[Federal Register Volume 64, Number 223 (Friday, November 19, 1999)]
[Proposed Rules]
[Pages 63277-63279]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-30092]
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FEDERAL COMMUNICATIONS COMMISSION
47 CFR Chapter I
[WT Docket 96-198; FCC 99-181]
Access to Internet Telephony and Computer Based Equipment by
Persons With Disabilities
AGENCY: Federal Communications Commission.
ACTION: Notice of inquiry.
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SUMMARY: This document examines the need and legal basis for applying
rules similar to those developed for telecommunications services and
customer premise equipment pursuant to section 255 to internet
telephony and computer based equipment that performs the same functions
that customer premise equipment performs.
DATES: Comments are due January 13, 2000 and reply comments are due on
February 14, 2000.
ADDRESSES: Office of the Secretary, Federal Communications Commission,
445 Twelfth Street S.W., Room TW-A325, Washington, DC 20554.
FOR FURTHER INFORMATION CONTACT: Ellen Blackler, Common Carrier Bureau.
202-418-0491.
SUPPLEMENTARY INFORMATION: This is a summary of the Commission's
further Notice of Inquiry in WT Docket 96-198, adopted on July 14, 1999
and released on September 29, 1999. The full text of the Notice of
Inquiry, including Commissioners' statements, is available for
inspection and copying during normal business hours in the FCC
Reference Center, 445 Twelfth Street, SW, Room CY-257, Washington, D.C.
Alternate formats (computer diskette, large print, audio cassette and
Braille) are available to persons with disabilities by contacting
Martha Contee at (202) 418-0260 (voice), (202) 418-2555 (TTY), or at
mcontee@fcc.gov. The Further Notice of Inquiry can be downloaded in WP
or ASCII text at: http//www.fcc.gov/dtf/.
Summary of Further Notice of Inquiry
I. Overview
1. We are cognizant, in general, of the speed with which innovative
next generation technologies are changing the way communications
services are
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offered to the public, and the challenges posed to the disability
community by these new technologies if they are not accessible. We
lack, however, knowledge of the specific characteristics of those
changes, and the implications for accessibility for people with
disabilities. Given the rapid evolution of communications and the pace
of technological innovation, we need to ensure that as new services and
networks are developed they are designed to provide access to persons
with disabilities.
2. All paper filings must be sent to the Commission's Secretary,
Magalie Roman Salas, Office of the Secretary, Federal Communications
Commission, 445 Twelfth Street S.W., Room TW-A325, Washington, DC
20554. Accordingly, we are issuing this Notice of Inquiry (NOI) to aid
our understanding of the access issues presented by communications
services and equipment not covered by the section 255 rules. Our goal
is to take full advantage of the promise of new technology, not only to
ensure that advancements do not leave people with disabilities behind,
but also to harness the power of innovation to break down the
accessibility barriers we face today and prevent their emergence
tomorrow. While we are interested in all aspects of communications
technology that may present accessibility issues, we specifically
request information on two types, Internet telephony and computer-based
equipment that replicates telecommunications functionality.
II. Internet Telephony
3. Internet Protocol telephony (``Internet'' or ``IP'' telephony)
services enable real-time voice transmission using the Internet
Protocol (IP), a packet-switched communications protocol. The services
can be provided in two basic ways: computer-to-computer IP telephony
conducted through special software and hardware at an end user's
premises; or phone-to-phone IP telephony conducted through ``gateways''
that enable applications originating and/or terminating on the public
switched network. Phone-to-phone IP telephony is provided through
computer gateways that allow end users to make and receive calls using
their traditional telephones. Gateways translate the circuit-switched
voice signal into IP packets, and vice versa, and perform associated
signalling, control, and address translation functions. The voice
communications can then be transmitted along with other data on the
``public'' Internet, or can be routed through intranets or other
private data networks for improved performance.
4. We ask commenters to provide any further information as to the
extent to which phone-to-phone IP telephony services might impact the
disability community, and the steps, we should take to address any
adverse impacts in order to fulfill the goals of section 255, or
otherwise promote the accessibility of this technology. Commenting
parties should offer specific suggestions as to the appropriate role
for the Commission in guaranteeing access and the statutory basis for
that role. For example, commenters should address ways in which phone
to phone IP telephony may be interpreted as falling within the purview
of section 255. Commenters should provide specific definitions of the
services or equipment to which the statute might apply, and the
appropriate means of limiting its application to only those services
and equipment. Commenters should address the ways, if any, in which
industry bodies can ensure access without regulatory action. Commenters
should also describe the specific access issues or experiences that
might arise with IP telephony. For example, will TTY tones be
adequately transmitted in a packet-switched environment? Will persons
with speech disabilities whose speech patterns and voice outputs from
alternative and augmentative communications devices may fall outside of
traditional voice patterns, face additional communications barriers
with packetized voice services?
5. We further ask commenters to address what efforts manufacturers
of equipment that performs phone-to-phone IP telephony functions and
providers of phone-to-phone IP telephony services are currently making
to ensure that such equipment and services are accessible. What
improvements in accessibility may be possible through the use of phone-
to-phone IP telephony? Are there natural opportunities for
incorporating accessibility into IP telephony? Can greater
accessibility be achieved if requirements are adopted early in the
development of IP Telephony? Is it possible that greater levels of
accessibility will be readily achievable with IP telephony than
conventional telephony? How will compatibility with assistive
technology affect the use of IP telephony?
6. Commenters should also address the extent to which IP telephony
is now, or soon will be, an effective substitute for conventional
circuit-switched telephony. As Internet usage grows, phone-to-phone
voice IP telephony may be used with increasing frequency as an
alternative to more traditional telephone service. How extensive is
Internet telephony usage today? What is the projected usage of Internet
telephony in the near future? What is the projected use of various
kinds of IP telephony by persons with disabilities?
7. Commenters are asked to describe differences in characteristics
between computer-based and phone-based IP telephony, and whether such
differences merit different treatment by the Commission. Given the
rapid pace of technological change in the telecommunications
marketplace, we also ask commenters to apprise us of any new
technologies that may impact the availability of accessible services
and equipment.
III. Computer Based Equipment
8. We also seek comment on another aspect of the network of the
future--the movement of telecommunications and information service
functions from the network, or the terminal equipment which connects
directly to the network, into computer equipment which does not connect
to the network directly. This computer hardware and software is not
typically regarded as CPE, but may, in fact, deliver the same functions
we seek to make accessible. For instance, voicemail, interactive menus,
or phone-to-phone IP telephony in current network topologies can reside
in equipment located on the service provider's premises, but such
functionalities are also available in several forms to end users on
their own premises. For example, voicemail can be purchased from a
carrier, can be provided via software and a private branch exchange
(PBX), or can be provided through a computer that connects with the
PBX, but is not generally regarded as part of the PBX. It is this
latter application as to which we seek comment.
9. These software applications shift the potential for
accessibility solutions from the core of the network to the end user's
premises. We therefore ask commenters to address whether equipment that
provides these capabilities, but which does not connect directly into
the public network (or otherwise directly receive the transmission of
the telecommunications), should be considered to be CPE subject to the
requirements of section 255. We note, for example, that this Order does
not currently reach a software telephone or the personal computer on
which it resides, even though it performs the same functions as the
traditional telephone.
10. We ask commenters to address the need to include this computer-
based equipment as CPE or otherwise apply
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the provisions of these rules to that equipment in order to ensure
access. We also ask commenters to address whether failure to bring such
equipment within the scope of section 255 would create a serious gap in
coverage that would interfere with our ability to effectively implement
its provisions. Commenters should offer suggestions as to the
appropriate role for the Commission in ensuring access for this kind of
equipment and the statutory basis for that role. We also ask about the
potential for this kind of equipment for improving accessibility and
its compatibility with assistive technology. Is it possible that
greater levels of accessibility will be readily achievable if this kind
of equipment has accessibility requirements?
IV. Procedural Matters
11. Pursuant to Secs. 1.415 and 1.419 of the Commission's rules,
interested parties may file comments as follows: Comments may be filed
using the Commission's Electronic Comment Filing System (ECFS) or by
filing paper copies.
12. Comments filed through the ECFS can be sent as an electronic
file via the Internet to http://www.fcc.gov/e-file/ecfs.html.
Generally, only one copy of an electronic submission must be filed. If
multiple docket or rulemaking numbers appear in the caption of this
proceeding, however, commenters must transmit one electronic copy of
the comments to each docket or rulemaking number referenced in the
caption. In completing the transmittal screen, commenters should
include their full name, Postal Service mailing address, and the
applicable docket or rulemaking number. Parties may also submit an
electronic copy by Internet e-mail. To get filing instructions for e-
mail comments, commenters should send an e-mail to ecfs@fcc.gov, and
should include the following words in the body of the message: ``get
form .'' A sample form and directions will be sent
in reply.
13. Parties who choose to file by paper must file an original and
four copies of each filing. If more than one docket or rulemaking
number appears in the caption of this proceeding, commenters must
submit two additional copies for each additional docket or rulemaking
number. All paper filings must be sent to the Commission's Secretary,
Magalie Roman Salas, Office of the Secretary, Federal Communications
Commission, 445 Twelfth Street S.W., Room TW-A325, Washington, DC
20554.
14. Parties who choose to file by paper should also submit their
comments on diskette to Al McCloud, Network Services Division, Common
Carrier Bureau, Federal Communications Commission, 445 Twelfth Street
SW, Room 6-A423, Washington, DC 20554. Such a submission should be on a
3.5 inch diskette formatted in an IBM-compatible format using
WordPerfect 5.1 for Windows or a compatible software. The diskette
should be accompanied by a cover letter and should be submitted in
read-only mode. The diskette should be clearly labeled with the
commenter's name, proceeding, including the lead docket number in the
proceeding (CC Docket No. 96-198), type of pleading (comment or reply
comment), date of submission, and the name of the electronic file on
the diskette. The label should also include the following phrase (Disk
Copy--Not an Original.) Each diskette should contain only one party's
pleadings, preferably in a single electronic file. In addition,
commenters should send diskette copies to the Commission's copy
contractor, International Transcription Service, Inc., 1231 20th St.
NW, Washington, DC 20037.
15. Alternate formats (computer diskette, large print, audio
cassette and Braille) are available to persons with disabilities by
contacting Martha Contee at (202)418-0260 (voice), (202)418-2555 (TTY),
or at mcontee@fcc.gov. The Further Notice of Inquiry can be downloaded
in Wp or ASCII test at: http://www.fcc.gov/dtf/.
V. Ordering Clauses
16. The authority contained in sections 1, 2, 4, 201(b), 208,
251(a)(2), 255, and 303(r) of the Communications Act of 1934, as
amended, 47 U.S.C. 151, 152, 154, 201(b), 208, 251(a)(2), 255, 303(r),
this Notice of Inquiry IS ADOPTED and comments ARE REQUESTED.
Federal Communications Commission.
William F. Caton,
Deputy Secretary.
[FR Doc. 99-30092 Filed 11-18-99; 8:45 am]
BILLING CODE 6712-01-U