformerȱVerizon,ȱCaliforniaȱFiOSȱcustomers,ȱ

particularlyȱinȱLongȱBeach,ȱSantaȱMonica,ȱMalibu,ȱRedondo,ȱHermosa,ȱManhattanȱ

Beach,ȱandȱCamarillo.98ȱȱȱ

TheȱCommission’sȱConsumerȱAffairsȱBranchȱ(CAB)ȱreceivedȱ218ȱcomplaintsȱaboutȱ

FrontierȱphoneȱserviceȱinȱAprilȱ2016,ȱandȱ265ȱsuchȱcomplaintsȱinȱMayȱ2016,ȱcomparedȱtoȱ

18Ȭ51ȱsuchȱcomplaintsȱforȱeachȱofȱtheȱfollowingȱmonthsȱofȱJuneȱthroughȱSeptember.99ȱForȱ

94ȱId.,ȱp.ȱ42Ȭ43.ȱ95ȱId.,ȱp.ȱ42.ȱ96ȱId.ȱ97ȱSanȱFrancisco,ȱWorkshopȱTr.,ȱp.ȱ179.ȱ98ȱLongȱBeachȱPPH,ȱTr.,ȱp.ȱ54Ȭ55.ȱ99ȱMikeȱAmato,ȱActingȱDirector,ȱCaliforniaȱPublicȱUtilitiesȱCommissionȱCommunicationsȱDivision,ȱUpdateȱonȱtheȱFrontierȱCommunicationsȱCorporation’sȱAcquisitionȱofȱVerizon,ȱCalifornia,ȱOctoberȱ13,ȱ2016,ȱp.ȱ2,ȱ[hereinafter,ȱ“Amato,ȱFrontierȱUpdate.”]ȱ


71

bundledȱphone,ȱInternet,ȱand/orȱVideoȱservice,ȱCABȱreceivedȱ171ȱcomplaintsȱaboutȱ

FrontierȱphoneȱserviceȱinȱAprilȱ2016,ȱandȱ151ȱsuchȱcomplaintsȱinȱȱ

Mayȱ2016,ȱcomparedȱtoȱ17Ȭ39ȱsuchȱcomplaintsȱforȱeachȱofȱtheȱfollowingȱmonthsȱofȱJuneȱ

throughȱSeptember.100ȱȱAdditionally,ȱtheȱCommissionȱreceivedȱ114ȱcomplaintsȱinȱȱ

Aprilȱ2016ȱfromȱInternetȱandȱVideoȱcustomersȱofȱFrontier,ȱandȱ208ȱsuchȱcomplaintsȱinȱ

Mayȱ2016,ȱcomparedȱtoȱ18ȱtoȱ60ȱsuchȱcomplaintsȱbetweenȱJuneȱthroughȱSeptember,ȱ2016.ȱȱȱ

CABȱreceivedȱcomplaintsȱthatȱmoreȱthanȱ1,200ȱFrontierȱcustomersȱapparentlyȱ

lostȱdialȱtoneȱonȱtheirȱvoiceȱservice,ȱandȱsomeȱlostȱInternetȱorȱvideoȱserviceȱasȱwell.101ȱ

ManyȱcustomersȱdoȱnotȱknowȱifȱtheirȱfiberȱserviceȱprovidesȱVoIPȱorȱtraditionalȱ

telephoneȱservice.ȱFrontierȱwasȱcooperativeȱwithȱCABȱinȱcustomerȱinquiriesȱaboutȱlossȱ

ofȱdialȱtone,ȱregardlessȱofȱservice.ȱȱ

BeginningȱinȱAprilȱ2016,ȱCommunicationsȱDivisionȱissuedȱseveralȱdataȱrequestsȱ

toȱFrontier,ȱCaliforniaȱaboutȱtheȱpostȬtransitionȱoutageȱissues.ȱȱCommunicationsȱ

DivisionȱorderedȱFrontierȱtoȱconductȱandȱsubmitȱaȱrootȱcauseȱanalysisȱofȱtheȱreasonsȱforȱ

theȱoutages.ȱȱWeȱheldȱtwoȱWorkshopsȱfocusingȱonȱtheȱVerizon/Frontierȱoutages,ȱasȱwellȱ

asȱotherȱoutageȱissuesȱandȱcauses.ȱWeȱnoteȱthatȱFrontierȱwasȱcooperativeȱwithȱthisȱOIIȱ

andȱquicklyȱansweredȱourȱquestionsȱatȱtheȱWorkshopsȱinȱSanȱFranciscoȱandȱLongȱ

Beach,ȱandȱinȱresponseȱtoȱdataȱrequests,ȱandȱtheȱrequestȱforȱaȱrootȱcauseȱanalysis.ȱ

TheȱCommission’sȱCommunicationsȱDivisionȱpresentedȱatȱtheȱCommission’sȱ

LongȱBeachȱmeetingȱonȱOctoberȱ13,ȱ2016ȱanȱanalysisȱcomparingȱoutȬofȬserviceȱdataȱ

underȱGOȱ133ȬCȱforȱVerizon,ȱCaliforniaȱasȱcomparedȱtoȱFrontier,ȱCaliforniaȱforȱtheȱfirstȱ

halfȱofȱ2016ȱforȱtheȱSouthernȱCaliforniaȱCentralȱOfficesȱ(COs)ȱserved,ȱpostȬtransition,ȱbyȱ

Frontier.ȱȱTheȱOutȬofȬServiceȱtoȱserviceȱrestorationȱstandardȱmeasuresȱtheȱaverageȱtime,ȱ

100ȱId.,ȱp.ȱ4.ȱ101ȱSanȱFranciscoȱWorkshop,ȱTr.,ȱp.ȱ178ȱ(CABȱreceivedȱ1,212ȱcomplaintsȱaboutȱlossȱofȱFrontier’sȱvoice,ȱvideo,ȱand/orȱInternetȱserviceȱasȱofȱJuneȱ11,ȱ2016).ȱ


72

forȱaȱcarrierȱtoȱrestoreȱserviceȱtoȱresidentialȱandȱsmallȱbusinessȱcustomers,ȱstartingȱfromȱ

theȱinitiationȱofȱaȱrepairȱticket.ȱTheȱminimumȱstandardȱisȱtoȱrepairȱ90%ȱofȱallȱoutagesȱ

withinȱ24ȱhours,ȱaverageȱoverȱtheȱmonthȱforȱtheȱentireȱcarrier’sȱterritory.ȱThisȱmeasureȱ

excludesȱSundaysȱandȱfederalȱholidays,ȱasȱwellȱasȱeventsȱbeyondȱaȱcarrier’sȱcontrol,ȱandȱ

catastrophicȱwidespreadȱoutages,ȱreflectedȱinȱ“adjustedȱnumbers,”ȱalthoughȱcarriersȱ

alsoȱprovideȱtheȱCommissionȱwithȱ“unadjusted”ȱdata.102ȱȱ

GOȱ133ȬCȱ(nowȱGOȱ133ȬD)ȱrequiresȱtheȱreportingȱofȱtheȱOSSȱrestorationȱaverageȱ

timeȱstatewideȱperȱreportingȱcarrier.ȱȱForȱtheȱSouthernȱCaliforniaȱCOsȱservedȱbyȱ

Verizon,ȱCaliforniaȱfromȱJanuaryȬMarchȱ2016ȱand,ȱpostȬtransitionȱinȱAprilȱ2016ȱbyȱ

Frontier,ȱCommunicationsȱDivisionȱcomparedȱVerizon,ȱCaliforniaȱtoȱFrontierȱ

complianceȱwithȱtheȱGOȱ133ȱ24ȱhourȱrestorationȱstandardȱforȱoutȱofȱserviceȱrepairȱ

tickets.ȱȱVerizon,ȱCaliforniaȱoperatedȱitsȱlandlineȱtelephoneȱserviceȱasȱaȱCOLRȱuntilȱtheȱ

flashȱcutoverȱonȱAprilȱ1,ȱ2016.ȱVerizon,ȱCaliforniaȱdidȱnotȱmeetȱtheȱOutȬOfȬServiceȱ

standardȱinȱJanuaryȱ2016,ȱbutȱmetȱtheȱstandardȱinȱFebruaryȱandȱMarchȱ2016ȱasȱorderedȱ

inȱtheȱVerizon,ȱCaliforniaȬFrontierȱtransferȱdecision.ȱȱVerizon,ȱCaliforniaȱreportedȱthatȱ

itsȱpercentageȱofȱOutȬOfȬServiceȱrepairȱticketsȱrestoredȱtoȱserviceȱwithinȱ24ȱhoursȱforȱtheȱ

totalȱcompanyȱwas;ȱ69%ȱinȱinȱJanuaryȱ2016,ȱ92%ȱinȱFebruaryȱ2016,ȱandȱ93%ȱinȱMarchȱ

2016.ȱȱFrontier,ȱCalifornia,ȱtotalȱcompanyȱreportedȱthatȱitsȱpercentageȱofȱOutȬOfȬServiceȱ

repairȱticketsȱrestoredȱtoȱserviceȱwithinȱ24ȱhours;ȱ43%ȱinȱAprilȱ2016,ȱ21%ȱinȱMayȱ2016,ȱ

andȱ28%ȱinȱJuneȱ2016.103ȱȱȱ

Likewise,ȱforȱtheȱFiOSȱservicesȱprovidedȱbyȱVerizon,ȱCaliforniaȱfromȱJanuaryȬ

Marchȱ2016ȱand,ȱpostȬtransitionȱinȱAprilȱ2016ȱbyȱFrontier,ȱCommunicationsȱDivisionȱ

comparedȱVerizon,ȱCaliforniaȱtoȱFrontierȱcomplianceȱwithȱtheȱGOȱ133ȱ24ȱhourȱ

restorationȱstandardȱforȱoutȱofȱserviceȱrepairȱtickets.ȱȱVerizon,ȱCaliforniaȱreportedȱthatȱ 102ȱAmato,ȱFrontierȱUpdate,ȱatȱ7.ȱ103ȱId.,ȱatȱ7.ȱ


73

itsȱpercentageȱofȱFiOSȱȱOutȬOfȬServiceȱrepairȱticketsȱrestoredȱtoȱserviceȱwithinȱ24ȱhoursȱ

was;ȱ76%ȱinȱinȱJanuaryȱ2016,ȱ95%ȱinȱFebruaryȱ2016,ȱandȱ96%ȱinȱMarchȱ2016.ȱȱFrontierȱ

reportedȱthatȱitsȱpercentageȱofȱȱFiOSȱOutȬOfȬServiceȱrepairȱticketsȱrestoredȱtoȱserviceȱ

withinȱ24ȱhours;ȱ38%ȱinȱAprilȱ2016,ȱ14%ȱinȱMayȱ2016,ȱandȱ20%ȱinȱJuneȱ2016.104ȱȱȱ

FrontierȱreportedȱthatȱduringȱtheȱpendencyȱofȱthisȱOIIȱtheȱfollowingȱareasȱofȱ

concernȱhaveȱbeenȱaddressed:ȱ1)ȱInstalledȱsystemȱfixesȱtoȱresolveȱdataȱ

corruption/integrity;ȱ2)ȱRecreatedȱcustomerȱrecordsȱtoȱcorrectȱinaccuracies;ȱȱ

3)ȱDiscontinuedȱservicesȱofȱtheȱoffshoreȱcallȱcenterȱandȱcallȱcentersȱareȱnowȱbasedȱinȱtheȱ

U.S.,ȱand;ȱ4)ȱFrontierȱisȱnowȱoperatingȱinȱaȱbusinessȱasȱusualȱmode.105ȱTheȱOIIȱidentifiedȱ

immediateȱactionsȱCABȱcouldȱtakeȱtoȱfacilitateȱcustomerȱservice,ȱandȱFrontierȱwasȱveryȱ

responsiveȱtoȱcustomerȱrequestsȱforȱrepairȱorȱserviceȱsentȱbyȱCAB.ȱȱAsȱtheȱpeakȱofȱtheȱ

outagesȱsubsided,ȱtheȱOIIȱlikewiseȱshiftedȱtoȱanalyzingȱtheȱcausesȱofȱtheȱoutagesȱandȱ

Frontier’sȱactionsȱinȱtheȱwakeȱofȱtheȱoutages,ȱasȱwellȱasȱtoȱanalyzingȱwhatȱtheȱ

Commissionȱcouldȱdoȱtoȱpreventȱorȱaddressȱsuchȱoutages.ȱ

5.1.3.3.2. Software-Driven Cause of Outages AtȱtheȱJuneȱ1ȱandȱJuneȱ27ȱWorkshopsȱinȱthisȱproceeding,ȱtheȱpartiesȱdiscussedȱ

whatȱFrontierȱreportedȱwereȱsoftwareȱdrivenȱoutagesȱafterȱtheȱtransitionȱfromȱVerizon,ȱ

CaliforniaȱtoȱFrontier.ȱȱRepresentativesȱofȱFrontierȱreportedȱthatȱdialȱtoneȱandȱ9Ȭ1Ȭ1ȱ

outagesȱinȱAprilȱandȱMayȱ2016ȱaffectedȱFiOSȱcustomersȱwhoȱhadȱsubscribedȱtoȱVerizon,ȱ

California.ȱFrontierȱattributedȱtheȱrootȱcauseȱofȱtheȱoutagesȱtoȱcorruptȱdataȱtransferredȱ

fromȱVerizonȱandȱsoftwareȱproblems.106ȱȱAsȱaȱresultȱofȱtheȱcorruptȱorȱmissingȱdata,ȱ

104ȱId.ȱ105ȱId.,ȱatȱ8.ȱ106ȱLongȱBeachȱPPH,ȱTr.,ȱp.ȱ26ȱ(“Thereȱwereȱcodesȱrelatedȱtoȱsomeȱspecificȱtypesȱofȱequipmentȱthatȱwereȱmoreȱproblematic…Andȱourȱsystemȱwasȱdroppingȱoutȱtwoȱorȱthreeȱofȱthoseȱcodes.ȱAndȱthat’sȱwhyȱyouȱwouldȱseeȱaȱsituationȱwhereȱyouȱhadȱaȱcustomerȱthatȱlostȱtheirȱvoiceȱserviceȱbutȱtheirȱTVȱserviceȱandȱtheirȱinternetȱserviceȱwasȱworkingȱperfectlyȱfind.”)ȱ(statementȱofȱMichaelȱGolob,ȱSeniorȱViceȬPresident,ȱFrontier).ȱ


74

issuesȱthatȱresolvedȱthemselvesȱinȱtheȱVerizon,ȱCaliforniaȱdatabase,ȱwereȱnotȱresolvedȱ

inȱtheȱFrontierȱdatabase.107ȱȱȱ

InȱresponseȱtoȱthisȱCommission’sȱrequestȱforȱaȱrootȱcauseȱanalysisȱofȱtheȱoutagesȱ

followingȱtheȱVerizon,ȱCaliforniaȬFrontierȱtransition,ȱFrontierȱexplained,ȱ“(a)fterȱtheȱ

transition,ȱaȱportionȱofȱcustomersȱexperiencedȱVoIPȱvoiceȱandȱInternetȱserviceȱ

interruptions.ȱȱTheȱprincipalȱcauseȱisȱthatȱtheȱdataȱextractsȱprovidedȱbyȱVerizonȱwereȱ

missingȱorȱhadȱincorrectȱitemsȱthatȱwereȱneededȱtoȱbeȱcorrectlyȱprocessedȱbyȱFrontier’sȱ

systems.”108ȱAsȱaȱconsequence,ȱcodesȱthatȱproducedȱaȱcertainȱresultȱinȱtheȱVerizon,ȱ

CaliforniaȱsystemȱdidȱnotȱproduceȱtheȱsameȱresultȱinȱtheȱFrontierȱsystemȱandȱinȱsomeȱ

casesȱledȱtoȱtheȱlossȱofȱservice.109ȱȱ

ThoseȱissuesȱwereȱexacerbatedȱbyȱVerizon,ȱCalifornia’sȱmislabelingȱofȱequipmentȱ

soȱitȱdidn’tȱmatchȱcomputerȱdatabaseȱrecords,ȱextendingȱrepairȱtimes.110ȱȱCustomerȱ

serviceȱissuesȱalsoȱdelayedȱrepairsȱandȱleftȱsomeȱcustomersȱwithoutȱdialȬtoneȱforȱoneȱtoȱ

threeȱweeks.ȱ

FrontierȱstatedȱthatȱcopperȬbased,ȱnonȬVoIPȱcustomersȱdidȱnotȱloseȱtelephoneȱ

serviceȱasȱtheȱproblemsȱstartedȱasȱsoftwareȬdrivenȱissuesȱthatȱaffectedȱtheȱInternetȱ

Protocolȱ(IP)ȱsystemȱwithȱdataȱextractsȱthatȱweren’tȱaccurate.111ȱȱInȱsomeȱcasesȱFrontierȱ

offeredȱtheȱcustomerȱplainȱoldȱtelephoneȱserviceȱ(POTS)ȱtoȱestablishȱdialȱtoneȱwhileȱ

theyȱhadȱtechniciansȱandȱsoftwareȱcodersȱworkȱonȱtheȱsignalingȱfromȱFrontier’sȱfiberȱ

networkȱtoȱtheȱcustomerȱpremisesȱequipment.ȱȱPOTSȱoverȱcopperȱlinesȱwasȱmoreȱ

reliableȱthatȱsomeȱFiOSȱvoiceȱservicesȱinȱtheȱVerizon,ȱCaliforniaȬFrontierȱtransition.ȱ

107ȱSanȱFranciscoȱWorkshop,ȱTr.,ȱp.ȱ210.ȱ108ȱFrontier,ȱRootȱCauseȱAnalysis,ȱACRȱResponse.ȱ109ȱSanȱFranciscoȱWorkshop,ȱTr.,ȱp.ȱ225;ȱLongȱBeachȱPPH,ȱTr.,ȱpp.ȱ23,ȱ26.ȱȱ110ȱSanȱFranciscoȱWorkshop,ȱTr.,ȱp.ȱ211.ȱ111ȱSanȱFranciscoȱWorkshop,ȱTr.,ȱpp.ȱ179,ȱ208;ȱLongȱBeachȱPPH,ȱTr.,ȱp.ȱ178.ȱ


75

MichaelȱGolobȱobservedȱthatȱtheȱFiOSȱnetworkȱwasȱnotȱ“selfȬhealing,”ȱandȱitȱtookȱ

tremendousȱwork,ȱsevenȱdaysȱaȱweek,ȱwithȱanȱallȱhandsȱonȱdeckȱeffortȱtoȱrestoreȱserviceȱ

toȱ“businessȱasȱusual.”ȱȱ

5.1.3.3.3. Service Issues Exacerbated the Outages AtȱtheȱJuneȱ1ȱandȱJuneȱ27ȱWorkshopsȱFrontierȱreportedȱthatȱactionsȱbyȱitsȱcallȱ

centerȱbasedȱoutsideȱtheȱUnitedȱStatesȱcontributedȱtoȱtheȱdelayȱinȱresolvingȱcustomerȱ

outȱofȱserviceȱandȱotherȱcomplaints.ȱFrontierȱtestifiedȱatȱtheȱPPHȱinȱSanȱFranciscoȱandȱ

LongȱBeachȱthatȱtheȱCallȱCenterȱfailedȱtoȱuseȱtheȱcorrectȱcodeȱforȱcomplaints,ȱandȱinȱ

someȱcasesȱdidȱnotȱenterȱserviceȱcallȱappointmentsȱinȱtheȱFrontierȱsystems.112ȱȱ

Frontier’sȱViceȬPresidentȱforȱRegulatoryȱAffairsȱKathleenȱAbernathyȱstatedȱthatȱ

inȱsomeȱcasesȱtheȱoffshoreȱcallȱcenterȱFrontierȱusedȱpostȬtransitionȱfailedȱtoȱbookȱ

customerȱappointments,ȱexplainingȱ“thereȱmightȱbeȱaȱconversationȱwithȱaȱcustomerȱandȱ

theyȱwouldȱbeȱtoldȱthatȱaȱtechnicianȱwouldȱbeȱout,ȱandȱweȱwouldȱhaveȱnoȱrecord.”113ȱ

MichaelȱGolobȱstatedȱtheyȱfoundȱinstancesȱwhereȱfrustratedȱcustomersȱcomplainedȱthatȱ

theyȱbookedȱappointmentsȱwithȱFrontierȱandȱnoȱtechnicianȱshowedȱup.ȱȱHeȱattributedȱ

thisȱtoȱtheȱcallȱcenterȱexplainingȱ“(s)oȱtheyȱwouldȱmakeȱaȱcommitment,ȱbutȱthenȱmaybeȱ

notȱevenȱannotateȱthatȱthey’dȱmadeȱthatȱcommitment.114ȱȱManyȱcustomersȱreportedȱthatȱ

theyȱspentȱanȱhourȱorȱmoreȱonȱtheȱphoneȱtoȱtryȱtoȱgetȱanotherȱappointment,ȱandȱinȱ

someȱcasesȱthatȱappointmentȱwasȱnotȱkept,ȱperhapsȱbecauseȱitȱwasȱnotȱmadeȱbyȱ

112ȱLongȱBeachȱPPH,ȱTr.,ȱp.ȱ44ȱ(customersȱwithȱproblemsȱexperiencedȱfromȱtheȱcustomerȱserviceȱcenterȱ“Longȱholdȱtimes…Unfortunately,ȱdisconnectedȱonceȱtheyȱfoundȱsomeoneȱtoȱtalkȱwithȱthem.ȱNoȱhelp…Passedȱaround.”ȱ(statementȱofȱMelindaȱWhite);ȱ(“Ifȱitȱ[theȱcustomerȱrepairȱrequest]ȱdoesn’tȱgetȱcodedȱcorrectly…thoseȱtroubleȱticketsȱstartȱmovingȱaroundȱuntilȱtheyȱgetȱtoȱtheȱrightȱcenter…Soȱthat’sȱwhatȱalsoȱledȱaȱlittleȱbitȱtoȱtheȱproblem.“ȱ(statementȱofȱMichaelȱGolob).ȱ113ȱSanȱFranciscoȱWorkshop,ȱTr.,ȱp.ȱ228.ȱ114ȱId.,ȱp.ȱ229.ȱ


76

Frontier’sȱcustomerȱcallȱcenter.115ȱȱMs.ȱWhiteȱexplainedȱ“(w)henȱweȱreceiveȱaȱcustomerȱ

escalation,ȱandȱyouȱreceivedȱmany,ȱyouȱcouldȱhardlyȱgetȱtoȱwhatȱwasȱreallyȱwrongȱ

becauseȱcustomersȱwereȱsoȱangryȱandȱfrustratedȱbyȱtheȱfactȱthatȱtheȱcallȱcenterȱ

experienceȱhadȱjustȱbeenȱincrediblyȱdisappointing.”116ȱ

FailureȱtoȱbookȱcustomerȱrepairȱticketsȱandȱappointmentsȱobscuredȱFrontierȱ

management’sȱsituationalȱawarenessȱaboutȱtheȱbreadthȱandȱextentȱofȱtheȱoutageȱ

problems.ȱȱMs.ȱWhiteȱexplainedȱ“inȱfact,ȱweȱhaveȱhadȱmanyȱconversationsȱinternallyȱ[atȱ

Frontier]ȱwhereȱatȱsomeȱlevelȱtheȱvolumeȱofȱtrouble,ȱoutȱofȱserviceȱtroubleȱthatȱweȱ

receivedȱcouldȱhaveȱbeenȱmoreȱmanageableȱhadȱtheȱcallȱcenterȱexperienceȱbeenȱmuchȱ

improved.”117ȱȱFrontier’sȱcustomerȱserviceȱcreatedȱaȱdataȱgapȱsoȱthatȱFrontierȱdidȱnotȱ

understandȱhowȱmanyȱcustomersȱwereȱoutȱofȱserviceȱbasedȱonȱcustomerȱcallsȱandȱ

requestsȱforȱOutȬOfȬServiceȱrepair.ȱ

Frontierȱtestifiedȱthatȱitȱlearnedȱaboutȱtheȱissueȱfromȱsomeȱemailsȱandȱcallsȱthatȱ

reachedȱFrontierȱmanagementȱinȱtheȱUnitedȱStates,ȱandȱopenedȱalternativeȱchannelsȱtoȱ

communicateȱwithȱFrontierȱsuchȱasȱ[email protected].ȱȱSheȱadded,ȱ“we’veȱ

actuallyȱtakenȱinȱthousandsȱofȱcomplaints,ȱoutȱofȱservice,ȱtheȱwholeȱrangeȱofȱreasonsȱ

whyȱcustomersȱwereȱtryingȱtoȱgetȱinȱtouchȱwithȱus.”118ȱȱ

TheȱSanȱFranciscoȱWorkshopȱdiscussedȱwhyȱnetworkȱsystemȱalarmsȱfailedȱtoȱ

informȱFrontierȱaboutȱtheȱextentȱandȱlengthȱofȱtheȱoutageȱissues.ȱȱModernȱ

telecommunicationsȱnetworksȱhaveȱcentralizedȱalarmsȱthatȱindicateȱwhenȱserviceȱisȱlostȱ

toȱlargeȱgroupsȱofȱcustomersȱorȱaȱkeyȱpieceȱofȱequipmentȱhasȱcriticalȱproblemsȱorȱisȱ

performingȱoutȱofȱacceptableȱrange.ȱȱMichaelȱGolobȱexplainedȱaboutȱFrontierȱ“(m)anyȱ

115ȱLongȱBeachȱPPH,ȱTr.,ȱp.ȱ44.ȱȱ116ȱId.,ȱp.ȱ42.ȱ117ȱId.ȱ118ȱLongȱBeachȱPPH,ȱTr.,ȱp.ȱ46.ȱ


77

partsȱofȱourȱnetworkȱareȱproactivelyȱmonitored.ȱWeȱgetȱthousandsȱandȱthousandsȱofȱ

alarmsȱinȱourȱnetworkȱoperationȱcenter…itȱcouldȱbeȱanȱawarenessȱproblemȱorȱtoȱaȱ

serviceȱthatȱisȱdownȱhardȱandȱhasȱtoȱbeȱaddressedȱrightȱaway.”119ȱȱHeȱaddedȱthatȱendȬ

toȬendȱnetworkȱmonitoringȱisȱnotȱfoolproofȱorȱavailableȱforȱeveryȱserviceȱorȱeveryȱline:ȱ

“Weȱcanȱtellȱwhenȱthatȱswitchȱgoesȱout,ȱbutȱweȱcan’tȱtellȱthatȱindividualȱcustomers’ȱoffȱ

orȱthatȱswitchȱuntilȱtheyȱcallȱus,ȱtypically.”120ȱ

AfterȱlearningȱaboutȱtheȱoutagesȱfromȱemailsȱandȱcallsȱtoȱFrontierȱinȱtheȱU.S.,ȱ

Frontierȱthenȱshiftedȱitsȱfocusȱtoȱserviceȱrestoration.ȱȱFrontierȱestablishedȱcommandȱ

centersȱtoȱdispatchȱtechnician/personnel.ȱȱItȱsetȱupȱseparateȱ800ȱnumbersȱforȱresidentialȱ

andȱbusinessȱcustomers.ȱȱFrontierȱenabledȱaȱ‘liveȱchat”ȱchannelȱonȱFrontier’sȱContactȱUsȱ

website.ȱFrontierȱrepresentativesȱattendedȱmeetingsȱwithȱLocalȱAgencies,ȱlegislators,ȱ

andȱtheȱpublic.ȱFrontierȱparticipatedȱinȱCPUCȱWorkshopsȱandȱPPHsȱinȱthisȱproceedingȱ

inȱSanȱFranciscoȱandȱLongȱBeach.ȱȱFrontierȱWesternȱRegionȱPresidentȱMelindaȱWhiteȱ

testifiedȱbeforeȱanȱAssemblyȱHearingȱonȱtheȱpostȬtransitionȱissues.ȱ

5.1.3.3.4. Mislabeling of Customer Premises Equipment by Verizon, California so it Did not Match Computer Records Delayed Service Restoration

ȱ Anotherȱfactorȱthatȱexacerbatedȱtheȱoutagesȱandȱextendedȱtheȱdifficultyȱofȱfixingȱ

themȱwasȱerrorsȱinȱVerizon,ȱCalifornia’sȱrecordsȱthatȱmadeȱitȱmoreȱdifficultȱtoȱexecuteȱ

softwareȱrepairȱcommands.ȱȱMichaelȱGolobȱalsoȱexplainedȱthatȱinaccurateȱCustomerȱ

PremiseȱEquipmentȱ(CPE)ȱrecordsȱforȱcertainȱVoIPȱequipmentȱVerizon,ȱCaliforniaȱusedȱ

compoundedȱtheȱoutageȱproblems.ȱȱ“ThatȱwasȱaȱmismatchȱbetweenȱtheȱONTȱ[Opticalȱ

NetworkȱTerminal]ȱserialȱnumbersȱandȱwhatȱwasȱinȱtheȱrecord.”121ȱȱMs.ȱWhiteȱstatedȱ

thatȱinȱLongȱBeachȱwhereȱmanyȱoutagesȱwereȱconcentrated,ȱ“theȱMotorolaȱnetworkȱ 119ȱSanȱFranciscoȱWorkshop,ȱTr.,ȱp.ȱ269.ȱ120ȱId.,ȱp.ȱ270.ȱ121ȱLongȱBeachȱPPH,ȱTr.,ȱp.ȱ29.ȱ


78

terminalȱserialȱnumberȱpiece”ȱcontributedȱtoȱoutages.ȱȱMr.ȱGolobȱaddedȱthatȱvariousȱ

issuesȱ“dovetailedȱtogether”ȱandȱthatȱ“oneȱcompoundedȱonȱtheȱother,ȱandȱthen,ȱyouȱ

know,ȱyou’reȱgoingȱtoȱaskȱaboutȱtheȱtrainingȱissue.ȱAndȱtheȱtrainingȱissueȱcompoundedȱ

onȱthat.”122ȱȱ

ȱ Mr.ȱGolobȱexpressedȱhisȱopinionȱthatȱsuchȱrecordsȱmismatchesȱsometimesȱoccurȱ

becauseȱ“(s)omeoneȱwillȱfixȱthatȱcustomer,ȱbutȱtheyȱdon’tȱnecessarilyȱupdateȱtheȱrecord.ȱȱ

Soȱtheȱcustomerȱisȱworkingȱfind.”ȱȱLater,ȱtheȱcustomerȱhasȱanȱoutageȱandȱwhenȱyouȱtryȱ

toȱputȱthemȱbackȱinȱserviceȱ“theȱrecordȱdon’tȱmatch.”123ȱ

ȱ TheȱdataȱlabelingȱissuesȱwereȱcompoundedȱbyȱtheȱchallengesȱFrontierȱfacedȱinȱ

managingȱtheȱnewȱsystemȱandȱmakingȱcodesȱrespondȱtoȱgenerateȱrepairs.ȱȱFrontierȱ

explainedȱthatȱitȱrealizedȱinȱFebruaryȱ2016ȱthatȱitȱneededȱtoȱbuyȱfromȱVerizon,ȱ

CaliforniaȱaffiliatesȱsomeȱVerizonȱcorporateȱintellectualȱpropertyȱ(IP)ȱthatȱhadȱbeenȱ

excludedȱfromȱtheȱVerizon,ȱCaliforniaȬFrontierȱtransaction,ȱasȱeffortsȱtoȱreplicateȱthatȱIPȱ

wereȱnotȱgeneratingȱproperȱnetworkȱperformance.124ȱȱFrontierȱ“hadȱtoȱfigureȱout,ȱfromȱ

thatȱintellectualȱproperty,ȱhowȱdoȱweȱapplyȱitȱtoȱourȱbackȬofficeȱsystems?ȱBecauseȱitȱwasȱ

totallyȱdifferent.ȱȱWeȱcouldn’tȱjustȱtakeȱthatȱpropertyȱandȱkingȱofȱplugȱitȱin.”125ȱȱFrontierȱ

realizedȱthatȱsomeȱ“bugȱfixes”ȱweren’tȱinitiallyȱworkingȱuntilȱtheyȱrealizeȱ“Oh,ȱ

MotorolaȱONTsȱwantȱtoȱseeȱtheȱdataȱinȱthisȱformatȱorȱoffȱofȱthisȱport.ȱȱSoȱweȱgoȱintoȱtheȱ

nightȱandȱmakeȱtheȱchangesȱgoingȱforward,”ȱandȱ“theȱnextȱdayȱitȱworkedȱfine.”126ȱ

ȱ Thisȱconfluenceȱofȱissues,ȱVerizon,ȱCalifornia’sȱlabelingȱpractices,ȱintellectualȱ

propertyȱnotȱincludedȱinȱtheȱtransactionȱthatȱFrontierȱrealizedȱafterȱcloseȱwasȱcriticalȱtoȱ

122ȱId.,ȱp.ȱ29.ȱ123ȱId.,ȱp.ȱ30Ȭ31.ȱ124ȱSanȱFranciscoȱWorkshop,ȱTr.,ȱp.ȱ218.ȱ125ȱId.,ȱp.ȱ224.ȱ126ȱId.,ȱp.ȱ225.ȱ


79

networkȱfunctioning,ȱintegrationȱofȱthatȱsoftware,ȱtraining,ȱandȱcustomerȱservice,ȱallȱ

contributedȱtoȱoutages.ȱȱTheseȱareȱfactorsȱtheȱCommissionȱshouldȱconsiderȱasȱitȱupdatesȱ

guidelinesȱforȱmergerȱandȱtransferȱconditionsȱasȱdiscussedȱbelow.ȱȱInȱaddition,ȱCPEDȱ

shouldȱexamineȱtheseȱandȱotherȱissuesȱdescribedȱhereinȱtoȱdetermineȱwhetherȱanȱ

adjudicatoryȱOIIȱshouldȱbeȱbroughtȱinȱlightȱofȱtheȱoutages,ȱtheirȱcauses,ȱandȱFrontier’sȱ

actionsȱinȱresponseȱtoȱtheȱoutages.ȱȱ

5.1.3.3.5. Comments about Commission Action to Address Frontier Post-TransitionȱDialȬtoneȱandȱ911ȱOutagesȱ

TheȱSeptemberȱ9ȱACRȱaskedȱwhatȱadditionalȱstepsȱshouldȱtheȱCommissionȱtakeȱ

regardingȱtheȱFrontierȱoutagesȱofȱAprilȬMayȱ2016.ȱTheȱACRȱaskedȱwhetherȱtheȱFrontierȱ

outagesȱviolateȱCommissionȱrulesȱandȱifȱsoȱwhichȱones,ȱandȱwhatȱshouldȱtheȱ

Commissionȱdoȱinȱresponse.ȱȱTheȱACRȱasked:ȱȱDidȱtheȱFrontierȱoutagesȱfollowingȱtheȱ

Verizon,ȱCaliforniaȱtransitionȱreflectȱanyȱnonȬcomplianceȱbyȱeitherȱFrontierȱorȱVerizon,ȱ

CaliforniaȱwithȱtheȱCommission’sȱorderȱapprovingȱtheȱtransaction,ȱincludingȱtheȱ

settlements?ȱȱWhatȱreporting,ȱcoordination,ȱorȱotherȱstepsȱshouldȱbeȱrequiredȱtoȱidentifyȱ

andȱaddressȱsoftwareȬdrivenȱoutagesȱaffectingȱdialȱtoneȱandȱaccessȱtoȱPSAPsȱbyȱ

residential,ȱbusinessȱandȱpublicȱsafetyȱduringȱemergencies?ȱȱWhatȱlessonsȱfromȱtheȱ

transitionȱissuesȱmightȱtheȱCommissionȱapplyȱtoȱtheȱconsiderationȱofȱotherȱtransferȱorȱ

mergerȱapplications?ȱ

TheȱMayȱ9ȱACRȱalsoȱaskedȱ“WhatȱactionsȱshouldȱtheȱCommissionȱtakeȱtoȱ

addressȱtheȱactionsȱregardingȱFrontier’sȱcallȱcenterȱandȱtheȱroleȱitȱplayedȱinȱdelayingȱ

restorationȱofȱcustomerȱserviceȱorȱknowledgeȱofȱcustomerȱproblems?ȱWhatȱlessonsȱfromȱ

theȱcallȱcenterȱdifficultiesȱwithȱFrontierȱmightȱtheȱCommissionȱapplyȱtoȱotherȱ

companies?“ȱ

Inȱresponse,ȱTURNȱcommentedȱthatȱ“theȱCommissionȱshouldȱlookȱtoȱtheȱ

resultingȱCommissionȱFinalȱDecisionȱandȱsettlementȱagreementsȱadoptedȱinȱthatȱ

proceeding,ȱasȱwellȱasȱexistingȱCaliforniaȱstatutes,ȱrulesȱandȱordersȱtoȱdetermineȱifȱtheȱ


80

widespreadȱandȱsignificantȱoutagesȱthatȱoccurredȱduringȱtheȱtransitionȱconstituteȱaȱ

violationȱthatȱmustȱbeȱaddressed.ȱTURNȱexpressȱconcernȱaboutȱFrontier’sȱserviceȱthatȱ

exacerbatedȱtheȱoutageȱandȱextendedȱtheȱtimeȱforȱserviceȱrestoration:ȱ“Whenȱtheȱ

consumerȱattemptedȱtoȱcontactȱtheȱFrontierȱcallȱcenterȱforȱsupport,ȱconsumersȱwereȱmetȱ

withȱadditionalȱfrustrationȱandȱdelays:ȱlongȱwaitȱtimes,ȱdisconnectedȱcallsȱwithȱ

representatives,ȱnoȱhelpȱreceived,ȱhadȱtoȱspeakȱtoȱmultipleȱrepresentatives,ȱandȱwaitedȱ

forȱappointmentȱbutȱtheȱtechniciansȱdidȱnotȱshow.127ȱFrontierȱrepairȱpersonnelȱcouldȱnotȱ

repairȱproblemsȱifȱtheyȱwereȱnotȱproperlyȱinformedȱthereȱwasȱaȱserviceȱproblem.ȱȱTheȱ

lackȱofȱqualityȱcustomerȱserviceȱresultedȱinȱmiscommunicationsȱandȱfurtherȱdelays.”128ȱȱȱ

TURNȱ“urge[d]ȱtheȱCommissionȱtoȱconductȱfurtherȱinvestigationȱintoȱbothȱtheȱ

causeȱofȱtheȱoutagesȱandȱtheȱadequacyȱofȱFrontier’sȱresponse.ȱȱThisȱinvestigationȱshouldȱ

notȱonlyȱbeȱusedȱtoȱdetermineȱifȱthereȱwereȱruleȱviolationsȱbyȱeitherȱofȱtheȱmergingȱ

companies,ȱbutȱalsoȱtoȱinformȱanȱeffortȱtoȱcreateȱaȱmergerȱreviewȱtransitionȱplan.”129ȱȱ

FrontierȱstressedȱthatȱitȱhasȱcooperatedȱwithȱtheȱCommission’sȱOII.ȱȱFrontierȱ

emphasizedȱthatȱitȱworkedȱtoȱrestoreȱcustomersȱwhoȱwereȱoutȱofȱservice,ȱandȱtoȱreturnȱ

toȱBusinessȱasȱUsualȱ(BAU)ȱserviceȱstatusȱwithȱnormalȱlevelsȱofȱanticipatedȱrepairȱ

requests.ȱȱ

6. Referral to Consumer Protection and Enforcement Division Inȱlightȱofȱtheȱissuesȱandȱpartyȱcommentsȱdiscussedȱabove,ȱandȱinȱconsiderationȱ

ofȱtheȱresponsesȱtoȱtheȱdataȱrequestsȱandȱresponsesȱtoȱACRsȱweȱissuedȱinȱthisȱ

proceeding,ȱweȱdirectȱCPEDȱtoȱinvestigateȱtheȱpostȬtransitionȱoutageȱissuesȱraisedȱbyȱ

theȱdialȬtoneȱoutagesȱandȱ9Ȭ1Ȭ1ȱaccessȱissuesȱfollowingȱtheȱtransferȱofȱVerizon,ȱ

CaliforniaȱtoȱFrontier.ȱȱCPEDȱshallȱanalyzeȱtheȱparties’ȱtraining,ȱcoordination,ȱandȱdataȱ

127ȱTURN,ȱACRȱComments,ȱp.ȱ22.ȱ128ȱTURN,ȱACRȱComments,ȱp.ȱ17.ȱ129ȱTURNȱACRȱComments,ȱpp.ȱ21,ȱ21Ȭ28.ȱ


81

transfer,ȱandȱtheȱissuesȱthatȱledȱtoȱmissing/corrupt/orȱincompatibleȱdataȱincludingȱtheȱ

VerizonȱIPȱFrontierȱlicensedȱinȱFebruaryȱ2016.ȱȱȱ

CPEDȱshallȱanalyzeȱtheȱstepsȱVerizon,ȱCaliforniaȱandȱFrontierȱtookȱtoȱenableȱtheȱ

cutoverȱofȱserviceȱfromȱVerizon,ȱCaliforniaȱtoȱFrontier.ȱȱCPEDȱshallȱanalyzeȱtheȱ

complianceȱofȱFrontier,ȱCaliforniaȱandȱVerizon,ȱCaliforniaȱwithȱtheȱtermsȱofȱthisȱ

Commission’sȱDecisionȱapprovingȱtheȱtransferȱasȱthoseȱtermsȱareȱrelevantȱtoȱtheȱpostȬ

transitionȱoutageȱissues.ȱȱ

CPEDȱshallȱalsoȱexamineȱFrontier’sȱserviceȱissuesȱincludingȱthoseȱthatȱledȱtoȱ

appointmentsȱnotȱbeingȱbookedȱforȱserviceȱtechnicians,ȱduringȱtheȱperiodȱfollowingȱtheȱ

Verizon,ȱCaliforniaȱȬFrontierȱtransitionȱinȱAprilȱ2016.ȱȱCPEDȱshallȱexamineȱFrontierȱ

management’sȱlackȱofȱsituationalȱawarenessȱaboutȱtheȱextentȱofȱtheȱserviceȱoutages,ȱandȱ

stepsȱthatȱcouldȱhaveȱbeenȱtakenȱtoȱincreaseȱawareness.ȱCPEDȱwillȱexamineȱwhetherȱ

centralizedȱalarmsȱinȱFrontier’sȱnetworksȱshouldȱhaveȱalertedȱthemȱtoȱtheȱbreadthȱofȱtheȱ

outages,ȱandȱifȱalarmsȱdidȱnotȱsoundȱanalyzeȱwhyȱalarmȱsystemsȱwereȱineffective,ȱorȱ

notȱavailableȱatȱtheȱcustomerȬoutageȱlevel.ȱȱCPEDȱshallȱexamineȱwhatȱnoticeȱFrontierȱ

gaveȱtoȱtheȱCommission,ȱpublicȱsafety,ȱcustomers,ȱandȱtheȱpublicȱaboutȱtheȱoutagesȱandȱ

customerȱoptionsȱforȱreachingȱ9Ȭ1Ȭ1ȱduringȱtheirȱoutages.ȱCPEDȱmayȱuseȱtheȱmaterialsȱ

foundȱinȱthisȱOIIȱincludingȱCD’sȱdataȱrequests,ȱasȱwellȱasȱconductȱitsȱownȱinvestigationȱ

toȱdetermineȱwhetherȱtoȱbringȱaȱadjudicatoryȱOIIȱagainstȱFrontier.ȱ

Individualȱcustomersȱmayȱsubmitȱinformalȱcomplaintsȱaboutȱindividualȱoutagesȱ

andȱissuesȱinȱserviceȱrestorationȱtoȱtheȱCommission’sȱConsumerȱAffairsȱBranch,ȱinȱ

additionȱtoȱcontactingȱtheirȱcarrier.ȱȱConsumersȱmayȱalsoȱbringȱaȱformalȱcomplaintȱtoȱbeȱ

adjudicatedȱthroughȱtheȱCommission’sȱprocess.ȱȱȱ


82

7. Merger and Transfer Recommendations for Maintaining Safe, Reliable Service and Preventing Dial-tone and 9-1-1 Outages 7.1. Comments on Merger and Transfer Analysis Policy

Recommendations TURNȱrecommendedȱthatȱ“forȱfutureȱtransfers,ȱtheȱCommissionȱshouldȱsetȱ

customerȱserviceȱrequirementsȱandȱrequireȱaȱcustomerȱserviceȱtrainingȱplanȱwhichȱisȱ

implementedȱpriorȱtoȱtheȱtransfer.ȱȱTheseȱrequirementsȱandȱtrainingȱplansȱwillȱbenefitȱ

theȱconsumerȱandȱgoȱaȱlongȱwayȱtoȱensuringȱthatȱtheyȱreceiveȱqualityȱserviceȱasȱisȱ

requiredȱbyȱCaliforniaȱlawȱandȱCPUCȱgeneralȱorders,ȱandȱwillȱbenefitȱtheȱbuyingȱcarrierȱ

toȱreceiveȱcomplete,ȱaccurate,ȱandȱtimelyȱinformationȱaboutȱwereȱserviceȱproblemȱ

exist.”ȱMoreover,ȱTURNȱurgesȱtheȱCommissionȱtoȱuseȱtheȱpostȬtransitionȱdataȱandȱ

recordȱdevelopedȱthroughȱtheseȱworkshops,ȱdataȱrequestȱresponses,ȱandȱreports,ȱtoȱ

developȱaȱpolicyȱandȱmonitoringȱprogramȱthatȱfocusesȱonȱtheȱoperationalȱissuesȱofȱtheȱ

transitionȱperiodȱasȱpartȱofȱitsȱmergerȱreviewȱproceedings.”130ȱȱ

TURNȱaddedȱ“Moreover,ȱthisȱexperienceȱdemonstratesȱthatȱtheȱCommissionȱ

shouldȱhaveȱdirectȱandȱclearȱlinesȱofȱcommunicationȱwithȱserviceȱprovidersȱandȱ

emergencyȱservicesȱpersonnelȱsoȱthatȱallȱstakeholdersȱcanȱreceiveȱrealȬtimeȱnoticesȱofȱ

outagesȱandȱsignificantȱserviceȱdegradation.ȱȱThisȱisȱespeciallyȱimportantȱduringȱcriticalȱ

operationsȱsuchȱasȱaȱmergerȱtransitionȱorȱotherȱtypesȱofȱ“flashȬcut”ȱoperationsȱwhereȱ

outagesȱandȱservicesȱproblemsȱmayȱgoȱbeyondȱ“businessȱasȱusual”ȱimpacts.”ȱȱAsȱ

discussedȱbelow,ȱTURNȱrecommendsȱthatȱasȱpartȱofȱtheȱmergerȱreviewȱandȱapprovalȱ

process,ȱtheȱCommissionȱinstigateȱaȱspecificȱoperationsȱprotocolȱtoȱrequireȱreportingȱofȱ

serviceȱimpactsȱduringȱaȱwindowȱofȱtimeȱthatȱincludesȱtheȱtransitionȱdate.”ȱ

TURNȱemphasizedȱthatȱtheȱchangingȱtechnologicalȱnatureȱofȱcommunicationsȱ

networksȱshouldȱwidenȱtheȱCommission’sȱfocusȱwhenȱanalyzingȱproposedȱmergersȱandȱ

130ȱTURNȱACRȱComments.ȱ


83

transfersȱandȱtheirȱeffectȱonȱserviceȱtoȱCalifornians.ȱȱTURNȱobserved:ȱ“Historically,ȱtheȱ

Commission’sȱmergerȱanalysisȱlookedȱatȱtheȱtechnicalȱandȱoperationalȱaspectsȱofȱaȱ

mergerȱtransactionȱthroughȱtheȱphysicalȱnetwork,ȱplant,ȱequipmentȱandȱemployees.ȱȱ

TheȱincreasedȱrelianceȱonȱIPȱenabledȱandȱVOIPȱtechnologyȱsuggestsȱthatȱtheȱ

Commissionȱshouldȱaddȱanȱelementȱtoȱtheȱmergerȱreviewȱprocessȱthatȱfocusesȱonȱtheȱ

softwareȱandȱdigitalȱtechnologyȱusedȱtoȱofferȱcriticalȱvoiceȱandȱinternetȱrelatedȱservicesȱ

toȱmillionsȱofȱresidentialȱconsumers.ȱȱTURNȱurgesȱtheȱCommissionȱtoȱrecognizeȱthatȱforȱ

impactedȱcustomersȱtheseȱoutagesȱareȱessentiallyȱ“technologyȱneutral.”ȱȱTheȱfactȱthatȱ

thereȱisȱnoȱdialȱtoneȱandȱpotentiallyȱnoȱaccessȱtoȱcriticalȱservicesȱfromȱtheirȱphoneȱlineȱisȱ

muchȱmoreȱimportantȱthanȱwhetherȱthatȱphoneȱlineȱisȱcopperȱorȱfiberȱandȱtheȱ

jurisdictionalȱandȱlegalȱissuesȱthatȱhaveȱbeenȱdebatedȱbeforeȱthisȱCommission.ȱȱItȱisȱ

criticalȱthatȱthisȱCommissionȱproactivelyȱseeksȱoutȱandȱenforcesȱitsȱauthorityȱtoȱmonitor,ȱ

investigateȱandȱmaintainȱtheȱserviceȱqualityȱandȱbusinessȱpracticesȱofȱcommunicationsȱ

serviceȱproviders.”ȱ

TURNȱrecommendedȱthatȱ“theȱCommissionȱshouldȱsetȱcustomerȱserviceȱ

requirementsȱandȱrequireȱaȱcustomerȱserviceȱtrainingȱplanȱwhichȱisȱimplementedȱpriorȱ

toȱtheȱtransfer.”131ȱȱ“TURNȱrecommendsȱthatȱasȱpartȱofȱtheȱmergerȱreviewȱandȱapprovalȱ

process,ȱtheȱCommissionȱinstigateȱaȱspecificȱoperationsȱprotocolȱtoȱrequireȱreportingȱofȱ

serviceȱimpactsȱduringȱaȱwindowȱofȱtimeȱthatȱincludesȱtheȱtransitionȱdate.”132ȱȱ

7.2. Directive to Communications Division to Develop Merger and Transfer Analysis Policy Recommendations to Protect Safe and Reliable Service

WeȱdirectȱCommunicationsȱDivisionȱtoȱdevelopȱmerger/transferȱguidanceȱforȱ

CommissionȱconsiderationȱinȱfutureȱtransactionsȱthroughȱPhaseȱIIȱofȱthisȱproceeding.ȱ

131ȱTURNȱACRȱComments,ȱp.ȱ17.ȱ132ȱId.,ȱp.ȱ18.ȱ


84

Weȱhighlightȱtheȱnecessityȱinȱfutureȱmergerȱorȱtransferȱproceedingsȱforȱtheȱcommissionȱ

toȱconsiderȱtheȱroleȱofȱcustomerȱserviceȱandȱifȱnecessary,ȱtoȱrequireȱcarriersȱtoȱsubmitȱ

plansȱforȱcustomerȱservice,ȱtraining,ȱandȱserviceȱprocessȱasȱaȱpartȱofȱtheȱrecord.ȱȱTheseȱ

considerationsȱmightȱbeȱatȱtheȱforefrontȱofȱfutureȱmergers,ȱorȱotherȱcriteriaȱmightȱ

emergeȱwhichȱalsoȱprovesȱhelpfulȱtoȱtheȱevaluationȱofȱ851/854ȱcriteria.ȱCommunicationsȱ

DivisionȱshallȱconveneȱaȱWorkingȱGroupȱtoȱdiscussȱmerger/transferȱguidanceȱtoȱensureȱ

safe,ȱreliableȱservice,ȱandȱpreventȱserviceȱinterruptions.ȱȱTheȱCommissionȱshallȱconsiderȱ

theseȱguidelinesȱinȱaȱresolutionȱorȱPhaseȱIIȱofȱtheȱOII.ȱȱ

AtȱtheȱCommission’sȱJuneȱ1ȱandȱJuneȱ27ȱSanȱFranciscoȱworkshops,ȱ

CommissionerȱSandovalȱnotedȱthatȱstateȱcommissionsȱmayȱhaveȱlegalȱauthorityȱunderȱ

theȱstateȱactionȱantitrustȱdoctrineȱtoȱsuperviseȱaȱtransitionȱtoȱensureȱthatȱtheȱpartiesȱareȱ

wellȱpositionedȱtoȱprovideȱsafeȱandȱreliableȱservice.ȱTURNȱsupportsȱtheȱCommission’sȱ

exerciseȱofȱthisȱauthorityȱpursuantȱtoȱtheȱ“stateȱaction”ȱdoctrineȱunderȱaȱSupremeȱCourtȱ

decisionȱofȱFederalȱTradeȱCommissionȱv.ȱPhoebeȱPutneyȱHealthȱSystem.ȱExerciseȱofȱstateȱ

actionȱmustȱbeȱbasedȱonȱaȱstateȱstatuteȱthatȱdisplacesȱcompetitionȱinȱfavorȱofȱregulation,ȱ

andȱstateȱsupervisionȱofȱtheȱcoordinatedȱactivities.ȱTURNȱarguesȱthatȱbyȱrelyingȱonȱtheȱ

stateȱactionȱdoctrine,ȱtheȱCommissionȱcouldȱhaveȱrequiredȱthatȱVerizon,ȱCaliforniaȱandȱ

Frontierȱprovideȱadditionalȱinformation.ȱȱ

FrontierȱexecutivesȱhadȱlimitedȱopportunitiesȱtoȱtrainȱVerizon,ȱCaliforniaȱ

workersȱpriorȱtoȱtheȱtransitionȱfromȱoneȱcompanyȱtoȱtheȱother,ȱandȱplannedȱtoȱstartȱ

mostȱofȱtheirȱtrainingȱonȱtheȱfirstȱdayȱfollowingȱtheȱtransition.ȱȱThisȱplanȱwasȱgreatlyȱ

acceleratedȱbyȱtheȱoutagesȱwhichȱcausedȱanȱallȬhandsȬonȬdeckȱdeployment.ȱȱWeȱdirectȱ

CommunicationsȱDivisionȱtoȱdevelopȱguidelinesȱwhichȱevaluateȱoptionsȱforȱworkerȱ

trainingȱandȱpartyȱcoordinationȱpriorȱtoȱaȱtransferȱofȱcustomers.ȱȱ

CommunicationsȱDivisionȱshallȱcoordinateȱwithȱtheȱDivisionȱtoȱanalyzeȱwhetherȱ

supervisionȱofȱcarrierȱcoordinationȱfollowingȱCommissionȱapprovalȱofȱaȱtransactionȱandȱ

priorȱtoȱclosingȱisȱpermissibleȱunderȱtheȱstateȱactionȱdoctrine.ȱȱCommunicationsȱ


85

Divisionȱshallȱdevelopȱandȱrecommendȱguidelinesȱtoȱensureȱthatȱtransfersȱorȱmergersȱ

doȱnotȱcompriseȱreliability.ȱȱTheseȱguidelinesȱmayȱalsoȱincludeȱexplorationȱofȱtheȱroleȱofȱ

theȱseller’sȱintellectualȱpropertyȱorȱotherȱassetsȱinȱrunningȱtheȱnetworkȱtoȱbeȱtransferredȱ

orȱmergedȱasȱIPȱisȱcriticalȱinȱsoftwareȬdrivenȱnetworks.ȱ

7.3. Facility-driven outages, Compounded by Service Issues 7.3.1. Maintenance/Repair issues 7.3.1.1. Maintenance and Facility Issues Raised in this OII that Affect

Call Completion, Dial tone and 9-1-1 Outages Whileȱgatheringȱinformationȱaboutȱcallȱcompletionȱfailures,ȱdialȱtone,ȱandȱ9Ȭ1Ȭ1ȱ

outages,ȱweȱreceivedȱcommentsȱaboutȱfacilitiesȬdrivenȱoutagesȱandȱpoorȱmaintenanceȱ

ofȱpoles,ȱwires,ȱandȱfacilitiesȱassociatedȱwithȱserviceȱdeteriorationȱorȱoutages.133ȱȱ

TuolumneȱCountyȱDeputyȱSheriffȱsaid:ȱȱ

“AsȱIȱdriveȱaroundȱtheȱcountyȱIȱseeȱphoneȱlinesȱtiedȱtoȱtreesȱthatȱareȱrunningȱtoȱhouses.ȱȱThisȱcausesȱmeȱconcern,ȱbecauseȱwithȱdroughtȱgoingȱonȱandȱtheȱamountȱofȱtrees,ȱthoseȱtreesȱ–ȱinȱfact,ȱmyȱneighborȱhadȱaȱtreeȱfallȱoverȱtwoȱdaysȱagoȱandȱtookȱoutȱtheȱpowerȱline.ȱȱSoȱifȱtreesȱcontinueȱtoȱfall,ȱweȱseeȱphoneȱlinesȱgoingȱdown,ȱandȱpeopleȱthatȱliveȱbeyondȱthatȱaren’tȱableȱtoȱcontractȱus.”134ȱ

WeȱreceivedȱreportsȱofȱpracticesȱinconsistentȱwithȱGeneralȱOrderȱ95ȱsuchȱasȱ

attachingȱtelephoneȱlinesȱtoȱtreesȱincludingȱaȱdeadȱtrees,ȱusingȱmetalȱfastenersȱtoȱdrillȱ

intoȱtreesȱandȱhangȱlines,ȱinȱSonoma,ȱTuolumne,ȱandȱSantaȱCruzȱCounty,ȱandȱinȱoneȱ

caseȱinȱSantaȱCruzȱCounty,ȱtyingȱaȱlineȱtoȱaȱtreeȱwithȱrope.135ȱȱWeȱreceivedȱcommentsȱ

133ȱSantaȱCruzȱPPH,ȱTr.,;ȱGuernevilleȱPPH,ȱTr.ȱpp.ȱ778,ȱ787,ȱ795;ȱSanȱAndreasȱPPH,ȱTr.,ȱp.ȱ326;ȱUkiahȱPPH,ȱTr.ȱpp.ȱ448Ȭ449;ȱEurekaȱPPH,ȱpp.ȱ646Ȭ649ȱ(statementȱofȱSeanȱMcLaughlinȱaboutȱrepairȱtoȱhisȱneighbor’sȱlineȱafterȱheȱcalledȱandȱ“sheȱjustȱfotȱaȱlittleȱ“bip”ȱonȱherȱphone,ȱandȱthenȱitȱwasȱdead,”ȱandȱthenȱ“ourȱphoneȱwasn’tȱworking,”ȱandȱconcludingȱ“weȱclearlyȱneedȱtoȱhaveȱbasicȱmaintenanceȱandȱbasicȱinfrastructureȱmaintained,ȱbasicȱfunctionalityȱacrossȱtheȱ[technology]ȱtransition.”;ȱMiddletownȱPPHȱTr.,ȱpp.ȱ893,ȱ896ȱ(phoneȱlineȱ“soundsȱlikeȱcrackingȱallȱtheȱtime,”ȱ“onȱtheȱ[Middletown]ȱRancheriaȱthereȱareȱaȱfewȱ[phoneȱlines]ȱpostedȱonȱtrees”.ȱ134ȱSanȱAndreasȱPPH,ȱTr.,ȱp.ȱ326.ȱ135ȱSantaȱCruzȱPPH,ȱTr.ȱp.ȱ922,ȱp.ȱ982;ȱGuernevilleȱPPH,ȱTr.ȱpp.ȱ742,ȱ770Ȭ771,ȱ774,ȱ796;ȱMiddletownȱPPH,ȱTr.,ȱp.ȱ896;ȱSanȱAndreasȱPPH,ȱTr.,ȱp.ȱ326;ȱUkiahȱPPH,ȱTr.ȱpp.ȱ536Ȭ538;ȱTURNȱ



86

aboutȱlackȱofȱvegetationȱmanagementȱrequiredȱbyȱGOȱ95,ȱandȱtheȱdangerȱofȱsuchȱ

neglectȱinȱlightȱofȱtheȱtreeȱmortalityȱepidemicȱassociatedȱwithȱtheȱdrought,ȱtheȱbarkȱ

beetleȱinvasion,ȱsuddenȱoakȱdeath,ȱandȱotherȱthreats.136ȱȱȱ

TURNȱnotedȱthatȱ“(s)peakersȱatȱseveralȱPPHsȱreportedȱsituationsȱwhereȱoutsideȱ

plantȱwasȱimproperlyȱmaintainedȱincludingȱbrokenȱorȱleaningȱpoles,ȱwiresȱeitherȱdownȱ

orȱveryȱlowȱandȱinȱvegetation,ȱlinesȱbeingȱattachedȱtoȱtrees,ȱandȱotherȱexamples.”137ȱȱ

Theseȱexamplesȱofȱimproperȱmaintenanceȱwereȱoftenȱassociatedȱwithȱserviceȱthatȱwasȱ

poor,ȱintermittent,ȱorȱout.ȱȱȱ

TURNȱdiscussedȱphotographsȱsubmittedȱintoȱtheȱrecordȱofȱthisȱOIIȱofȱ“Eureka,ȱ

California,ȱIntersectionȱofȱGlenȱandȱHarrisȱSt.ȱBrokenȱPoleȱwithȱtheȱbottomȱhalfȱmissing,ȱ

strappedȱtoȱaȱ4x4ȱpostȱandȱalsoȱstrappedȱtoȱanȱadjacentȱpole.ȱPhotoȱbyȱShellyȱKonopa,ȱ

takenȱJulyȱ18,ȱ2016.ȱTheȱpoleȱhasȱaȱyellowȱtagȱindicatingȱthatȱitȱshouldȱhaveȱbeenȱ

replacedȱinȱJanuary,ȱ2015.”138ȱȱȱ

SeveralȱexamplesȱwereȱsubmittedȱinȱthisȱOIIȱofȱpolesȱthatȱhadȱbeenȱtaggedȱ“doȱ

notȱclimb,”ȱbutȱwereȱnotȱrepaired,ȱorȱthatȱhadȱbeenȱmarkedȱforȱremovalȱbutȱstillȱstood.ȱȱ

TheȱphotoȱMs.ȱKonopaȱtookȱasȱdescribedȱbyȱMs.ȱCostaȱisȱofȱaȱpoleȱthatȱisȱeffectivelyȱaȱ

“peg,”ȱaȱportionȱofȱaȱpoleȱheldȱinȱplaceȱbyȱstrapsȱtoȱanotherȱpoleȱandȱaȱthinȱbrace,ȱaȱ

practiceȱknownȱasȱaȱ“buddyȱpole.”ȱItȱisȱnotȱclearȱwhyȱsuchȱ“buddyȱpoles”ȱareȱcreated.ȱȱ

Didȱtheȱelectricȱcompanyȱwantȱtoȱmoveȱitsȱfacilitiesȱtoȱaȱnewȱpoleȱasȱitsȱfacilitiesȱwereȱ

onȱaȱjointȱuseȱpoleȱwithȱtelecommunicationsȱandȱcableȱproviders?ȱȱDidȱtheȱ

communicationsȱprovidersȱcooperateȱinȱmovingȱfacilitiesȱtoȱtheȱnewȱpole?ȱȱIfȱtheyȱdidȱ

ACRȱComments,ȱp.ȱ9,ȱAttachmentȱ3ȱ(PictureȱtakenȱbyȱMichaelȱNicholls,ȱAugustȱ23,ȱ2016,ȱ12:11ȱp.m.ȱPhoneȱlineȱattachedȱtoȱdiseasedȱtree.ȱ(AT&Tȱplant).”ȱ136ȱSanȱAndreas,ȱTr.,ȱpg.ȱ326;ȱȱ137ȱTURNȱACRȱComments,ȱp.ȱ9.ȱ138ȱGuernville,ȱTR.ȱ677Ȭ678,ȱAttachmentȱ1ȱȬȱKonopaȱPictures.ȱ


87

notȱcooperate,ȱdidȱtheȱelectricȱutilityȱcreateȱtheȱPEGȱbyȱmovingȱitsȱfacilitiesȱandȱleavingȱ

theȱtelecommunicationsȱfacilitiesȱonȱaȱstubȱofȱtheȱoldȱpole,ȱtheȱPEG?ȱȱ

AtȱtheȱGuernvilleȱPPHȱaȱCommunicationsȱWorkersȱofȱAmericaȱ(CWA)ȱmemberȱ

“describedȱaȱlocationȱ(OccidentalȱRoadȱbetweenȱOccidentalȱandȱSebastopol)ȱwhereȱ

telephoneȱplantȱwasȱnotȱgroundedȱandȱwasȱnotȱproperlyȱinstalled.ȱAȱtreeȱtookȱdownȱ

cableȱandȱinsteadȱofȱreplacingȱtheȱdamagedȱcable,ȱtheȱoldȱcableȱwasȱsimplyȱreattachedȱ

toȱnewȱpoles,ȱȈandȱoverȱtheȱcourseȱofȱfourȱtoȱsixȱmonths,ȱasȱtechniciansȱwereȱcalledȱoutȱ

toȱcustomerȱafterȱcustomerȱafterȱcustomerȱhavingȱproblemsȱinȱthatȱneighborhood,ȱitȱwasȱ

determinedȱthatȱtheseȱsectionsȱofȱableȱthatȱhadȱtheȱdamageȱoccurȱtoȱthemȱwereȱ

defective.Ȉ139ȱȱ

TURNȱnotedȱthatȱatȱtheȱEurekaȱPPH,ȱ“CWAȱprovidedȱinformationȱthatȱaȱportionȱ

ofȱAT&TȱtelephoneȱlineȱwasȱdownȱinȱaȱlocationȱknownȱasȱLowerȱBullȱCreekȱFlat,ȱ

locatedȱonȱtheȱMattoleȱRoadȱinȱHumboldtȱCounty.ȱThisȱisȱinȱHumboldtȱRedwoodsȱStateȱ

Park.”140ȱȱAsȱTURNȱexplains:ȱ

OnȱJulyȱ23,ȱ2016,ȱTURNȱtelecomȱpolicyȱdirectorȱReginaȱCostaȱdroveȱtoȱtheȱsiteȱand,ȱusingȱaȱtapeȱmeasure,ȱverifiedȱthatȱtheȱlineȱwasȱdownȱforȱseveralȱhundredȱfeet,ȱonȱtheȱgroundȱandȱinȱtrees.ȱSheȱalsoȱverifiedȱthatȱtheȱtelephoneȱlinesȱserveȱAlbeeȱCreekȱCampȱGround,ȱwhichȱhasȱbothȱaȱpayȱphoneȱandȱaȱphoneȱatȱtheȱoffice.ȱSheȱspokeȱwithȱtheȱCampȱGroundȱSupervisorȱThomasȱValterriaȱwhoȱstatedȱthatȱtheȱlineȱhadȱbeenȱoutȱforȱtwoȱweeksȱandȱserviceȱhadȱbeenȱintermittentȱforȱtheȱpastȱtwoȱmonths.ȱOnȱSeptemberȱ21,ȱMs.ȱCostaȱdroveȱtoȱtheȱareaȱandȱagainȱspokeȱwithȱcampȱstaff.ȱTheyȱstatedȱthatȱtheȱlinesȱwereȱstillȱoutȱofȱserviceȱandȱtheȱserviceȱtoȱaȱnearbyȱhomeȱwasȱalsoȱnotȱworking.ȱThisȱisȱanȱareaȱwhereȱwildlandȱfiresȱcanȱoccur,ȱasȱevidencedȱbyȱtheȱfactȱthatȱCalFireȱcrewsȱwereȱdeployedȱonȱtheȱMattoleȱRd.ȱonȱSeptemberȱ21ȱasȱaȱprecaution.ȱThereȱisȱnoȱcellȱphoneȱ

139ȱGuernville,ȱTR.,ȱp.ȱ786Ȭ78.ȱ140ȱTURNȱACRȱComments,ȱp.ȱ8Ȭ9.ȱ


88

serviceȱinȱthisȱarea.ȱHavingȱtelephonesȱoutȱofȱserviceȱposesȱaȱsignificantȱpublicȱsafetyȱriskȱtoȱcampersȱandȱstateȱparkȱpersonnel.141ȱ

Downȱandȱdamagedȱlineȱcanȱproduceȱintermittentȱorȱnoȱphoneȱservice,ȱhighȱrisksȱ

forȱanyȱcustomer,ȱandȱaȱhigherȱriskȱinȱlikelyȱwildfireȱzone.ȱTURNȱcommented,ȱ“(t)heseȱ

situationsȱareȱviolationsȱofȱGOȱ95ȱandȱaffectȱtheȱqualityȱofȱcalls,ȱresultȱinȱserviceȱ

outages,ȱorȱatȱtheȱveryȱleastȱserviceȱthatȱisȱnotȱreliable.ȱȱTheseȱcircumstancesȱposeȱaȱ

threatȱtoȱpublicȱsafety.”142ȱȱȱ

TURNȱcitedȱ“examplesȱofȱinadequateȱplantȱmaintenanceȱthatȱcontributeȱtoȱ911ȱ

callȱcompletionȱfailureȱandȱnotificationȱandȱreportingȱofȱoutages.”143ȱȱTURNȱemphasizedȱ

thatȱ“theȱinabilityȱtoȱmakeȱessentialȱtelephoneȱcallsȱȬincludingȱcallsȱtoȱ911ȱandȱreverseȱ

911ȱcallsȱȬȱandȱutilizeȱtelephoneȱcorporationȱnetworksȱforȱpublicȱsafetyȱdataȱ

transmissionȱposesȱaȱsignificantȱthreatȱtoȱpublicȱsafetyȱandȱtheȱwellȬbeingȱofȱ

Californians.”144ȱȱ

TURNȱaddedȱ“thatȱforȱatȱleastȱsomeȱofȱtheȱproblemsȱreportedȱatȱtheseȱPPHsȱ

carriersȱhaveȱbeenȱworkingȱwithȱcustomersȱtoȱrepairȱlines.ȱȱTheȱCommissionȱshouldȱ

confirmȱthatȱtheȱrepairsȱhaveȱtakenȱplaceȱandȱimmediatelyȱrequireȱcarriersȱtoȱrepairȱ

facilitiesȱthatȱareȱstillȱinȱdisrepair.”145ȱȱTURNȱsubmittedȱseveralȱphotosȱofȱpolesȱandȱ

facilitiesȱthatȱappearȱtoȱbeȱoutȱofȱcomplianceȱwithȱGOȱ95,ȱandȱTURNȱexpressedȱitsȱviewȱ

thatȱmanyȱofȱtheseȱconditionsȱnotȱonlyȱviolateȱGOȱ95,ȱbutȱputȱsafeȱandȱreliableȱserviceȱatȱ

risk.ȱ

141ȱId.ȱ142ȱId.,ȱp.ȱ10.ȱ143ȱId.,ȱpp.ȱ4Ȭ5.ȱ144ȱId.ȱ145ȱId.ȱ


89

7.3.1.2. Service Issues Exacerbate Outages Repair Time WeȱheardȱinȱthisȱOIIȱmanyȱfrustratedȱcustomersȱcomplainȱaboutȱtheȱdifficultiesȱ

inȱgettingȱserviceȱrangingȱfromȱtheȱneedȱtoȱmakeȱrepeatedȱcallsȱforȱservice.ȱȱSomeȱ

customersȱreportedȱthatȱtheirȱcarrierȱinsistedȱthatȱtheȱcustomerȱhadȱtoȱhaveȱaȱworkingȱ

telephoneȱtoȱreportȱthatȱtheirȱlandlineȱtelephoneȱisȱout,ȱleadingȱoneȱelderlyȱwomanȱinȱ

SonomaȱCountyȱtoȱclimbȱonȱherȱroofȱtoȱgetȱaȱpoorȱcellȱsignalȱtoȱreportȱherȱlandlineȱ

outage.146ȱȱOthersȱcomplainedȱthatȱwhenȱtheyȱaskedȱforȱrepairsȱtheȱcarrierȱtoldȱthemȱ

theyȱwereȱnotȱrepairingȱlandlineȱserviceȱorȱwouldȱmakeȱtechnologicalȱtransitionsȱinȱtheȱ

future,ȱwhileȱleavingȱtheȱcustomerȱwithȱpoorȱserviceȱtoȱintermittentȱorȱpersistentȱserviceȱ

outages.147ȱȱ

CherilȱHoagȱwhoȱlivesȱaȱfewȱmilesȱfromȱAngelsȱCampȱinȱCalaverasȱCountyȱ

reportedȱatȱtheȱSanȱAndresȱPPH,ȱ“(m)yȱphoneȱgoesȱoutȱmanyȱtimesȱinȱtheȱwinter,ȱandȱ

thatȱ“toȱreportȱmyȱphoneȱ[outage]ȱIȱhaveȱtoȱdriveȱdownȱtheȱroad.ȱȱItȱtakesȱaboutȱ40ȱ

minutes.”148ȱMs.ȱHoagȱstatedȱthatȱbeforeȱreportingȱanȱoutageȱfromȱaȱlocationȱwhereȱsheȱ

canȱgetȱcellȱservice,ȱ“butȱIȱhaveȱtoȱcoordinateȱwithȱsomebodyȱfirstȱbecauseȱtheyȱhaveȱtheȱ

numberȱtoȱcall,ȱandȱtheyȱ[theȱcarrierȱwhoseȱserviceȱisȱout]ȱwantȱyourȱcellȱphone.ȱȱIȱhaveȱ

toȱfindȱaȱsister,ȱfriend,ȱinȱlaw,ȱsomebodyȱwhoȱwillȱtakeȱtheȱcallȱfromȱAT&Tȱwhenȱmyȱ

phoneȱisȱout.ȱHangingȱaround,ȱwaitingȱforȱmyȱcallȱtoȱsayȱmyȱphoneȱisȱout.”149ȱIt’sȱhardȱ

toȱreportȱyourȱphoneȱisȱoutȱwhenȱyourȱphoneȱisȱout.ȱȱThisȱchallengeȱisȱgreaterȱforȱ

customersȱinȱareasȱwithȱlittleȱorȱpoorȱcellȱservice,ȱorȱcustomersȱwhoȱlackȱanȱalternativeȱ

meansȱofȱcommunication.ȱ

146ȱEurekaȱPPH,ȱTr.ȱ652.ȱ147ȱTURN,ȱSupplementalȱACRȱcommentsȱre:ȱBigȱSur.ȱ148ȱSanȱAndreas,ȱPPHȱTr.,ȱp.ȱ382.ȱ149ȱId.ȱ


90

CommunicationsȱDivisionȱreachedȱoutȱtoȱAT&T,ȱCaliforniaȱandȱFrontier,ȱandȱ

bothȱclarifiedȱthatȱtheyȱdoȱnotȱrequireȱaȱworkingȱphoneȱnumberȱtoȱinitiateȱaȱserviceȱcallȱ

orȱaȱrepairȱticket.ȱȱTheyȱsuggestȱtheȱcallerȱhaveȱsuchȱaȱnumberȱsoȱtheȱcustomerȱcanȱbeȱ

calledȱtoȱscheduleȱanȱappointmentȱorȱforȱfollowȬup.ȱȱYet,ȱinȱthisȱrecordȱweȱheardȱseveralȱ

customersȱinȱdifferentȱpartsȱofȱtheȱstateȱstateȱtheyȱunderstoodȱthatȱtheirȱcarrierȱrequiredȱ

themȱtoȱhaveȱaȱworkingȱphoneȱnumberȱtoȱreportȱanȱoutage.ȱȱȱ

Otherȱcustomersȱreportedȱgreatȱdifficultyȱinȱgettingȱtheirȱrepairȱneedsȱmet,ȱevenȱ

whenȱtheyȱwereȱoutȱofȱservice.ȱȱTURNȱreportedȱonȱcommentsȱreceivedȱinȱaȱmeetingȱ

theyȱattendedȱinȱBigȱSurȱwhereȱtheȱSoberanesȱfireȱragedȱforȱmoreȱthanȱ2ȱmonthsȱinȱ2016.ȱȱ

Oneȱcustomerȱstated,ȱ“IȱhaveȱcontactedȱAT&TȱmoreȱtimesȱsinceȱIȱcanȱcountȱsinceȱtheȱ

[Soberanes]ȱfireȱbecauseȱourȱlineȱisȱstillȱnotȱfunctionalȬȱnoȱdialȱtone.ȱStillȱnoȱaction.”150ȱȱ

7.3.1.3. Party Comments TheȱSeptemberȱ27ȱACRȱaskedȱforȱcommentȱonȱthemesȱraisedȱinȱtheȱWorkshopsȱ

andȱPPHs,ȱandȱforȱrecommendationsȱaboutȱactionsȱtheȱCommissionȱshouldȱtakeȱtoȱ

addressȱpoleȱsafetyȱandȱfacilityȱmaintenanceȱissuesȱandȱtheirȱeffectȱonȱcallȱcompletion,ȱ

9Ȭ1Ȭ1ȱandȱdialȱtoneȱaccess.ȱȱAT&T,ȱCaliforniaȱobservedȱthatȱ“Currently,ȱinȱȱ

OIRȱ15Ȭ05Ȭ006,ȱtheȱCommissionȱisȱdevelopingȱaȱwildfireȱriskȱmapȱandȱconsideringȱ

additionalȱdesign,ȱconstructionȱandȱmaintenanceȱrulesȱtoȱenhanceȱsafetyȱandȱreliabilityȱ

ofȱutilityȱpolesȱandȱfacilities,ȱincludingȱconsiderationȱofȱtheȱeffectsȱofȱtreeȱmortalityȱdueȱ

toȱbarkȱbeetleȱandȱotherȱpestȱinfestations,ȱonȱtheȱbasisȱofȱGovernorȱBrown’sȱdeclaredȱ

StateȱofȱEmergency.”151ȱAT&Tȱadded,ȱ“Inȱaddition,ȱGOȱ95ȱRuleȱ80.1(A)(2)ȱrequiresȱ

utilitiesȱtoȱconductȱpatrolȱorȱdetailedȱinspectionsȱforȱallȱofȱitsȱcommunicationȱlinesȱ

throughoutȱtheȱState.ȱȱAT&T,ȱCalifornia’sȱinspectionsȱofȱitsȱpolesȱandȱfacilitiesȱincludesȱ

150ȱId.,ȱAttachmentȱ1,ȱAT&TȱBigȱSurȱCustomerȱServiceȱQualityȱIssues.ȱȱ151ȱAT&T,ȱCalifornia,ȱACRȱComments,ȱp.ȱ3.ȱ


91

facilitiesȱattachedȱtoȱorȱnearȱtreesȱthatȱmayȱbeȱinfestedȱwithȱbarkȱbeetlesȱorȱotherȱ

pests.”152ȱȱ

Comcastȱcommentedȱthatȱitsȱcentralizedȱmonitoringȱhelpsȱitȱdetectȱandȱrespondȱ

toȱproblemsȱassociatedȱwithȱplantȱorȱfacilities.ȱ“Forȱexample,ȱComcastȱhasȱaȱNetworksȱ

OperationsȱCenterȱ(“NOC”)ȱwhichȱmonitorsȱitsȱnetworkȱ24ȱhoursȱaȱday,ȱ7ȱdaysȱaȱweek.ȱȱ

Inȱcasesȱwhereȱaȱdownedȱpoleȱresultsȱinȱanȱoutage,ȱanȱalarmȱregardingȱthatȱoutageȱisȱ

automaticallyȱreceivedȱbyȱtheȱNOCȱwhichȱthenȱcommunicatesȱtoȱthoseȱinȱtheȱcompanyȱ

responsibleȱforȱinvestigationȱandȱrepair.”153ȱȱȱȱȱ

TURNȱhighlightedȱtheȱlegalȱbasisȱforȱfindingȱviolationsȱregardingȱpoleȱsafetyȱandȱ

itsȱrelationshipȱtoȱconsumerȱserviceȱandȱoutages.ȱȱ“Further,ȱasȱisȱtheȱcaseȱwithȱtheȱ

problemsȱfollowingȱtheȱVerizonȬFrontierȱtransaction,ȱtheseȱmajorȱdeficienciesȱinȱoutsideȱ

plantȱmaintenanceȱareȱpotentialȱviolationsȱofȱCal.ȱPub.ȱUtil.ȱCodeȱsectionsȱ451,ȱ453,ȱ558,ȱ

2895ȱetȱal.,ȱandȱCivilȱCodeȱSectionȱ1722.ȱȱCal.ȱPub.ȱUtil.ȱCodeȱsectionȱ451ȱimposesȱbroadȱ

requirementsȱtoȱensureȱthatȱ“everyȱpublicȱutilityȱshallȱfurnishȱandȱmaintainȱsuchȱ

adequate,ȱefficient,ȱjustȱandȱreasonableȱservice…equipmentȱandȱfacilities,ȱincludingȱ

telephoneȱfacilities.”ȱȱFurtherȱSectionȱ453ȱprohibitsȱaȱpublicȱutilityȱfromȱmaintainingȱanyȱ


betweenȱclassesȱofȱservice.”ȱȱSectionȱ558ȱrequiresȱeveryȱtelephoneȱcorporationȱtoȱ

“receive,ȱtransmit,ȱandȱdeliver,ȱwithoutȱdiscriminationȱorȱdelay,ȱtheȱconversationsȱandȱ

messagesȱofȱeveryȱotherȱsuchȱcorporation”ȱwhereȱthereȱisȱaȱ“physicalȱconnection.”ȱȱ

Finally,ȱCal.ȱPub.ȱUtil.ȱCodeȱsectionȱ2896(c)ȱrequiresȱutilitiesȱtoȱprovideȱreasonableȱ

statewideȱserviceȱqualityȱstandards,ȱincludingȱcustomerȱservice,ȱinstallationȱandȱ

repair.”154ȱ

152ȱId.,ȱp.ȱ4.ȱ153ȱId.ȱ154ȱTURNȱACRȱComments,ȱpp.ȱ13Ȭ14.ȱ


92

TURNȱaddedȱ“TheȱCommissionȱshouldȱinstructȱeitherȱitsȱCommunicationsȱ

DivisionȱandȱSafetyȱandȱEnforcementȱDivisionȱStaffȱfurtherȱinvestigate,ȱidentifyȱ

additionalȱviolationsȱandȱthoseȱshouldȱbeȱcorrected.ȱȱStaffȱshouldȱbeȱdirectedȱtoȱ

considerȱwhetherȱfinesȱandȱpenaltiesȱareȱwarranted,ȱpursuantȱtoȱCal.ȱPub.ȱUtil.ȱCodeȱ

sectionȱ2107ȱet.ȱal.ȱinȱsituationsȱwhereȱitȱisȱclearȱthatȱviolationsȱareȱsystemic,ȱpersistentȱ

andȱongoing.”155ȱȱ

MendocinoȱCountyȱrecommendedȱthatȱtheȱCommissionȱActionȱ“takeȱimmediateȱ

actionȱtoȱfollowȱupȱonȱtheȱverifiableȱproblemsȱidentifiedȱbyȱallȱspeakers,ȱandȱrequireȱ

thatȱsuchȱfacilitiesȱareȱrepaired.”156ȱȱCforATȱaddedȱthatȱtheȱsolutionȱisȱnotȱjustȱfixȱoneȱ

line,ȱbutȱthatȱweȱneedȱsystemȱupgrades.ȱȱ“Multipleȱcustomersȱhighlightedȱongoingȱ

problemsȱdueȱtoȱdeterioratingȱfacilities,ȱexplainingȱthatȱongoingȱeffortsȱtoȱobtainȱfixesȱ

wereȱnotȱsuccessful.ȱȱItȱappearsȱthatȱmultipleȱconsumersȱexperienceȱproblemsȱthatȱ

cannotȱbeȱeffectivelyȱfixedȱonȱaȱ“micro”ȱbasisȱbyȱaddressingȱthatȱsingleȱcustomer’sȱline,ȱ

andȱthatȱrealȱfixesȱwouldȱrequireȱmoreȱextensiveȱfacilitiesȱupgrades.ȱȱSuchȱcustomersȱ

alsoȱreportedȱinformationȱdemonstratingȱtheȱcarriers’ȱreluctanceȱtoȱinvestȱinȱsuchȱ

upgrades,ȱandȱtechniciansȱdescribedȱhavingȱtoȱuseȱpatchworkȱeffortsȱtoȱaddressȱ

individualȱcustomerȱconcernsȱratherȱthanȱprovidingȱimprovementsȱtoȱfacilities.”157ȱ

MendocinoȱCountyȱarguedȱthatȱ“(I)tȱisȱtheȱresponsibilityȱofȱtheȱCommissionȱtoȱensureȱ

thatȱtheȱobligationȱofȱaȱtelephoneȱcompanyȱ(andȱanyȱotherȱutility)ȱtoȱprovideȱ“safe,ȱ

reliableȱserviceȱwithȱadequateȱfacilitiesȱatȱjustȱandȱreasonableȱratesȱthroughoutȱtheȱ

territoriesȱthatȱtheyȱserve”ȱisȱbeingȱfulfilled.ȱȱAlthoughȱitȱisȱwellȱknownȱthatȱuseȱofȱ

landlineȱservicesȱisȱdecreasingȱnationwide,ȱruralȱcountiesȱstillȱdependȱgreatlyȱonȱtheȱ

copperȱinfrastructureȱasȱtheȱprivateȱinvestmentȱinȱIPȱservicesȱhasȱnotȱbeenȱadequateȱtoȱ

155ȱId.ȱ156ȱMendocinoȱCountyȱACRȱComments,ȱp.ȱ5.ȱ157ȱCforAT,ȱACRȱComments,ȱp.ȱ18.ȱ


93

createȱuniversallyȬavailableȱalternatives.ȱȱForȱthisȱreason,ȱitȱisȱessentialȱthatȱtheȱcopperȱ

networkȱbeȱmaintainedȱinȱgoodȱworkingȱorderȱtoȱprovideȱthoseȱservicesȱtoȱresidentsȱ

untilȱcomparable,ȱuniversallyȱavailableȱreliableȱservicesȱareȱavailable.”158ȱȱȱ

7.3.1.4. Who does 9-1-1 or a Public Safety Official Call When they Need to Call For Emergency Assistance about a Down Pole or other Telecommunications Safety Hazard?

AtȱtheȱMiddletownȱPPHȱMargaretȱSilvers,ȱCityȱManagerȱforȱtheȱCityȱofȱLakeport,ȱ

spokeȱaboutȱherȱconcernȱthatȱlocalȱemergencyȱservicesȱrepresentativesȱincludingȱruralȱ

townȱmanagersȱlackedȱdirectȱaccessȱtoȱaȱtelecommunicationsȱcarrierȱtoȱreportȱaȱdownedȱ

poleȱinȱtheȱstreetȱcreatingȱanȱemergencyȱissue.159ȱȱSheȱdescribedȱaȱdownedȱtelephoneȱ

poleȱincidentȱinȱMiddletownȱandȱtheȱtownȱemergencyȱmanager’sȱfrustratingȱeffortsȱtoȱ

reachȱAT&Tȱasȱheȱonlyȱhadȱtheȱgeneralȱ800ȱnumberȱusedȱbyȱtheȱpublic.160ȱȱHeȱnavigatedȱ

theȱmazeȱtoȱreachȱsomeoneȱtoȱaskȱforȱaȱpoleȱrepair,ȱonlyȱtoȱfindȱoutȱtheȱnextȱdayȱthatȱaȱ

repairȱticketȱwasȱneededȱtoȱtriggerȱaȱcrewȱdispatch.161ȱȱȱ

Thisȱexampleȱraisedȱanȱimportantȱquestion.ȱȱWhoȱdoesȱ9Ȭ1Ȭ1ȱorȱanȱemergencyȱ

serviceȱmanagerȱcallȱwhenȱtheyȱneedȱtoȱcallȱ9Ȭ1Ȭ1ȱorȱaȱcarrierȱaboutȱaȱdownedȱpoleȱorȱ

telecommunicationsȱissue?ȱTheȱSeptemberȱ9ȱACRȱaskedȱstepsȱshouldȱtheȱCommissionȱ

takeȱtoȱensureȱthatȱPublicȱSafetyȱOfficials,ȱincludingȱcounties,ȱfederallyȱrecognizedȱ

Californiaȱtribes,ȱfirstȱresponders,ȱcity,ȱcountyȱandȱstateȱemergencyȱservicesȱoperators,ȱ

haveȱdirectȱaccessȱtoȱCommunicationsȱcompaniesȱtoȱreportȱemergencyȱissuesȱsuchȱasȱaȱ

downȱwireȱorȱpoleȱorȱotherȱemergencyȱissue.ȱ

Comcastȱresponded,ȱ“Withȱallȱdueȱrespectȱtoȱlocalȱjurisdictions,ȱtheȱpoleȱownersȱ

andȱattachersȱareȱinȱtheȱbestȱpositionȱtoȱmonitorȱforȱdownedȱpoles.ȱȱMoreover,ȱtoȱtheȱ

158ȱMendocinoȱCountyȱACRȱComments,ȱp.ȱ4.ȱȱ159ȱMiddletown,ȱTr.,ȱp.ȱ844.ȱ160ȱId.ȱ161ȱId.ȱ


94

extentȱthatȱtheȱcitiesȱwantȱtoȱnotifyȱsomeone,ȱComcastȱPhoneȱrespectfullyȱsuggestȱthatȱ

theyȱnotifyȱtheȱpoleȱowners—usuallyȱtheȱelectricȱcompanyȱand/orȱtheȱILEC—especiallyȱ

since,ȱinȱtheȱcaseȱofȱaȱdownedȱpole,ȱitȱmayȱbeȱdifficultȱforȱaȱcityȱtoȱidentifyȱotherȱ

attachers.ȱȱFinally,ȱbyȱnotifyingȱtheȱpoleȱownerȱofȱaȱdownedȱpole,ȱpublicȱsafetyȱandȱ

workerȱsafetyȱisȱbestȱprotected.ȱȱToȱtheȱextentȱthatȱtheȱpoleȱcarriesȱanȱenergizedȱpowerȱ

line,ȱnoȱworkȱonȱserviceȱrestorationȱmayȱsafelyȱbeginȱuntilȱtheȱpowerȱlineȱisȱdeȬ

energized.ȱȱTheȱpoleȱownerȱisȱinȱtheȱbestȱpositionȱtoȱensureȱthatȱpowerȱlinesȱareȱsafelyȱ

managedȱduringȱrestoration,ȱespeciallyȱgivenȱtheȱhighȱlikelihoodȱthatȱtheȱpoleȱownerȱisȱ

theȱpowerȱcompany.”162ȱȱ

Notȱallȱpolesȱareȱelectricȱorȱjointȱuseȱpoles,ȱandȱtheȱpoleȱthatȱwentȱdownȱinȱ

LakeportȱnearȱMiddletownȱwasȱaȱtelephoneȱpole.ȱȱWhileȱPG&Eȱmovedȱtheȱtelephoneȱ

poleȱoutȱofȱtheȱroadȱatȱtheȱtown’sȱrequest,ȱtheȱrepairȱhadȱtoȱawaitȱAT&T’sȱdispatchȱ

uponȱeffortsȱtoȱopenȱaȱrepairȱticketȱtheȱmorningȱafterȱtheȱcallȱtoȱtheȱ800ȱnumberȱbyȱtheȱ

town’sȱemergencyȱanager.ȱ

Comcastȱaddedȱthatȱitȱsendsȱ“aȱletterȱtoȱPSAPsȱonȱanȱannualȱbasisȱtoȱremindȱ

themȱhowȱtoȱcontactȱComcastȱregardingȱanyȱissuesȱtheyȱmightȱhave.ȱȱThisȱwouldȱ

includeȱissuesȱrelatingȱtoȱdownedȱpolesȱorȱotherȱoutages….Comcastȱhasȱaȱwebsiteȱ

designedȱspecificallyȱtoȱprovideȱsupportȱtoȱPSAPs,ȱincludingȱtheȱcontactȱtelephoneȱ

numbers,ȱemailȱaddressȱandȱfaxȱnumberȱtoȱreachȱtheȱappropriateȱgroupsȱdedicatedȱtoȱ

addressingȱpublicȱsafetyȱissues.”163ȱȱȱ

WeȱapplaudȱComcastȱonȱtheirȱoutreachȱtoȱPSAPs.ȱȱNonȬPSAPȱpublicȱsafetyȱ

agencyȱmayȱalsoȱneedȱthatȱinformationȱandȱshouldȱbeȱmadeȱawareȱofȱhowȱtoȱcontactȱaȱ

carrierȱduringȱanȱemergency.ȱ

162ȱId.ȱ163ȱId.ȱ


95

TheȱCommissionȱhasȱnoȱclearȱrequirementsȱthatȱlocal,ȱcountry,ȱorȱtribalȱsafetyȱ

officialsȱinȱCaliforniaȱhaveȱaȱdirectȱnumber,ȱnotȱanȱ800ȱorȱ8xxȬtypeȱnumber,ȱwhereȱtheyȱ

canȱreachȱaȱcarrierȱrepresentativeȱaboutȱaȱdownȱtelephoneȱpoleȱorȱemergency.ȱȱSomeȱ

carriersȱprovideȱsuchȱnumbersȱtoȱlocalȱcontactsȱwhileȱothersȱdoȱnot.ȱȱWeȱremedyȱthatȱ

situationȱbelowȱbyȱrequiringȱthatȱcarriersȱprovideȱtheirȱdirectȱcontactȱinformationȱtoȱ

local,ȱcounty,ȱandȱtribalȱemergencyȱservicesȱmanagers.ȱ

7.3.1.5. Decision Theȱfocusȱofȱthisȱproceedingȱisȱonȱcallȱcompletionȱissuesȱincludingȱcallȱinitiationȱ

issuesȱcausedȱbyȱdialȱtoneȱandȱ9Ȭ1Ȭ1ȱoutages.ȱFacilityȱandȱmaintenanceȱissuesȱmayȱ

contributeȱtoȱtheseȱproblems,ȱandȱmustȱbeȱrepairsȱandȱkeptȱinȱgoodȱconditionȱtoȱcomplyȱ

withȱCommissionȱrules.ȱȱMendocinoȱCountyȱsuggestedȱthatȱtheȱ“Commissionȱshouldȱ

takeȱimmediateȱactionȱtoȱfollowȱupȱonȱtheȱverifiableȱproblemsȱidentifiedȱbyȱallȱspeakers,ȱ

andȱrequireȱthatȱsuchȱfacilitiesȱareȱrepaired.”164ȱȱȱȱ

AtȱourȱNovemberȱ10ȱmeeting,ȱtheȱCommissionȱadoptedȱaȱresolutionȱtoȱestablishȱ

aȱTelecommunicationsȱCitationȱprogramȱtoȱmonitorȱcomplianceȱwithȱGOȱ95ȱandȱGOȱ

133.ȱȱWeȱanticipateȱthatȱthisȱcitationȱprogramȱwillȱspeedȱcomplianceȱwithȱCommissionȱ

poleȱandȱundergroundingȱsafetyȱorders.ȱȱȱȱ

WeȱreferȱtoȱtheȱNetworkȱStudyȱthisȱCommissionȱorderedȱinȱD.15Ȭ08Ȭ041ȱanalysisȱ

ofȱtheȱfacilitiesȱandȱmaintenanceȱissuesȱraisedȱinȱtheȱrecordȱofȱthisȱproceedingȱincludingȱ

theȱtranscriptsȱandȱphotographsȱofȱpolesȱandȱlines.ȱ

TheȱCommissionȱinȱR.16Ȭ05Ȭ004ȱisȱconsideringȱaȱreferralȱtoȱanȱOIRȱaboutȱpoleȱ

safetyȱissuesȱandȱcompetitiveȱaccessȱtoȱpoles.ȱȱWeȱthatȱOIRȱorȱanȱappropriateȱ

rulemakingȱtoȱclarifyȱtheȱappropriateȱtimelineȱforȱrepairsȱorȱpoleȱreplacementȱwhen,ȱforȱ

example,ȱaȱpoleȱisȱmarkedȱ“doȱnotȱclimb”ȱorȱdesignatedȱforȱreplacement.ȱȱȱ

164ȱMendocinoȱCountyȱACRȱcomments,ȱp.ȱ5.ȱ


96

WeȱdirectȱSEDȱtoȱclarifyȱtheȱdutyȱtoȱcooperateȱwithȱotherȱpoleȱusersȱincludingȱ

otherȱutilitiesȱregardingȱpoleȱandȱundergroundȱfacilityȱsafetyȱissues.ȱȱSEDȱshallȱclarifyȱ

theȱCommission’sȱpolicyȱonȱpegsȱorȱ“buddyȱpoles”ȱandȱprovideȱguidanceȱtoȱcarriersȱ

aboutȱtheȱprocessȱforȱmovingȱfacilitiesȱinȱcomplianceȱwithȱGOȱ95.ȱȱWeȱreferȱtoȱSEDȱtoȱ

clarifyȱthatȱtreesȱareȱnotȱproperȱsupportsȱforȱtelecommunicationsȱwireȱattachment,ȱ

whetherȱbyȱmetalȱring,ȱrope,ȱorȱanyȱotherȱmeans.ȱȱTheȱtreeȱmortalityȱepidemicȱmakesȱitȱ

allȱtheȱmoreȱurgentȱthatȱweȱaddressȱthisȱissue.ȱȱWeȱalsoȱreferȱtoȱSEDȱtoȱclarifyȱtreeȬ

trimmingȱandȱvegetationȱmanagementȱdutiesȱinȱlightȱofȱtheȱbarkȱbeetleȱinvasion,ȱ

suddenȱoakȱdeath,ȱandȱotherȱthreatsȱincludingȱtreeȱmortality.ȱ

Carriersȱshallȱnotȱrequireȱaȱworkingȱphoneȱnumberȱtoȱinitiateȱaȱtroubleȱticket.ȱ

Whileȱcarriersȱmayȱsuggestȱthatȱaȱcallȱbackȱnumberȱisȱhelpful,ȱcarriersȱmayȱnotȱmakeȱitȱaȱ

conditionȱofȱinitiatingȱaȱrepairȱticket,ȱschedulingȱaȱrepairȱappointment,ȱorȱexecutingȱ

repairs.ȱȱCarriersȱshallȱinformȱcustomersȱofȱtheȱoptionalȱnatureȱofȱanyȱcallȬbackȱnumberȱ

suggestionȱforȱrepairȱticketȱrequestsȱandȱappointments.ȱ

Respondentȱcarriersȱshallȱprovideȱaȱdirectȱemergencyȱcontactȱnumberȱorȱmethodȱ

toȱlocal,ȱcounty,ȱandȱtribalȱemergencyȱservicesȱmanagers,ȱandȱthatȱnumberȱshallȱnotȱbeȱ

theȱgeneralȱ800ȱorȱ8xxȱnumberȱusedȱbyȱtheȱpublic.ȱRespondentȱcarriersȱshallȱreportȱ

withinȱ90ȱdaysȱtheirȱcomplianceȱwithȱthisȱorderȱtoȱCommunicationsȱDivision.ȱ

7.3.2. Dial-Tone Outages and 9-1-1 Access Issues Arising from Third Party Actions, and Response to Such Incidents

7.3.2.1. Fiber Cut on August 3, 2014, Mendocino County OnȱAugustȱ3,ȱ2014,ȱaȱhitȱandȱrunȱaccidentȱinȱruralȱComptche,ȱCaliforniaȱnearȱ

MendocinoȱCounty’sȱwestȱcoastȱtookȱoutȱ400ȱfeetȱofȱaerialȱAT&Tȱfiberȱopticȱcableȱstrungȱ

onȱtelephoneȱpolesȱin.ȱȱMendocinoȱCountyȱreportedȱthatȱfiberȱcutȱ“ledȱtoȱtheȱlossȱofȱ

almostȱeveryȱtypeȱofȱcommunicationȱȬȱtelephone,ȱInternet,ȱcellular,ȱandȱ911ȱservicesȱforȱ

anȱestimatedȱeightȱcommunitiesȱsituatedȱalongȱtheȱMendocinoȱCountyȱcoastlineȱandȱ

lossȱofȱsomeȱcellularȱserviceȱforȱthreeȱofȱtheȱCounty’sȱinlandȱareasȱforȱfortyȬfiveȱ(45)ȱ


97

hours.”165ȱȱTheȱBroadbandȱAllianceȱofȱMendocinoȱCounty,ȱaȱCaliforniaȱAdvancedȱ

ServicesȱFundȱ(CASF)ȱgrantee,ȱreportsȱthatȱtheȱ“exactȱnumberȱofȱresidentsȱthatȱwereȱ

affectedȱbyȱtheȱresultingȱcommunicationsȱbreakdownȱisȱunknown,ȱbutȱisȱestimatedȱtoȱ

beȱmanyȱthousandsȱofȱpeople.”166ȱȱȱ

AT&T,ȱCaliforniaȱdidȱnotȱpubliclyȱreportȱtheȱnumberȱofȱlandlinesȱaffectedȱbyȱtheȱ

outage.ȱ“MendocinoȱCountyȱSheriffȱTomȱAllmanȱestimatedȱthatȱ20%ȱofȱresidentsȱlostȱ

theirȱ911ȱservicesȱwhichȱinȱaȱcountyȱwithȱaȱpopulationȱofȱapproximatelyȱ87,000ȱ

residentsȱwouldȱbeȱ17,400ȱpeople.”167ȱ

TheȱMendocinoȱCountyȱSheriffȱreportedȱthatȱheȱwasȱunawareȱofȱtheȱwidespreadȱ

communicationsȱoutageȱforȱsixȱhours,ȱandȱlearnedȱaboutȱitȱwhenȱaȱfireȱchiefȱwasȱfinallyȱ

ableȱtoȱreachȱhimȱonȱaȱlandline.168ȱTheȱMendocinoȱCountyȱEmergencyȱServicesȱOfficeȱ

wasȱunawareȱofȱtheȱextentȱofȱtheȱoutageȱandȱunableȱtoȱcommunicateȱwithȱwesternȱ

Mendocino.169ȱȱDuringȱtheȱtelephoneȱoutage,ȱMendocinoȱCountyȱreliedȱheavilyȱonȱtheȱ

localȱHamȱRadioȱCommunityȱforȱemergencyȱdispatch.170ȱȱ

Theȱoutageȱmadeȱtelephonesȱloseȱdialȱtoneȱandȱaccessȱtoȱ9Ȭ1Ȭ1.ȱȱCreditȱcardȱ

machinesȱdidȱnotȱfunction.ȱȱMendocinoȱCountyȱSheriffȱAllmanȱrecountedȱthatȱduringȱ

theȱcommunicationsȱoutagesȱSheriffȱdeputiesȱcouldȱnotȱputȱgasȱinȱtheirȱcarȱatȱruralȱgasȱ

stationsȱwithȱnoȱattendantȱthatȱoperateȱonlyȱbyȱcreditȱcard.171ȱȱTheȱDirectorȱofȱITȱservicesȱ

atȱMendocinoȱCoastȱHospitalȱdescribedȱsafetyȱrisksȱwhenȱruralȱcommunitiesȱdoȱnotȱ

165ȱMendocinoȱCountyȱcommentsȱonȱACR,ȱAppendixȱA.,ȱp.ȱ1.ȱ166ȱId.ȱ167ȱId.ȱ168ȱId.,ȱp.ȱ9.ȱ169ȱId.ȱ170ȱUkiah,ȱTr.ȱp.ȱ446;ȱMendocinoȱCountyȱcommentsȱonȱACR.ȱ171ȱUkiah,ȱTr.ȱp.ȱ447.ȱ


98

haveȱreliableȱtelecommunicationsȱservice,ȱincludingȱsituationsȱwhereȱemergencyȱonȬcallȱ

personnelȱcouldȱnotȱbeȱcontacted.172ȱ

TheȱBroadbandȱAllianceȱofȱMendocinoȱCountyȱconductedȱaȱsurveyȱfollowingȱtheȱ

outageȱtoȱlearnȱmoreȱaboutȱtheȱeffectȱofȱtheȱlossȱofȱdialȱtone,ȱinternet,ȱlandline,ȱandȱ

wirelessȱserviceȱonȱresidents,ȱbusinesses,ȱgovernment,ȱandȱnonȬprofits.ȱȱTheyȱreportedȱ

thatȱ“Outȱofȱ741ȱresponsesȱtoȱtheȱinitialȱsurveyȱasȱofȱOctoberȱ8,ȱ2014,ȱthereȱwereȱ285ȱ

residentsȱwhoȱreportedȱlosingȱtheirȱregularȱabilityȱtoȱplaceȱaȱ9Ȭ1Ȭ1ȱcall,ȱincluding:ȱȱ

4ȱactualȱlifeȬthreateningȱmedicalȱemergencies,ȱ39ȱdisabledȱorȱelderlyȱresidents,ȱ42ȱselfȬ

reportsȱwhereȱrespondentsȱaffirmedȱtheyȱfeltȱthatȱanȱinternetȱandȱphoneȱserviceȱoutageȱ

suchȱasȱtheȱoneȱexperiencedȱonȱAugustȱ3Ȭ5,ȱ2014ȱwasȱaȱthreatȱtoȱtheirȱsafety.”173ȱ

Duringȱtheȱcommunicationsȱoutage,ȱapproximatelyȱ25ȱmilesȱnortheastȱfromȱtheȱsiteȱofȱ

theȱfiberȱcut,ȱtheȱLodgeȱFireȱComplexȱwhichȱstartedȱonȱJulyȱ31,ȱ2016ȱwasȱgrowing,ȱandȱ

surroundingȱwereȱonȱalertȱforȱpotentialȱevacuationȱorders.174ȱTheȱfiberȱbreakȱ“impactedȱ

muchȱofȱtheȱcellularȱservicesȱinȱthisȱarea,ȱandȱmanyȱresidentsȱwouldȱnotȱhaveȱbeenȱableȱ

toȱreceiveȱtheirȱ“reverseȱ911”ȱcallsȱhadȱsuchȱanȱevacuationȱwarning/orderȱbeenȱ

given.”175ȱȱMendocinoȱalsoȱexplainedȱthatȱfirefightingȱeffortsȱwereȱcomplicatedȱasȱaȱ

resultȱofȱtheȱfiberȱbreakȱasȱ“alternativeȱsatelliteȱcommunicationsȱsystemȱhadȱtoȱbeȱ

supplied.”176ȱȱȱȱȱ

DivisionȱanalyzedȱtheȱGOȱ133ȬCȱdataȱforȱAugustȱ2014ȱandȱfoundȱthatȱthereȱwasȱ

notȱaȱsurgeȱinȱOutȬOfȬServiceȱticketsȱandȱrepairsȱinȱearlyȱAugustȱ2014ȱinȱMendocinoȱ

County.ȱȱCommunicationsȱDivisionȱreasonablyȱsurmisesȱthatȱmanyȱcustomersȱdidȱnotȱ

ȱ173ȱMendocinoȱCountyȱcommentsȱonȱACR,ȱAppendixȱA.,ȱp.ȱ2.ȱ174ȱId.,ȱp.ȱ1.ȱ175ȱId.ȱ176ȱId.ȱ


99

reportȱtheȱoutage,ȱbecauseȱmajorȱpartsȱofȱbothȱcellularȱandȱlandlineȱnetworksȱwereȱnotȱ

inȱservice.ȱȱSomeȱcustomersȱmayȱhaveȱlearnedȱthatȱtheȱoutageȱwasȱwidespread,ȱandȱ

mayȱhaveȱinferredȱthatȱtheȱcarrierȱwasȱawareȱofȱtheȱproblem.ȱȱȱ

TheȱCommission’sȱServiceȱQualityȱGeneralȱOrderȱ133ȬDȱ(formerlyȱGOȱ133ȬC),ȱ

reportsȱstatewideȱaverageȱresponseȱbyȱaȱcarrierȱtoȱrequestȱforȱaȱrepairȱticket.ȱȱRepairȱ

ticketsȱtriggerȱtheȱ24ȬhourȱclockȱforȱserviceȱrestorationȱreportingȱunderȱGOȱ133ȬD.ȱInȱaȱ

widespreadȱoutageȱwhereȱlandline,ȱcell,ȱandȱmanyȱinternetȱservicesȱareȱout,ȱcustomersȱ

mayȱnotȱgenerateȱrepairȱticketsȱwithȱtheirȱcarrier,ȱbecauseȱtheyȱcannot.ȱȱȱȱ

Carriersȱmayȱgenerateȱrepairȱticketsȱinȱresponseȱtoȱvariousȱalarms,ȱbutȱitȱisȱnotȱ

clearȱthatȱtheyȱdoȱsoȱconsistently.ȱȱItȱappearsȱthatȱAT&T,ȱCaliforniaȱdidȱnotȱinitiateȱ

thousandsȱofȱrepairȱticketsȱwhenȱitsȱalarmsȱshowedȱtheȱoutageȱofȱtheȱtransportȱfacilitiesȱ

inȱComptche,ȱCaliforniaȱthatȱcarriedȱlandline,ȱmobile,ȱandȱInternetȱtraffic.ȱȱȱ

AT&T’sȱcommentsȱonȱtheȱ2015ȱscopingȱmemo,ȱComcast’sȱcommentsȱinȱresponseȱ

toȱtheȱSeptemberȱ9ȱACR,ȱandȱFrontier’sȱcommentsȱaboutȱtheȱtechnologyȱavailableȱtoȱ

monitorȱitsȱnetworkȱhighlightȱtheȱcentralȱalarmȱandȱmonitoringȱfunctionsȱcarriersȱuseȱtoȱ

detectȱandȱactȱonȱnetworkȱconditions.ȱȱTheȱapparentȱlackȱofȱrepairȱticketsȱforȱtheȱ

thousandsȱofȱcustomersȱwhoȱlostȱserviceȱduringȱtheȱAugustȱ3,ȱ2014ȱMendocinoȱoutageȱ

indicatesȱthatȱneitherȱcustomer,ȱnorȱcarrierȱgeneratedȱrepairȱticketsȱreflectȱtheȱnetwork’sȱ

technicalȱstatus,ȱnorȱtheȱnumberȱofȱcustomersȱwhoȱaffectedȱbyȱanȱoutage.ȱ

PerhapsȱAT&Tȱviewedȱthisȱincidentȱasȱoneȱtransportȱoutageȱgeneratingȱtheȱneedȱ

forȱoneȱrepair,ȱsoȱtheȱcarrierȱdidȱnotȱfileȱrepairȱticketsȱorȱseparatelyȱreportȱtoȱtheȱ

Commissionȱtheȱthousandsȱofȱcustomersȱwhoȱlostȱvoiceȱandȱdataȱserviceȱasȱaȱresultȱofȱ

thisȱtransportȱoutage.ȱThisȱpracticeȱeffectivelyȱcircumventsȱtheȱrepairȱticketȱtriggerȱofȱ

Goȱ133ȬD,ȱmaskingȱtheȱnumberȱofȱCaliforniansȱaffectedȱbyȱsuchȱoutages.ȱȱȱ

Ifȱtheȱlandlineȱcustomerȱoutageȱisȱlessȱthanȱ900,000ȱuserȱminutesȱforȱ30ȱminutes,ȱ

itȱwouldȱnotȱbeȱcapturedȱasȱaȱ“MajorȱIncident”ȱunderȱGOȱ133(D)(4).ȱȱNeitherȱwouldȱaȱ

carrier’sȱNORsȱreportingȱtoȱtheȱFCCȱofȱaȱȈtransportȈȱoutageȱofȱaȱdataȱcircuitȱthatȱalsoȱ


100

supportȱInternetȱandȱwirelessȱcustomersȱnecessarilyȱcaptureȱlandlineȱcustomers.ȱȱTheseȱ

issuesȱhighlightȱtheȱdataȱgapȱdiscussedȱbelow.ȱ

7.3.2.2. Fiber Cut on September 3, 2015 in Mendocino County that resulted in Loss of Dial tone, Internet, and Wireless Service in Mendocino, Humboldt, and Del Norte Counties

OnȱSeptemberȱ3,ȱ2015ȱaȱfiberȱcutȱbyȱvandalsȱinȱMendocinoȱCountyȱresultedȱinȱaȱ

“widespreadȱtelecommunicationsȱnetworkȱfailureȱacrossȱtheȱ3Ȭcountyȱregionȱofȱ

Mendocino,ȱHumboldtȱandȱDelȱNorteȱcounties.”177ȱȱTheȱSeptemberȱ3,ȱ2015ȱoutageȱwasȱ

reportedȱbyȱtheȱNorthȱBayȱBroadbandȱConsortiumȱandȱtheȱBroadbandȱConsortiumȱofȱ

MendocinoȱCountyȱasȱtheȱfourthȱoutageȱinȱtheȱcountyȱinȱtheȱpastȱ13ȱmonths.ȱ“InȱAugustȱ

2014ȱaȱ45Ȭhourȱoutageȱseverelyȱimpactedȱ8ȱcommunitiesȱalongȱtheȱMendocinoȱCoast.ȱ

ThereȱwereȱtwoȱsmallerȱoutagesȱinȱCoveloȱandȱLaytonvilleȱearlierȱthisȱyear.ȱAndȱmostȱ

recently,ȱonȱDecemberȱ9thȱHumboldtȱCountyȱexperiencedȱanȱoutageȱthatȱcausedȱlossȱofȱ

serviceȱtoȱanȱestimatedȱ90,000ȱresidents.”178ȱ

TheȱSept.ȱ3,ȱ2015ȱoutageȱ“impactedȱservicesȱincludingȱInternet,ȱmobileȱtelephone,ȱ

landlineȱtelephone,ȱbusinessȱprocessesȱsuchȱasȱfaxȱandȱcreditȱcardȱprocessingȱandȱmostȱ

critically,ȱlossȱofȱ9Ȭ1Ȭ1ȱservicesȱfromȱsevenȱPublicȱSafetyȱAnsweringȱPointsȱ(PSAPs).”179ȱ

“MendocinoȱCountyȱEmergencyȱOperationsȱCenterȱ(EOC)ȱwasȱactivatedȱatȱlevelȱtwoȱatȱ

10:45ȱa.m.,ȱreȬroutingȱallȱincomingȱ9Ȭ1Ȭ1ȱemergencyȱcallsȱtoȱaȱsecondaryȱPSAP.ȱ

AlthoughȱreȬroutingȱofȱtheȱ9Ȭ1Ȭ1ȱsystemȱoccurredȱquickly,ȱmanyȱpeopleȱstillȱcouldȱnotȱ

callȱ9Ȭ1Ȭ1ȱorȱreceiveȱreverseȱ9Ȭ1Ȭ1ȱcallsȱbecauseȱtheȱserviceȱremainedȱoutȱonȱtheirȱend.”180ȱ

177ȱMendocinoȱCountyȱcommentsȱonȱACR,ȱAppendixȱB.,ȱ(ReportȱofȱTheȱNorthȱBayȱBroadbandȱConsortiumȱandȱtheȱBroadbandȱConsortiumȱofȱMendocinoȱCounty,ȱSeptemberȱ2015ȱTelecommunicationsȱOutageȱandȱtheȱImpactsȱonȱResidentsȱofȱMendocinoȱCounty),ȱp.ȱ1ȱ[hereinafterȱ“MendocinoȱCountyȱcommentsȱonȱACR,ȱAppendixȱB.”].ȱ178ȱId.ȱ179ȱId.ȱ180ȱId.ȱ


101

TheȱCountyȱEmergencyȱOperationsȱCenterȱ(EOC)ȱcenter,ȱ“OASISȱ

Communication,ȱaȱportableȱradioȱcommunicationȱsystem,ȱandȱsatelliteȱphoneȱandȱ

internetȱwereȱallȱactivated;ȱtheȱMendocinoȱHamȱRadioȱTeamȱwasȱactivatedȱandȱ

deployedȱtoȱtheȱEOCȱandȱhospitals.ȱAnȱIncidentȱCommandȱforȱCaliforniaȱHighwayȱ

PatrolȱandȱCalȱTransȱwasȱestablishedȱatȱHowardȱForest.ȱAtȱ9ȱa.m.ȱtheȱfollowingȱday,ȱ

serviceȱwasȱrestoredȱandȱtheȱEOCȱdeactivated.”181ȱȱ

Hospitalsȱcommunicatedȱwithȱ“walkieȬtalkiesȱasȱanȱemergencyȱprotocol.ȱȱTheȱ

NationalȱWeatherȱServiceȱsentȱoutȱanȱEmergencyȱAlertȱMessage,ȱandȱallȱcoastalȱradioȱ

stationsȱwereȱableȱtoȱgetȱtheȱmessageȱout.”182ȱDuringȱtheȱSeptemberȱ2015ȱ

communicationsȱoutageȱthatȱaffectedȱMendocino,ȱHumboldt,ȱandȱpartsȱofȱDelȱNorteȱ

County,ȱtheȱCountyȱofȱMendocinoȱaskedȱtheȱNationalȱWeatherȱServiceȱtoȱpostȱ

informationȱonȱhowȱpeopleȱcouldȱaccessȱ9Ȭ1Ȭ1ȱduringȱtheȱoutage,ȱandȱtheȱNationalȱ

WeatherȱServiceȱdidȱsoȱonȱFacebook:ȱȱ

Atȱtheȱcurrentȱtime,ȱMendocinoȱCountyȱisȱexperiencingȱtroubleȱwithȱtheirȱ911ȱEmergencyȱphoneȱlines.ȱTheȱCountyȱhasȱaskedȱtheȱNationalȱWeatherȱServiceȱtoȱrelayȱthisȱmessage:ȱIfȱyouȱhaveȱaȱ911ȱemergencyȱandȱyouȱhaveȱaȱlandȱlineȱphoneȱthatȱworksȱpleaseȱcallȱ707Ȭ459Ȭ5336.ȱIfȱyouȱhaveȱaȱcellȱphoneȱpleaseȱTEXTȱtoȱ707Ȭ489Ȭ2749.ȱIfȱneitherȱmethodȱworksȱpleaseȱgoȱtoȱyourȱlocalȱpoliceȱorȱfireȱdepartmentȱforȱhelp.ȱ

ȱ

WeȱapplaudȱMendocinoȱCountyȱforȱtheirȱcreativeȱoutreachȱtoȱtheȱNationalȱ

WeatherȱServiceȱtoȱrelayȱthisȱinformationȱaboutȱconnectingȱ9Ȭ1Ȭ1ȱduringȱtheȱoutage.ȱ

NationalȱWeatherȱServiceȱFacebookȱpostsȱtoȱtheȱpublicȱaboutȱhowȱtoȱaccessȱ9Ȭ1Ȭ1,ȱdoȱnotȱ

substituteȱforȱcarrierȱinformationȱtoȱpublicȱsafetyȱofficialsȱorȱtoȱtheȱCommission.ȱ

181ȱId.ȱ182ȱId.ȱ


102

TheȱNorthȱCoastȱandȱMendocinoȱBroadbandȱConsortiaȱreportȱonȱtheȱSeptemberȱ

2015ȱoutageȱstatedȱthatȱSheriffȱAllman’sȱOfficeȱ“deployedȱanȱofficerȱtoȱfindȱAT&Tȱ

personnelȱtoȱdetermineȱtheȱcauseȱofȱtheȱoutageȱandȱgetȱanȱupdate/estimateȱforȱaȱtimeȱofȱ

reconnectionȱofȱphoneȱandȱinternetȱservices.ȱAT&Tȱcrewsȱwereȱfoundȱinȱaboutȱanȱhour,ȱ

butȱdidȱnotȱknowȱaȱtimeȱofȱreȬconnection,ȱbutȱgaveȱanȱestimateȱofȱ24ȱhours.”183ȱȱWeȱareȱ

concernedȱthatȱtheȱSheriffȱhadȱtoȱdeployȱanȱofficerȱtoȱfindȱAT&T,ȱCaliforniaȱpersonnelȱ

toȱgetȱinformationȱaboutȱtheȱoutage,ȱratherȱthanȱreceivingȱinformationȱfromȱAT&T,ȱ

California.ȱȱSenatorȱMarkȱMcGuireȱandȱAssemblyȱMemberȱJimȱWoodsȱwhoȱrepresentȱ

thisȱdistrictȱtweetedȱaboutȱtheȱoutageȱbasedȱonȱtheirȱphoneȱcallsȱwithȱAT&Tȱrepairȱ

crewsȱwereȱonȱsite.184ȱȱ

PublicȱsafetyȱofficialsȱatȱtheȱSheriff’sȱOffice,ȱCountyȱOES,ȱandȱpoliceȱ

departments,ȱasȱwellȱasȱtheȱCommission,ȱshouldȱnotȱhaveȱtoȱdependȱonȱAT&Tȱphoneȱ

callsȱwithȱanȱelectedȱofficialsȱforȱ140ȱcharacterȱtweetsȱaboutȱtheȱstatusȱofȱrepairs.ȱȱ

Haphazardȱinformationȱtidbitsȱdoȱnotȱprovideȱtheȱlevelȱofȱdetailȱnecessaryȱforȱpublicȱ

safetyȱandȱCommissionȱmonitoringȱofȱcarrierȱcomplianceȱwithȱstateȱlawȱandȱ

Commissionȱrules,ȱorders,ȱandȱDecisions.ȱȱ

Someȱcarriersȱprovideȱsomeȱvoluntaryȱmediaȱreportingȱaboutȱoutagesȱsuchȱasȱ

AT&T,ȱCaliforniaȱdidȱtoȱaȱEurekaȬbasedȱwebsiteȱseveralȱhoursȱafterȱtheȱSeptemberȱ2015ȱ

outageȱbegan,ȱbutȱsuchȱreportsȱareȱnotȱconsistent.ȱTheȱLostȱCoastȱOutpostȱreportedȱaȱ

statementȱfromȱMatthewȱCross,ȱAT&TȱspokespersonȱaboutȱtheȱDecemberȱ9,ȱ2015ȱoutageȱ

183ȱId.ȱ184ȱId.ȱ(Sen.ȱMcGuireȱtweetsȱonȱtheȱSeptemberȱ2015ȱoutage);ȱRedwoodȱBlackbelt,ȱInternetȱandȱPhoneȱOutageȱSlamsȱHumboldtȱandȱMendocino,ȱ(Sen.ȱMcGuireȱ(“JustȱtalkedȱwithȱAT&Tȱagain.ȱNoȱupdateȱonȱrestorationȱtimeline.ȱCrewsȱareȱonȱsceneȱofȱtheȱfiberȱcut,ȱadditionalȱcrewsȱrollingȱin.”);ȱAssemblyȱMemberȱWoodsȱ(“JustȱoffȱphoneȱwithȱAT&T.ȱRepairsȱunderwayȱsomeȱcustomersȱareȱbackȱonlineȱfullȱserviceȱrestoredȱbyȱearlyȱtomorrowȱmorning.ȱQuestionsȱremain”);ȱCountyȱofȱHumboldt,ȱFortunaȱPoliceȱDepartment,ȱandȱtheȱNationalȱWeatherȱServiceȱtweetsȱonȱtheȱSeptemberȱ2015ȱoutage),ȱhttp://kymkemp.com/2015/09/03/internetȬandȬphoneȬoutageȬslamsȬhumboldtȬandȬmendocinoȬestimatedȬ12ȬhoursȬtoȬrepair/.ȱ


103

ofȱInternetȱandȱphoneȱservicesȱinȱHumboldtȱCounty:ȱȱ“Dueȱtoȱfiberȱdamageȱbyȱanotherȱ

companyȱatȱmileȱmarkerȱ56.6ȱonȱHighwayȱ101,ȱsomeȱEurekaȱareaȱcustomersȱareȱ

experiencingȱissuesȱwithȱtheirȱlandlineȱandȱwirelessȱservices.ȱOurȱlocalȱcrewsȱareȱ

workingȱtoȱrepairȱtheȱequipmentȱandȱrestoreȱserviceȱasȱsoonȱasȱpossible.ȱWeȱapologizeȱ

forȱthisȱinconvenience.”185ȱȱ

TheȱNorthȱCoastȱandȱMendocinoȱBroadbandȱConsortiaȱreportedȱonȱtheȱserviceȱ

restorationȱeffortsȱduringȱtheȱSeptemberȱ3,ȱ2015ȱoutage.ȱȱ“AT&Tȱcrewȱworkedȱ

throughoutȱtheȱnightȱtoȱrepairȱtheȱfiberȱbreak,ȱandȱtheȱHoplandȱswitchȱwasȱoperationalȱ

byȱ9:55ȱp.m.ȱSeptemberȱ3rdȱandȱtheȱEurekaȱswitchȱbyȱ8:45ȱa.m.ȱSeptemberȱ4th.ȱServicesȱ

wereȱoutȱforȱanȱaverageȱofȱ18ȱhours.”186ȱȱWeȱapplaudȱAT&T,ȱCaliforniaȱandȱitsȱcrewsȱforȱ

theirȱhardȱworkȱtoȱrestoreȱservice,ȱthoughȱquestionsȱremainȱaboutȱwhyȱsoȱmanyȱ

customersȱlostȱservice,ȱandȱaboutȱAT&T’sȱoverallȱresponse.ȱ

Carriersȱmayȱbeȱreluctantȱtoȱdisseminateȱevenȱbasicȱdataȱaboutȱoutages,ȱ

customersȱareȱincreasinglyȱsharingȱandȱpostingȱdataȱaboutȱoutages.ȱMeanwhile,ȱ

customersȱincreasinglyȱpostȱoutageȱinformationȱonȱcarrierȱwebȱsites,ȱsocialȱmediaȱsitesȱ

suchȱasȱFacebookȱandȱTwitter,ȱsitesȱthatȱfocusȱonȱoutagesȱsuchȱasȱDowndetector.com,ȱ

andȱlocalȬfocusedȱsitesȱsuchȱasȱMymotherlode.com,ȱRedwoodȱBlackbelt,ȱorȱtheȱLostȱ

CoastȱOutpost.187ȱȱȱ

TheȱCommissionȱhasȱaȱFacebookȱpageȱandȱaȱTwitterȱfeed,ȱandȱisȱrunningȱaȱ

surveyȱonȱcallȱcompletionȱandȱcallȱaccessȱissues.ȱȱTheȱCommissionȱshouldȱmakeȱitȱeasierȱ

185ȱLostȱCoastȱOutpost,ȱ(Update)ȱCommunicationsȱBreakdown:ȱAT&TȱInternet/PhoneȱServiceȱOutagesȱReportedȱinȱHumboldt,ȱDec.ȱ9,ȱ2015,ȱhttps://lostcoastoutpost.com/2015/dec/9/communicationȬbreakdownȬtȬinternetphoneȬserviceȬou/.ȱ186ȱMendocinoȱCountyȱcommentsȱonȱACR,ȱAppendixȱB,ȱp.ȱ3.ȱ187ȱHankȱSims,ȱTheȱInternetȱisȱDown!!!ȱMassiveȱAT&TȱOutageȱTakesȱHumboldtȱCountyȱPhones,ȱInternet,ȱetc.ȱOffline,ȱSept.ȱ3,ȱ2015,ȱhttps://lostcoastoutpost.com/2015/sep/3/internetȬdownȬmassiveȬtȬoutageȬtakesȬhumboldtȬcoun/.ȱ


104

forȱconsumersȱtoȱtellȱtheȱCommissionȱaboutȱproblemsȱandȱtrends,ȱratherȱthanȱrelyingȱonȱ

thirdȬpartyȱplatformsȱtoȱtweetȱorȱpostȱcarrierȱproblems.ȱȱSuchȱaȱCommissionȱsiteȱandȱ

appȱwillȱhelpȱusȱmonitorȱtrends,ȱidentifyȱcomplianceȱissues,ȱandȱallowȱcustomersȱtoȱ

shareȱinformationȱaboutȱcarrierȱserviceȱorȱoutages.ȱ

InȱthisȱOII,ȱTheȱCountyȱofȱMendocinoȱrequestedȱpublicȱreportingȱofȱ

communicationsȱoutagesȱsoȱpeopleȱcouldȱrespondȱandȱmakeȱappropriateȱ

arrangements.188ȱWeȱtakeȱofficialȱnoticeȱunderȱEvidenceȱCodeȱ§ȱ452(h)ȱthatȱtheȱStateȱofȱ

Ohioȱrequiresȱcarriersȱtoȱnotifyȱ“theȱcommissionȇsȱoutageȱcoordinatorȱandȱwhenȱ

appropriate,ȱtheȱnewsȱmediaȱinȱtheȱaffectedȱarea,”ȱaffectingȱatȱleastȱ900,000ȱuserȬ

minutesȱthatȱlastsȱ30ȱminutesȱorȱmore.189ȱȱȱ

AT&T,ȱCaliforniaȱreportedȱthatȱ“AT&T’sȱrestorationȱeffortsȱstartedȱwhenȱalarmsȱ

atȱAT&T’sȱoperationȱcenterȱidentifiedȱheavyȱimpactȱrelatedȱtoȱaȱfiberȱopticȱcableȱcutȱatȱ

9:40ȱAMȱonȱThursday,ȱSeptemberȱ3,ȱ2015.”ȱȱWeȱencourageȱsuchȱeffortsȱtoȱleverageȱ

carrierȱandȱcustomerȱinvestmentsȱinȱnetworkȱmonitoringȱsystemsȱthatȱgenerateȱalarmsȱ

aboutȱsystemȱconditionsȱsuchȱasȱoutagesȱthatȱaffectȱaȱlargeȱnumberȱofȱcustomers.ȱȱSuchȱ

systemsȱshouldȱbeȱavailableȱbothȱdeepȱinȱtheȱnetworkȱandȱacrossȱaȱvarietyȱofȱservicesȱ

andȱcustomersȱtoȱreapȱmaximumȱbenefitsȱforȱoutageȱdetection.ȱȱȱ

Useȱofȱcentralizedȱalarmsȱtoȱdetectȱandȱrepairȱtroubleȱcreatesȱanotherȱreasonȱtoȱ

tellȱtheȱpublicȱaboutȱoutagesȱandȱrepairȱtimes.ȱȱIfȱtheȱcarrierȱknowsȱaboutȱmanyȱoutages,ȱ

doesȱtheȱpublicȱneedȱtoȱmakeȱanȱeffortȱtoȱcallȱitȱin?ȱCallingȱaboutȱanȱoutageȱisȱaȱdifficultȱ

taskȱwhenȱtheȱphonesȱareȱout,ȱparticularlyȱwhenȱmultipleȱtypesȱofȱcommunication,ȱ

landline,ȱwireless,ȱandȱcellȱareȱout.ȱȱNeitherȱdoesȱcallingȱguaranteeȱspeedyȱserviceȱasȱweȱ

188ȱMendocinoȱCountyȱACRȱcomments.ȱ189ȱȱOhioȱAdministrativeȱCode,ȱ4901:1Ȭ6Ȭ31,ȱEmergencyȱandȱoutageȱoperations,ȱhttp://codes.ohio.gov/oac/4901:1Ȭ6Ȭ31v1.ȱ


105

receivedȱmanyȱcomplaintsȱofȱfiveȱdaysȱwaitsȱorȱmoreȱforȱserviceȱcallsȱotherȱthanȱdialȱ

toneȱserviceȱrestoration.ȱȱ

Publicȱinformationȱisȱnotȱavailableȱaboutȱtheȱnumberȱofȱresidents,ȱbusinesses,ȱ

nonȬprofits,ȱgovernmentȱorganizations,ȱandȱothersȱaffectedȱbyȱtheȱSeptemberȱ2015ȱ

outage.ȱȱTheȱNorthȱCoastȱandȱMendocinoȱBroadbandȱConsortiaȱnotedȱthatȱ“Mendocinoȱ

andȱHumboldtȱcountiesȱaloneȱhaveȱaȱcombinedȱpopulationȱofȱ221,000,ȱwhichȱmeansȱ

thatȱtensȱofȱthousandsȱofȱpeopleȱwereȱimpactedȱatȱsomeȱlevel.ȱAT&T,ȱCaliforniaȱhasȱnotȱ

releasedȱanyȱhardȱnumbersȱofȱcustomersȱaffected;ȱanȱAT&Tȱspokesmanȱhasȱsaidȱthatȱ

doingȱsoȱ“wouldȱencourageȱmoreȱvandalism.”190ȱȱ“Lt.ȱWayneȱHansonȱatȱtheȱHumboldtȱ

CountyȱSheriff’sȱOfficeȱwasȱquotedȱinȱtheȱTimesȬStandardȱ“…ȱthatȱtheȱproblemȱspansȱ

areasȱallȱoverȱtheȱCounty”ȱandȱtheirȱcountyȱOESȱopenedȱupȱanȱonȬlineȱsurveyȱinȱtheȱ

daysȱfollowingȱtheȱoutage.”191ȱ

OtherȱoutagesȱaffectedȱpublicȱsafetyȱinȱHumboldtȱCounty.ȱȱAȱDecemberȱ9,ȱ2015ȱ

outageȱrenderedȱinoperableȱallȱtheȱinternalȱphonesȱatȱtheȱHumboldtȱCountyȱjailȱusedȱtoȱ

connectȱeachȱunitȱtoȱtheȱother,ȱposingȱmajorȱsafetyȱrisks.”192ȱȱNoticeȱtoȱpublicȱsafetyȱthatȱ

phoneȱserviceȱisȱoutȱsoȱtheyȱmayȱdetermineȱwhetherȱaȱjailȱneedsȱreinforcementsȱwouldȱ

beȱaȱprudentȱstepȱtoȱprotectȱpublic,ȱpeaceȱandȱcorrectionsȱofficer,ȱandȱinmateȱsafety.ȱ

ȱ TheȱHumboldtȱCountyȱEmergencyȱManagerȱforȱtheȱSheriff’sȱOES,ȱDorieȱLanni,ȱ

describedȱatȱtheȱEurekaȱPPHȱtheȱmultipleȱwirelineȱreliabilityȱfailuresȱfacedȱinȱtheȱruralȱ

communities,ȱandȱtheȱstepsȱlocalȱresidentsȱwereȱforcedȱtoȱtakeȱonȱtheirȱownȱtoȱprotectȱ

publicȱsafety.ȱ“ForȱmanyȱruralȱresidentsȱandȱtelecomȱcustomersȱinȱHumboldtȱCountyȱ

190ȱId.,ȱp.ȱ4.ȱ191ȱId.ȱ192ȱUkiahȱTr.,ȱp.ȱ408.ȱ


106

lossȱofȱservicesȱisȱaȱroutineȱevent,”ȱandȱcontinuedȱthatȱlocalȱemergencyȱprovidersȱ“haveȱ

comeȱtoȱacceptȱthatȱtheyȱareȱonȱtheirȱown.”193ȱ

AtȱtheȱSanȱFranciscoȱWorkshopȱandȱPPH,ȱTrishȱSteelȱrepresentingȱMendocinoȱ

Countyȱdiscussedȱtheȱimpactȱofȱtheȱtwoȱmajorȱwirelineȱoutagesȱinȱ2014ȱandȱ2015,ȱnotingȱ

thatȱMendocinoȱCountyȱhasȱaȱ“highȱpercentageȱofȱelderlyȱandȱdisabledȱresidents.ȱWeȱ

liveȱinȱremoteȱareas,ȱandȱtheirȱphoneȱisȱoftenȱtheirȱonlyȱmeansȱofȱcommunicationȱwithȱ

familyȱandȱdoctors.”194ȱ

AT&T,ȱCaliforniaȱdidȱnotȱcommentȱdirectlyȱaddressingȱtheȱfiberȱcutsȱofȱ2014ȱandȱ

2015ȱinȱresponseȱtoȱtheȱACRȱorȱfollowingȱtheȱUkiahȱorȱEurekaȱPPHs.ȱȱȱȱ

7.3.2.3. Party Comments and Recommendations for Actions in Response

Inȱresponseȱtoȱthisȱproceeding’sȱdiscussionȱofȱtheȱoutagesȱthatȱbeganȱinȱtheȱ

MendocinoȱandȱHumboldtȱCountyȱareasȱinȱ2014ȱandȱ2015,ȱTURNȱrecommendedȱthatȱ

thisȱCommissionȱrequireȱcarriersȱoperatingȱinȱCaliforniaȱtoȱnotifyȱpublicȱsafetyȱofficialsȱ

aboutȱoutages.ȱȱTURNȱobserved:ȱ

First,ȱitȱisȱclearȱthatȱthereȱisȱinadequateȱnotificationȱprovidedȱbyȱtelephoneȱcorporationsȱtoȱlocalȱemergencyȱofficialsȱandȱfirstȱresponders.ȱTheȱexperienceȱofȱpublicȱsafetyȱofficialsȱinȱMendocino,ȱDelȱNorteȱandȱSonomaȱCountiesȱdemonstratesȱtheȱproblem.ȱTheȱCommissionȱshouldȱrequireȱthatȱinȱtheȱeventȱofȱanȱoutageȱaffectingȱeitherȱaȱPublicȱSafetyȱAnsweringȱPointȱ(ȈPSAPȈ)ȱorȱdisruptingȱcommunicationsȱservicesȱsoȱthatȱtelephonesȱdoȱnotȱworkȱandȱmembersȱofȱtheȱpublicȱcannotȱcontactȱ911,ȱtelephoneȱcorporationsȱareȱrequiredȱtoȱpromptlyȱalertȱaȱcountyȱofficeȱofȱemergencyȱservices,ȱtheȱcountyȱsheriff,ȱandȱlocalȱPSAPȱoperators.195ȱȱ

ȱ

193ȱCforAT,ȱp.ȱ6ȱ(citingȱEureka,ȱTr.ȱp.ȱ680Ȭ683).ȱ194ȱCforAT,ȱp.ȱ6ȱ(citingȱSanȱFrancisco,ȱTr.ȱp.ȱ134).ȱ195ȱTURN,ȱCommentsȱonȱACR,ȱpp.ȱ3Ȭ4.ȱȱ


107

MendocinoȱCountyȱSheriffȱAllmanȱalsoȱstressedȱhisȱcounty’sȱrequestȱthatȱcarriersȱ

notifyȱpublicȱsafetyȱofficialsȱaboutȱcommunicationsȱoutages.196ȱȱȱ

ForȱpublicȱsafetyȱofficersȱsuchȱasȱaȱCountyȱSheriff,ȱcoordinatorȱofȱtheȱCountyȱ

OfficeȱofȱEmergencyȱServices,ȱPoliceȱorȱFireȱChief,ȱinformationȱaboutȱcommunicationsȱ

serviceȱisȱcrucialȱforȱtheȱexecutionȱofȱtheirȱpublicȱsafetyȱduties.ȱȱMendocinoȱCountyȱ

SheriffȱAllmanȱdiscussedȱatȱtheȱUkiahȱPPHȱtheȱdecisionsȱheȱmustȱmakeȱaboutȱ

deploymentȱofȱlawȱenforcementȱandȱcountyȱemergencyȱservicesȱwhenȱtelephoneȱserviceȱ

isȱoutȱtoȱaȱlargeȱnumberȱofȱtheȱpeople,ȱbusinesses,ȱandȱinstitutionsȱheȱservesȱandȱ

protects.ȱȱȱ

Informationȱisȱkeyȱasȱpublicȱsafetyȱofficialsȱhaveȱtoȱdecideȱwhetherȱtoȱdeployȱ

patrolȱcarsȱorȱambulancesȱtoȱlocationsȱsuchȱasȱintersectionsȱorȱfireȱstationsȱwhereȱpeopleȱ

canȱgetȱemergencyȱhelpȱwhenȱaccessȱtoȱ9Ȭ1Ȭ1ȱisȱdown.197ȱȱTheȱSheriffȱneedsȱtoȱdecideȱ

whetherȱtoȱrequestȱaidȱfromȱtheȱlocalȱHamȱRadioȱoperatorȱcommunitiesȱ(“theȱHams”)ȱ

andȱdeployȱthemȱforȱemergencyȱdispatchȱasȱtheyȱdidȱduringȱtheȱcommunicationsȱ

outagesȱinȱMendocinoȱinȱ2014ȱandȱ2015.198ȱȱThisȱOIIȱreceivedȱreportsȱofȱtheȱheroicȱroleȱ

HamȱRadioȱOperatorsȱplayȱinȱmanyȱruralȱcountiesȱincludingȱMendocinoȱandȱHumboldtȱ

toȱrelayȱemergencyȱdispatchȱmessagesȱforȱambulancesȱandȱpublicȱsafetyȱwhenȱ

telephoneȱserviceȱisȱout.199ȱLakeȱCounty,ȱMendocinoȱandȱothersȱareȱconsideringȱ

bringingȱbackȱsirensȱtoȱalertȱresidentsȱtoȱfireȱorȱdisasterȱinȱlightȱofȱwidespreadȱtelephoneȱ

outagesȱduringȱandȱafterȱfires.200ȱȱ

196ȱUkiah,ȱTr.ȱpp.ȱ444ȱff.ȱȱ197ȱUkiah,ȱPPHȱTr.ȱp.ȱ446.ȱ198ȱUkiah,ȱPPHȱTr.ȱp.ȱ447.ȱ199ȱSee,ȱUkiah,ȱPPHȱTr.ȱp.ȱ447;ȱEureka,ȱTr.ȱp.ȱ687.ȱ200ȱSee,ȱMiddletown,ȱPPHȱTr.,ȱp.ȱ912.ȱ


108

TheȱSheriffȱhasȱtoȱdecideȱwhetherȱtoȱsendȱdeputiesȱtoȱcountyȱjailsȱwhoseȱphoneȱ

serviceȱisȱdownȱasȱitȱwasȱinȱaȱDecemberȱ2015ȱMendocinoȱoutage.201ȱȱMendocinoȱCountyȱ

SheriffȱAllmanȱandȱWillitsȱPoliceȱChiefȱGonzalesȱemphasizedȱthatȱtheyȱneedȱ

informationȱtoȱmakeȱpublicȱsafetyȱresourceȱprioritizationȱdecisions.202ȱȱDuringȱsuchȱ

outages,ȱpublicȱsafetyȱofficialsȱmustȱrespondȱtoȱemergenciesȱwithoutȱmodernȱ

communication.ȱȱConstituentsȱareȱunableȱtoȱcallȱ9Ȭ1Ȭ1,ȱandȱpublicȱsafetyȱofficialsȱmustȱ

findȱalternateȱmeansȱofȱcommunicationȱtoȱmakeȱhelpȱavailableȱandȱkeepȱtheȱpeace.ȱ

TURNȱalsoȱcommentedȱaboutȱtheȱinadequacyȱofȱtheȱcurrentȱnoticeȱstandardsȱthatȱ

provideȱthisȱCommissionȱwithȱlimitedȱinformationȱaboutȱoutagesȱsuchȱasȱthoseȱwhichȱ

occurredȱinȱMendocinoȱinȱ2014ȱandȱ2015.ȱȱTURNȱcommented:ȱȱ

Second,ȱitȱisȱalsoȱclearȱfromȱtheȱtranscriptsȱandȱotherȱevidenceȱinȱCommissionȱproceedingsȱthatȱruralȱoutages,ȱwithȱsignificantȱimpactsȱonȱcommunities,ȱoftenȱflyȱunderȱtheȱradar,ȱorȱareȱsweptȱunderȱtheȱrugȱdueȱtoȱinadequateȱreportingȱofȱruralȱoutages.ȱTheȱCommissionȱshouldȱrequireȱtheȱreportingȱofȱruralȱoutagesȱandȱestablishȱaȱthresholdȱreportingȱrequirementȱofȱ90,000ȱuserȱminutes.ȱ

ȱMendocinoȱCountyȱandȱCforATȱjoinedȱTURNȱinȱexpressingȱconcernȱaboutȱtheȱ

informationȱgapȱthatȱresultsȱfromȱtheȱcurrentȱreportingȱstandard.203ȱ

TheȱNorthȱCoastȱBroadbandȱConsortiumȱandȱMendocinoȱCountryȱBroadbandȱ

Allianceȱalsoȱcommentedȱaboutȱtheȱneedȱforȱredundancyȱandȱdiversityȱinȱtheȱnetworkȱ

toȱpreventȱwidespreadȱoutagesȱfromȱaȱsingleȱbreak.ȱȱTheyȱrecommended:ȱ

TheȱconnectionsȱofȱallȱAT&TȱinȬcountyȱcentralȱofficesȱandȱregionalȱtandemȱofficesȱshouldȱbeȱfullyȱredundantȱandȱdiverse.ȱ2)ȱRedundancyȱandȱdiversityȱshouldȱbeȱsupportedȱbyȱaȱcompetitiveȱmultiȬcarrierȱenvironment.ȱ3)ȱEmergencyȱ9Ȭ1Ȭ1ȱPSAPsȱshouldȱbeȱinterconnectedȱwithȱanȱ

201ȱUkiah,ȱPPHȱTr.ȱp.ȱ408;ȱMendocinoȱACRȱComments,ȱp.ȱ3.ȱ202ȱUkiah,ȱPPHȱTr.ȱp.ȱ445.ȱ203ȱCforATȱCommentsȱonȱACR;ȱMendocinoȱCounty,ȱCommentsȱonȱACR,ȱpp.ȱ10Ȭ11.ȱ


109

engineeredȱsolutionȱthatȱensuresȱthatȱallȱdialedȱ9Ȭ1Ȭ1ȱcallsȱalwaysȱreachȱaȱstaffedȱPSAP.ȱ4)ȱMendocinoȱCountyȱshouldȱdevelopȱandȱadoptȱcountywideȱBroadbandȱGoalsȱandȱaȱBroadbandȱPlanȱwithȱspecificȱstrategiesȱtoȱmeetȱtheseȱgoals.ȱ5)ȱFiberȱroutesȱshouldȱbeȱinventoriedȱandȱanyȱcablingȱthatȱisȱcurrentlyȱunȬsecuredȱshouldȱbeȱsecured.ȱȱ6)ȱImprovementsȱinȱcommunicationsȱandȱprotocolsȱshouldȱcontinueȱtoȱbeȱdevelopedȱwithȱtheȱincumbentȱIncumbentȱLocalȱExchangeȱCarrierȱ(ILEC),ȱAT&T.204ȱ

ȱMendocinoȱCountyȱrequestedȱinȱtheirȱresponseȱtoȱtheȱACRȱthatȱthisȱCommissionȱ

requireȱcarriersȱtoȱofferȱdiverseȱrouting,ȱredundancy,ȱandȱresiliencyȱoptions.ȱȱ

ȱ DorriȱLanni,ȱHumboldtȱCountyȱEmergencyȱManagerȱinȱtheȱSheriff’sȱOfficeȱofȱ

EmergencyȱServicesȱstatedȱatȱtheȱEurekaȱPPHȱthatȱtheyȱwereȱinformedȱafterȱtheȱ

Septemberȱ3,ȱ2015ȱfiberȱcutȱthatȱledȱtoȱlossȱofȱserviceȱinȱMendocino,ȱHumboldt,ȱandȱDelȱ

NorteȱCountiesȱthatȱ“aȱfewȱcommercialȱentitiesȱinȱHumboldtȱCountyȱdidȱnotȱloseȱ

phonesȱandȱInternetȱbecauseȱtheyȱhadȱbeenȱofferedȱtheȱoptionȱandȱelectedȱtoȱpayȱmoreȱ

forȱcriticalȱredundancy.ȱThisȱavailableȱredundancyȱwasȱnotȱaffordedȱtoȱHumboldtȱ

Countyȱpublicȱsafetyȱaccessȱpoints.”205ȱȱDorrieȱLanni,HumboldtȱCountyȱEmergencyȱ

ManagerȱinȱtheȱSheriff’sȱOfficeȱofȱEmergencyȱServicesȱȱaskedȱforȱpublicȱsafetyȱaccessȱ

pointsȱtoȱhaveȱtheȱoptionȱforȱaȱtariffȱtoȱprovideȱ“criticalȱredundancy”ȱallegedlyȱofferedȱ

toȱsomeȱlocalȱbusinesses,ȱbutȱnotȱtoȱtheȱHumboldtȱCountyȱOES.206ȱȱ

Ms.ȱLanniȱaddedȱthatȱduringȱtheȱSeptemberȱ2015ȱtriȬcountyȱoutageȱdueȱtoȱtheȱ

fiberȱcutȱinȱMendocinoȱCounty,ȱtheȱHumboldtȱCountyȱSheriff’sȱOfficeȱofȱEmergencyȱ

Servicesȱ(ORS)ȱwasȱ“notȱnotifiedȱthatȱaȱcountywideȱfailureȱhadȱoccurredȱandȱwereȱ

unableȱtoȱreachȱanyoneȱwithȱAT&Tȱwhoȱcouldȱorȱwouldȱprovideȱinformationȱforȱtheȱ

204ȱMendocinoȱCountyȱcommentsȱonȱACR,ȱAppendixȱB.,ȱpp.ȱ1Ȭ2.ȱ205ȱMendocinoȱCountyȱACRȱComments;ȱEurekaȱPPH,ȱTr.,ȱp.ȱ681.ȱ206ȱEureka,ȱPPHȱTr.,ȱp.ȱ680.ȱ


110

betterȱpartȱtheȱoutage.ȱWeȱhaveȱnoȱreasonȱtoȱbelieveȱthatȱredundancyȱwillȱbeȱprovidedȱ

inȱtheȱfutureȱtheȱnextȱtimeȱfiberȱopticȱcableȱisȱout.”207ȱȱȱ

ȱ Otherȱcountiesȱreportedȱsimilarȱvulnerabilitiesȱresultingȱfromȱaȱcutȱtoȱmajorȱ

communicationsȱtransportȱfacilities.ȱȱAtȱtheȱSanȱAndreasȱPPH,ȱTuolumneȱCountyȱ

DeputyȱSheriffȱEarhartȱdiscussedȱhowȱaȱcoupleȱofȱyearsȱago,ȱaȱsingleȱfiberȱcutȱledȱtoȱtheȱ

lossȱofȱ9Ȭ1Ȭ1.ȱȱ“Somebodyȱdecidedȱtoȱcutȱtheȱfiberopticȱlinesȱcomingȱintoȱourȱcounty.ȱȱ

Withȱnoȱbackhaulȱinȱplace,ȱourȱphoneȱlinesȱthroughoutȱtheȱcountyȱwentȱdown.”208ȱȱ

DeputyȱEarhartȱrecalled,ȱ“Thereȱwasȱsomeȱphoneȱservice…primarilyȱAT&TȱwasȱnonȬ

operative,ȱwhichȱisȱourȱvendorȱforȱ911ȱsystemȱasȱwellȱasȱadministrativeȱlinesȱinȱourȱ

organization.”209ȱȱHeȱadded,ȱ“Luckily,ȱAT&Tȱwasȱresponsiveȱandȱtheyȱwereȱableȱtoȱgetȱ

thoseȱlinesȱbackȱupȱandȱrunningȱinȱaȱreasonableȱamountȱofȱtime.ȱȱAgain,ȱweȱneedȱtoȱ

haveȱreliableȱsystemsȱinȱplaceȱthatȱhaveȱaȱbackhaulȱtoȱwhereȱifȱsomethingȱlikeȱthatȱ

occurs,ȱtheȱsystemȱcanȱstayȱupȱandȱrunning.”210ȱȱȱȱ

WeȱtakeȱofficialȱnoticeȱunderȱEvidenceȱCodeȱ§ȱ452(h)ȱthatȱotherȱstatesȱsuchȱasȱ

Coloradoȱrequireȱdiverseȱroutingȱforȱ9Ȭ1Ȭ1ȱfacilities.211ȱWeȱtakeȱofficialȱnoticeȱunderȱ

EvidenceȱCodeȱ§ȱ452(h)ȱthatȱNebraskaȱhasȱrequiredȱsinceȱ1996ȱthatȱcarriersȱreportȱtoȱtheȱ

NebraskaȱCommissionȱwithinȱ120ȱminutesȱofȱanȱoutageȱserviceȱinterruptionsȱasȱ

describedȱinȱsectionȱ5ȱofȱtheȱNebraskaȱServiceȱOutageȱReportingȱRequirements:ȱ

5(a):ȱanyȱserviceȱoutageȱofȱaȱLECȇsȱintraLATAȱlongȱdistanceȱfacilitiesȱforȱmoreȱthanȱ30ȱminutes;ȱȱ

207ȱId.,ȱp.ȱ682Ȭ683.ȱ208ȱȱSanȱAndreas,ȱPPHȱTr.,ȱp.ȱ326.ȱ209ȱId.ȱ210ȱId.,ȱp.ȱ327.ȱ211ȱ4ȱCodeȱOfȱColoradoȱRegulationsȱ(CCR)ȱ723Ȭ2ȱPartȱ2ȱ“Facilitiesȱ forȱ9Ȭ1Ȭ1ȱserviceȱ shallȱbeȱdiverselyȱ routed,ȱusingȱdifferentȱcircuitȱ routesȱwhereverȱfeasible.”ȱ


111

5(b):ȱanyȱserviceȱoutageȱofȱ30ȱminutesȱorȱlongerȱaffectingȱanȱexchangeȱorȱ500ȱworkingȱlinesȱinȱanyȱNXXȱcentralȱoffice,ȱexcludingȱplannedȱoutages;ȱȱ

5(c):ȱCompleteȱlossȱofȱEASȱ[extendedȱareaȱservice]ȱorȱtollȱtrunkȱgroupsȱinȱaȱcentralȱofficeȱforȱ30ȱminutesȱorȱlonger;ȱȱ

(5d):ȱLossȱofȱaȱdistributionȱfacilityȱaffectingȱ100ȱorȱmoreȱworkingȱlinesȱforȱ30ȱminutesȱorȱlonger;ȱ

(5e):ȱanyȱserviceȱoutageȱofȱaȱcompanyȇsȱ911ȱequipmentȱorȱfacilitiesȱwhichȱcausesȱisolationȱofȱworkingȱlinesȱinȱanyȱexchangeȱfromȱ911ȱaccessȱforȱ30ȱminutesȱorȱlonger;ȱ

(5f):ȱtheȱlossȱofȱserviceȱtoȱairports,ȱmilitaryȱfacilities,ȱorȱhospitalsȱaffectingȱpublicȱsafety.212ȱ

Theseȱstandardsȱareȱkeyedȱtoȱtheȱnumberȱofȱlinesȱaffectedȱorȱlossȱofȱaȱtypeȱofȱserviceȱforȱ

30ȱminutesȱorȱmore,ȱratherȱthanȱusingȱtheȱ“userȱminute”ȱstandardȱtheȱFCCȱemploysȱforȱ

NORSȱ(potentiallyȱaffectedȱlinesȱtimesȱtheȱnumberȱofȱminutes).ȱ

Nebraska’sȱoutageȱreportingȱisȱnotȱlimitedȱbyȱwhetherȱtheȱoutageȱofȱlines,ȱcertainȱ

typesȱofȱservices,ȱorȱmajorȱfacilitiesȱaffectedȱreachedȱtheȱFCCȱNORSȱreportingȱstandardȱ

orȱaȱcustomerȱorȱcarrierȱinitiatedȱaȱrepairȱticket.ȱȱTheȱlineȱandȱserviceȱlossesȱresultingȱ

fromȱtheȱMendocinoȱfiberȱcutȱinȱComptcheȱinȱAugustȱ2014,ȱtheȱfiberȱcutȱofȱSeptemberȱ

2015ȱthatȱaffectedȱMendocino,ȱHumboldt,ȱandȱDelȱNorteȱcounties,ȱandȱtheȱDecemberȱ

2015ȱfiberȱcutȱthatȱaffectedȱHumboldtȱCountyȱwouldȱhaveȱbeenȱreportableȱunderȱtheȱ

StateȱofȱNebraska’sȱoutageȱreportingȱrequirementsȱifȱthoseȱrulesȱwereȱappliedȱtoȱ

California.ȱ

Ohioȱrequiresȱthatȱ“(e)achȱfacilitiesȬbasedȱlocalȱexchangeȱcarrierȱ(LEC)ȱshallȱ

design,ȱoperate,ȱandȱmaintainȱitsȱfacilitiesȱtoȱcontinueȱtoȱprovideȱcustomersȱwithȱtheȱ

212ȱNebraskaȱPublicȱServiceȱCommission,ȱServiceȱOutageȱReportingȱRequirements,ȱadoptedȱDec.ȱ26,ȱ1995,ȱhttp://psc.nebraska.gov/telecom/pdf/forms/Service_Outage_Letter.pdf,ȱandȱasȱreflectedȱinȱrequirementsȱadoptedȱNovemberȱ6,ȱ2012,ȱhttp://www.psc.nebraska.gov/telecom/pdf/forms/Service_Outage_Reporting_Requirements.pdf.ȱȱ


112

abilityȱtoȱoriginateȱandȱreceiveȱcallsȱatȱallȱtimes.”213ȱȱToȱmonitorȱcomplianceȱwithȱthisȱ

standardȱandȱoutagesȱthatȱinterruptȱcontinuousȱcallingȱservice,ȱOhioȱusesȱ“existingȱFCCȱ

rulesȱapplicableȱtoȱemergencyȱandȱoutageȱoperations,”ȱbutȱaddsȱrequirementsȱforȱnoticeȱ

toȱtheȱCommissionȱandȱtheȱnewsȱmedia.ȱAnȱOhioȱLocalȱExchangeȱCarrierȱshallȱ“submit,ȱ

withinȱtwoȱhoursȱofȱdiscovery,ȱtoȱtheȱcommissionȇsȱoutageȱcoordinatorȱandȱwhenȱ

appropriate,ȱtheȱnewsȱmediaȱinȱtheȱaffectedȱarea,ȱaȱnotificationȱthatȱitȱhasȱexperiencedȱ

anȱoutage,”ȱexpectedȱtoȱlastȱforȱ30ȱminutesȱorȱmore.214ȱȱOhioȱlawȱwouldȱhaveȱrequiredȱ

reportingȱofȱtheȱSeptemberȱ3,ȱ2015ȱoutageȱtoȱtheȱCommissionȱandȱtheȱnewsȱmedia,ȱandȱ

mayȱhaveȱrequiredȱreportingȱofȱotherȱoutages,ȱinȱlightȱofȱtheȱvoiceȱservicesȱaffectedȱbyȱ

theȱruptureȱofȱserviceȱonȱtransportȱfacilitiesȱthatȱcarryȱcallsȱandȱdata.ȱȱȱ

Theȱpracticeȱofȱotherȱstatesȱinȱtailoringȱoutageȱreportingȱtoȱtheirȱstateȱneedsȱisȱaȱ

modelȱCaliforniaȱshouldȱconsider.ȱȱTheȱsizeȱofȱCalifornia,ȱlongȱdistancesȱbetweenȱmanyȱ

ruralȱcommunities,ȱtheȱpublicȱsafetyȱresponsibilitiesȱgivenȱtoȱlocal,ȱcounty,ȱregional,ȱandȱ

stateȱbodiesȱunderȱCaliforniaȱlaw,ȱandȱthisȱCommission’sȱresponsibilitiesȱtoȱensureȱ

complianceȱwithȱtheȱlawȱandȱsafe,ȱreliableȱserviceȱmeritȱoutageȱreportingȱresponsiveȱtoȱ

theȱneedsȱofȱthisȱstate.ȱ

7.3.2.4. Decision InȱitsȱresponseȱtoȱtheȱSeptemberȱ2016ȱACR,ȱTURNȱrecommendsȱtheȱCommissionȱ

instructȱeitherȱitsȱCommunicationsȱDivisionȱandȱSafetyȱandȱEnforcementȱDivisionȱStaffȱ

toȱfurtherȱinvestigate,ȱidentifyȱadditionalȱviolations,ȱandȱcorrectȱthem,ȱandȱtoȱassessȱ

finesȱandȱpenaltiesȱwhereȱviolationsȱareȱsystemic,ȱpersistentȱandȱongoing.ȱInȱlightȱofȱtheȱ

extensiveȱimpactȱofȱeachȱofȱtheȱoutagesȱinȱMendocino,ȱHumboldt,ȱandȱDelȱNorteȱ

countiesȱinȱ2014ȱandȱ2015ȱdiscussedȱabove,ȱweȱdetermineȱthatȱexaminationȱbyȱCPEDȱisȱ

213ȱOhioȱAdministrativeȱCode,ȱRetailȱTelecommunicationsȱService,ȱ4901:1Ȭ6Ȭ31ȱEmergencyȱandȱoutageȱoperations,ȱhttp://codes.ohio.gov/oac/4901:1Ȭ6Ȭ31v1.ȱ214ȱId.ȱ


113

appropriateȱtoȱdetermineȱifȱcarrierȱactionȱinȱassociationȱwithȱtheseȱoutagesȱcompliedȱ

withȱCaliforniaȱlawȱandȱtheȱCommission’sȱrules,ȱdecisions,ȱandȱorders.ȱ

WeȱdirectȱCPEDȱtoȱinvestigateȱtheȱeventsȱassociatedȱwithȱtheȱoutagesȱassociatedȱ

withȱfiberȱcutsȱonȱAugustȱ3,ȱ2014,ȱSeptemberȱ3,ȱ2015,ȱandȱDecemberȱ9,ȱ2015ȱtoȱanalyzeȱ

whetherȱcarriersȱprovidedȱsafe,ȱreliableȱserviceȱwasȱprovidedȱinȱcomplianceȱwithȱCal.ȱ

PublicȱUtil.ȱsectionsȱ451,ȱandȱ709,ȱandȱinȱcomplianceȱwithȱCaliforniaȱlaws,ȱandȱtheȱ

Commission’sȱrules,ȱorders,ȱandȱDecisions.ȱȱCPEDȱshallȱexamineȱwhetherȱtheȱcarriersȱ

involvedȱinȱtheȱoutageȱpromptlyȱnotifiedȱPSAPsȱandȱtookȱappropriateȱactionȱtoȱallowȱ

publicȱsafetyȱofficialsȱtoȱtakeȱprudentȱstepsȱtoȱfacilitateȱemergencyȱservicesȱaccessȱwhileȱ

9Ȭ1Ȭ1ȱwasȱdown,ȱandȱtoȱprotectȱpublicȱsafety.ȱȱȱ

CPEDȱshallȱexamineȱwhetherȱtheȱlackȱofȱrouteȱdiversityȱcontributedȱtoȱtheȱextentȱ

andȱlengthȱofȱtheȱoutages.ȱCPEDȱshallȱanalyzeȱreportsȱthatȱsoftwareȱmodificationsȱwereȱ

madeȱtoȱincreaseȱresiliency,ȱandȱinquireȱwhyȱsuchȱmodificationsȱwereȱnotȱmadeȱpriorȱtoȱ

theȱoutagesȱofȱ2014Ȭ2015ȱinȱtheȱMendocino,ȱHumboldt,ȱandȱDelȱNorteȱregions.ȱȱCPEDȱ

shallȱrecommendȱwhetherȱtoȱbringȱanȱadjudicatoryȱOIIȱorȱtakeȱotherȱactionsȱbasedȱonȱ

theseȱoutagesȱinȱlightȱofȱtheirȱscale,ȱwidespreadȱlossȱofȱdialȬtoneȱincludingȱaccessȱtoȱȱ

9Ȭ1Ȭ1ȱservice,ȱandȱeffectȱonȱseveralȱtypesȱofȱservices.ȱ

7.3.3. Meet and confer on 9-1-1 addressing issues with Federally recognized Tribes in California and County OES

7.3.3.1. California Federally Recognized Tribe 9-1-1 Address Issue AtȱtheȱMiddletownȱPPH,ȱseveralȱspeakersȱstatedȱthatȱtheȱ9Ȭ1Ȭ1ȱ(ETNS)ȱdatabaseȱdidȱnotȱ

identifyȱtheirȱhouseholdȱwhenȱtheyȱcalledȱ9Ȭ1Ȭ1ȱdueȱtoȱdifferencesȱbetweenȱtheȱtribalȱ

addressȱsystemȱandȱthatȱusedȱinȱtheȱETNSȱdatabase.ȱȱWeȱaskedȱinȱtheȱSeptemberȱ9ȱACR,ȱ

whatȱstepsȱtheȱCommissionȱshouldȱtakeȱtoȱassureȱthatȱtheȱETNSȱdatabaseȱisȱpopulatedȱ

withȱaccurateȱaddresses,ȱincludingȱinȱTribalȱareas.ȱȱȱ

CforATȱnotedȱthatȱUrsulaȱSimon,ȱaȱmemberȱofȱtheȱMiddletownȱRancheria,ȱ

describedȱatȱtheȱMiddletownȱPPHȱhowȱcallsȱtoȱ911ȱfromȱtheȱRancheriaȱdoȱnotȱprovideȱ


114

locationȱinformationȱonȱtheȱreservationȱ(whichȱdoesȱnotȱuseȱstandardȱaddresses).”215ȱ

Theȱ9Ȭ1Ȭ1ȱaddressingȱissueȱleadsȱtoȱdelaysȱwhenȱaȱtribalȱmemberȱcallsȱforȱemergencyȱ

servicesȱincludingȱanȱambulance.ȱȱ

Ms.ȱSimonȱdescribedȱtheȱlackȱofȱreliableȱserviceȱonȱaȱNativeȱAmericanȱ

reservation,ȱincludingȱtheȱimpactȱofȱunreliableȱserviceȱonȱherȱpersonallyȱasȱtheȱmotherȱ

ofȱaȱchildȱwithȱasthma.216ȱȱSheȱalsoȱdescribedȱtheȱinabilityȱofȱresidentsȱofȱtheȱreservationȱ

toȱcommunicateȱduringȱtheȱ2015ȱValleyȱfireȱthatȱimpactedȱtheirȱcommunity.”217ȱȱSheȱ

addedȱthatȱresidentsȱofȱtheȱMiddletownȱRancheriaȱareȱtoldȱthatȱtheyȱcannotȱsignȱupȱforȱ

phoneȱserviceȱasȱ“thereȱareȱnotȱenoughȱportsȱthatȱcanȱsupportȱtheȱhousingȱstructuresȱonȱ

theȱreservation…Youȱhaveȱtoȱwaitȱuntilȱsomebodyȱcan’tȱpayȱtheirȱbill.”218ȱȱMs.ȱSimonȱ

urged,ȱ“Theyȱneedȱtoȱcomeȱoutȱandȱaddȱmoreȱportsȱtoȱtheȱpoleȱtoȱgrowȱwithȱourȱgrowthȱ

onȱtheȱreservation.”219ȱ

AtȱtheȱSanȱAndreasȱPPHȱTuolumneȱCountyȱDeputyȱSheriffȱLeeȱEarhartȱ

commentedȱthatȱtheyȱhadȱworkedȱwithȱaȱNativeȱAmericanȱtribeȱinȱTuolumneȱCountyȱ

whereȱ9Ȭ1Ȭ1ȱcallȱ“cameȱbackȱtoȱtheȱsameȱaddressȱthatȱwasȱonȱthatȱproperty.ȱȱSoȱweȱ

didn’tȱknowȱwhereȱtheȱcallȱwasȱplaced.ȱȱWeȱwereȱableȱtoȱresolveȱthat.ȱȱContractedȱthem,ȱ

madeȱthemȱawareȱofȱitȱandȱweȱwereȱableȱtoȱresolveȱthat.”220ȱȱSuchȱcollaborationȱbetweenȱ

CaliforniaȱNativeȱAmericanȱtribes,ȱpublicȱsafety,ȱcarriers,ȱandȱtheȱCommissionȱisȱ

importantȱtoȱensuresȱthatȱallȱCaliforniansȱareȱproperlyȱrecognizedȱinȱtheȱ9Ȭ1Ȭ1ȱdatabaseȱ

soȱtheirȱaddressȱshowsȱtoȱpublicȱsafetyȱpersonnelȱwhenȱhelpȱisȱneeded.ȱȱȱ

215ȱCforATȱCommentsȱonȱACR,ȱ(CitingȱMiddletownȱTr.,ȱpp.ȱ869Ȭ876).ȱ216ȱId.ȱ217ȱId.ȱ218ȱMiddletownȱTr.,ȱpp.ȱ878.ȱ219ȱId.ȱ220ȱSanȱAndreasȱPPH,ȱTr.,ȱp.ȱ328.ȱ


115

ThroughȱourȱworkȱwithȱCalifornia’sȱNativeȱAmericanȱtribes,ȱweȱrecognizeȱthatȱ

severalȱfederallyȬrecognizedȱtribesȱhaveȱdifferentȱaddressingȱsystemsȱthanȱtheȱoneȱusedȱ

byȱtheȱU.S.ȱpostȱoffice.ȱȱThisȱmayȱcreateȱissueȱforȱ9Ȭ1Ȭ1ȱdatabasesȱandȱlocation,ȱandȱ

delaysȱifȱallȱtribalȱmembersȱareȱshownȱasȱhavingȱtheȱsameȱaddress.ȱ

7.3.3.2. Decision Weȱorderȱrespondentȱcarriersȱtoȱholdȱaȱmeetȱandȱconferȱwithinȱ180ȱdaysȱofȱtheȱ

dateȱofȱthisȱDecisionȱwithȱfederallyȱrecognizedȱtribesȱinȱtheȱareasȱtheyȱserve,ȱincludingȱ

theȱlocalȱCountyȱOESȱorȱ9Ȭ1Ȭ1ȱdatabaseȱmanagerȱtoȱdiscussȱtheȱ9Ȭ1Ȭ1ȱaddressingȱandȱ

locationȱissues.ȱȱTheȱgoalȱofȱtheȱmeetȱandȱconferȱisȱnotȱtoȱimposeȱanȱaddressȱonȱtribalȱ

members,ȱbutȱtoȱallowȱtribalȱmembersȱtoȱgetȱquickerȱaccessȱtoȱemergencyȱservicesȱ

throughȱaȱcommonlyȱagreedȱtoȱaddressingȱsystemȱthatȱwillȱspeedȱhelpȱtoȱtheirȱdoorȱ

whenȱneeded.ȱȱ

CarriersȱshallȱreportȱtoȱtheȱCommissionȱwithinȱ30ȱdaysȱofȱeachȱmeetȱandȱconferȱ

regardingȱtheȱprogressȱandȱsubstanceȱofȱtheirȱmeetȱandȱconferȱandȱmutualȱeffortsȱtoȱ

improveȱ9Ȭ1Ȭ1ȱlocationȱinformationȱonȱtribalȱlandsȱinȱCalifornia.ȱȱ

7.3.3.3. Disaster-driven Outages, and Outages During Extended Emergencies

7.3.3.3.1. Communications or the Lack Thereof During Wildfires CaliforniaȱhasȱsufferedȱdozensȱandȱdozensȱofȱlargeȬscaleȱwildfireȱoverȱtheȱpastȱ

fiveȱyearsȱofȱdrought.ȱȱTheseȱfiresȱendangerȱcommunities,ȱwildlife,ȱresources,ȱproperty,ȱ

infrastructure,ȱourȱwater,ȱair,ȱsecurity,ȱandȱsafety.ȱȱ

ThroughȱthisȱOII’sȱproceedings,ȱweȱheardȱterrifyingȱaccountsȱofȱpeopleȱrunningȱ

forȱtheirȱlivesȱduringȱfiresȱasȱtelephoneȱandȱinȱsomeȱcasesȱelectricȱlinesȱandȱpolesȱ

burnedȱandȱ9Ȭ1Ȭ1ȱwasȱout.ȱȱSheriffsȱdroveȱneighborhoodsȱinȱpatrolȱcarsȱandȱusedȱbullȱ


116

hornsȱtoȱtellȱresidentsȱofȱCalaverasȱCounty,ȱtheȱ2015ȱButteȱfire,ȱtheȱ2015ȱValleyȱandȱ2016ȱ

ClaytonȱfiresȱinȱLakeȱCounty,ȱandȱtheȱ2013ȱRimȱfireȱinȱTuolumneȱCounty.221ȱȱȱ

Weȱheardȱfrustrationȱandȱfearȱfromȱresidents,ȱgovernmentȱandȱpublicȱsafetyȱ

officialsȱaboutȱtheȱlongȱdelays,ȱoftenȱoneȱtoȱtwoȱweeksȱtoȱestablishȱmobileȱtelephoneȱ

andȱInternetȱserviceȱforȱfireȱresponse,ȱevenȱforȱveryȱlargeȱfiresȱsuchȱasȱtheȱ2013ȱRimȱFire,ȱ

theȱthirdȱlargestȱinȱtheȱstate.222ȱȱWeȱlearnedȱaboutȱ9Ȭ1Ȭ1ȱdatabaseȱaccessȱissuesȱthatȱledȱ

TuolumneȱCountyȱtoȱscrambleȱtoȱbuyȱComcast’sȱVoIPȱdatabaseȱduringȱtheȱRimȱFire.223ȱ

Weȱalsoȱreceivedȱcommentsȱaboutȱtheȱinabilityȱofȱcallersȱtoȱreachȱ9Ȭ1Ȭ1ȱdueȱtoȱnoȱdialȱ

toneȱandȱotherȱissues.224ȱȱ

Communicationsȱplaysȱaȱkeyȱroleȱinȱfireȱresponse,ȱevacuation,ȱandȱtheȱaftermath.ȱ

CforATȱACRȱComments:ȱButteȱFire:ȱ“Inȱadditionȱtoȱtheseȱgeneralȱconcerns,ȱwhichȱheȱ

[CalaverasȱCountyȱSupervisorȱCliffȱEdson]ȱhasȱpreviouslyȱsoughtȱtoȱhaveȱaddressedȱbyȱ

theȱCommission,ȱheȱalsoȱdescribedȱtheȱdifficultiesȱfacedȱinȱhisȱcommunityȱduringȱaȱ

recentȱseriousȱfire,ȱinȱwhichȱtheȱcountyȱhadȱtoȱsendȱisȱ“belovedȱsheriff,ȱourȱdeputyȱ

sheriffs,ȱandȱourȱemergencyȱfirstȱrespondersȱoutȱtoȱevacuateȱpeopleȱbecauseȱthereȱwereȱ

noȱphoneȱlinesȱleftȱhere.ȱȱThereȱwereȱnoȱelectricȱlinesȱleftȱhere.ȱȱAndȱweȱwereȱsendingȱ

ourȱbelovedȱsheriffsȱ[sic]ȱdepartmentȱoutȱtoȱevacuateȱpeopleȱinȱareasȱtheyȱdidnȇtȱknowȱifȱ

itȱwasȱonȱfire,ȱifȱitȱhadȱburntȱorȱwhatȱwasȱgoingȱon.”ȱȱHeȱcontinuedȱbyȱdescribingȱtheȱ

221ȱMiddletown,ȱTr.,ȱp.ȱ865ȱ(duringȱtheȱValleyȱfireȱ“Weȱdidȱnotȱhaveȱanyȱcommunication,ȱphoneȱlinesȱwereȱburntȱ fromȱ theȱ fire.ȱOurȱ cellȱphonesȱdidȱnotȱworkȱnoȱ longer…Weȱ couldȱnotȱevenȱcommunicateȱwithȱ eachȱ other,ȱ toȱ ourȱ [MiddletownȱRancheriaȱ tribe]ȱmembershipȱ andȱ toȱ ourȱlovedȱ ones,ȱ becauseȱ weȱ wereȱ stillȱ here.”)ȱ (statementȱ ofȱ Larryȱ Galupe,ȱ Director,ȱ Twinȱ PineȱCasino);ȱȱMiddletown,ȱTr.,ȱp.ȱ910ȱ(“allȱofȱaȱsuddenȱyouȱseeȱtheȱfire,ȱfiveȱminutesȱlaterȱyouȱgetȱtheȱbullhornsȱtoȱleave”)ȱ(statementȱofȱJamesȱBernauer);ȱSanȱAndreasȱTr.,ȱp.ȱ329ȱ(statingȱthatȱduringȱtheȱRimȱFireȱ“(w)eȱhadȱtoȱnotifyȱseveralȱresidentsȱitȱwasȱtimeȱtoȱevacuate.ȱȱToȱdoȱsoȱweȱhadȱ120ȱcopsȱfromȱallȱoverȱtheȱstateȱinȱourȱlittleȱtownȱofȱTuolumneȱtoȱstartȱdoingȱevacuations,ȱbecauseȱourȱ Reverseȱ 911ȱ systemȱ wasn’tȱ reliableȱ enoughȱ becauseȱ weȱ didn’tȱ haveȱ theȱ information.”ȱ(TuolumneȱCountyȱDeputyȱSheriffȱEarhart).ȱ222ȱSanȱAndreasȱTr.,ȱp.ȱ303.ȱ223ȱSanȱAndreasȱTr.,ȱp.ȱ305.ȱ224ȱSanȱFranciscoȱWorkshop,ȱTr.ȱppȱ132,ȱ180,ȱ182;ȱUkiahȱTr.,ȱpp.ȱ427Ȭ428,ȱ430,ȱ433,ȱ479,ȱ483.ȱ


117

ongoingȱconcernsȱfromȱinadequateȱtelecommunicationsȱresourcesȱinȱhisȱcommunity,ȱ

notingȱthatȱemergenciesȱsuchȱasȱfiresȱcontinueȱtoȱbeȱaȱriskȱtoȱcommunitiesȱandȱnaturalȱ

resourcesȱsuchȱasȱtheȱwatersȱsourcesȱthatȱprovideȱdrinkingȱwaterȱtoȱmajorȱpopulationȱ

centers.ȱȱHeȱnotedȱthatȱforȱfutureȱemergencies,ȱ“ifȱweȱdonȇtȱhaveȱcommunicationsȱtoȱbeȱ

ableȱtoȱmanageȱtheseȱeventsȱandȱsaveȱpeopleȇsȱlivesȱinȱtheȱprocess,ȱandȱkeepȱpeopleȱableȱ

toȱbeȱableȱtoȱfollowȱthroughȱwithȱwhatȱtheyȱareȱtaskedȱtoȱdoȱtoȱbeȱableȱtoȱcontrolȱtheseȱ

largeȱwildfiresȱandȱtheseȱevents,ȱthenȱnotȱonlyȱareȱourȱlivesȱatȱstakeȱbutȱalsoȱgreatȱ

resourcesȱforȱourȱstateȱisȱatȱstakeȱbecauseȱȬȬȱandȱthatȱcostsȱmillionsȱofȱdollars,ȱkindȱofȱ

delayedȱresponseȱonȱtheȱwayȱweȱareȱgoingȱtoȱpayȱforȱthatȱbutȱpayȱforȱitȱeventually.”225ȱ

AtȱtheȱSanȱAndreasȱPPH,ȱTuolumneȱCountyȱSupervisorȱRandyȱHanveldtȱandȱ

DeputyȱSheriffȱEarhardtȱexpressedȱtheirȱfrustrationȱatȱlearningȱduringȱaȱfireȱaboutȱtheȱ

processȱforȱaccessȱtoȱtheȱdatabaseȱofȱcertainȱcarriersȱforȱtheȱpurposeȱofȱpopulatingȱtheȱ

databaseȱforȱ9Ȭ1Ȭ1ȱtoȱcallȱtheȱcustomer.ȱȱDuringȱtheȱRimȱFire,ȱTuolumneȱCountyȱlearnedȱ

thatȱitȱdidȱnotȱhaveȱandȱhadȱtoȱbuyȱComcast’sȱVoIPȱdatabase.226ȱȱTuolumneȱCountyȱ

SupervisorȱRandyȱHanveltȱexplainedȱthatȱwhenȱtheȱCountyȱwasȱtryingȱtoȱmakeȱ

evacuationȱcallsȱduringȱtheȱRimȱFireȱtheyȱrealizedȱtheyȱwereȱmissingȱcertainȱComcastȱ

customersȱandȱthatȱComcastȱ“neverȱgaveȱusȱtheȱlist.ȱȱTheyȱsaid,ȱ“Oh,ȱwell,ȱyou’veȱgotȱtoȱ

signȱaȱnondisclosureȱagreement.ȱȱYou’veȱgotȱtoȱpayȱus.”227ȱ“I’veȱgotȱtoȱpayȱyouȱsoȱthatȱIȱ

canȱtreatȱyourȱclientsȱwithȱReverseȱ911ȱinformation,ȱemergencyȱinformation?...Turnsȱoutȱ

Iȱguessȱeverybodyȱdoesȱthat.ȱȱItȱshouldȱbeȱaȱrequirementȱthatȱitȱbeȱinȱtheȱsystemȱsoȱitȱ

225ȱCforȱAT,ȱp.ȱ12ȱ(citingȱSanȱAndreasȱTr.,ȱpp.ȱ367Ȭ368).ȱ226ȱSanȱAndreasȱTr.,ȱpp.ȱ304Ȭ305ȱ(“Comcastȱtheyȱjustȱcomeȱinȱandȱputȱsomeȱfiberȱinȱtheirȱarea…Theyȱsignedȱupȱpeopleȱbecauseȱtheyȱgotȱbetterȱserviceȱwithȱfiberȱbutȱtheyȱneverȱgaveȱusȱtheȱlist.”ȱ(TuolumneȱCountyȱSupervisorȱRandyȱHanvelt)).ȱ227ȱId.,ȱp.ȱ304.ȱ


118

works,”ȱsaidȱSupervisorȱHanvelt.228ȱȱWhileȱbuyingȱaȱdatabaseȱmayȱbeȱstandardȱpractice,ȱ

theȱprocessȱcanȱdelayȱevacuationsȱwhenȱdoneȱduringȱaȱlargeȬscaleȱfire.ȱ

OneȱofȱtheȱkeyȱrolesȱforȱCountyȱEmergencyȱServiceȱOfficesȱ(CountyȱOES)ȱisȱtoȱactȱ

asȱtheȱ“Operationalȱareaȱlevel”ȱmanagerȱand/orȱcoordinatorȱwhenȱtheȱstate’sȱSEMSȱ

incidentȱmanagementȱsystemȱisȱactivatedȱtoȱrespondȱtoȱanȱemergency.ȱUnderȱCaliforniaȱ

CodeȱofȱRegulationsȱ(CCR)ȱTitleȱ19,ȱ§ȱ2401.ȱ

CountyȱOfficesȱofȱEmergencyȱServicesȱmanageȱtheȱoperationalȱareaȱlevelȱinȱ

coordinationȱwithȱorȱunderȱcommandȱofȱtheȱCountyȱSheriff.ȱȱTheȱoperationalȱareaȱlevelȱ

“servesȱasȱtheȱcoordinationȱandȱcommunicationȱlinkȱbetweenȱtheȱlocalȱgovernmentȱ

levelȱandȱtheȱregionalȱlevel,”ȱandȱthusȱcommunicationsȱareȱvitalȱtoȱperformingȱthatȱ

functionȱtoȱcoordinateȱfieldȱandȱlocalȱresponse,ȱandȱregionalȱassistanceȱasȱneeded.ȱ229ȱȱ

Theȱstateȱlevelȱservesȱasȱ“theȱcoordinationȱandȱcommunicationȱlinkȱwithȱtheȱfederalȱ

disasterȱresponseȱsystem,”ȱandȱmanagesȱresourcesȱatȱtheȱregionalȱandȱstateȱlevel.ȱȱThisȱ

divisionȱofȱresponsibilitiesȱleveragesȱmutualȱaidȱandȱtheȱscaleȱofȱresourcesȱ

commensurateȱwithȱtheȱemergency.ȱ

Stateȱlawȱassignsȱcountiesȱkeyȱroleȱinȱcoordinationȱofȱemergencyȱresponseȱ

beyondȱtheȱlocalȱlevel.ȱȱCommunicationsȱbetweenȱtheȱcountyȱoperationalȱlevelȱforȱ

incidentȱcommandȱandȱlocalȱpoliticalȱsubdivisions,ȱasȱwellȱasȱtoȱtheȱstateȱemergencyȱ

operationsȱcentersȱareȱfoundationalȱresponsibilitiesȱforȱtheȱoperationalȱareasȱlevel.ȱȱ

Communicationsȱfacilitiesȱandȱservicesȱareȱkeyȱtoȱexecutingȱtheseȱduties.ȱȱȱ

Duringȱfiresȱandȱotherȱdisasters,ȱworkingȱcommunicationsȱcanȱgreatlyȱfacilitateȱ

aid,ȱevacuation,ȱbattlingȱtheȱfire,ȱgettingȱandȱcoordinationȱresources.ȱȱPoorȱ

communicationsȱserviceȱhampersȱfireȱresponseȱasȱfieldȱcrewsȱfoughtȱfiresȱwithoutȱtheȱ

benefitȱofȱtheȱInternetȱage,ȱorȱevenȱtheȱtelephoneȱage.ȱȱȱ 228ȱId.ȱ229ȱTheȱCaliforniaȱCodeȱofȱRegulationsȱ(CCR)ȱTitleȱ19,ȱ§ȱ2401.ȱȱȱ


119

DuringȱtheȱRimȱFireȱpublicȱsafetyȱpersonnelȱorganizedȱ“cellȱphoneȱbrigades”ȱtoȱ

driveȱoutȱofȱtheȱfireȱzoneȱtoȱmakeȱaȱcall,ȱthenȱdriveȱbackȱtoȱtheȱfireȱcampȱwithȱ

information,ȱandȱsendȱtheȱnextȱpersonȱonȱtheȱconnectionȱrelay.ȱȱTheȱSeptemberȱ9ȱACRȱ

askedȱ“HowȱshouldȱtheȱCommissionȱaddressȱ9Ȭ1Ȭ1,ȱdialȱtone,ȱandȱemergencyȱserviceȱ

accessȱissuesȱincludingȱforȱfirstȱresponders,ȱandȱpublicȱsafetyȱofficials?ȱȱWhatȱstepsȱ

shouldȱtheȱCommissionȱtakeȱtoȱfacilitateȱcommunicationsȱaccessȱforȱfirstȱrespondersȱ

andȱpublicȱsafetyȱofficialsȱduringȱanȱemergencyȱresponseȱandȱrecovery?”ȱ

California,ȱhomeȱofȱtheȱSiliconȱValley,ȱcanȱandȱmustȱdoȱbetterȱforȱourȱ

communities,ȱpublicȱsafetyȱpersonnel,ȱandȱenvironment.ȱȱWeȱallȱsufferȱfromȱtheȱ

greenhouseȱgasesȱemittedȱbyȱfire,ȱtoxinsȱleftȱafterȱaȱfireȱburnsȱhomesȱandȱbusinesses,ȱ

andȱdevastatedȱforestsȱthatȱproduceȱdebrisȱflowsȱandȱfloodsȱthatȱendangerȱresidentsȱ

andȱwaterȱresources.ȱȱ

ȱ Cellȱphoneȱbrigadesȱareȱnecessaryȱwhileȱemergencyȱservicesȱareȱestablishedȱtoȱ

supportȱaȱfireȱresponse.ȱȱConstructionȱofȱtheȱconnectionȱtoȱsupportȱaȱCellȬonȬWheelsȱ

(COW)ȱorȱaȱCellȱonȱLightȱTrucksȱ(COLT)ȱtoȱprovideȱemergencyȱcommunicationȱservicesȱ

includingȱmobileȱphoneȱandȱdataȱoftenȱtakesȱfiveȱdaysȱtoȱtwoȱweeks.ȱAlthoughȱOESȱ

coordinatesȱwithȱcarriers,ȱparticularlyȱAT&T,ȱMobility,ȱVerizon,ȱWireless,ȱtoȱprovideȱaȱ

COWȱorȱaȱCOLTȱtoȱprovideȱtheȱcommunicationsȱandȱdataȱmodernȱfirefightersȱneed,ȱitȱ

takesȱtimeȱbuildȱtheȱbackhaulȱandȱconnectionsȱneededȱtoȱcarryȱcallsȱandȱdata.ȱCarriersȱ

willȱoftenȱextendȱplainȱoldȱtelephoneȱlinesȱfromȱaȱCentralȱOfficeȱtoȱprovideȱfireȱfightersȱ

withȱsomeȱcommunicationȱwhileȱtheyȱareȱconnectingȱtheȱCOWȱorȱCOLTȱtoȱmobileȱ

servicesȱandȱtheȱInternet.ȱȱȱ

ȱ DuringȱtheȱtimeȱtheȱCOWȱorȱCOLTȱisȱbeingȱsetȱup,ȱaȱwildfireȱoftenȱragesȱandȱ

grows.ȱȱThisȱposesȱrisksȱtoȱtheȱpublic,ȱfirstȱresponders,ȱtheȱenvironment,ȱandȱpropertyȱatȱ

riskȱofȱburning.ȱȱUtilityȱinfrastructureȱhasȱbeenȱheavilyȱaffectedȱbyȱCalifornia’sȱfiresȱinȱ

theȱpastȱfiveȱyears.ȱȱ


120

ȱ TheȱCommissionȱallowsȱelectricȱutilitiesȱtoȱsetȱupȱCatastrophicȱEventȱ

MemorandumȱAccountsȱ(CEMA)ȱforȱlargeȱfiresȱandȱstatesȱofȱemergency.ȱOneȱlargeȱfireȱ

producedȱaȱCEMAȱaccountȱoverȱ$100ȱmillion,ȱwhileȱothersȱgeneratedȱclaimsȱofȱȱ

$374ȱmillion.ȱȱTogether,ȱPG&Eȱenergyȱratepayersȱareȱrequestedȱtoȱpayȱmoreȱthanȱ

$200ȱmillionȱforȱdestructionȱofȱinfrastructureȱandȱutilityȱresourcesȱduringȱfiresȱsinceȱ

2013ȱasȱindicatedȱbyȱCEMAȱaccounts.ȱ

7.3.3.3.2. Decision Toȱfosterȱcooperationȱpriorȱtoȱemergencyȱincidents,ȱandȱunderstandingȱofȱmutualȱ

needsȱandȱopportunities,ȱweȱdirectȱtheȱSafetyȱandȱEnforcementȱDivisionȱandȱtheȱ

CommunicationsȱDivisionȱtoȱconveneȱaȱmeetȱandȱconferȱbetweenȱrespondentsȱandȱtheȱ

CaliforniaȱUtilityȱEmergencyȱAssociationȱ(CUEA),ȱtheȱCaliforniaȱCommunicationsȱ

Association,ȱandȱinviteȱCalȱOES,ȱCalȬFire,ȱtheȱGovernor’sȱTreeȱMortalityȱTaskȱForce,ȱtheȱ

Governor’sȱOfficeȱofȱTribalȱAdvisor,ȱEmergencyȱServicesȱrepresentativesȱforȱfederallyȬ

recognizesȱtribesȱinȱCalifornia,ȱCountyȱOESȱrepresentatives,ȱtoȱdiscussȱemergencyȱ

communicationsȱneeds,ȱandȱoptionsȱtoȱimproveȱspeedȱofȱaccessȱtoȱcommunicationsȱ

facilitiesȱandȱservicesȱduringȱemergencies.ȱȱȱ

Withinȱ90ȱdaysȱofȱtheȱdateȱofȱthisȱDecision,ȱweȱdirectȱcarriersȱtoȱprovideȱCountyȱ

OESȱofficesȱwithȱwrittenȱinformationȱaboutȱhowȱtoȱobtainȱaccessȱtoȱtheȱdatabaseȱforȱtheȱ

purposeȱofȱhavingȱ9Ȭ1Ȭ1ȱcallȱconstituentsȱaboutȱevacuationȱorȱotherȱsuchȱemergencyȱ

messages.ȱȱTheȱinformationȱshouldȱdetailȱtheȱpriceȱforȱsuchȱdatabase(s)ȱandȱtheȱprocessȱ

forȱobtainingȱit.ȱCarriersȱshallȱworkȱcooperativelyȱwithȱCountyȱOESȱandȱanyȱlocalȱOESȱ

whoȱwantsȱtoȱpurchaseȱtheȱdatabaseȱtoȱfacilitateȱpublicȱsafetyȱandȱsafe,ȱreliableȱservice.ȱ


121

8. Data Gap for Information about Dial Tone Outages and Lack of Access to 9-1-1 8.1. NORS Data Gap for Outages Under 900,000 User Minutes, and

GO-133(D) Data Gap when the Repair Ticket Standard is Not Prompted

ThisȱOIIȱhasȱhighlightedȱaȱdataȱgapsȱforȱoutagesȱthatȱfallȱbelowȱtheȱMajorȱServiceȱ

InterruptionȱThresholdȱofȱGOȱ133ȬD(4)ȱthatȱparallelsȱtheȱNORSȱstandard,ȱandȱisȱnotȱ

adequatelyȱcapturedȱbyȱtheȱOutȬOfȬServiceȱrepairȱtimeȱafterȱtroubleȱticketȱmetric.ȱȱ

Additionally,ȱGOȱ133ȬDȱreportingȱisȱatȱtheȱstatewideȱlevel.ȱȱThisȱstatewideȱreportingȱcanȱ

obscureȱlocalizedȱproblems,ȱevenȱthoseȱthatȱgenerateȱfrequentȱrepairȱrequests.ȱȱȱ

TheȱCommissionȱhasȱtheȱabilityȱtoȱanalyzeȱGOȱ133ȬDȱreportsȱatȱaȱmoreȱlocalizedȱ

level.ȱȱCommunicationsȱDivision’sȱanalysisȱofȱtheȱGOȱ133ȬDȱreportsȱforȱAugustȱ2014,ȱ

theȱmonthȱofȱtheȱfirstȱmajorȱMendocinoȱoutage,ȱhighlightsȱtheȱlackȱofȱreportsȱofȱserviceȱ

restorationȱinȱresponseȱtoȱrepairȱtickets.ȱȱThisȱexampleȱrevealsȱtheȱdataȱgapȱthatȱresultsȱ

fromȱtheȱrelianceȱonȱrepairȱticketsȱtoȱspurȱreportingȱofȱoutageȱresponse.ȱȱ

TheȱexactȱnumberȱofȱCaliforniansȱwhoȱlostȱphoneȱserviceȱinȱtheȱ2014ȱMendocinoȱ

outageȱisȱnotȱknownȱtoȱthisȱCommissionȱbecauseȱofȱtheȱdataȱgapȱinȱNORSȱreportingȱandȱ

theȱrepairȱticketȱreportingȱthresholdsȱsetȱinȱGOȱ133ȬD.ȱȱIfȱcustomersȱareȱunableȱtoȱmakeȱ

aȱcallȱtoȱreportȱanȱoutageȱduringȱaȱlargeȬscaleȱoutage,ȱorȱanȱoutageȱatȱtheirȱhomeȱorȱ

business,ȱanȱ“outȱofȱserviceȱtroubleȱreport”ȱmayȱnotȱbeȱsubmittedȱbyȱtheȱconsumerȱtoȱ

theȱcarrierȱorȱbyȱtheȱcarrierȱbeforeȱserviceȱisȱrestored.ȱIfȱcustomersȱwereȱunableȱtoȱorȱdidȱ

notȱsubmitȱanȱ“outȱofȱserviceȱtroubleȱreport”ȱduringȱtheȱoutage,ȱandȱtheȱcarrierȱdidȱnotȱ

submitȱaȱticketȱonȱitsȱownȱinitiative,ȱtheȱclockȱneverȱbeganȱonȱcomplianceȱwithȱtheȱOutȬ

OfȬServiceȱstandardȱofȱGOȱ133ȬD.ȱȱTheȱclockȱneverȱbeginsȱforȱoutagesȱthatȱcustomersȱ

haveȱdifficultyȱreporting,ȱorȱdoȱnotȱreport,ȱorȱwhereȱcarriersȱdoȱnotȱtoȱinitiateȱaȱreportȱ

forȱallȱconsumersȱaffectedȱbyȱanȱoutage.ȱGOȱ133ȬDȱdoesn’tȱcaptureȱtheȱbreadthȱandȱ

extentȱofȱsuchȱoutages,ȱevenȱwhenȱtheyȱaffectȱhundredsȱorȱthousandsȱofȱcustomers.ȱȱȱȱȱ


122

FollowingȱFrontier’sȱtransitionȱfromȱVerizon,ȱCalifornia,ȱFrontierȱadmittedȱthatȱ

theirȱcallȱcenterȱdidȱnotȱenterȱrepairȱticketsȱforȱsomeȱcustomersȱsoȱtheȱrepairȱtimeȱ

standardȱunderȱGOȱ133ȬCȱneverȱbeganȱforȱthoseȱcustomers.ȱȱIfȱaȱcustomerȱcannotȱreachȱ

aȱcarrierȱduringȱanȱoutageȱwhileȱtheirȱphoneȱisȱdownȱtoȱenterȱrequestȱaȱrepairȱticket,ȱtheȱ

repairȱstandardȱisȱnotȱtriggered.ȱȱIfȱtheȱcarrierȱdoesn’tȱgenerateȱaȱrepairȱticketȱforȱeachȱ

lineȱthatȱisȱoutȱduringȱaȱwidespreadȱoutageȱtheȱGOȱ133ȬDȱstandardȱisȱnotȱtriggered.ȱ

TheseȱpracticesȱcircumventȱGOȱ133ȬD,ȱmakingȱitȱdifficultȱforȱtheȱCommissionȱtoȱanalyzeȱ

complianceȱwithȱserviceȱqualityȱstandards,ȱevenȱwhenȱtheȱCommissionȱcanȱseeȱlocalȱ

data,ȱbecauseȱnoȱdataȱisȱgeneratedȱifȱnoȱrepairȱticketȱisȱstarted,ȱevenȱwhenȱthere’sȱaȱ

widespreadȱoutage.ȱ

GOȱ133ȬDȱisȱoneȱwayȱtoȱmeasureȱcomplianceȱwithȱserviceȱqualityȱstandardsȱ

requiredȱbyȱCal.ȱPub.ȱUtil.ȱCodeȱsectionȱ709.ȱȱThisȱCommissionȱGeneralȱOrderȱdoesȱnotȱ

captureȱallȱobligationsȱtoȱprovideȱhighȬqualityȱserviceȱthroughoutȱtheȱstate.ȱȱNeitherȱ

doesȱitȱpurportȱtoȱoverrideȱtheȱstatutoryȱdutyȱtoȱprovideȱreliableȱserviceȱwithȱadequateȱ

facilitiesȱunderȱCAȱPUȱCodeȱ451,ȱandȱtheȱdutyȱnotȱtoȱmaintainȱunreasonableȱdifferencesȱ

inȱservicesȱorȱfacilitiesȱbetweenȱlocalitiesȱorȱclassesȱofȱserviceȱunderȱCal.ȱPub.ȱUtil.ȱCodeȱ

sectionȱ453.ȱ

NeitherȱareȱsuchȱeventsȱcapturedȱbyȱNORSȱdataȱsubmittedȱtoȱtheȱFCCȱifȱtheȱ

voiceȱoutageȱaffectsȱlessȱthanȱtheȱNORSȱthresholdȱofȱ900,000ȱuserȱminutesȱforȱanȱoutageȱ

lastingȱatȱleastȱ30ȱminutes.ȱȱNorȱwouldȱsuchȱaȱvoiceȱoutageȱbeȱcapturedȱbyȱNORSȱifȱtheȱ

carrierȱonlyȱreportsȱaȱ“transportȱfacility”ȱoutage,ȱthatȱfiberȱcarryingȱdataȱtrafficȱisȱout,ȱ

butȱdoesȱnotȱreportȱtheȱextentȱofȱvoiceȱoutagesȱthatȱresultȱfromȱlackȱofȱtheȱtransportȱ

backhaul.ȱȱ

ThisȱOIIȱidentifiedȱaȱsignificantȱdataȱgapȱneitherȱfilledȱbyȱGOȱ133ȱ(D)ȱinformationȱ

forȱoutagesȱwhereȱnoȱrepairȱticketsȱisȱgenerated,ȱandȱforȱoutagesȱthatȱfallȱbelowȱtheȱ

federalȱreportingȱthresholdȱinȱtheȱFCCȱNetworkȱOutageȱReportingȱSystemȱ(NORS)ȱthatȱ

requiresȱoutagesȱtoȱbeȱreportedȱwhenȱtheyȱaffectȱ900,000ȱuserȱminutesȱforȱatȱleastȱ30ȱ


123

minutes.230ȱȱTheȱCommission’sȱrecentlyȱadoptedȱGOȱ133ȬDȱrulesȱrequireȱreportingȱtoȱtheȱ

Commissionȱofȱ“MajorȱServiceȱInterruption”ȱasȱdefinedȱbyȱtheȱNORSȱstandardȱasȱmayȱ

beȱmodifiedȱoverȱtime.231ȱȱTheȱFCCȱisȱexaminingȱwhetherȱtoȱmodifyȱthoseȱoutageȱ

reportingȱrequirementsȱforȱwirelessȱcarriers,ȱbutȱitsȱMayȱ2016ȱOrderȱleftȱinȱplaceȱtheȱ

900,000ȱuserȱminuteȱoutageȱforȱ30ȱminuteȱthresholdȱforȱwirelineȱcarriers.232ȱȱȱ

8.2. Decision TheȱdataȱgapȱdiscussedȱaboveȱleavesȱthisȱCommissionȱunableȱtoȱquantitativelyȱ

assessȱtheȱextentȱandȱoccurrenceȱofȱwideȱscaleȱcommunicationsȱoutages.ȱȱConcurrently,ȱ

CaliforniaȱlegalȱstandardsȱandȱthisȱCommission’sȱrules,ȱorders,ȱandȱDecisionsȱrequireȱ

carriersȱtoȱprovideȱsafe,ȱreliableȱservice,ȱandȱhighȬqualityȱcommunicationsȱserviceȱ

throughoutȱtheȱstate.ȱȱCal.ȱPub.ȱUtil.ȱCodeȱsectionsȱ451,ȱ709,ȱandȱandȱ2896(c).ȱȱ

InformationȱaboutȱoutageȱbelowȱtheȱNORSȱlevelȱandȱnotȱadequatelyȱcapturedȱbyȱ

customerȱoneȬbyȬoneȱinitiationȱofȱtroubleȱticketsȱwouldȱalsoȱinformȱtheȱNetworkȱStudyȱ

weȱorderedȱinȱD.15Ȭ08Ȭ041,ȱinȱR.11Ȭ12Ȭ001.ȱȱȱ

TheȱCommissionȱconfrontedȱaȱsimilarȱinformationȱgapȱinȱitsȱproceedingȱtoȱreviseȱ

electricȱreliabilityȱreportingȱrequirementsȱasȱrequiredȱbyȱCal.ȱPub.ȱUtil.ȱCodeȱsectionȱ

2774.1.ȱȱInȱD.16Ȭ01Ȭ008ȱtheȱCommissionȱnotedȱ“(t)heȱcurrentȱfocusȱofȱ[electric]ȱreliabilityȱ

reportingȱisȱatȱtheȱsystemȬlevel.ȱThisȱmeansȱinformationȱisȱaggregatedȱforȱtheȱentireȱ

electricȱserviceȱterritoryȱorȱsystemȱforȱeachȱelectricȱutility.ȱȱThusȱmunicipalities,ȱ

businessesȱorȱhomeownersȱwhoȱwantȱreliabilityȱinformationȱthatȱisȱspecificȱtoȱtheirȱ

230ȱ47ȱC.F.R.ȱ4.5;ȱFCC,ȱReportȱandȱOrderȱandȱFurtherȱNoticeȱofȱProposedȱRulemakingȱonȱAmendmentsȱtoȱPartȱ4ȱofȱtheȱCommission’sȱRulesȱConcerningȱDisruptionsȱtoȱCommunications,ȱ¶ȱ1(PSȱDocketȱNo.ȱ15Ȭ80;ȱETȱDocketȱNo.ȱ04Ȭ35;ȱPSȱDocketȱNo.ȱ11Ȭ82),ȱMayȱ26,ȱ2016ȱ[hereinafterȱFCC,ȱNORSȱR&OȱandȱFNPRM].ȱ231ȱOrderȱInstitutingȱRulemakingȱtoȱEvaluateȱTelecommunicationsȱCorporationȱServiceȱQualityȱPerformanceȱandȱConsiderȱModificationȱtoȱServiceȱQualityȱRules,ȱD.16Ȭ08Ȭ021,ȱAppendixȱB,ȱSectionȱ4ȱ[hereinafterȱ“2016ȱServiceȱQualityȱRulesȱDecision”].ȱ232ȱId.,ȱ¶ȱ188.ȱ


124

locationȱmayȱhaveȱtroubleȱgettingȱinformationȱatȱtheȱlevelȱofȱtheȱelectricalȱcircuit(s)ȱthatȱ

serveȱthem.ȱThisȱrulemakingȱaimsȱtoȱimproveȱaccessȱtoȱinformationȱspecificȱtoȱeachȱ

“localȱarea”ȱ(asȱdirectedȱbyȱSectionȱ2774.1).”ȱ

Theȱdataȱgapȱidentifiedȱinȱthisȱproceedingȱleavesȱpublicȱsafetyȱofficials,ȱ

municipalities,ȱcounties,ȱgovernment,ȱnonȬprofitȱagencies,ȱbusinesses,ȱhomeowners,ȱ

andȱevenȱtheȱCommissionȱwithoutȱdataȱtoȱassessȱtheȱreliabilityȱofȱtheȱcommunicationsȱ

facilitiesȱandȱservicesȱinȱtheirȱarea.ȱȱNeitherȱisȱthereȱsufficientȱinformationȱavailableȱtoȱ

publicȱsafetyȱorȱtoȱtheȱpublicȱtoȱdecideȱwhatȱtoȱdoȱwhenȱaȱcommunicationsȱoutageȱisȱ

widespreadȱorȱextensive.ȱȱThisȱinformationȱisȱcriticalȱtoȱpublicȱsafetyȱplanningȱandȱ

response,ȱforȱbusinessȱandȱpersonalȱdecisions,ȱandȱtoȱtheȱabilityȱofȱthisȱCommissionȱtoȱ

ensureȱthatȱcarriersȱcomplyȱwithȱstateȱlawȱandȱtheȱCommission’sȱrules,ȱorders,ȱandȱ

Decisions.ȱ

TheȱCommissionȱcurrentlyȱlacksȱexplicitȱrequirementsȱforȱcarriersȱtoȱreportȱ

outagesȱtoȱpublicȱsafetyȱpersonnel,ȱevenȱwhenȱthoseȱpublicȱsafetyȱofficialsȱareȱ

responsibleȱforȱcommunicatingȱandȱcoordinatingȱduringȱincidents.ȱȱYet,ȱcurrentȱcarrierȱ

reportingȱpracticesȱcreateȱaȱknowledgeȱgapȱthatȱraisesȱtheȱriskȱofȱactionȱduringȱaȱstateȬ

ofȬemergencyȱcausedȱandȱcompoundedȱbyȱoutages.ȱȱLocalȱemergencyȱandȱpublicȱsafetyȱ

personnelȱmustȱactȱtoȱcarryȱoutȱtheirȱpublicȱsafetyȱduties.ȱConcurrently,ȱtheȱ

Commissionȱneedsȱmoreȱdetailedȱinformationȱaboutȱsuchȱoutagesȱtoȱdoȱitsȱjobȱofȱ

ensuringȱcomplianceȱwithȱcarrierȱdutiesȱandȱstandards.ȱ

Aȱcommunicationsȱoutageȱcanȱcreateȱorȱbecomeȱaȱstateȱofȱemergency.ȱȱWhenȱtheȱ

jailȱcan’tȱmakeȱcallsȱbetweenȱoneȱwingȱandȱanother,ȱwhenȱdeputiesȱcan’tȱbeȱreachedȱtoȱ

comeȱintoȱwork,ȱandȱwhenȱlargeȱnumbersȱofȱpeopleȱcan’tȱcallȱ9Ȭ1Ȭ1ȱthisȱcreatesȱaȱstateȱofȱ

emergencyȱthatȱifȱwidespreadȱwillȱtriggerȱtheȱneedȱforȱemergencyȱoperationsȱcenterȱbyȱ

theȱcounty.ȱȱTheȱcounty’sȱdutiesȱunderȱCaliforniaȱlawȱinȱthoseȱcircumstancesȱareȱtoȱ

coordinateȱandȱcommunicateȱwithȱtheȱlocalitiesȱandȱtheȱstateȱduringȱemergencies,ȱbothȱ

ofȱwhichȱareȱmadeȱmuchȱmoreȱdifficultȱwhenȱcommunicationsȱservicesȱareȱout.ȱ


125

8.3. Comments about Actions to Address Data Gap, and Legal Basis for Commission Action

TheȱSeptemberȱ27,ȱ2016ȱACRȱinȱthisȱproceedingȱaskedȱseveralȱquestionsȱaboutȱ

dialȱtoneȱandȱemergencyȱ9Ȭ1Ȭ1ȱaccessȱissuesȱraisedȱbyȱtheȱproceeding’sȱPPH’s,ȱ

Workshops,ȱandȱComments,ȱincludingȱwhetherȱtheȱCommissionȱshouldȱrequireȱoutageȱ

reporting.ȱȱ“Shouldȱ9Ȭ1Ȭ1ȱorȱdialȱoutagesȱbeȱpromptlyȱreportedȱtoȱPublicȱSafetyȱ

AnsweringȱPointsȱ(PSAPs),ȱlocalȱpublicȱsafetyȱofficials,ȱandȱtheȱCommission?ȱShouldȱ

outagesȱbeȱreportedȱtoȱtheȱpublic?ȱHowȱwidespreadȱandȱlengthyȱshouldȱtheȱoutageȱbeȱ

beforeȱtheȱreportingȱisȱrequired?ȱShouldȱreportingȱrequirementsȱvaryȱbyȱarea,ȱe.g.ȱruralȱ

vs.ȱurban?”ȱ

Carriersȱwhoȱrepliedȱonȱthisȱissueȱ(AT&T,ȱCaliforniaȱCTIA,ȱComcast,ȱtheȱ

CaliforniaȱCableȱ&ȱTelecommunicationsȱAssociationȱ(CCTA))ȱarguedȱthatȱtheȱ

CommissionȱshouldȱdeferȱtoȱtheȱFCCȱtoȱsetȱnationalȱoutageȱstandardsȱandȱonlyȱrequireȱ

reportingȱbasedȱonȱtheȱnationalȱthresholdsȱtheȱFCCȱsets.ȱȱCox’sȱACRȱcommentsȱ

counseledȱwaitingȱforȱtheȱCaliforniaȱLegislatureȱtoȱactȱonȱruralȱoutageȱreportingȱ

standards.ȱȱTURN,ȱCforAT,ȱandȱtheȱCountyȱofȱMendocinoȱargueȱthatȱtheȱCommissionȱ

shouldȱadoptȱanȱoutageȱreportingȱthresholdȱofȱ90,000ȱuserȱminutes.ȱȱȱ

ComcastȱarguedȱinȱitsȱACRȱcommentsȱthatȱoutageȱreportingȱisȱnotȱwithinȱtheȱ

scopeȱofȱthisȱproceeding,ȱandȱthatȱtheȱCommissionȱrejectedȱruralȱoutageȱreportingȱ

requirementsȱinȱtheȱServiceȱQualityȱProceedingȱsoȱshouldȱnotȱconsiderȱthemȱhere.ȱȱTheȱ

Mayȱ2015ȱAssignedȱCommissioner’sȱScopingȱMemoȱandȱRulingȱamendedȱtheȱscopeȱofȱ

theȱOIIȱtoȱincludeȱaȱ“reviewȱofȱ911ȱcallȱcompletionȱandȱaccessȱissues,ȱincluding,ȱbutȱnotȱ

limitedȱto,ȱthoseȱdueȱtoȱlossȱofȱdialȬtoneȱforȱreasonsȱotherȱthanȱserviceȱcancellation.”233ȱȱ

ConsiderationȱofȱlossȱofȱdialȬtoneȱandȱ9Ȭ1Ȭ1ȱaccessȱraisesȱtheȱquestionȱwhatȱactionsȱtheȱ

233ȱAmendedȱScopingȱMemo,ȱp.ȱ4.ȱȱThisȱdocumentȱisȱtitledȱ“AmendedȱScopingȱMemo,”ȱasȱitȱamendsȱtheȱpreliminaryȱscopingȱmemoȱinȱtheȱOII.ȱ


126

Commissionȱshouldȱtakeȱunderȱitsȱjurisdictionȱinȱresponseȱtoȱinformationȱaboutȱsuchȱ

outages.ȱȱȱ

TuolumneȱCountyȱDeputyȱSheriffȱEarhardt,ȱCalaverasȱCountyȱSupervisorȱCliffȱ

Edson,ȱandȱMendocinoȱCounty,ȱaȱpartyȱtoȱthisȱproceeding,ȱrequestȱthatȱthisȱ

Commissionȱorderȱcarriersȱtoȱprovideȱpublicȱsafetyȱpersonnelȱwithȱreliableȱphoneȱ

serviceȱaccessȱtoȱpublicȱsafetyȱandȱtimelyȱinformationȱaboutȱoutages.234ȱȱTheyȱrequestȱ

thatȱthisȱinformationȱincludeȱtheȱgeographicȱandȱaffectedȱpopulationȱbreadthȱofȱtheȱ

outage,ȱtheȱestimatedȱrepairȱtime,ȱandȱpreliminaryȱinformationȱaboutȱcauseȱsoȱtheyȱcanȱ

deployȱtheirȱpublicȱsafetyȱresourcesȱandȱdetermineȱwhetherȱlawȱenforcementȱactionȱisȱ

neededȱtoȱaddressȱtheȱoutageȱcauseȱorȱconsequences.235ȱ

TheȱCommissionȱhasȱaȱresponsibilityȱtoȱensureȱthatȱcarriersȱcomplyȱwithȱ

Californiaȱlaw,ȱincludingȱresponsibilitiesȱtoȱprovideȱaccessȱtoȱ9Ȭ1Ȭ1,ȱsafe,ȱreliableȱservice,ȱ

andȱhighȱqualityȱuniversalȱservice.ȱCal.ȱPub.ȱUtil.ȱCodeȱ§ȱ709(a)ȱdeclaresȱtheȱpolicyȱofȱ

theȱStateȱofȱCaliforniaȱtoȱpromoteȱ“affordabilityȱandȱwidespreadȱavailabilityȱofȱhighȬ

qualityȱtelecommunicationsȱservicesȱtoȱallȱCalifornians.”ȱȱȱ

Cal.ȱPub.ȱUtil.ȱCodeȱsectionȱ453ȱprohibitsȱaȱpublicȱutilityȱfromȱmaintainingȱanyȱ


betweenȱclassesȱofȱservice.”ȱȱCal.ȱPub.ȱUtil.ȱCodeȱsectionȱ453ȱprohibitsȱaȱpublicȱutilityȱ

fromȱmaintainingȱanyȱunreasonableȱdifferenceȱasȱtoȱrates,ȱcharges,ȱservice,ȱfacilities,ȱ

…betweenȱlocalitiesȱorȱasȱbetweenȱclassesȱofȱservice.”ȱȱȱ

TheȱCommissionȱ“mayȱsuperviseȱandȱregulateȱeveryȱpublicȱutilityȱinȱtheȱStateȱ

andȱmayȱdoȱallȱthings,ȱwhetherȱspecificallyȱdesignatedȱinȱthisȱpartȱorȱinȱadditionȱ

234ȱSee,ȱSanȱAndreas,ȱPPHȱTr.,ȱp.ȱ326ȱ(“withoutȱqualityȱreliableȱphoneȱaccessȱtoȱpublicȱsafetyȱweȱcan’tȱgetȱtoȱourȱcitizensȱtoȱprovideȱservicesȱtheyȱneed.”)(TuolumneȱDeputyȱSheriffȱErhart);ȱUkiah,ȱPPHȱTr.ȱpp.ȱ444ȱff.;ȱCountyȱofȱMendocino,ȱCommentsȱinȱresponseȱtoȱAssignedȱCommissionerȱRuling.ȱ235ȱCountyȱofȱMendocino,ȱCommentsȱinȱresponseȱtoȱAssignedȱCommissionerȱRuling.ȱȱ


127

thereto,ȱwhichȱareȱnecessaryȱandȱconvenientȱinȱtheȱexerciseȱofȱsuchȱpowerȱandȱ

jurisdiction.”ȱCal.ȱPub.ȱUtil.ȱCodeȱsectionȱ701.ȱTheȱCommissionȱmayȱrequireȱutilityȱ

records,ȱunderȱCal.ȱPub.ȱUtil.ȱCodeȱ§ȱ313ȱ“soȱthatȱanȱexaminationȱthereofȱmayȱbeȱmadeȱ

byȱtheȱcommissionȱorȱunderȱitsȱdirection.”ȱȱRecordsȱofȱcommunicationsȱoutagesȱareȱanȱ

exampleȱofȱutilityȱrecordsȱtheȱCommissionȱmayȱorderȱproduced.ȱ

Someȱofȱtheȱcommunicationsȱoutagesȱhighlightedȱthroughȱtheȱcomments,ȱPPHs,ȱ

andȱWorkshopsȱinȱthisȱOIIȱwereȱcausedȱbyȱaccidentsȱsuchȱasȱtheȱAugustȱ3,ȱ2014ȱ

MendocinoȱfiberȱcutȱcausedȱbyȱaȱhitȱandȱrunȱdriveȱinȱComptche,ȱCalifornia.ȱȱCaliforniaȱ

Pub.ȱUtil.ȱCodeȱ§ȱ315ȱrequiresȱthatȱ“Theȱcommissionȱshallȱinvestigateȱtheȱcauseȱofȱallȱ

accidentsȱoccurringȱwithinȱthisȱStateȱuponȱtheȱpropertyȱofȱanyȱpublicȱutilityȱorȱdirectlyȱ

orȱindirectlyȱarisingȱfromȱorȱconnectedȱwithȱitsȱmaintenanceȱorȱoperation,ȱresultingȱinȱ

lossȱofȱlifeȱorȱinjuryȱtoȱpersonȱorȱpropertyȱandȱrequiring,ȱinȱtheȱjudgmentȱofȱtheȱ

commission,ȱinvestigationȱbyȱit,ȱandȱmayȱmakeȱsuchȱorderȱorȱrecommendationȱwithȱ

respectȱtheretoȱasȱinȱitsȱjudgmentȱseemsȱjustȱandȱreasonable.”ȱȱThisȱaccidentȱresultedȱinȱ

propertyȱdamageȱtoȱAT&T,ȱandȱleftȱthousandsȱunableȱtoȱdialȱ9Ȭ1Ȭ1.ȱȱȱ

Cal.ȱPub.ȱUtil.ȱCodeȱsectionȱ315ȱdirectsȱtheȱCommissionȱtoȱinvestigateȱsuchȱ

incidentsȱandȱauthorityȱtoȱ“makeȱsuchȱorderȱorȱrecommendationȱwithȱrespectȱtheretoȱasȱ

inȱitsȱjudgmentȱseemsȱjustȱandȱreasonable.”ȱȱThoughȱtheȱCommissionȱhasȱtheȱauthorityȱ

toȱimposeȱfinesȱandȱpenaltiesȱforȱviolationsȱunderȱCal.ȱPub.ȱUtil.ȱCodeȱsȱsectionȱ2107,ȱ

Cal.ȱPub.ȱUtil.ȱCodeȱsectionȱ315ȱalsoȱgivesȱtheȱCommissionȱequitableȱdiscretionȱtoȱ

fashionȱappropriateȱremedies.ȱȱWeȱdetermineȱbelowȱthatȱthoseȱremediesȱmayȱincludeȱ

outageȱreportingȱnecessaryȱtoȱprotectȱpublicȱsafetyȱandȱprovideȱtheȱinformationȱthisȱ

CommissionȱrequiresȱtoȱensureȱcomplianceȱwithȱCaliforniaȱlaw.ȱ

Pursuantȱtoȱ§ȱ2101,ȱtheȱCommissionȱisȱdirectedȱto:…ȱ[S]eeȱthatȱtheȱprovisionsȱofȱ

theȱconstitutionȱandȱtheȱstatutesȱofȱthisȱStateȱaffectingȱpublicȱutilities,ȱtheȱenforcementȱ

ofȱwhichȱisȱnotȱspecificallyȱvestedȱinȱsomeȱotherȱofficerȱorȱtribunal,ȱareȱenforcedȱandȱ



128

thereforȱrecoveredȱandȱcollected…”ȱȱCommissionȱjurisdictionȱemanatesȱfromȱtheȱ

CaliforniaȱConstitutionȱandȱCaliforniaȱstatuesȱandȱisȱindependentȱfromȱfederalȱ

responsibilitiesȱofȱtheȱFederalȱCommunicationsȱCommission.ȱȱTheȱCommissionȱmayȱ

determineȱwhetherȱremedies,ȱinformation,ȱorȱotherȱstepsȱareȱnecessaryȱandȱappropriateȱ

toȱcarryȱoutȱitsȱduties,ȱensureȱcomplianceȱwithȱCaliforniaȱlaw,ȱandȱtoȱensureȱsafe,ȱ

reliableȱserviceȱinȱCalifornia.ȱȱȱ

ThisȱCommissionȱmustȱcarryȱoutȱitsȱresponsibilitiesȱunderȱstateȱlaw.ȱWeȱdeclineȱ

toȱdeferȱtoȱtheȱFCC’sȱjudgmentȱaboutȱtheȱfederalȱoutageȱreportingȱstandardȱinȱlieuȱofȱ

analyzingȱandȱdeterminingȱtheȱappropriateȱtypeȱandȱlevelȱofȱinformationȱtoȱbeȱcollectedȱ

andȱreportedȱinȱCaliforniaȱtoȱensureȱpublicȱsafetyȱandȱreliability.ȱȱWeȱdetermineȱthatȱ

additionalȱreportingȱaboutȱoutagesȱtoȱtheȱCommissionȱandȱlocal,ȱcounty,ȱandȱstateȱ

OfficeȱofȱEmergencyȱServicesȱcontactsȱisȱnecessaryȱtoȱdoȱso.ȱȱ

8.4. Discussion of Reporting Threshold to Address the Data Gap about California Communications Outages

TheȱCountyȱofȱMendocinoȱcalculatedȱthatȱtheȱ“thresholdȱofȱ90,000ȱuserȱminutesȱ

isȱappropriateȱforȱruralȱcounties,ȱasȱthisȱwouldȱmeanȱthatȱanȱoutageȱforȱaȱcommunityȱofȱ

300ȱhouseholdsȱwouldȱrequireȱreportingȱinȱfiveȱhours;ȱandȱaȱcommunityȱofȱ1,000ȱ

householdsȱwouldȱrequireȱreportingȱinȱ1.5ȱhours.”236ȱȱMendocinoȱarguesȱthatȱ“Allȱ

telephoneȱcompanies,ȱbothȱwirelineȱandȱwireless,ȱshouldȱbeȱrequiredȱtoȱreportȱsuchȱ

outages,ȱasȱhouseholdsȱvaryȱinȱwhichȱtechnologyȱtheyȱuse.ȱȱManyȱhouseholdȱinȱruralȱ

countiesȱdoȱnotȱreceiveȱaȱmobileȱsignal,ȱandȱrelyȱexclusivelyȱonȱlandlinesȱandȱVoIP.ȱȱInȱ

otherȱareas,ȱwhereȱaȱmobileȱsignalȱisȱreceived,ȱhouseholdsȱrelyȱexclusivelyȱonȱcellularȱ

andȱwirelessȱVoIP.ȱȱBothȱshouldȱbeȱsubjectȱtoȱreportingȱstandardsȱandȱthresholds.”237ȱȱ

236ȱMendocinoȱCounty,ȱACRȱComments,ȱpp.ȱ10Ȭ11.ȱ237ȱId.ȱ


129

CarriersȱAT&T,ȱCalifornia,ȱCTIA,ȱComcast,ȱandȱCCTAȱarguedȱinȱtheirȱcommentsȱinȱ

responseȱtoȱtheȱSeptemberȱ2016ȱACRȱforȱcontinuedȱrelianceȱonȱtheȱFCC’sȱNORSȱ

reportingȱstandardȱofȱanȱoutageȱofȱ900,000ȱuserȱminutes,ȱlastingȱatȱleastȱ30ȱminutes.ȱȱ

TheȱCommission’sȱrecentlyȱadoptedȱGOȱ133ȬDȱrulesȱrequireȱreportingȱtoȱtheȱ

Commissionȱofȱ“MajorȱServiceȱInterruption”ȱasȱdefinedȱbyȱtheȱNORSȱstandardȱasȱmayȱ

beȱmodifiedȱoverȱtime.238ȱGOȱ133ȬD,ȱ3.4ȱrequiresȱreportsȱofȱ“theȱtimeȱofȱtheȱreportingȱ

carrier’sȱreceiptȱofȱtheȱoutȱofȱserviceȱtroubleȱreportȱtoȱtheȱtimeȱserviceȱisȱrestoredȱforȱ

residentialȱandȱsmallȱbusinessȱcustomers.”ȱȱȱ

FCCȱisȱcurrentlyȱconsideringȱwhetherȱtoȱchangeȱtheȱthresholdȱforȱwirelessȱ

reportingȱofȱoutagesȱandȱaskedȱinȱtheirȱ2016ȱFCCȱNetworkȱOutageȱReportȱandȱOrderȱ

andȱFurtherȱNoticeȱofȱProposedȱRulemakingȱ(FNPRM)ȱwhetherȱtoȱadoptȱlowerȱorȱ

differentȱreportingȱthresholdsȱforȱwirelessȱreportingȱthanȱtheȱ900,000ȱuserȱminutesȱ

adoptedȱforȱreportingȱtoȱtheȱFCCȱaboutȱwirelineȱoutages.239ȱȱTheȱFCCȱasked:ȱȱ

“Weȱalsoȱseekȱcommentȱonȱalternativeȱmeasurementsȱforȱoutagesȱinȱruralȱareas.ȱForȱexample,ȱcouldȱweȱadoptȱaȱlowerȱuserȬminuteȱthresholdȱforȱruralȱareasȱtoȱincreaseȱtheȱreportingȱofȱeventsȱaffectingȱruralȱcommunities?ȱForȱexample,ȱwouldȱaȱthresholdȱofȱ300,000ȱuserȬminutesȱinȱruralȱareasȱincreaseȱourȱchancesȱofȱreceivingȱinformationȱonȱoutagesȱthatȱaffectȱruralȱcommunities?ȱConversely,ȱforȱexample,ȱwouldȱclearȱgeographicȱcriteria,ȱsuchȱasȱaȱcountyȬbasedȱthreshold,ȱforȱwirelessȱoutageȱreportingȱsimplifyȱtheȱM2Mȱrulesȱforȱautomatedȱoutageȱreportingȱandȱeliminateȱtheȱneedȱforȱmanualȱinterpretationsȱofȱthresholds?”ȱ

238ȱOrderȱInstitutingȱRulemakingȱtoȱEvaluateȱTelecommunicationsȱCorporationȱServiceȱQualityȱPerformanceȱandȱConsiderȱModificationȱtoȱServiceȱQualityȱRules,ȱD.16Ȭ08Ȭ021,ȱAppendixȱB,ȱSectionȱ4ȱ[hereinafterȱ“2016ȱServiceȱQualityȱRulesȱDecision”].ȱ239ȱReportȱandȱOrderȱandȱFurtherȱNoticeȱofȱProposedȱRulemaking,ȱandȱOrderȱonȱReconsideration,ȱAmendmentȱtoȱPartȱ4ȱofȱtheȱCommission’sȱRulesȱConcerningȱDisruptionsȱtoȱCommunications,ȱNewȱPartȱ4ȱofȱtheȱCommission’sȱRulesȱConcerningȱDisruptionsȱtoȱCommunications,ȱandȱtheȱProposedȱExtensionȱofȱPartȱ4ȱofȱtheȱCommission’sȱRulesȱConcerningȱDisruptionsȱtoȱCommunicationsȱRegardingȱOutageȱReportingȱtoȱInterconnectedȱVoiceȱoverȱInternetȱProtocolȱandȱBroadbandȱInternetȱServiceȱProviders,ȱ(PSȱDocketȱNo.ȱ15Ȭ80,ȱETȱDocketȱNo.ȱ04Ȭ35,ȱPSȱDocketȱNo.ȱ11Ȭ82ȱ(Mayȱ26,ȱ2016),ȱ¶ȱ188ȱ[hereinafterȱȱ“FCCȱNetworkȱOutageȱReportȱandȱOrderȱandȱFNPRM]).ȱ


130

TheȱFCCȱhasȱnotȱdecidedȱyetȱtoȱchangeȱtheȱthresholdȱforȱwirelessȱoutageȱreporting.ȱȱTheȱ

FCCȱmayȱsetȱaȱstandardȱappropriateȱtoȱthatȱCommission’sȱfederalȱresponsibilities.ȱȱSuchȱ

aȱstandardȱmayȱnotȱbeȱresponsiveȱtoȱCalifornia’sȱneedsȱandȱdoesȱnotȱsupplantȱtheȱ

authorityȱofȱthisȱCommissionȱtoȱadoptȱappropriateȱrulesȱtoȱenforceȱCaliforniaȱlawȱ

includingȱrequirementsȱforȱsafeȱandȱreliableȱserviceȱwithȱadequateȱfacilitiesȱunderȱCal.ȱ

Pub.ȱUtil.ȱCodeȱsectionȱ451.ȱ

ȱ TheȱFCCȱNORSȱFNPRMȱasksȱforȱcommentȱonȱaȱwirelessȱoutageȱreportingȱ

standardȱbasedȱonȱaȱ“clearȱgeographicȱcriteria,ȱsuchȱasȱaȱcountyȬbasedȱthreshold.“ȱȱ

Californiaȱhasȱsomeȱveryȱlargeȱcounties.ȱȱIfȱSanȱBernardinoȱCountyȱCountyȱwhichȱ

measuresȱ20,164ȱsquareȱmilesȱwereȱaȱstate,ȱitȱwouldȱrankȱinȱsizeȱjustȱbelowȱWestȱ

Virginiaȱandȱbeȱtwiceȱtheȱsizeȱasȱtheȱnextȱlargestȱstate,ȱMaryland.240ȱȱLikewise,ȱRiversideȱ

CountyȱwouldȱrankȱinȱsizeȱbetweenȱtheȱstateȱofȱMassachusettsȱandȱtheȱStateȱofȱNewȱ

Jersey,ȱwhileȱMendocinoȱandȱHumboldtȱCountiesȱranksȱinȱsizeȱjustȱbelowȱtheȱStateȱofȱ

Connecticut.241ȱȱOutageȱreportingȱbasedȱonȱaȱthresholdȱequivalentȱtoȱorȱgreaterȱthanȱ

manyȱU.S.ȱstatesȱwouldȱleaveȱmanyȱoutagesȱunreported,ȱparticularlyȱinȱlessȱdenselyȱ

populatedȱareasȱofȱCaliforniaȱcounties.ȱȱȱ

Anotherȱpotentialȱbasisȱforȱdeterminingȱoutageȱreportingȱisȱtoȱconsiderȱwhetherȱ

reportingȱshouldȱreflectȱtheȱpopulationȱpatternsȱofȱAmericansȱinȱurbanizedȱareas,ȱurbanȱ

clusters,ȱandȱruralȱareas.ȱȱTheȱU.S.ȱCensusȱdividesȱareasȱintoȱurbanizedȱareasȱofȱ50,000ȱ

peopleȱorȱmore,ȱurbanȱclusters,ȱofȱ2,500ȱtoȱ50,000ȱpeople,ȱandȱruralȱareasȱbelowȱ2,500ȱ

people.242ȱȱUnderȱtheȱFCCȱNORSȱthreshold,ȱanȱareaȱwithȱaȱpopulationȱofȱ2,500ȱpeopleȱ

240ȱCaliforniaȱStateȱAssociationȱofȱCounties,ȱSquareȱMileageȱbyȱCounty,ȱhttp://www.counties.org/pod/squareȬmileageȬcounty;ȱTheȱUSȱ50,ȱFastȱFactȱStudyȱGuidesȱ(StateȱAreas),ȱhttp://www.theus50.com/fastfacts/area.php.ȱ241ȱId.ȱ242ȱU.S.ȱCensusȱBureau,ȱUrbanȱandȱRuralȱClassification,ȱhttps://www.census.gov/geo/reference/urbanȬrural.html.ȱ


131

potentiallyȱaffectedȱbyȱanȱoutageȱwouldȱhaveȱtoȱbeȱoutȱofȱserviceȱforȱsixȱhoursȱtoȱhitȱtheȱ

900,000ȱuserȱminuteȱthreshold.ȱȱȱ

Anȱoutageȱofȱ300,000ȱuserȱminutesȱasȱcontemplatedȱinȱtheȱFCCȱFNPRMȱonȱ

wirelessȱoutageȱreporting,ȱwouldȱbeȱhaveȱtoȱlastȱtwoȱhoursȱtoȱreportableȱifȱitȱaffectedȱaȱ

populationȱofȱ2,500.ȱȱForȱaȱruralȱareaȱwithȱ1,000ȱlinesȱpotentiallyȱaffectedȱbyȱtheȱoutage,ȱ

theȱoutageȱwouldȱhaveȱtoȱlastȱforȱfiveȱhoursȱtoȱbeȱreportableȱunderȱaȱ300,000ȱuserȱ

minuteȱthreshold.ȱȱForȱanȱurbanȱclusterȱwithȱ10,000ȱlinesȱpotentiallyȱaffectedȱbyȱtheȱ

outage,ȱtheȱoutageȱwouldȱhaveȱtoȱlastȱ30ȱminutesȱtoȱbeȱreportableȱunderȱaȱ300,000ȱuserȱ

minuteȱthreshold.ȱȱȱ

Countyȱoperationalȱareasȱareȱactivatedȱwhenȱ“aȱlocalȱgovernmentȱhasȱactivatedȱ

itsȱEOCȱandȱrequestsȱcountyȬlevelȱoperationalȱEOCȱsupport,ȱwhenȱtwoȱorȱmoreȱcitiesȱinȱ

theȱcountyȱhaveȱdeclaredȱaȱlocalȱemergency,ȱtheȱcountyȱorȱoneȱorȱmoreȱcitiesȱhaveȱ

declaredȱaȱlocalȱemergency,”ȱorȱforȱlargerȱstateȬlevelȱemergencies.243ȱȱCalifornia’sȱ58ȱ

countiesȱ“provideȱaȱvastȱarrayȱofȱmunicipalȱservicesȱtoȱresidents,ȱincludingȱroads,ȱ

parks,ȱlawȱenforcement,ȱemergencyȱresponseȱservicesȱandȱlibraries.ȱCountiesȱalsoȱserveȱ

asȱaȱdeliveryȱchannelȱforȱmanyȱStateȱservices,ȱsuchȱasȱfosterȱcare,ȱpublicȱhealthȱcare,ȱjailsȱ

andȱelections.”244ȱȱProvidingȱinformationȱaboutȱcommunicationsȱoutageȱisȱcriticalȱtoȱ

theseȱcountyȱresponsibilitiesȱforȱeachȱofȱtheseȱservices.ȱȱȱ

Whileȱcityȱsizesȱvary,ȱanȱoutageȱpotentiallyȱaffectingȱ5,000ȱpeople,ȱhalfȱofȱaȱlargeȱ

urbanȱcluster,ȱisȱcommensurateȱwithȱtheȱsizeȱthatȱmayȱtriggerȱoperationalȱareaȱ

managementȱneedsȱandȱcountyȬlevelȱEOCs.ȱȱAtȱaȱreportingȱthresholdȱofȱ300,000ȱuserȱ

minutes,ȱanȱoutageȱaffectingȱ5,000ȱpeopleȱwouldȱbeȱreportableȱinȱoneȱhour.ȱȱȱ

243ȱCCRȱTitleȱ19,ȱ§ȱ2409ȱ(f).ȱ244ȱCaliforniaȱStateȱAssociationȱofȱCounties,ȱCalifornia’sȱCounties,ȱhttp://www.counties.org/californiasȬcounties.ȱ


132

Regardingȱtheȱgeographicȱscopeȱofȱoutageȱreportingȱrequirements,ȱatȱthisȱtimeȱ

weȱlackȱsufficientȱinformationȱtoȱdetermineȱstatisticallyȱwhetherȱoutagesȱofȱ300,000ȱuserȱ

minutesȱareȱmoreȱprevalentȱinȱruralȱareas,ȱurbanȱclusters,ȱorȱurbanȱareas.ȱȱThisȱOIIȱ

receivedȱinformationȱaboutȱoutagesȱinȱallȱthreeȱtypesȱofȱareas.ȱȱRequiringȱCOLRsȱtoȱ

provideȱthisȱoutageȱinformationȱtoȱtheȱCommissionȱwillȱfillȱinȱsomeȱofȱtheȱinformationȱ

gapȱaboutȱtheȱprevalenceȱandȱdistributionȱofȱsuchȱoutages.ȱȱȱ

8.5. Decision WeȱdetermineȱthatȱtoȱmeetȱtheȱCommission’sȱdutiesȱunderȱstateȱlawȱdutiesȱtoȱ

ensureȱsafe,ȱreliableȱservice,ȱthatȱcallsȱareȱcompleted,ȱtheȱ9Ȭ1Ȭ1ȱaccessȱisȱavailable,ȱandȱ

thatȱserviceȱisȱreasonablyȱcomparableȱinȱCalifornia’sȱdiverseȱregions,ȱitȱisȱcriticalȱtoȱfillȱ

theȱcurrentȱinformationȱvoidȱaboutȱcallȱfailuresȱandȱoutagesȱbetweenȱtheȱlevelsȱofȱȱ

individualȱcallsȱforȱserviceȱandȱtheȱCommission’sȱcurrentȱlimitedȱaccessȱtoȱFCCȱNORsȱ

dataȱforȱlargeȬscaleȱoutagesȱaffectingȱatȱleastȱ900,000ȱuserȱminutesȱandȱlastȱ30ȱminutes.ȱȱ

Toȱcloseȱtheȱdataȱgapȱandȱprovideȱsafe,ȱreliable,ȱhighȬqualityȱserviceȱthroughoutȱ

California,ȱweȱorderȱrespondentȱCOLRSȱtoȱbeginningȱwithinȱ60ȱdaysȱofȱtheȱdateȱofȱthisȱ

DecisionȱreportȱtoȱtheȱCommissionȱwithinȱ120ȱminutesȱofȱanȱoutageȱofȱ300,000ȱuserȱ

minutesȱthatȱlastȱ30ȱminutesȱorȱmore.ȱȱWeȱdirectȱCommunicationsȱDivisionȱtoȱdevelopȱaȱ

formatȱforȱreportingȱtoȱtheȱCommission.ȱȱȱ

Cal.ȱPub.ȱUtil.ȱCodeȱsectionȱ§ȱ313ȱallowsȱtheȱCommissionȱtoȱrequireȱproductionȱ

ofȱrecordsȱfromȱaȱpublicȱutility.ȱȱTheȱCommissionȱalreadyȱhasȱtheȱpowerȱtoȱissueȱaȱseriesȱ

ofȱpostȬoutageȱdataȱrequests,ȱorȱaȱstandingȱrequestȱforȱdataȱaboutȱanyȱoutageȱofȱ300,000ȱ

userȱminutesȱlastingȱ30ȱminutesȱorȱmore.ȱȱRatherȱthanȱrelyingȱonȱdataȱrequests,ȱweȱ

directingȱthisȱoutageȱdataȱtoȱbeȱsystematicallyȱprovidedȱtoȱthisȱCommissionȱtoȱenableȱ

analysisȱofȱoutageȱtrendsȱandȱappropriateȱfollowȬupȱaction.ȱȱ

Aȱreportingȱthresholdȱofȱ300,000ȱuserȱminutesȱreflectsȱtheȱnumberȱofȱusersȱthatȱ

mayȱtriggerȱcountyȬlevelȱpublicȱsafetyȱobligationsȱunderȱCalifornia’sȱStandardizedȱ


133


(CCR)ȱTitleȱ19,ȱ§ȱ2401.ȱȱCarriersȱshouldȱnotȱrelyȱsolelyȱonȱcustomerȱcallsȱandȱrequestsȱforȱ

repairsȱtoȱinitiateȱoutageȱreporting,ȱandȱshouldȱuseȱinformationȱgeneratedȱfromȱalarmsȱ

andȱnetworkȱdataȱtoȱmaintainȱsituationalȱawarenessȱaboutȱtheȱnetworkȱandȱgenerateȱ

outageȱreports.ȱ

RequiringȱCOLRsȱtoȱreportȱtoȱtheȱCommissionȱoutagesȱaffectingȱ300,000ȱuserȱ

minutesȱandȱlastingȱatȱleastȱ30ȱminutesȱ[hereinafterȱlocalizedȱaccessȱfailureȱoutages”]ȱ

thresholdȱstrikesȱtheȱrightȱbalanceȱtoȱcloseȱtheȱdataȱgapȱmeetȱCommissionȱ

responsibilities,ȱandȱprotectȱpublicȱsafetyȱandȱcommunicationsȱreliability.ȱȱAȱ300,000ȱ

userȱminuteȱreportingȱthresholdȱisȱapproximatelyȱ3.3ȱtimesȱlargerȱthanȱaȱ900,000ȱuserȱ

minuteȱthresholdȱsuggestedȱbyȱMendocinoȱCounty,ȱTURNȱandȱCforAT,ȱandȱthreeȱtimesȱ

smallerȱthanȱtheȱ900,000ȱuserȱminuteȱthresholdȱusedȱbyȱtheȱFCCȱNORsȱstandardȱandȱ

theȱGOȱ133ȬDȱmajorȱserviceȱinterruptionȱstandard.ȱ

Theȱdataȱweȱwillȱgatherȱwillȱhelpȱusȱdetermineȱifȱtheȱ300,000ȱuserȱminuteȱ

thresholdȱhitsȱtheȱGoldilocksȱstandardȱandȱisȱjustȱright.ȱȱWeȱneedȱnotȱcontinueȱtoȱbeȱ

blindedȱbyȱthisȱdataȱgapȱtoȱdetermineȱthatȱweȱshouldȱneverthelessȱproceedȱtoȱgatherȱ

moreȱdata.ȱȱWeȱdoȱsoȱinȱaȱreasonableȱfashionȱtoȱprotectȱpublicȱsafetyȱandȱfulfillȱthisȱ

Commission’sȱresponsibility.ȱ

Weȱrecognizeȱthatȱaȱreportingȱthresholdȱofȱ300,000ȱuserȱminutesȱofȱoutageȱlastingȱ

atȱleastȱ30ȱminutesȱforȱlocalizedȱaccessȱfailureȱoutagesȱmayȱbeȱtooȱhighȱforȱsmallȱruralȱ

communitiesȱoutsideȱofȱurbanȱclustersȱasȱanȱoutageȱinȱaȱsmallȱcommunityȱofȱ1000ȱ

peopleȱwouldȱhaveȱtoȱlastȱfiveȱhoursȱorȱmoreȱtoȱbeȱreportable.ȱȱWeȱbelieveȱ300,000ȱuserȱ

minutesȱisȱaȱprudentȱlevelȱtoȱstartȱCOLRȱreportingȱofȱoutages,ȱandȱdirectȱ

CommunicationsȱDivisionȱtoȱmonitorȱandȱanalyzeȱtheȱreportsȱreceivedȱunderȱtheȱ

300,000ȱuserȱminuteȱoutageȱthreshold,ȱinȱconjunctionȱwithȱGOȱ133ȬDȱandȱotherȱdataȱonȱ

outages,ȱcustomerȱcomplaints,ȱandȱnetworkȱperformance,ȱtoȱmakeȱrecommendationsȱtoȱ


134

theȱCommissionȱaboutȱtheȱtrendsȱobservedȱandȱwhetherȱthisȱreportingȱthresholdȱmeritsȱ

adjustment.ȱ

WeȱimposeȱthisȱoutageȱreportȱdutyȱonȱCOLRsȱonlyȱatȱthisȱtimeȱinȱlightȱofȱtheirȱ

responsibilityȱtoȱprovideȱserviceȱtoȱanyȱcustomerȱwhoȱrequestsȱitȱwithinȱtheirȱserviceȱ

territory.ȱȱWeȱthatȱsuchȱreportingȱwillȱreduceȱburdensȱofȱoutagesȱonȱlocalȱcommunities,ȱ

counties,ȱandȱtheȱstate,ȱandȱnotȱcreateȱanȱundueȱburdenȱonȱCOLRsȱwhoȱhaveȱanȱ

obligationȱtoȱprovideȱsafe,ȱreliableȱserviceȱtoȱallȱcustomerȱwhoȱrequestȱitȱwithinȱtheirȱ

territory.ȱ

ThisȱDecisionȱdirectsȱthatȱPhaseȱIIȱofȱthisȱProceedingȱwillȱwhetherȱtheȱ

Commissionȱshouldȱrequireȱanyȱrespondentsȱtoȱreportȱoutagesȱtoȱpublicȱsafetyȱofficialsȱ

atȱtheȱlocal,ȱcounty,ȱandȱstateȱlevel,ȱinȱadditionȱtoȱtheȱoutageȱreportingȱtoȱtheȱ

Commissionȱweȱorderȱherein.ȱȱAȱWorkingȱGroupȱshallȱbeȱconvenedȱinȱPhaseȱIIȱ

includingȱCommunicationsȱDivision,ȱSafetyȱandȱEnforcementȱDivision,ȱtheȱparties,ȱandȱ

invitingȱCalȱOES,ȱCountyȱOES,ȱCityȱOES,ȱandȱfederallyȱrecognizedȱCaliforniaȱtribeȱ

EmergencyȱServicesȱofficialsȱtoȱdiscussȱwhetherȱoutageȱreportingȱbyȱcarriersȱtoȱpublicȱ

safetyȱofficialsȱshouldȱbeȱrequired,ȱand,ȱifȱso,ȱpolicies,ȱprocedures,ȱrules,ȱthresholds,ȱ

requirements,ȱandȱprotocolsȱthatȱreflectȱCalifornia’sȱpublicȱsafetyȱneedsȱandȱthisȱ

Commission’sȱresponsibilities.ȱȱȱ

InȱD.16Ȭ01Ȭ008ȱtheȱCommissionȱdeterminedȱreliabilityȱreportingȱrequirementsȱforȱ

electricȱutilitiesȱbyȱbalancingȱ“whatȱisȱfairȱandȱappropriate,ȱwhatȱpromotesȱbetterȱ

understandingȱofȱreliabilityȱinformationȱforȱutilityȱcustomers,ȱwhatȱisȱtechnicallyȱ

feasibleȱandȱwhatȱbestȱsupportsȱsafetyȱandȱoverallȱelectricȱgridȱreliability.”245ȱȱPhaseȱIIȱ

shallȱconsiderȱtheseȱbalancingȱfactors.ȱȱInȱaddition,ȱPhaseȱIIȱshallȱtakeȱintoȱaccountȱtheȱ

responsibilitiesȱofȱpublicȱsafetyȱofficialsȱandȱbalanceȱcarrierȱconfidentialityȱconcernsȱ

245ȱD.16Ȭ01Ȭ008,ȱp.ȱ6.ȱ


135

withȱpublicȱknowledgeȱaboutȱoutagesȱcurrentlyȱspreadȱthroughȱsocialȱmedia,ȱandȱ

considerȱtheȱresponsibilitiesȱofȱthisȱCommission.ȱ

DuringȱtheȱpendencyȱofȱPhaseȱIIȱweȱencourageȱrespondentȱcarriersȱtoȱvoluntarilyȱ

outagesȱofȱ300,000ȱuserȱminutesȱlastingȱ30ȱminutesȱorȱmoreȱtoȱcity,ȱcounty,ȱstate,ȱandȱ

federallyȱrecognizedȱtribalȱOESȱcontactsȱtoȱpromoteȱpublicȱsafetyȱandȱprovideȱsafeȱandȱ

reliableȱservice.ȱȱCarriersȱshouldȱinformȱtheȱCommissionȱofȱanyȱsuchȱnoticeȱvoluntarilyȱ

provided.ȱ

9. Conclusion Thisȱproceedingȱexaminedȱcallȱcompletionȱissuesȱofȱseveralȱtypes:ȱrural,ȱshortȱ

code,ȱandȱfalseȱdisconnectedȱorȱfastȱbusyȱmessages.ȱȱItȱalsoȱexaminedȱcallȱaccessȱissuesȱ

includingȱ9Ȭ1Ȭ1ȱinitiationȱproblemsȱandȱdialȱtoneȱaccessȱissues.ȱȱItȱidentifiedȱ9Ȭ1Ȭ1ȱ

addressingȱandȱdatabaseȱissues,ȱasȱwellȱasȱtheȱneedȱforȱcarrierȱcontactȱinformationȱforȱ

local,ȱcounty,ȱandȱstateȱpublicȱsafetyȱofficials.ȱ

ThisȱDecisionȱidentifiesȱtheȱneedȱforȱactionȱandȱreferralsȱtoȱaddressȱtheseȱissuesȱ

asȱdescribedȱherein.ȱȱItȱalsoȱidentifiesȱaȱdataȱgapȱforȱoutagesȱreportingȱnotȱtriggeredȱbyȱ

customerȱorȱcarrierȱrepairȱticketsȱorȱbyȱtheȱNORSȱstandard.ȱȱUnderȱtheȱCommission’sȱ

authorityȱtoȱobtainȱcarrierȱrecords,ȱitȱordersȱCOLRsȱtoȱprovideȱtheȱCommissionȱwithȱ

dataȱaboutȱoutagesȱofȱ300,000ȱuserȱminutes,ȱlastingȱforȱatȱleastȱ30ȱminutes.ȱItȱordersȱ

PhaseȱIIȱofȱthisȱproceedingȱtoȱconsiderȱwhetherȱtheȱCommissionȱshouldȱorderȱanyȱ

reportingȱofȱoutagesȱtoȱlocal,ȱcounty,ȱstate,ȱorȱfederallyȱrecognizedȱtribeȱemergencyȱ

servicesȱrepresentativesȱtoȱensureȱsafe,ȱreliableȱservice.ȱȱȱȱ

10. Categorization and Need for Hearing ThisȱproceedingȱisȱcategorizedȱasȱQuasiȬLegislative.ȱȱTheȱAmendedȱscopingȱmemoȱ

determinedȱthatȱnoȱhearingsȱwereȱnecessary.ȱȱȱ


136

11. Comments on Proposed Decision TheȱproposedȱdecisionȱofȱtheȱCommissioner/ALJȱinȱthisȱmatterȱwasȱmailedȱtoȱtheȱ

partiesȱinȱaccordanceȱwithȱSectionȱ311ȱofȱtheȱPublicȱUtilitiesȱCodeȱandȱcommentsȱwereȱ

allowedȱunderȱRuleȱ14.3ȱofȱtheȱCommission’sȱrulesȱofȱPracticeȱandȱProcedure.ȱ

Commentsȱwereȱfiledȱonȱ______________________,ȱandȱreplyȱcommentsȱwereȱfiledȱonȱ

______________________.ȱ

12. Assignment of Proceeding CatherineȱJ.K.ȱSandovalȱisȱtheȱassignedȱCommissionerȱandȱRobertȱMasonȱisȱtheȱ

assignedȱAdministrativeȱLawȱJudgeȱinȱthisȱproceeding.ȱ

13. Findings of Fact 1. FCCȱdataȱrevealedȱthatȱinȱCalifornia,ȱVerizonȱBusinessȱandȱLevelȱ3ȱaccountȱforȱ

threeȬfourthsȱofȱlongȱdistanceȱcallȱdeliveryȱtoȱRuralȱLocalȱExchangeȱCarriersȱandȱthatȱ

VerizonȱBusinessȱandȱLevelȱ3ȱhadȱtheȱlargestȱgapsȱbetweenȱattemptedȱcallsȱandȱ

completedȱcalls.ȱ

2. ItȱisȱnecessaryȱtoȱtheȱexerciseȱofȱthisȱCommission’sȱjurisdictionȱandȱdutyȱtoȱensureȱ

thatȱtelephoneȱcorporationsȱcarryȱandȱcompleteȱcallsȱthatȱcarriersȱgoingȱforwardȱ

provideȱinformationȱintrastateȱandȱinterstateȱ(originatingȱfromȱorȱgoingȱtoȱCalifornia)ȱ

callȱcompletionȱissuesȱthroughȱaȱdetailedȱletterȱtoȱCommunicationsȱDivision.ȱȱȱ

3. Publicȱinformationȱaboutȱcallȱcompletionȱissues,ȱhowȱtoȱtrackȱandȱidentifyȱthemȱ

isȱimportantȱtoȱtrackingȱthoseȱissuesȱandȱensuringȱtheȱcarriersȱcompleteȱcalls.ȱ

4. ItȱisȱreasonableȱtoȱprepareȱcommentȱtoȱtheȱFCCȱtoȱaskȱthemȱtoȱaddressȱdataȱgapsȱ

andȱinconsistenciesȱinȱtheirȱRuralȱCallȱCompletionȱProblemsȱdatabase.ȱ

5. Shortȱcodesȱincludingȱ2Ȭ1Ȭ1,ȱ8Ȭ1Ȭ1,ȱ7Ȭ1Ȭ1,ȱandȱotherȱnonȬ9Ȭ1Ȭ1ȱshortȱcodesȱareȱ

importantȱmeansȱforȱCaliforniansȱtoȱconnectȱwithȱinformationȱandȱassistanceȱandȱweȱ

shouldȱtakeȱstepsȱtoȱenableȱcallersȱtoȱreachȱthem.ȱȱ


137

6. MultiȬlineȱTelephoneȱSystemȱorȱPBXȱoperatorsȱmustȱprogramȱshortȱcodeȱaccessȱ

andȱrequireȱeducationȱaboutȱwhyȱandȱhowȱtheyȱshouldȱdoȱso.ȱ

7. SomeȱtelephoneȱcorporationsȱprogramȱMLTSȱorȱPBXȱsystemsȱforȱcustomersȱandȱ

mustȱtakeȱstepsȱtoȱprogramȱshortȱcodeȱaccess.ȱȱȱ

8. Carriersȱmustȱmaintainȱtheȱproperȱunderlyingȱcallȱdirectionsȱtoȱcompleteȱshortȱ

codeȱcallsȱatȱtheirȱintendedȱdestination.ȱȱ

9. Theȱ2Ȭ1Ȭ1ȱcoalitionȱandȱtheȱ8Ȭ1Ȭ1ȱcoalitionȱareaȱgoodȱsourcesȱofȱinformationȱaboutȱ

shortȱcodeȱeducationȱandȱaccess.ȱȱȱ

10. SBȱ1212ȱassignedȱtheȱCommissionȱtoȱdetermineȱwhetherȱtoȱuseȱCaliforniaȱ

TeleconnectȱFundsȱtoȱsupportȱ2Ȭ1Ȭ1ȱexpansionȱtoȱotherȱcounties.ȱ

11. D.15Ȭ08Ȭ041,ȱinȱR.11Ȭ12Ȭ001ȱorderedȱaȱNetworkȱStudyȱofȱAT&T,ȱCaliforniaȱandȱ

Frontier,ȱandȱitȱisȱreasonableȱandȱprudentȱforȱthatȱNetworkȱStudyȱtoȱexamineȱtheȱissuesȱ

identifiedȱinȱthisȱproceedingȱregardingȱ1)ȱallegationsȱofȱfalseȱdisconnectedȱmessages,ȱ

fastȱbusyȱmessagesȱforȱwhatȱshouldȱbeȱworkingȱlines,ȱandȱextremelyȱpoorȱcallȱqualityȱ

comments;ȱ2)ȱnetworkȱandȱcallȱpathȱdiversityȱ(theȱnumberȱofȱwaysȱaȱcallȱcanȱtravelȱtoȱbeȱ

completed),ȱredundancy,ȱandȱresiliencyȱissuesȱhighlightedȱbyȱlargeȬscaleȱoutages;ȱ3)ȱtheȱ

physicalȱconditionȱofȱtheȱAT&T,ȱCaliforniaȱandȱFrontierȱnetworksȱtoȱbeȱstudied,ȱ

includingȱnetworkȱmaintenanceȱandȱserviceȱpracticesȱthatȱmayȱcontributeȱtoȱoutagesȱ

andȱinfluenceȱtheirȱbreadth,ȱlength,ȱandȱoccurrence;ȱ4)ȱtroubleȱticketȱresponseȱtimeȱandȱ

outagesȱreportedȱthroughȱGOȱ133ȬD,ȱandȱreportsȱofȱoutagesȱofȱ300,000ȱuserȱminutesȱorȱ

more,ȱlastingȱatȱleastȱ30ȱminutes.ȱ

12. Callȱpathȱdiversity,ȱresiliency,ȱandȱredundancyȱareȱimportantȱtoȱmaintainingȱ

safeȱandȱreliableȱtelecommunicationsȱservice.ȱ

13. SeveralȱconsumersȱspokeȱatȱtheȱPPHȱaboutȱfalseȱbusyȱmessagesȱandȱfastȱbusyȱ

messagesȱforȱwhatȱshouldȱbeȱworkingȱlines,ȱandȱtheȱCommission’sȱConsumerȱAffairsȱ

Branchȱ(CAB)ȱisȱavailableȱforȱcustomerȱinformalȱcomplaintȱresolutionȱservices,ȱandȱ

consumersȱmayȱalsoȱfileȱaȱformalȱcomplaintȱatȱtheȱCommission.ȱȱȱ


138

14. GOȱ95ȱprovidesȱrulesȱandȱstandardsȱforȱutilityȱpoles,ȱlines,ȱandȱcertainȱtypesȱofȱ

facilitiesȱtoȱpromoteȱpublicȱandȱworkerȱsafety,ȱreliability,ȱcompetition,ȱandȱserviceȱtoȱ

consumers.ȱȱȱ

15. ThisȱOIIȱreceivedȱcommentsȱaboutȱtelephoneȱfacilityȱmaintenanceȱpracticesȱthatȱ

mayȱaffectȱdialȱtoneȱoutagesȱincludingȱreportsȱofȱlinesȱaffixȱtoȱtrees,ȱdead,ȱdiceased,ȱorȱ

alive.ȱȱ

16. ThisȱOIIȱreceivedȱreportsȱaboutȱtheȱneedȱforȱmoreȱvegetationȱmanagementȱnearȱ

telephoneȱlinesȱincludingȱthoseȱnearȱtreesȱdeadȱorȱdyingȱfromȱbarkȱbeetleȱinfestation,ȱ

andȱconcernȱtheȱlikelihoodȱthatȱdeferredȱvegetationȱmanagementȱwillȱleadȱtoȱdialȱtoneȱ

outages.ȱ

17. OnȱAprilȱ9,ȱ2014ȱanȱoutageȱstartedȱbyȱIntrado’sȱsystemsȱinȱColoradoȱledȱtoȱtheȱ

lossȱofȱ9Ȭ1Ȭ1ȱaccessȱinȱseveralȱstatesȱincludingȱinȱeightȱNorthernȱCaliforniaȱcountiesȱ

whereȱVerizonȱBusinessȱsuppliedȱ9Ȭ1Ȭ1ȱaccessȱservicesȱtoȱAT&TȱMobilityȱandȱVerizon,ȱ

Wirelessȱcustomers,ȱandȱanȱinvestigationȱbyȱtheȱCommission’sȱConsumerȱProtectionȱ

andȱEnforcementȱDivisionȱintoȱtheȱAprilȱ9,ȱ2014ȱoutageȱofȱ9Ȭ1Ȭ1ȱserviceȱisȱreasonableȱ

andȱprudent.ȱ

18. FiberȱcutsȱinȱMendocinoȱandȱHumboldtȱcountiesȱincludingȱtheȱAugustȱ3,ȱ2014ȱ

outage,ȱtheȱSeptemberȱ3,ȱ2015ȱoutage,ȱandȱtheȱDecemberȱ9,ȱ2015ȱoutage,ȱeachȱresultedȱinȱ

theȱlossȱofȱdialȱtoneȱandȱinȱseveralȱcasesȱ9Ȭ1Ȭ1ȱaccessȱandȱInternetȱaccessȱforȱhundreds,ȱifȱ

notȱthousandsȱofȱCaliforniansȱinȱoneȱorȱseveralȱcounties,ȱandȱanȱinvestigationȱbyȱtheȱ

Commission’sȱConsumerȱProtectionȱandȱEnforcementȱDivisionȱintoȱtheseȱoutagesȱisȱ

reasonableȱandȱprudent.ȱ

19. FollowingȱtheȱVerizonȬFrontierȱtransitionȱinȱAprilȬMayȱ2016,ȱtheȱCommissionȱ

andȱtheȱFCCȱreceivedȱapproximatelyȱ1,500ȱcomplaintsȱaboutȱdialȱtoneȱandȱ9Ȭ1Ȭ1ȱaccessȱ

outages,ȱsomeȱlastingȱoneȱtoȱthreeȱweeks,ȱasȱwellȱasȱInternetȱandȱvideoȱoutages.ȱȱȱ


139

20. Frontier’sȱcallȱcenterȱdidȱnotȱenterȱappointmentsȱforȱcustomerȱrepairȱintoȱ

Frontiersȱdataȱbaseȱonȱatȱleastȱsomeȱoccasions,ȱdelayingȱtheȱcompany’sȱawarenessȱofȱ

andȱresponseȱtoȱtheȱoutage.ȱ

21. SubmittingȱcommentsȱtoȱtheȱFCCȱaboutȱcomplianceȱwithȱNORsȱreportingȱ

standardsȱforȱreportsȱofȱOC3ȱdataȱoutagesȱtoȱensureȱtheȱreportsȱreflectȱvoiceȱcustomerȱ

outagesȱisȱreasonableȱandȱprudentȱtoȱensureȱaccuracyȱforȱreportsȱalsoȱaccessibleȱtoȱtheȱ

Commission.ȱ

22. SomeȱofȱCalifornia’sȱ109ȱfederallyȬrecognizedȱtribesȱlackȱresidentialȱaddressesȱ

visibleȱtoȱ9Ȭ1Ȭ1ȱdatabases,ȱdelayingȱemergencyȱresponse.ȱȱ

23. Itȱisȱimportantȱtoȱsafeȱandȱreliableȱserviceȱandȱtoȱpublicȱsafetyȱthatȱcarriersȱtoȱ

provideȱwithinȱ30ȱdaysȱofȱthisȱDecisionȱtoȱcity,ȱcounty,ȱandȱfederallyȱrecognizedȱtribalȱ


week,ȱnotȱaȱgeneralȱ800ȱorȱ8xxȱnumber.ȱ

24. Theȱavailabilityȱofȱcommunicationsȱservicesȱtoȱfirstȱrespondersȱincludingȱthoseȱ

fightingȱwildfiresȱisȱimportantȱtoȱsituationalȱawarenessȱandȱpublicȱsafety,ȱandȱtheȱtimeȱ

toȱsetȱupȱemergencyȱcommunicationsȱservicesȱcreatesȱrisksȱduringȱaȱsetȱupȱthatȱmayȱlastȱ

oneȱtoȱtwoȱweeks.ȱȱ

25. CoordinationȱbetweenȱSafetyȱandȱEnforcementȱDivision,ȱCalȱOES,ȱrespondents,ȱ

theȱCaliforniaȱUtilityȱEmergencyȱAssociationȱ(CUEA),ȱtheȱCaliforniaȱCommunicationsȱ

Association,ȱCalȬFire,ȱtheȱGovernor’sȱTreeȱMortalityȱTaskȱForce,ȱtheȱGovernor’sȱOfficeȱ

ofȱTribalȱAdvisor,ȱEmergencyȱServicesȱrepresentativesȱforȱfederallyȬrecognizesȱtribesȱinȱ

California,ȱCountyȱOESȱrepresentatives,ȱandȱCommunicationsȱDivisionȱisȱimportantȱtoȱ

discussȱoptionsȱtoȱimproveȱspeedȱofȱaccessȱtoȱcommunicationsȱservicesȱduringȱ

emergenciesȱsuchȱasȱlargeȬscaleȱfireȱresponse.ȱ

26. TheȱCommission’sȱcurrentȱoutageȱreportingȱsystemȱleavesȱaȱgapȱunderȱGOȱ133Ȭ

Dȱwhenȱneitherȱtheȱcustomer,ȱnorȱtheȱcarrierȱfilesȱaȱrepairȱticketȱtoȱtriggerȱtheȱrepairȱ

responseȱtimeȱtrackedȱbyȱthatȱgeneralȱorder.ȱȱ


140

27. Someȱdialȱtoneȱandȱ9Ȭ1Ȭ1ȱoutagesȱoccurȱinȱCaliforniaȱthatȱaffectȱfewerȱthanȱtheȱ

NORSȱstandardȱofȱ900,000ȱuserȱminutesȱforȱ30ȱminutes.ȱ

28. DataȱfromȱCarriersȱofȱLastȱResortȱtoȱtheȱCommissionȱaboutȱoutagesȱofȱ300,000ȱ

userȱminutesȱorȱmore,ȱlastingȱatȱleastȱ30ȱminutesȱwillȱprovideȱtheȱCommissionȱwithȱ

informationȱtoȱensureȱthatȱcarriersȱprovideȱsafeȱandȱreliableȱserviceȱandȱcomplyȱwithȱ

Californiaȱlaw,ȱandȱtheȱCommission’sȱrules,ȱorders,ȱandȱDecisions.ȱȱ

29. ItȱisȱimportantȱtoȱreceiveȱandȱanalyzeȱdataȱonȱOC3ȱdataȱoutagesȱthatȱaffectȱvoiceȱ

customerȱuse.ȱȱȱ

30. Voluntaryȱreportȱofȱoutagesȱofȱ300,000ȱuserȱminutesȱthatȱlastȱ30ȱminutesȱorȱ

more,ȱandȱtheȱnumberȱofȱuserȱminutesȱaffectedȱbyȱanȱOC3ȱorȱtransportȱoutageȱtoȱCalȱ

OES,ȱCity,ȱandȱCountyȱOES,ȱandȱCaliforniaȱfederallyȱrecognizedȱtribalȱOESȱofficialȱ

contacts,ȱisȱconsistentȱwithȱsafeȱandȱreliableȱserviceȱandȱprotectingȱpublicȱsafety.ȱȱ

31. ThisȱproceedingȱreceivedȱrequestsȱthatȱtheȱCommissionȱdirectȱcarriersȱtoȱinformȱ

publicȱsafetyȱandȱOfficeȱofȱEmergencyȱServicesȱpersonnelȱaboutȱdialȱtoneȱandȱ9Ȭ1Ȭ1ȱ

outages,ȱandȱthatȱsuggestionȱshouldȱbeȱexploredȱinȱPhaseȱIIȱofȱthisȱProceeding.ȱ

32. Development,ȱposting,ȱandȱdisseminatingȱaȱsurveyȱandȱreportingȱtoolȱandȱanȱ

Appȱtoȱallowȱinput,ȱretrieval,ȱsorting,ȱandȱviewingȱofȱmaterialȱrelevantȱtoȱtelephoneȱ

corporationȱcomplianceȱwithȱCommissionȱrulesȱincludingȱoutages,ȱ9Ȭ1Ȭ1ȱaccessȱȱandȱ

initiationȱfailures,ȱcallȱcompletionȱfailures,ȱandȱanyȱassociatedȱcausesȱsuchȱasȱ

complianceȱwithȱpoleȱsafetyȱrulesȱandȱGOȱ95ȱandȱGOȱ128ȱisȱaȱreasonableȱandȱeffectiveȱ

meansȱforȱconsumersȱtoȱshareȱinformationȱandȱlinkȱthatȱinformationȱtoȱCommissionȱ

ruleȱcompliance.ȱȱ

33. Itȱisȱimportantȱtoȱpublicȱandȱworkerȱsafetyȱandȱsafe,ȱreliableȱserviceȱthatȱ

telephoneȱcorporationsȱprovideȱcontactȱinformationȱthatȱisȱnotȱaȱpublicȱ800ȱorȱ8xxȱ

numberȱforȱ24ȱhour,ȱsevenȱdayȱaȱweekȱcontactȱbetweenȱpublicȱsafetyȱofficialsȱandȱtheȱ

telephoneȱcorporationȱcontactȱtoȱspeedȱemergencyȱcallsȱforȱrestoration,ȱrepair,ȱpoleȱ

removal,ȱandȱotherȱemergencyȱrequests.ȱȱ


141

34. Duringȱcommunicationsȱoutagesȱpublicȱsafetyȱofficialsȱhaveȱtoȱmakeȱdecisionsȱ

aboutȱdeploymentȱofȱpublicȱsafetyȱpersonnel,ȱandȱtheȱStateȱEmergencyȱManagementȱ

Systemȱchargesȱtheȱlocalȱandȱcountyȱlevelȱwithȱcoordinationȱandȱcommunication.ȱȱ

35. Thereȱisȱaȱdataȱgapȱforȱinformationȱaboutȱoutagesȱofȱvoiceȱserviceȱasȱwellȱasȱdataȱ

andȱInternetȱservicesȱforȱoutagesȱbelowȱtheȱ900,000ȱuserȱminuteȱthresholdȱofȱtheȱFederalȱ

CommunicationsȱCommissionȱNetworkȱOutageȱReportingȱStandardȱlevelȱ

36. ReportsȱofȱOC3ȱ(data)ȱoutagesȱmayȱnotȱreflectȱtheȱnumberȱofȱvoiceȱcustomersȱ

affectedȱbyȱthatȱoutage,ȱobscuringȱtheȱimpactȱofȱdataȱorȱtransportȱoutagesȱonȱsafe,ȱ

reliableȱserviceȱincludingȱvoiceȱservice.ȱ

37. GOȱ133ȬDȱreportsȱmayȱnotȱreflectȱallȱoutagesȱifȱcustomerȬgeneratedȱorȱcarrierȬ

generatedȱrepairȱticketsȱdoȱnotȱtriggerȱtheȱrepairȱtimeȱclock,ȱthoughȱcustomerȱserviceȱisȱ

out.ȱ

38. SomeȱfederallyȱrecognizedȱtribesȱinȱCaliforniaȱappearȱinȱ9Ȭ1Ȭ1ȱdatabasesȱasȱifȱ

theyȱallȱhaveȱtheȱsameȱaddress,ȱthoughȱtheyȱmayȱuseȱvariousȱsystemsȱtoȱdistinguishȱ

betweenȱresidents.ȱȱThisȱcreatesȱaȱpublicȱsafetyȱhazardȱwhenȱcallingȱ9Ȭ1Ȭ1ȱifȱtheȱfirstȱ

responderȱcannotȱtellȱwhichȱresidenceȱorȱbusinessȱcalledȱforȱemergencyȱassistance.ȱȱȱ

39. Outagesȱthatȱaffectȱ300,000ȱuserȱminutesȱreflectsȱtheȱnumberȱofȱusersȱthatȱmayȱ

triggerȱcountyȬlevelȱpublicȱsafetyȱobligationsȱunderȱCalifornia’sȱStandardizedȱ


(CCR)ȱTitleȱ19,ȱ§ȱ2401.ȱ

40. InformationȱaboutȱoutagesȱofȱuserȱminutesȱresultingȱfromȱOC3ȱorȱtransportȱ

outagesȱisȱimportantȱandȱreasonableȱtoȱobtainȱasȱinȱsomeȱcases,ȱanȱoutageȱofȱaȱsingleȱ

OC3ȱorȱtransportȱlineȱcanȱresultȱinȱtheȱoutageȱofȱhundreds,ȱthousands,ȱevenȱtensȱofȱ

thousandsȱofȱuserȱminutes,ȱparticularlyȱifȱthereȱisȱnoȱdiverseȱroutingȱorȱredundantȱpathȱ

toȱserveȱthoseȱusers.ȱȱ

41. 300,000ȱuserȱminutesȱreflectsȱtheȱnumberȱofȱusersȱthatȱmayȱtriggerȱcountyȬlevelȱ

publicȱsafetyȱobligationsȱunderȱCalifornia’sȱStandardizedȱEmergencyȱManagementȱ


142

Systemȱ(SEMS),ȱdetailedȱinȱCaliforniaȱCodeȱofȱRegulationsȱ(CCR)ȱTitleȱ19,ȱ§ȱ2401.ȱȱ

ReceivingȱtimelyȱinformationȱaboutȱsuchȱoutagesȱisȱcriticalȱtoȱenablingȱthisȱCommissionȱ

toȱensureȱthatȱcarriersȱprovideȱserviceȱinȱcomplianceȱwithȱCaliforniaȱlaw,ȱandȱthisȱ

Commission’sȱDecisions,ȱrules,ȱandȱOrders.ȱ

14. Conclusions of Law 1. CarriersȱhaveȱaȱdutyȱunderȱCAȱPUȱCodeȱ451ȱtoȱprovideȱsafe,ȱreliableȱserviceȱwithȱ

adequateȱfacilities.ȱȱȱ

2. TheȱCommissionȱhasȱjurisdictionȱtoȱinvestigateȱwhetherȱcarriersȱhaveȱfulfilledȱ

theirȱdutiesȱandȱtoȱrequireȱtheȱsubmissionȱofȱdataȱtoȱtheȱCommissionȱtoȱanalyzeȱ

complianceȱwithȱthoseȱduties.ȱ

3. CaliforniaȱPub.ȱUtil.ȱCodeȱ§ȱ558ȱcreatesȱaȱstatutoryȱdutyȱforȱtelephoneȱ

corporationsȱtoȱcarryȱandȱcompleteȱcalls,ȱandȱrequiresȱthatȱ“Everyȱtelephoneȱ

corporationȱandȱtelegraphȱcorporationȱoperatingȱinȱthisȱStateȱshallȱreceive,ȱtransmit,ȱ

andȱdeliver,ȱwithoutȱdiscriminationȱorȱdelay,ȱtheȱconversationsȱandȱmessagesȱofȱeveryȱ

otherȱsuchȱcorporationȱwithȱwhoseȱlineȱaȱphysicalȱconnectionȱhasȱbeenȱmade.”ȱȱTheȱ

Commissionȱhasȱtheȱauthorityȱtoȱinvestigateȱcallȱcompletionȱfailuresȱandȱtoȱrecommendȱ

appropriateȱactionȱtoȱensureȱaccountabilityȱforȱsuchȱfailuresȱandȱcomplianceȱwithȱcallȱ

completionȱlaws.ȱ

4. Allȱcarriers,ȱwhetherȱwholesale,ȱintermediate,ȱorȱretailȱtrafficȱhaulers,ȱmustȱ

terminateȱtrafficȱforȱoneȱanotherȱandȱfromȱanȱendȱuserȱtoȱanotherȱendȱuserȱinȱeveryȱ

instance.ȱȱTheȱobligationȱtoȱcompleteȱcallsȱappliesȱnotȱjustȱtoȱIncumbentȱLocalȱExchangeȱ

Carriersȱ(ILECs),ȱbutȱequallyȱtoȱallȱcarriersȱinvolvedȱinȱtheȱorigination,ȱrouting,ȱandȱ

completionȱofȱcalls.”246ȱ

246ȱId.,ȱcitingȱOrderȱInstitutingȱRulemakingȱonȱtheȱCommissionȇsȱOwnȱMotionȱIntoȱCompetitionȱforȱLocalȱExchangeȱService;ȱOrderȱInstitutingȱInvestigationȱonȱtheȱCommissionȇsȱOwnȱMotionȱIntoȱCompetitionȱforȱLocalȱExchangeȱServiceȱ[D.97Ȭ11Ȭ024]ȱ(1997),ȱ76ȱCPUC.2dȱ458,ȱatȱ460.ȱȱȱ


143

5. ThisȱCommissionȱhasȱauthorityȱtoȱoverseeȱcomplianceȱwithȱtheȱStateȱofȱ

California’sȱuniversalȱserviceȱpolicyȱofȱensuringȱ“affordabilityȱandȱwidespreadȱ

availabilityȱofȱhighȬqualityȱtelecommunicationsȱservicesȱtoȱallȱCalifornians”ȱasȱ

articulatedȱbyȱCal.ȱPub.ȱUtil.ȱCodeȱ§ȱ709(a).ȱ

6. Utilitiesȱhaveȱaȱdutyȱtoȱprovideȱreasonableȱstatewideȱserviceȱqualityȱstandards,ȱ

includingȱcustomerȱservice,ȱinstallationȱandȱrepairȱCaliforniaȱPublicȱUtilityȱCodeȱ

sectionȱ2896(c),ȱandȱtheȱCommissionȱhasȱauthorityȱtoȱoverseeȱcomplianceȱwithȱthoseȱ

standards.ȱȱȱ

7. TheȱCommissionȱadoptedȱGoȬ133ȬDȱinȱ2016,ȱreplacingȱtheȱformerȱGOȱ133ȬC,ȱtoȱ

establishȱserviceȱqualityȱrulesȱandȱaȱscheduleȱofȱfinesȱforȱviolations.ȱ

8. Cal.ȱPub.ȱUtil.ȱCodeȱ§ȱ275.6ȱprovidesȱforȱ“rateȬofȬreturnȱregulationȱinȱfurtheranceȱ

ofȱtheȱstateȇsȱuniversalȱserviceȱcommitmentȱtoȱtheȱcontinuedȱaffordabilityȱandȱ

widespreadȱavailabilityȱofȱsafe,ȱreliable,ȱhighȬqualityȱcommunicationsȱservicesȱinȱruralȱ

areasȱofȱtheȱstate,”ȱandȱcallȱcompletionȱissuesȱaffectȱareasȱofȱtheȱstateȱsubjectȱtoȱrateȬofȬ

returnȱregulation.ȱ

9. ThisȱCommissionȱhasȱauthorityȱtoȱoverseeȱcomplianceȱwithȱCal.ȱPub.ȱUtil.ȱCodeȱ

Sectionȱ453ȱwhichȱprohibitsȱaȱpublicȱutilityȱfromȱmaintainingȱanyȱunreasonableȱ

differenceȱasȱtoȱrates,ȱcharges,ȱservice,ȱfacilities,ȱ…betweenȱlocalitiesȱorȱasȱbetweenȱ

classesȱofȱservice.”ȱ

10. TheȱCommissionȱhasȱtheȱdutyȱtoȱoverseeȱcomplianceȱwithȱtheȱdutyȱofȱtoȱprovideȱ

accessȱtoȱ9Ȭ1Ȭ1ȱemergencyȱserviceȱasȱrequiredȱbyȱCal.ȱPub.ȱUtil.ȱCodeȱsectionȱ2883(2)(b):ȱ

“Allȱlocalȱtelephoneȱcorporations,ȱexcludingȱprovidersȱofȱmobileȱtelephonyȱserviceȱandȱ

mobileȱsatelliteȱtelephoneȱservice,ȱasȱdefinedȱinȱSectionȱ224.4,ȱtoȱtheȱextentȱpermittedȱbyȱ

existingȱtechnologyȱorȱfacilities,ȱshallȱprovideȱeveryȱsubscriberȱofȱtariffedȱresidentialȱ

basicȱexchangeȱserviceȱwithȱaccessȱtoȱȈ911Ȉȱemergencyȱservice.ȱ

11. Cal.ȱPub.ȱUtil.ȱCodeȱsectionȱ2889.6ȱrequiresȱcarriersȱtoȱprovideȱinformationȱ

provideȱinformationȱconcerningȱemergencyȱsituationsȱwhichȱmayȱaffectȱtheȱtelephoneȱ


144

networkȱincludingȱtheȱproceduresȱwhichȱtheȱcorporationȱwillȱfollowȱduringȱ

emergencies,ȱandȱhowȱtelephoneȱsubscribersȱcanȱbestȱuseȱtheȱtelephoneȱnetworkȱinȱanȱ

emergencyȱsituation,ȱandȱtheȱemergencyȱservicesȱavailableȱbyȱdialingȱȈ911,Ȉȱandȱtheȱ

Commissionȱmustȱensureȱthisȱinformationȱisȱprovidedȱandȱthatȱproceduresȱareȱfollowedȱ

toȱenableȱaccessȱtoȱ9Ȭ1Ȭ1ȱduringȱemergencies.ȱ

12. Accessȱtoȱ9Ȭ1Ȭ1ȱemergencyȱservicesȱcanȱbeȱevaluatedȱ“endȬtoȬend,”ȱexaminingȱ

customerȱaccessȱtoȱ9Ȭ1Ȭ1ȱcallȱinitiation,ȱasȱwellȱasȱtheȱabilityȱofȱtheȱ9Ȭ1Ȭ1ȱPublicȱSafetyȱ

AnsweringȱPointȱtoȱreceiveȱtheȱcall,ȱandȱthisȱOIIȱfoundȱexamplesȱofȱbothȱ9Ȭ1Ȭ1ȱcallȱ

initiationȱissuesȱandȱcallȱcompletionȱfailures.ȱȱ

13. CarriersȱhaveȱaȱdutyȱtoȱcomplyȱwithȱGeneralȱOrderȱ95ȱ(RulesȱforȱOverheadȱElectricȱ

LineȱConstruction),ȱandȱGeneralȱOrderȱ128ȱ(RulesȱforȱConstructionȱofȱUndergroundȱElectricȱ

SupplyȱandȱCommunicationȱSystems)ȱwhichȱregulateȱaccessȱtoȱpoles,ȱconduits,ȱandȱrightsȬ

ofȬwayȱbyȱoverheadȱorȱundergroundȱfacilitiesȱandȱconduits.ȱAmongȱotherȱ

requirements,ȱGOȱ95ȱrequiresȱcarriersȱtoȱmanageȱvegetationȱnearȱwiresȱandȱpoles,ȱandȱ

toȱsetsȱstandardsȱforȱtheȱstrengthȱandȱintegrityȱofȱpolesȱtoȱsupportȱwiresȱandȱ

attachments.ȱ

14. CarriersȱhaveȱaȱdutyȱtoȱComplyȱwithȱCommissionȱOrders,ȱDecisions,ȱandȱRulesȱ

asȱmandatedȱbyȱCal.ȱPub.ȱUtil.ȱCodeȱsectionȱ702.ȱ

15. UnderȱCal.ȱPub.ȱUtil.ȱCodeȱ§ȱ701,ȱtheȱCommissionȱmayȱsuperviseȱandȱregulateȱ

everyȱpublicȱutilityȱinȱtheȱStateȱandȱmayȱdoȱallȱthings,ȱwhetherȱspecificallyȱdesignatedȱ

inȱthisȱpartȱorȱinȱadditionȱthereto,ȱwhichȱareȱnecessaryȱandȱconvenientȱinȱtheȱexerciseȱofȱ

suchȱpowerȱandȱjurisdiction,ȱprovidesȱthat:ȱȱ

16. UnderȱCal.ȱPub.ȱUtil.ȱCodeȱ§ȱ313ȱ“Theȱcommissionȱmayȱrequire,ȱbyȱorderȱservedȱ

onȱanyȱpublicȱutility,ȱtheȱproductionȱwithinȱthisȱStateȱatȱsuchȱtimeȱandȱplaceȱasȱitȱ

designates,ȱofȱanyȱbooks,ȱaccounts,ȱpapers,ȱorȱrecordsȱkeptȱbyȱtheȱpublicȱutilityȱinȱanyȱ

officeȱorȱplaceȱwithoutȱthisȱState,ȱor,ȱatȱitsȱoption,ȱverifiedȱcopiesȱinȱlieuȱthereof,ȱsoȱthatȱ

anȱexaminationȱthereofȱmayȱbeȱmadeȱbyȱtheȱcommissionȱorȱunderȱitsȱdirection,”ȱandȱtheȱ


145

carrierȱreportingȱrequiredȱhereinȱisȱmadeȱunderȱtheȱCommission’sȱauthorityȱincludingȱ

Cal.ȱPub.ȱUtil.ȱCodeȱsectionȱ313.ȱ

17. UnderȱCal.ȱPub.ȱUtil.ȱCodeȱ§ȱ314,ȱ“(a)ȱTheȱcommission,ȱeachȱcommissioner,ȱandȱ

eachȱofficerȱandȱpersonȱemployedȱbyȱtheȱcommissionȱmay,ȱatȱanyȱtime,ȱinspectȱtheȱ

accounts,ȱbooks,ȱpapers,ȱandȱdocumentsȱofȱanyȱpublicȱutility,”ȱandȱtheȱcarrierȱreportingȱ

requiredȱhereinȱisȱmadeȱunderȱtheȱCommission’sȱauthorityȱincludingȱCal.ȱPub.ȱUtil.ȱ

Codeȱsectionȱ314.ȱ

18. Cal.ȱPub.ȱUtil.ȱCodeȱ§ȱ315ȱrequiresȱthatȱ“Theȱcommissionȱshallȱinvestigateȱtheȱ

causeȱofȱallȱaccidentsȱoccurringȱwithinȱthisȱStateȱuponȱtheȱpropertyȱofȱanyȱpublicȱutilityȱ

orȱdirectlyȱorȱindirectlyȱarisingȱfromȱorȱconnectedȱwithȱitsȱmaintenanceȱorȱoperation,ȱ

resultingȱinȱlossȱofȱlifeȱorȱinjuryȱtoȱpersonȱorȱpropertyȱandȱrequiring,ȱinȱtheȱjudgmentȱofȱ

theȱcommission,ȱinvestigationȱbyȱit,ȱandȱmayȱmakeȱsuchȱorderȱorȱrecommendationȱwithȱ

respectȱtheretoȱasȱinȱitsȱjudgmentȱseemsȱjustȱandȱreasonable,”ȱandȱseveralȱoutagesȱthatȱ

affectedȱMendocino,ȱHumboldt,ȱandȱDelȱNorteȱcountiesȱwereȱcausedȱbyȱaccidentsȱandȱ

affectedȱutilityȱpropertyȱandȱcustomerȱaccessȱtoȱdialȱtoneȱandȱ9Ȭ1Ȭ1;ȱaccordingly,ȱandȱweȱ

orderȱȱtheȱCommission’sȱConsumerȱProtectionȱandȱEnforcementȱDivisionȱtoȱinvestigateȱ

theseȱaccidents,ȱtheirȱcausesȱincludingȱnetworkȱdesign,ȱdiversity,ȱandȱresiliencyȱissues,ȱ

andȱtheȱconsequencesȱofȱtheseȱoutages,ȱandȱreferȱtoȱtheȱNetworkȱStudyȱanalysisȱofȱtheȱ

networkȱdesign,ȱdiversity,ȱandȱresiliencyȱissuesȱassociatedȱwithȱtheseȱoutages.ȱ

19. Cal.ȱPub.ȱUtil.ȱCodeȱSectionȱ§ȱ768ȱprovidesȱthatȱtheȱCommissionȱ“may,ȱafterȱaȱ

hearing,ȱrequireȱeveryȱpublicȱutilityȱtoȱconstruct,ȱmaintain,ȱandȱoperateȱitsȱline,ȱplant,ȱ

system,ȱequipment,ȱapparatus,ȱtracks,ȱandȱpremisesȱinȱaȱmannerȱsoȱasȱtoȱpromoteȱandȱ

safeguardȱtheȱhealthȱandȱsafetyȱofȱitsȱemployees,ȱpassengers,ȱcustomers,ȱandȱtheȱpublic.ȱȱ

Theȱcommissionȱmayȱestablishȱuniformȱorȱotherȱstandardsȱofȱconstructionȱorȱ

equipment,ȱandȱrequireȱtheȱperformanceȱofȱanyȱotherȱactȱwhichȱtheȱhealthȱorȱsafetyȱofȱ

itsȱemployees,ȱpassengers,ȱcustomers,ȱorȱtheȱpublicȱmayȱdemand,”ȱandȱtheȱCommissionȱ

hasȱtheȱauthorityȱandȱdutyȱtoȱensureȱthatȱutilitiesȱcomplyȱwithȱthisȱrequirementȱtoȱ


146

promoteȱandȱsafeguardȱtheȱhealthȱandȱsafetyȱofȱitsȱemployees,ȱpassengers,ȱcustomers,ȱ

andȱtheȱpublic.ȱ

20. TheȱCommissionȱhasȱtheȱauthorityȱtoȱgatherȱdataȱfromȱrespondentȱcarriersȱ

underȱCal.ȱPub.ȱUtil.ȱCodeȱsectionsȱ313ȱandȱ314,ȱandȱtheȱrequirementȱthatȱCarriersȱofȱ

LastȱResortȱreportȱtoȱtheȱCommissionȱcommunicationsȱoutagesȱofȱ300,000ȱuserȱminutesȱ

lastingȱ30ȱminutesȱorȱmore,ȱisȱorderedȱunderȱthisȱauthorityȱandȱotherȱprovisionsȱofȱtheȱ

Cal.ȱPub.ȱUtil.ȱCodeȱincludingȱsectionȱ701.ȱȱ

21. Pursuantȱtoȱ§ȱ2101,ȱtheȱCommissionȱisȱdirectedȱto:ȱ”[S]eeȱthatȱtheȱprovisionsȱofȱ

theȱconstitutionȱandȱtheȱstatutesȱofȱthisȱStateȱaffectingȱpublicȱutilities,ȱtheȱenforcementȱ

ofȱwhichȱisȱnotȱspecificallyȱvestedȱinȱsomeȱotherȱofficerȱorȱtribunal,ȱareȱenforcedȱandȱ


thereforȱrecoveredȱandȱcollected…”ȱchargingȱtheȱCommissionȱwithȱoversightȱofȱcarriersȱ

andȱtheirȱcomplianceȱwithȱstateȱlawȱandȱtheȱconstitution.ȱ

22. Cal.ȱPub.ȱUtil.ȱCodeȱsectionȱ2107ȱet.ȱal.ȱauthorizesȱfinesȱandȱpenaltiesȱforȱ

violationsȱofȱCaliforniaȱlawȱunderȱCommissionȱjurisdictionȱandȱtheȱCaliforniaȱPublicȱ

UtilitiesȱCode,ȱCommissionȱrules,ȱorders,ȱandȱdecisions,ȱandȱweȱreferȱtoȱtheȱConsumerȱ

ProtectionȱandȱEnforcementȱDivisionȱanalysisȱofȱtheȱissuesȱlistedȱinȱtheȱorderȱbelowȱtoȱ

determineȱwhetherȱanȱadjudicatoryȱOIIȱshouldȱbeȱbroughtȱregardingȱthoseȱissues,ȱandȱ

carriersȱshouldȱbeȱsubjectȱtoȱpenalties.ȱ

23. Cal.ȱPub.ȱUtil.ȱCodeȱ§ȱ710(c)(7)ȱpreservesȱtheȱCommission’sȱauthorityȱrelativeȱtoȱ

theȱconstructionȱandȱmaintenanceȱofȱsupportȱstructuresȱandȱotherȱcommunicationsȱ

facilitiesȱpursuantȱtoȱGeneralȱOrdersȱ95ȱandȱ128,ȱandȱTheȱWarrenȱ911ȱEmergencyȱ

CommunicationsȱAct,ȱCaliforniaȱGovernmentȱCodeȱ53100(b)ȱwhichȱdeclaresȱthatȱ“itȱisȱ

inȱtheȱpublicȱinterestȱtoȱshortenȱtheȱtimeȱrequiredȱforȱaȱcitizenȱtoȱrequestȱandȱreceiveȱ

emergencyȱaid.”ȱ

24. Voluntaryȱreportingȱbyȱrespondentsȱforȱoutagesȱofȱ300,000ȱuserȱminutesȱlastingȱ

30ȱminutesȱorȱmore,ȱandȱinitiationȱofȱPhaseȱIIȱtoȱdevelopȱstandardsȱforȱreportingȱofȱsuchȱ


147

outagesȱtoȱEmergencyȱServicesȱofficialsȱisȱreasonableȱandȱinȱtheȱpublicȱinterestȱtoȱ

promoteȱsafe,ȱreliableȱserviceȱunderȱCal.ȱPub.ȱUtil.ȱCodeȱsectionȱ451,ȱandȱisȱencouragedȱ

withinȱtheȱCommission’sȱauthorityȱunderȱtheȱCaliforniaȱconstitutionȱandȱtheȱCal.ȱPub.ȱ

Util.ȱCodeȱincludingȱsectionȱ701.ȱȱ

ORDERȱ ITȱISȱORDEREDȱthat:ȱȱ

1. ȱWeȱdirectȱtheȱConsumerȱProtectionȱandȱEnforcementȱDivisionȱandȱtheȱ

CommunicationsȱDivisionȱtoȱseekȱdataȱtoȱanalyzeȱwhyȱVerizonȱBusinessȱandȱLevelȱ3ȱ

hadȱtheȱlargestȱgapsȱbetweenȱattemptedȱcallsȱandȱcompletedȱcallsȱtoȱorȱfromȱCalifornia,ȱ

andȱtoȱrecommendȱappropriateȱactionȱtoȱcloseȱthatȱgapȱandȱensureȱthatȱcallsȱareȱ

completedȱconsistentȱwithȱCaliforniaȱLaw.ȱ

2. Carriersȱthatȱexperienceȱcallȱcompletionȱproblemsȱgoingȱforwardȱshallȱprovideȱ

informationȱaboutȱtheȱissueȱinȱaȱdetailedȱletterȱtoȱCommunicationsȱDivision.ȱȱTheȱ

Commission’sȱAlternativeȱDisputeȱResolutionȱmechanismȱisȱavailableȱtoȱmediateȱinterȬ

carrierȱissuesȱthatȱmayȱaffectȱcallȱcompletion.ȱȱCarriersȱmayȱalsoȱfileȱaȱformalȱcomplaintȱ

aboutȱcallȱcompletionȱproblems.ȱ

3. WeȱdirectȱtheȱCommission’sȱNewsȱandȱPublicȱInformationȱOfficeȱandȱConsumerȱ

AffairsȱBranchȱtoȱdevelopȱandȱpostȱonȱtheȱwebȱandȱthroughȱbrochuresȱconsumerȱ

informationȱaboutȱruralȱcallȱcompletionȱfailureȱissuesȱasȱdiscussedȱherein.ȱ

4. WeȱdirectȱCommunicationsȱDivisionȱandȱourȱLegalȱDivisionȱtoȱdraftȱcommentsȱ

forȱourȱconsiderationȱtoȱfileȱatȱtheȱFCCȱaboutȱtheȱdataȱgapsȱandȱinconsistenciesȱinȱtheirȱ

RuralȱCallȱCompletionȱProblemsȱdatabase.ȱȱWeȱdirectȱtheȱCommunicationsȱDivisionȱtoȱ

coordinateȱwithȱtheȱFCCȱEnforcementȱBureauȱtoȱseekȱimprovementsȱinȱtheȱreporting,ȱ

dataȱgathering,ȱandȱmonitoringȱprocessȱforȱruralȱcallȱcompletion.ȱ

5. WeȱdirectȱcarriersȱtoȱeducateȱtheirȱMLTSȱcustomersȱaboutȱstepsȱtoȱenableȱshortȱ

codeȱaccess.ȱȱ


148

6. WeȱorderȱcarriersȱwhoȱprogramȱMLTSȱsystemsȱdoȱsuchȱprogrammingȱonȱbehalfȱ

ofȱtheirȱcustomerȱorȱprovideȱMTLSȱsystemsȱ(whetherȱpremise,ȱcloud,ȱorȱcentrexȬbased)ȱ

toȱenableȱshortȱcodes,ȱwithȱanȱoptȬoutȱforȱcustomersȱforȱshortȱcodesȱexceptȱforȱ9Ȭ1Ȭ1,ȱȱ

8Ȭ1Ȭ1,ȱ2Ȭ1Ȭ1,ȱandȱ7Ȭ1Ȭ1ȱinȱlightȱofȱtheȱpublicȱsafetyȱandȱhealthȱservicesȱavailableȱuponȱ

reachingȱtheseȱshortȱcodes.ȱȱCarriersȱshallȱmaintainȱtheȱproperȱunderlyingȱcallȱ

directionsȱtoȱcompleteȱtheȱcallȱtoȱtheȱproperȱagencyȱorȱshortȱcodeȱdestination.ȱȱ

7. Weȱdirectȱcarriersȱtoȱholdȱaȱmeetȱandȱconferȱwithȱtheȱ2Ȭ1Ȭ1ȱcoalitionȱandȱtheȱ8Ȭ1Ȭ1ȱ

coalition,ȱasȱdescribedȱhereinȱtoȱdiscussȱshortȱcodeȱaccessȱandȱeducation.ȱȱȱ

8. WeȱreferȱtoȱtheȱproceedingȱthatȱwillȱimplementȱSBȱ1212ȱtoȱbringȱ2Ȭ1Ȭ1ȱstatewideȱ

toȱdetermineȱwhetherȱadditionalȱstepsȱareȱprudentȱandȱnecessaryȱtoȱensureȱ2Ȭ1Ȭ1ȱaccess,ȱ

includingȱfromȱMLTSȱusers.ȱ

9. WeȱreferȱtoȱtheȱNetworkȱStudyȱanalysisȱofȱAT&T,ȱCaliforniaȱandȱFrontierȱweȱ

orderedȱinȱD.15Ȭ08Ȭ041,ȱinȱR.11Ȭ12Ȭ001ȱanalysisȱof:ȱȱ1)ȱallegationsȱofȱfalseȱdisconnectedȱ

messages,ȱfastȱbusyȱmessagesȱforȱwhatȱshouldȱbeȱworkingȱlines,ȱandȱextremelyȱpoorȱcallȱ

qualityȱcomments;ȱ2)ȱnetworkȱandȱcallȱpathȱdiversityȱ(theȱnumberȱofȱwaysȱaȱcallȱcanȱ

travelȱtoȱbeȱcompleted),ȱredundancy,ȱandȱresiliencyȱissuesȱhighlightedȱbyȱlargeȬscaleȱ

outages;ȱ3)ȱtheȱphysicalȱconditionȱofȱtheȱAT&T,ȱCaliforniaȱandȱFrontierȱnetworksȱtoȱbeȱ

studied,ȱincludingȱnetworkȱmaintenanceȱandȱserviceȱpracticesȱthatȱmayȱcontributeȱtoȱ

outagesȱandȱinfluenceȱtheirȱbreadth,ȱlength,ȱandȱoccurrence;ȱ4)ȱtroubleȱticketȱresponseȱ

timeȱandȱoutagesȱreportedȱthroughȱGOȱ133ȬD,ȱandȱreportsȱofȱoutagesȱofȱ300,000ȱuserȱ

minutesȱorȱmore,ȱlastingȱatȱleastȱ30ȱminutes.ȱ

10. Weȱencourageȱcarriersȱtoȱofferȱdiversity,ȱresiliency,ȱandȱredundancyȱoptionsȱtoȱ

EmergencyȱServicesȱOfficesȱandȱpublicȱsafetyȱaccessȱmanagers.ȱ

11. WeȱdirectȱtheȱCommission’sȱtheȱCommission’sȱConsumerȱAffairsȱBranchȱ(CAB)ȱ

toȱreachȱoutȱtoȱtheȱconsumersȱwhoȱspokeȱatȱtheȱPPHsȱaboutȱtheseȱissuesȱandȱofferȱ

CAB’sȱinformalȱcomplaintȱresolutionȱservices,ȱandȱinformȱconsumersȱaboutȱtheȱformalȱ

complaintȱprocessȱatȱtheȱCommission.ȱȱWeȱreferȱtoȱSEDȱtoȱdetermineȱwhetherȱpracticesȱ


149

suchȱasȱaffixingȱtelephoneȱlinesȱtoȱtreesȱareȱinconsistentȱwithȱGOȱ95.ȱȱSEDȱmayȱissueȱ

citations,ȱasȱappropriateȱforȱviolationsȱofȱGOȱ95.ȱȱWeȱdirectȱSEDȱtoȱissueȱguidanceȱ

clarifyingȱtheȱdutyȱtoȱaffixȱlinesȱtoȱproperȱsupportȱstructuresȱandȱaddressingȱtheȱissueȱofȱ

linesȱattachedȱtoȱtrees,ȱdead,ȱdiseased,ȱorȱalive.ȱȱ

12. WeȱreferȱtoȱSEDȱtoȱdetermineȱwhatȱadditionalȱstepsȱareȱwarrantedȱtoȱensureȱ

complianceȱwithȱvegetationȱmanagementȱduties,ȱincludingȱthroughȱtheȱcitationȱ

program,ȱissuanceȱofȱguidanceȱaboutȱvegetationȱmanagementȱdutiesȱinȱlightȱofȱtheȱtreeȱ

mortalityȱepidemic,ȱand,ȱifȱwarranted,ȱanȱadjudicatoryȱOII.ȱ

13. WeȱreferȱtoȱtheȱCommission’sȱConsumerȱProtectionȱandȱEnforcementȱDivisionȱ

(CPED)ȱtoȱanalyzeȱasȱdescribedȱhereinȱwhetherȱanȱadjudicatoryȱOIIȱshouldȱbeȱbroughtȱ

forȱanyȱviolationsȱofȱstateȱlawȱorȱthisȱCommission’sȱrules,ȱorders,ȱandȱDecisionsȱarisingȱ

from:ȱ1)ȱȱtheȱAprilȱ9,ȱ2014ȱoutageȱstartedȱbyȱIntrado’sȱsystemsȱinȱColoradoȱthatȱledȱtoȱ

theȱlossȱofȱ9Ȭ1Ȭ1ȱaccessȱinȱseveralȱstatesȱincludingȱinȱeightȱNorthernȱCaliforniaȱcountiesȱ

whereȱVerizonȱBusinessȱsuppliedȱ9Ȭ1Ȭ1ȱaccessȱservicesȱtoȱAT&TȱMobilityȱandȱVerizon,ȱ

Wirelessȱcustomers;ȱ2)ȱtheȱoutagesȱresultingȱfromȱfiberȱcutsȱinȱMendocinoȱandȱ

HumboldtȱcountiesȱincludingȱtheȱAugustȱ3,ȱ2014ȱoutage,ȱtheȱSeptemberȱ3,ȱ2015ȱoutage,ȱ

andȱtheȱDecemberȱ9,ȱ2015ȱoutage,ȱeachȱofȱwhichȱresultedȱinȱtheȱlossȱofȱdialȱtoneȱandȱinȱ

severalȱcasesȱ9Ȭ1Ȭ1ȱaccessȱforȱthousandsȱinȱoneȱorȱseveralȱcounties;ȱ3)ȱtheȱoutagesȱ

followingȱtheȱVerizonȬFrontierȱtransitionȱinȱAprilȬMayȱ2016.ȱȱCPEDȱshallȱhaveȱaccessȱtoȱ

allȱofȱtheȱrelevantȱrecordȱfromȱthisȱproceedingȱforȱitsȱanalysisȱofȱtheseȱissues.ȱ

14. WeȱdirectȱCommunicationsȱandȱLegalȱDivisionȱtoȱprepareȱaȱresolutionȱtoȱsubmitȱ

commentsȱtoȱtheȱFCCȱtoȱrequestȱreviewȱofȱwhetherȱadequateȱreportingȱwasȱsubmittedȱ

underȱNORsȱandȱFCCȱrules,ȱorders,ȱandȱDecisions,ȱandȱfederalȱlawȱforȱtheȱAugustȱ3,ȱ

2014,ȱSeptemberȱ3,ȱ2015,ȱandȱDecemberȱ9,ȱ2015ȱoutagesȱinȱMendocino,ȱHumboldt,ȱandȱ

DelȱNorteȱCounties.ȱȱTheȱcommentsȱshallȱrequestȱreviewȱofȱwhetherȱvoiceȱoutagesȱthatȱ

resultedȱfromȱOC3ȱorȱtransportȱoutagesȱwereȱadequatelyȱreported,ȱincludingȱtheȱlossȱofȱ


150

endȬtoȬendȱ9Ȭ1Ȭ1ȱserviceȱforȱhundredsȱorȱthousandsȱofȱcustomersȱaffectedȱbyȱtheȱOC3ȱorȱ

transportȱoutage.ȱ

15. WeȱdirectȱcarriersȱtoȱmeetȱandȱconferȱwithȱCalifornia’sȱfederallyȬrecognizedȱ

tribesȱandȱCountyȱOESȱofficesȱtoȱdetermineȱifȱactionȱisȱneededȱtoȱmakeȱresidentialȱ

addressesȱvisibleȱtoȱtheȱ9Ȭ1Ȭ1ȱdatabase,ȱincludingȱassigningȱaȱuniqueȱaddressȱbyȱmutualȱ

agreementȱinȱareasȱwhereȱallȱhouseholdsȱcurrentlyȱhaveȱtheȱsameȱaddress.ȱȱ

16. Weȱdirectȱrespondentsȱtoȱprovideȱwithinȱ30ȱdaysȱofȱthisȱDecisionȱtoȱcity,ȱcounty,ȱ

andȱfederallyȱrecognizedȱtribalȱOESȱofficialsȱanȱemergencyȱcontactȱnameȱandȱnumberȱ

availableȱ24ȱhoursȱaȱday,ȱ7ȱdaysȱaȱweek,ȱnotȱaȱgeneralȱ800ȱorȱ8xxȱnumber.ȱ

17. WeȱdirectȱaȱmeetȱandȱconferȱwithȱOESȱofficials,ȱCommunicationsȱDivision,ȱandȱ

SafetyȱandȱEnforcementȱDivisionȱ(SED)ȱtoȱdiscussȱcommunicationsȱduringȱandȱafterȱ

emergenciesȱsuchȱasȱfiresȱandȱmeansȱtoȱshortenȱtheȱtimeȱforȱaccessibleȱcommunications.ȱȱ

18. WeȱdirectȱtheȱSafetyȱandȱEnforcementȱDivisionȱtoȱwithinȱ120ȱdaysȱofȱthisȱ

DecisionȱcoordinateȱandȱholdȱaȱmeetȱandȱconferȱwithȱCalȱOES,ȱrespondents,ȱtheȱ

CaliforniaȱUtilityȱEmergencyȱAssociationȱ(CUEA),ȱtheȱCaliforniaȱCommunicationsȱ

Association,ȱCalȬFire,ȱtheȱGovernor’sȱTreeȱMortalityȱTaskȱForce,ȱtheȱGovernor’sȱOfficeȱ

ofȱTribalȱAdvisor,ȱEmergencyȱServicesȱrepresentativesȱforȱfederallyȬrecognizesȱtribesȱinȱ

California,ȱCountyȱOESȱrepresentatives,ȱandȱCommunicationsȱDivisionȱtoȱdiscussȱ

optionsȱtoȱimproveȱspeedȱofȱaccessȱtoȱcommunicationsȱservicesȱduringȱemergenciesȱ

suchȱasȱlargeȬscaleȱfireȱresponse.ȱ

19. WeȱdirectȱSafetyȱandȱEnforcementȱDivisionȱtoȱrecommendȱappropriateȱnextȱ

stepsȱforȱthisȱCommissionȱtoȱspeedȱcommunicationsȱservicesȱduringȱemergenciesȱtoȱ

protectȱpublicȱsafety,ȱtheȱenvironment,ȱresources,ȱandȱpropertyȱincludingȱprivate,ȱ

public,ȱandȱutilityȱpropertyȱandȱinfrastructure.ȱ

20. WeȱorderȱdataȱtoȱbeȱprovidedȱbyȱCarriersȱofȱLastȱResortȱ(COLRs)ȱtoȱtheȱ

Commissionȱaboutȱoutagesȱofȱ300,000ȱuserȱminutesȱorȱmore,ȱlastingȱatȱleastȱ30ȱminutes.ȱ

Suchȱnoticeȱshallȱbeȱprovidedȱwithinȱ120ȱminutesȱofȱtheȱoutage.ȱ


151

21. ForȱanyȱoutageȱofȱOC3ȱminutesȱorȱtransportȱoutage,ȱCOLRsȱshallȱreportȱtoȱtheȱ

CommissionȱtheȱnumberȱofȱuserȱminutesȱaffectedȱbyȱtheȱOC3ȱoutage.ȱ

22. WeȱdirectȱCommunicationsȱDivisionȱtoȱmakeȱavailableȱtoȱcarriersȱwithinȱ90ȱdaysȱ

ofȱtheȱadoptionȱofȱthisȱDecisionȱaȱformatȱforȱreportingȱoutagesȱ300,000ȱuserȱminutesȱthatȱ

lastȱ30ȱminutesȱorȱmore,ȱandȱtheȱnumberȱofȱuserȱminutesȱaffectedȱbyȱanȱOC3ȱorȱ

transportȱoutage.ȱȱȱ

23. Weȱencourageȱallȱrespondentsȱtoȱonȱaȱvoluntaryȱbasisȱreportȱoutagesȱofȱ300,000ȱ




asȱpossible,ȱandȱsuchȱreportsȱshouldȱbeȱcommunicatedȱnoȱlaterȱthanȱ60ȱminutesȱafterȱ

theirȱdiscoveryȱofȱsuchȱoutages.ȱ

24. PhaseȱIIȱofȱthisȱProceedingȱwillȱexploreȱwhetherȱtheȱCommissionȱshouldȱrequireȱ

COLRsȱorȱotherȱrespondentsȱtoȱreportȱoutagesȱtoȱCalȱOES,ȱCity,ȱandȱCountyȱOES,ȱandȱ

CaliforniaȱfederallyȱrecognizedȱtribalȱOESȱofficialȱcontacts.ȱ

25. PhaseȱIIȱshallȱconveneȱaȱWorkingȱGroupȱincludingȱCommunicationsȱDivision,ȱ

SafetyȱandȱEnforcementȱDivision,ȱtheȱparties,ȱandȱinvitingȱCalȱOES,ȱCity,ȱCounty,ȱandȱ

federallyȱrecognizedȱtribalȱOESȱofficialsȱtoȱdiscussȱandȱrecommendȱoutageȱreportingȱ

thresholds,ȱrequirements,ȱandȱprotocolsȱthatȱreflectȱCalifornia’sȱpublicȱsafetyȱneedsȱandȱ

thisȱCommission’sȱresponsibilities.ȱ

26. WeȱdirectȱCommunicationsȱDivisionȱtoȱmonitorȱreportsȱofȱoutagesȱsubmittedȱtoȱ



InterruptionȱthresholdȱofȱGOȱ133ȬD.ȱ

27. WeȱdirectȱtheȱCommission’sȱNewsȱandȱPublicȱInformationȱOfficeȱcontinueȱandȱ

enhanceȱtheȱCallȱCompletionȱsurveyȱandȱreportingȱtoolȱnowȱavailableȱonȱtheȱCPUC’sȱ

webȱsiteȱdevelopedȱduringȱthisȱOII,ȱandȱtoȱlookȱintoȱtheȱfeasabilityȱofȱdevelopingȱanȱ


152

Appȱtoȱallowȱforȱeasyȱmobileȱinputȱandȱviewingȱofȱmaterialȱrelevantȱtoȱtelephoneȱ

corporationȱcomplianceȱwithȱCPUCȱrulesȱincludingȱoutages,ȱ9Ȭ1Ȭ1ȱaccessȱȱandȱinitiationȱ

failures,ȱcallȱcompletionȱfailures,ȱandȱanyȱassociatedȱcausesȱsuchȱasȱcomplianceȱwithȱ

poleȱsafetyȱrulesȱandȱGOȱ95ȱandȱGOȱ128.ȱȱ

28. WeȱdirectȱtheȱCommission’sȱNewsȱandȱPublicȱInformationȱOfficeȱtoȱmakeȱ

availableȱonȱtheȱCommission’sȱwebsiteȱandȱthroughȱaȱmobileȱApplicationȱ“App”ȱaȱ

consumerȱCallȱCompletionȱSurveyȱtoȱfacilitateȱreportingȱandȱsharingȱinformationȱ

regarding:ȱcallȱcompletionȱfailures;ȱtelephoneȱcorporationȱcomplianceȱwithȱCPUCȱrules,ȱ

orders,ȱandȱDecisionsȱincluding,ȱbutȱnotȱlimitedȱto,ȱGOȱ95,ȱGOȱ128,ȱGOȱ133ȬD;ȱ

informationȱaboutȱoutages,ȱ9Ȭ1Ȭ1ȱaccessȱandȱinitiationȱfailuresȱincludingȱlackȱofȱdialȱtoneȱ

onȱwhatȱshouldȱbeȱaȱliveȱline;ȱfalseȱdisconnectedȱnumberȱmessages,ȱfastȱbusyȱsignalsȱforȱ

whatȱshouldȱbeȱaȱworkingȱline,ȱorȱotherȱsuchȱissuesȱforȱworkingȱlinesȱsuchȱasȱpoorȱcallȱ

orȱjitteryȱcallȱquality,ȱand;ȱotherȱcomplianceȱandȱserviceȱissues.ȱ

29. ThisȱInvestigationȱshallȱremainȱopenȱforȱPhaseȱIIȱasȱdiscussedȱabove.ȱȱ

Thisȱorderȱisȱeffectiveȱtoday.ȱ

ȱ Datedȱ__________________________,ȱatȱSanȱFrancisco,ȱCalifornia.ȱȱ

ȱ

COM/CJS/mal PROPOSED DECISION Agenda ID # Setting

Appendix A-1

APPENDIX A List of California Rural Carriers Operating Company Numbers

ȱSTATEȱ OCNȱ Californiaȱ

CPCNȱCompanyȱName

CAȱ 2301ȱ 1004ȱ CalaverasȱTel.ȱCo.ȱCAȱ 2308ȱ 1024ȱ CitizensȱTelecomȱCo.ȱofȱCalifornia,ȱInc.ȱdbaȱ

FrontierȱCommunicationsȱofȱCaliforniaȱCAȱ 2311ȱ 1006ȱ CalȬOreȱTelephoneȱCo.ȱCAȱ 2313ȱ 1007ȱ DucorȱTel.ȱCo.ȱCAȱ 2318ȱ 1009ȱ ForesthillȱTel.ȱCo.,ȱInc.ȱCAȱ 2321ȱ 1010ȱ HappyȱValleyȱTel.ȱCo.ȱCAȱ 2322ȱ 1011ȱ HornitosȱTel.ȱCo.ȱCAȱ 2323ȱ 1021ȱ WinterhavenȱTel.ȱCo.ȱCAȱ 2324ȱ 1012ȱ KermanȱTel.ȱCo.ȱCAȱ 2332ȱ 1014ȱ PonderosaȱTel.ȱCo.ȱCAȱ 2334ȱ 1015ȱ SureWestȱTelephoneȱCAȱ 2338ȱ 1016ȱ SierraȱTel.ȱCo.,ȱInc.ȱCAȱ 2339ȱ 1017ȱ SiskiyouȱTel.ȱCo.ȱCAȱ 2343ȱ 1019ȱ VolcanoȱTel.ȱCo.ȱCAȱ 2344ȱ 1020ȱ FrontierȱCommunicationsȱWestȱCoastȱInc.ȱȬȱCAȱCAȱ 2346ȱ 1013ȱ PinnaclesȱTel.ȱCo.ȱȱNote:ȱU#ȱ1020ȱmergedȱintoȱU#ȱ1024.ȱSeeȱD.13Ȭ05Ȭ028ȱȱ


Appendix B-1

APPENDIXȱBȱListȱofȱReportingȱCoveredȱProvidersȱ

ȱȱArmstrongȱTelecomȱNsighttelȱWirelessȱ(Cellcom)ȱWestȱIPȱCommȱPNGȱTelecomȱPuertoRicoȱTeleȱMatrixȱtelecomȱGeneralȱCommunicationsȱSprintȱCenturyLinkȱConsolidateȱCommȱȱComcastȱBrightȱHouseȱNetworksȱNtelosȱCinncinatiȱBellȱWindstreamȱCebridgeȱTelecomȱ(dbaȱSuddenlink)ȱEnhancedȱCommȱofȱNNEȱ(Fairpoint)ȱRCKECȱIncȱLevelȱ3ȱCricketȱCellcoȱMomentumȱOomaȱBroadviewȱNetworksȱCSCȱHoldingsȱVonageȱCoxȱCablevisionȱLightpathȱVerizonȱWideȱOpenȱwestȱȱRCNȱTelecomȱTWCȱdigitalȱPhoneȱXOȱCommȱSkypeȱ

CharterȱCommȱTelepacificȱBandwidthȬcomȱCellularȱSouthȱ(CȱSpire)ȱWestȱTelecomȱ(Hypercube)ȱNtelosȱ8X8ȱUSȱCellularȱAffinityȱNetworksȱȱTDSȱLongȱDistanceȱOnvoyȱGoogleȱTȬMobileȱȱȱȱȱȱȱȱȱȱȱȱȱȱ


Appendix C-1

APPENDIX C Sample Response Cause Codes

ȱ ȱNameȱ SS7 ISDN CAS SIPȱ Routeȱ

retryȱUnallocatedȱnumberȱ 1ȱ 1ȱ 1ȱ 404ȱ StopȱNoȱrouteȱtoȱnetworkȱ 2ȱ 2ȱ 2ȱ 404ȱ ContinueȱNoȱrouteȱtoȱdestinationȱ 3ȱ 3ȱ 3ȱ 404ȱ ContinueȱSendȱspecialȱtoneȱ 4ȱ 4ȱ 4ȱ 404ȱ ContinueȱMisdialedȱtrunkȱprefixȱ 5ȱ 5ȱ 5ȱ 404ȱ ContinueȱChannelȱunacceptableȱ 6ȱ 6ȱ 6ȱ 404ȱ ContinueȱCallȱawardedȱinȱestablishedȱchannelȱ 7ȱ 7ȱ 7ȱ 404ȱ ContinueȱPreemptionȱ 8ȱ 8ȱ 8ȱ 404ȱ ContinueȱReattemptȱ 9ȱ 9ȱ 9ȱ 491ȱ ContinueȱPortedȱnumberȱ 14ȱ 14ȱ 14ȱ 603ȱ Continueȱȱ


Appendix D-1

APPENDIX D Summary of Covered Providers Data

Covered�Providers�(CPs) IntrastateCalls Attempted

Intrastate Answered

IntrastateBusy

IntrastateRing NoAnswer

Intrastate Unassigned

Number

Intrastate% Calls

Answered

Intrastate % Calls

Completed

Puerto�Rico�Tele 0 0 0 0 0 0.00% 0.00%BrandwidthͲcom 593,471 146,134 4,677 340 54,011 27.10% 28.00%Ooma 262801 118532 2856 358 5081 46.00% 47.20%PNG�Telecom 69,922 36,494 1,646 803 11,097 62.00% 66.20%Verizon 11,013,822 5,138,526 323,120 3,057 3,739,788 70.60% 75.10%West�Telecom�(Hypercube) 250427 40271 2822 56228 130021 33.40% 82.50%Cablevision�Lightpath 472 387 2 5 0 82.00% 83.50%Sprint 731,531 584,067 26,307 528 4,990 80.40% 84.10%Cinncinati�Bell 840 635 14 57 4 76.00% 84.50%TͲMobile 105409 89660 18 24 7 85.10% 85.10%level�3 1588712 1403619 2994 73 1 88.40% 88.50%Cox 48764 40372 1265 16 1809 86.00% 88.70%TDS�Long�Distance 17589 15231 532 8 47 86.80% 89.90%Consolidate�Comm�Holdings 33198 14184 520 15816 752 43.70% 94.10%Broadview�Networks 1364 1236 20 17 18 91.80% 94.60%Cellular�South�(C�Spire) 34 32 0 1 0 94.10% 97.10%Matrix�telecom 9454 7399 325 944 534 82.90% 97.20%Momentum 950 804 45 83 6 85.20% 98.70%Affinity�Networks� 69182 52610 2769 7219 5784 83.00% 98.70%TWC�Digital�Phone 152,739 84,302 3,690 38,166 25,091 66.00% 98.80%Windstream 218,031 133,517 6,541 54,689 21,137 67.80% 98.90%Onvoy 8463 4893 587 2230 688 62.90% 99.20%Comcast 569322 487129 21604 43405 14684 87.80% 99.50%Bright�House�Networks 6470 5981 303 0 163 94.80% 99.60%Cellco 105266 89446 5080 8684 1715 86.40% 99.70%XO�Comm 123,849 88,449 4,357 21,914 8,829 76.90% 99.70%TelePacific 141818 114893 3313 23061 60 81.00% 99.70%CenturyLink 470,685 379,549 6,637 68,023 15,336 83.40% 99.80%RCLEC�Inc 43176 31569 4383 5537 1605 75.90% 99.80%Armstong�Telecom 6 6 0 0 0 100.00% 100.00%West�IP�Comm 374 178 11 174 11 49.00% 100.00%Ntelos 354 320 33 0 1 90.70% 100.00%Cebridge�Telecom�(dba�Suddenlink) 45774 39528 2582 3656 8 86.40% 100.00%Charter�Comm 133,742 106,579 3,683 17,134 6,286 83.60% 100.00%US�Cellular 101817 87513 4280 9383 641 86.50% 100.00%Google 12561 12545 9 7 0 99.90% 100.00%Nsighttel�Wireless�(Cellcom) 0 0 0 0 0General�Communications 0 0 0 0 0Enhanced�Comm�of�NNE�(Fairpoint) 0 0 0 0 0Cricket 0 0 0 0 0CSC�Holdings 0 0 0 0 0Vonage 0 0 0 0 0Wide�Open�West 0 0 0 0 0RCN�Telecom 0 0 0 0 0Skype 0 0 0 0 0Ntelos 0 0 0 0 08X8 0 0 0 0 0

Legend

Attempted�calls #�of�CPs %�of�CPs0�or�blank 12 26%ч1,000 7 15% 20%1000Ͳ50,000 10 21% 29%50,001Ͳ300,000 12 26% 34%300,001Ͳ1,000,000 4 9% 11%Over�1,000,000 2 4% 6%Total 47Total�excluding�zero/blank�calls 35

I.14-05-

012 COM

A

M/CJS/mal

Map of

NP

As Percent

l

App

APPf Affected

State oNo. CountiePopulationtage of To

pendix D-2

PENDIX Dd Counties

of Californes affectedn Affectedtal State P

PROP

2

D in Califor

nia d: 8 of 58 d: 30,000 Population

POSED D

rnia

n: 0.08%

DECISIO

ON

mason agenda dec - decision on rural call completion · 2016-11-18 · 1.2. summary of key findings...

Documents