Improving Video Relay Service and Direct Video Calling, 26379-26387 [2019-11210]
Download as PDF
Federal Register / Vol. 84, No. 109 / Thursday, June 6, 2019 / Proposed Rules
Lists of Subjects in 14 CFR Part 71
Airspace, Incorporation by reference,
Navigation (air).
The Proposed Amendment
Accordingly, pursuant to the
authority delegated to me, the Federal
Aviation Administration proposes to
amend 14 CFR part 71 as follows:
PART 71—DESIGNATION OF CLASS A,
B, C, D, AND E AIRSPACE AREAS; AIR
TRAFFIC SERVICE ROUTES; AND
REPORTING POINTS
1. The authority citation for part 71
continues to read as follows:
■
Authority: 49 U.S.C. 106(f), 106(g); 40103,
40113, 40120; E.O. 10854, 24 FR 9565, 3 CFR,
1959–1963 Comp., p. 389.
§ 71.1
[Amended]
2. The incorporation by reference in
14 CFR 71.1 of Federal Aviation
Administration Order 7400.11C,
Airspace Designations and Reporting
Points, dated August 13, 2018, and
effective September 15, 2018, is
amended as follows:
■
Paragraph 6005 Class E Airspace Areas
Extending Upward From 700 Feet or More
Above the Surface of the Earth.
*
*
*
*
*
AEA PA E5 Minersville, PA [New]
Primrose Heliport, PA
(Lat. 40°41′21″ N, long. 76°16′47″ W)
That airspace extending upward from 700
feet above the surface within a 6-mile radius
of Primrose Heliport.
Issued in College Park, Georgia, on May 23,
2019,
Geoff Lelliott,
Acting Manager, Operations Support Group,
Eastern Service Center, Air Traffic
Organization.
[FR Doc. 2019–11778 Filed 6–5–19; 8:45 am]
BILLING CODE 4910–13–P
the Texas Commission on
Environmental Quality. The revisions
remove rules from the Texas SIP that
address vehicle anti-tampering
requirements and the Low Income
Repair Assistance Program for certain
participating counties.
DATES: Written comments should be
received on or before July 8, 2019.
ADDRESSES: Submit your comments,
identified by Docket No. EPA–R06–
OAR–2018–0811, at https://
www.regulations.gov or via email to
paige.carrie@epa.gov. For additional
information on how to submit
comments see the detailed instructions
in the ADDRESSES section of the direct
final rule located in the rules section of
this Federal Register.
FOR FURTHER INFORMATION CONTACT: Ms.
Carrie Paige, 214–665–6521,
paige.carrie@epa.gov.
SUPPLEMENTARY INFORMATION: In the
final rules section of this Federal
Register, the EPA is approving the
Texas SIP submittal as a direct rule
without prior proposal because the EPA
views this as a noncontroversial
submittal and anticipates no adverse
comments. A detailed rationale for the
approval is set forth in the direct final
rule. If no relevant adverse comments
are received in response to this action
no further activity is contemplated. If
the EPA receives relevant adverse
comments, the direct final rule will be
withdrawn and all public comments
received will be addressed in a
subsequent final rule based on this
proposed rule. The EPA will not
institute a second comment period. Any
parties interested in commenting on this
action should do so at this time.
For additional information, see the
direct final rule that is located in the
rules section of this Federal Register.
Dated: May 28, 2019.
David Gray,
Acting Regional Administrator, Region 6.
ENVIRONMENTAL PROTECTION
AGENCY
[FR Doc. 2019–11761 Filed 6–5–19; 8:45 am]
BILLING CODE 6560–50–P
40 CFR Part 52
[EPA–R06–OAR–2018–0811; FRL–9994–07–
Region 6]
khammond on DSKBBV9HB2PROD with PROPOSALS
Air Plan Approval; Texas; Control of
Air Pollution From Motor Vehicles
47 CFR Part 64
[CG Docket Nos. 10–51 and 03–123; FCC
19–39]
Environmental Protection
Agency (EPA).
ACTION: Proposed rule.
AGENCY:
Pursuant to the Federal Clean
Air Act, the Environmental Protection
Agency (EPA) is proposing to approve
revisions to the Texas State
Implementation Plan (SIP) submitted by
SUMMARY:
VerDate Sep<11>2014
15:54 Jun 05, 2019
Jkt 247001
FEDERAL COMMUNICATIONS
COMMISSION
Improving Video Relay Service and
Direct Video Calling
Federal Communications
Commission.
ACTION: Proposed rule.
AGENCY:
PO 00000
Frm 00007
Fmt 4702
Sfmt 4702
26379
In this document, the Federal
Communications Commission (FCC or
Commission) proposes to: permit
communications assistants (CAs) to
handle video relay service (VRS) calls at
home on a permanent basis; allow VRS
providers to provide service to new and
porting VRS users for up to two weeks
while the telecommunications relay
service (TRS) user registration database
(User Database or Database)
administrator is verifying the user’s
registration information, with
compensation paid only after the user’s
identity is verified; and implement login procedures to authenticate users prior
to their use of enterprise and public
videophones for VRS calls. By these
proposals, the Commission seeks to
improve VRS while safeguarding the
program against waste, fraud, and abuse.
DATES: Comments are due August 5,
2019. Reply comments are due
September 4, 2019.
ADDRESSES: You may submit comments,
identified by CG Docket Nos. 10–51 and
03–123, by either of the following
methods:
• Federal Communications
Commission’s website: https://
www.fcc.gov/ecfs/filings. Follow the
instructions for submitting comments.
• Paper Filers: Parties who choose to
file by paper must file an original and
one copy of each filing. If more than one
docket or rulemaking number appears in
the caption of this proceeding, filers
must submit two additional copies for
each additional docket or rulemaking
number. Filings can be sent by hand or
messenger delivery, by commercial
overnight courier, or by first-class or
overnight U.S. Postal Service mail. All
filings must be addressed to the
Commission’s Secretary, Office of the
Secretary, Federal Communications
Commission.
• People with Disabilities: Contact the
FCC to request reasonable
accommodations (accessible format
documents, sign language interpreters,
CART, etc.) by email: FCC504@fcc.gov
or phone: (202) 418–0530 or TTY: (888)
835–5322.
For detailed instructions for
submitting comments and additional
information on the rulemaking process,
see document FCC 19–39 at: https://
docs.fcc.gov/public/attachments/FCC19-39A1.pdf.
FOR FURTHER INFORMATION CONTACT:
Michael Scott, Consumer and
Governmental Affairs Bureau, at (202)
418–1264, or email Michael.Scott@
fcc.gov.
SUPPLEMENTARY INFORMATION: This is a
summary of the Commission’s Further
Notice of Proposed Rulemaking
SUMMARY:
E:\FR\FM\06JNP1.SGM
06JNP1
khammond on DSKBBV9HB2PROD with PROPOSALS
26380
Federal Register / Vol. 84, No. 109 / Thursday, June 6, 2019 / Proposed Rules
(FNPRM), document FCC 19–39,
adopted on May 9, 2019, released on
May 15, 2019, in CG Docket Nos. 10–51
and 03–123. The Report and Order in
document FCC 19–39 is published
elsewhere in this issue of the Federal
Register. The full text of document FCC
19–39 is available for public inspection
and copying via the Commission’s
Electronic Comment Filing System
(ECFS), and during regular business
hours at the FCC Reference Information
Center, Portals II, 445 12th Street SW,
Room CY–A257, Washington, DC 20554.
To request materials in accessible
formats for people with disabilities
(Braille, large print, electronic files,
audio format), send an email to fcc504@
fcc.gov or call the Consumer and
Governmental Affairs Bureau at (202)
418–0530 (voice) or (202) 418–0432
(TTY).
This proceeding shall be treated as a
‘‘permit-but-disclose’’ proceeding in
accordance with the Commission’s ex
parte rules. 47 CFR 1.1200 et seq.
Persons making ex parte presentations
must file a copy of any written
presentation or a memorandum
summarizing any oral presentation
within two business days after the
presentation (unless a different deadline
applicable to the Sunshine period
applies). Persons making oral ex parte
presentations are reminded that
memoranda summarizing the
presentation must (1) list all persons
attending or otherwise participating in
the meeting at which the ex parte
presentation was made, and (2)
summarize all data presented and
arguments made during the
presentation. If the presentation
consisted in whole or in part of the
presentation of data or arguments
already reflected in the presenter’s
written comments, memoranda, or other
filings in the proceeding, the presenter
may provide citations to such data or
arguments in his or her prior comments,
memoranda, or other filings (specifying
the relevant page and/or paragraph
numbers where such data or arguments
can be found) in lieu of summarizing
them in the memorandum. Documents
shown or given to Commission staff
during ex parte meetings are deemed to
be written ex parte presentations and
must be filed consistent with rule
1.1206(b). In proceedings governed by
rule 1.49(f) or for which the
Commission has made available a
method of electronic filing, written ex
parte presentations and memoranda
summarizing oral ex parte
presentations, and all attachments
thereto, must be filed through the
electronic comment filing system
VerDate Sep<11>2014
15:54 Jun 05, 2019
Jkt 247001
available for that proceeding, and must
be filed in their native format (e.g., .doc,
.xml, .ppt, searchable .pdf). Participants
in this proceeding should familiarize
themselves with the Commission’s ex
parte rules.
Initial Paperwork Reduction Act of
1995 Analysis
The FNPRM in document FCC 19–39
seeks comment on proposed rule
amendments that may result in
modified information collection
requirements. If the Commission adopts
any modified information collection
requirements, the Commission will
publish another notice in the Federal
Register inviting the public to comment
on the requirements, as required by the
Paperwork Reduction Act. Public Law
104–13; 44 U.S.C. 3501–3520. In
addition, pursuant to the Small
Business Paperwork Relief Act of 2002,
the Commission seeks comment on how
it might further reduce the information
collection burden for small business
concerns with fewer than 25 employees.
Public Law 107–198; 44 U.S.C.
3506(c)(4).
Synopsis
1. VRS is a form of TRS that enables
people with hearing or speech
disabilities who use sign language to
make telephone calls over broadband
with a videophone. In addition to
enabling communication between
American Sign Language (ASL) users
and voice users, the VRS system also
enables ASL users to communicate
directly with other ASL users via video.
Permitting At-Home Interpreting on a
Permanent Basis
2. The Commission proposes to
convert the Commission’s pilot VRS athome call-handling program, which
allows VRS providers to have their CAs
handle some VRS calls from at-home
workstations, to a permanent program
that will be subject to safeguards
designed to maintain service quality,
protect call confidentiality, and prevent
waste, fraud, and abuse. The
Commission believes that taking this
action is likely to expand the available
pool of qualified sign-language
interpreters who can work as VRS
interpreters (i.e., CAs) and improve VRS
reliability, which will advance the
Commission’s goal of ensuring a high
quality, functionally equivalent VRS
program in furtherance of the objectives
of section 225 of the Communications
Act.
3. The Commission believes that the
benefits anticipated in the pilot at-home
call-handling program are being
realized. Specifically, the VRS provider
PO 00000
Frm 00008
Fmt 4702
Sfmt 4702
reports required under the pilot program
indicate that allowing CAs to work at
home: has enabled providers to attract
and retain qualified CAs for whom
working at the companies’ call centers
is not a practical option; has improved
working conditions and productivity of
CAs working at home; can improve
network reliability and redundancy; and
has the potential to help providers
better respond to calls in accordance
with the Commission’s speed-of-answer
rules when unforeseen circumstances
occur. The Commission seeks comment
on whether this depiction of these
benefits is accurate, and whether other
benefits have been realized during the
pilot program or are likely to be realized
if the program is authorized on a
permanent basis. Are there any
disadvantages to making this program
permanent?
4. The Commission also seeks
comment on whether, and to what
extent, a rule change permitting at-home
interpreting is likely to reduce or
increase the total costs of the VRS
program. Current program participants
anticipate a significant net savings in
VRS costs if permanent authorization
allows the scale of the program to be
expanded. The Commission seeks
comment on how this would be
achieved, and any additional
information about costs incurred by
participating providers. For example,
costs could include training and
supervising CAs, installing facilities and
software to serve home workstations,
troubleshooting and maintaining
security at home workstations, ensuring
compliance, and preparing required
reports.
5. The Commission believes that the
various safeguards established as
conditions for participation in the pilot
program generally have been effective in
preventing waste, fraud, and abuse,
meeting the TRS mandatory minimum
standards, and ensuring the
confidentiality, reliability, and quality
of at-home interpreting. The
Commission seeks comment on the
extent to which the pilot program’s
safeguards generally have been effective.
The Commission lists below each of the
safeguards and seeks comment on the
extent to which each should be retained,
modified, eliminated, or supplemented
if the Commission makes this program
permanent. When responding, the
Commission urges commenters,
especially participating providers, to
provide detailed information, including
quantitative data to the extent available,
in support of their views on whether
and how these governing rules should
be modified, as well as the costs and
benefits of incorporating each into the
E:\FR\FM\06JNP1.SGM
06JNP1
khammond on DSKBBV9HB2PROD with PROPOSALS
Federal Register / Vol. 84, No. 109 / Thursday, June 6, 2019 / Proposed Rules
permanent program. Further, the
Commission seeks comment on any
differences in call quality between
traditional call centers and CAs working
from home.
6. Personnel Safeguards. The pilot
program requires CAs working from
their homes to have a minimum of three
years of VRS experience. In addition,
before allowing a CA to work at home,
a VRS provider must:
• Ensure that the CA has sufficient
experience, skills, and knowledge to
effectively interpret from at-home
workstations, including a thorough
understanding of the Commission’s
mandatory minimum standards;
• Provide additional training to CAs
to ensure that they understand and
follow the provider’s protocols for athome call handling;
• Establish, and provide to the CA in
writing, the grounds and process for
dismissal from the at-home program if
the CA fails to adhere to the
Commission’s TRS rules, including the
specific requirements for at-home call
handling; and
• Obtain a written certification from
each CA as to their understanding of
and commitment to complying with the
Commission’s TRS rules, and their
understanding of the grounds and
process for dismissal from the at-home
program.
While CAs are working from home,
the VRS provider must:
• Provide support equivalent to that
provided CAs in call centers, including,
where appropriate, the opportunity to
team interpret; and
• Ensure that supervisors are readily
available to resolve problems that may
arise during a relay call.
Are these requirements effective in
ensuring that CAs working at home can
effectively handle VRS calls or should
they be modified in any way? What, if
any, screening, training, and
disciplinary issues have been
encountered in the pilot program and
how have these been addressed? How
should any such issues be dealt with in
the Commission’s rules?
7. Technical and Environmental
Safeguards. Under the pilot program,
VRS providers are required to ensure
that at-home workstations enable the
provision of confidential and
uninterrupted service to the same extent
as the provider’s call center, and that
calls handled by at-home CAs are
seamlessly integrated into the provider’s
call routing, distribution, tracking, and
support systems. Specifically, the
provider must:
• Require that home workstations be
placed in a separate location within the
home, with restricted access and
VerDate Sep<11>2014
15:54 Jun 05, 2019
Jkt 247001
effective means to minimize the impact
of outside noise and prevent
eavesdropping;
• Configure at-home workstations to
enable the CA to use all call-handling
technology to the same extent as other
CAs, including the ability to transition
a non-emergency call to an emergency
call, engage in virtual teaming with
another CA, and allow supervisors to
communicate with and oversee calls;
• Ensure that each at-home
workstation is capable of supporting
VRS in compliance with the
Commission’s mandatory minimum
standards, including the provision of
system redundancy and other
safeguards to the same degree as at call
centers, and including the ability to
route VRS calls around individual CA
workstations in the event they
experience a network outage or other
service interruption; and
• Connect workstations to the
provider’s network over a secure
connection to ensure caller privacy.
8. Are these safeguards sufficient to
ensure that CAs working from at-home
workstations can provide high-quality,
confidential, and uninterrupted service,
and if not, what modifications to these
requirements are necessary? What
technical and environmental issues
have been encountered in the pilot
program, how have they affected the
integration of calls handled by at-home
CAs into the call routing, distribution,
tracking and support systems, and how
have any such technical challenges been
addressed? How should any such issues
be dealt with in the Commission’s rules?
Are some of the current safeguards—
e.g., the requirement for system
redundancy at each workstation,
disproportionately burdensome in
relation to their value for the stated
purpose(s)?
9. Monitoring and Oversight
Requirements. To ensure that providers
appropriately monitor and oversee the
at-home call handling pilot program,
they have been required to:
• Inspect and approve each at-home
workstation before activating a CA’s
workstation for use;
• Equip each at-home workstation
with monitoring technology sufficient to
ensure that off-site supervision
approximates the level of supervision at
the provider’s call center, including the
ability to monitor both ends of a call,
i.e., video and audio, to the same extent
as is possible in a call center, and
regularly analyze any data collected to
proactively address possible waste,
fraud, and abuse;
• Conduct random, unannounced
inspections of at least five percent (5%)
PO 00000
Frm 00009
Fmt 4702
Sfmt 4702
26381
of all at-home workstations per year;
and
• Keep all records pertaining to athome workstations, including the data
produced by any at-home workstation
monitoring technology, except for any
data that records the content of an
interpreted conversation, for a
minimum of three years.
10. Do these monitoring and oversight
requirements enable VRS providers to
appropriately supervise the CAs
working at home? What monitoring and
oversight issues have been encountered
in the pilot program and how have they
been addressed? Which requirements
were found to be most useful to ensure
effective supervision of CAs? Under a
permanent program, the number of athome workstations is likely to increase.
To what extent is this likely to increase
the risk that individual CA workstations
may fall short of full compliance with
technical, environmental, and privacy
safeguards? To ensure that providers
detect and promptly address any such
compliance issues, should the
Commission increase the required
annual percentage of at-home
workstations that must be subject to
random, unannounced provider
inspections—for example to 10 or 15%
of a provider’s at-home workstations
each year? What are the costs and
benefits of adopting this requirement?
11. In addition to compliance with the
above safeguards, during the pilot
program, at-home workstations and
workstation records must be available
for review, audit, and unannounced
inspections by the Commission and the
TRS Fund administrator to the same
extent as VRS call centers. The
Commission proposes that, if made
permanent, at-home workstations and
records continue to be subject to such
inspections to the same extent as regular
call centers. The Commission seeks
comment on this proposal.
12. Authorization to Participate in the
At-Home Call Handling Program. To
participate in the pilot program, each
VRS provider was required to submit a
detailed plan to demonstrate its ability
to achieve full compliance with the
above safeguards and the Commission’s
mandatory minimum TRS standards,
including:
• A description of the provider’s athome CA screening and training
process, the protocols and expectations
established for CAs working at home,
and the grounds and process for
dismissing a CA from the at-home
program;
• All steps that the provider would
take to install a workstation in a CA’s
home, including an evaluation to ensure
the workstation was sufficiently secure
E:\FR\FM\06JNP1.SGM
06JNP1
khammond on DSKBBV9HB2PROD with PROPOSALS
26382
Federal Register / Vol. 84, No. 109 / Thursday, June 6, 2019 / Proposed Rules
and equipped to prevent eavesdropping
and outside interruptions;
• A description of the monitoring
technology to be used to ensure that offsite supervision approximated the level
of supervision at the provider’s call
center;
• An explanation of how the
provider’s workstations would connect
to the provider’s network, including
how these would be integrated into the
call center routing, distribution,
tracking, and support systems, and how
the provider would ensure system
redundancy in the event of service
disruptions in at-home workstations;
• A signed certification by an officer
of the provider affirming that the
provider would conduct random and
unannounced inspections of at least five
percent (5%) of all at-home
workstations during the year; and
• A commitment to comply with all
other at-home call-handling safeguards
and TRS rules.
13. To what extent should providers
be required to provide the same level of
detailed information, certification, and
commitment, if at-home call handling is
permitted on a permanent basis? Is any
of the required information no longer
necessary or disproportionately
burdensome to its value in ensuring
high-quality call handling and
preventing fraud, waste, and abuse?
What, if any, additional information
should be collected to help the
Commission maintain call quality and
prevent fraud, waste, and abuse?
14. Under the pilot program,
Commission approval for participation
can be canceled at any time if the
provider fails to maintain compliance.
The Commission proposes that the
Commission retain such option and
seeks comment on this approach.
15. Data Collection Requirements. For
calls handled at home workstations, the
pilot program rules have required VRS
providers to submit the following data
in their monthly requests for
compensation, in addition to the data
otherwise required to receive payment
for handling calls:
• A unique call center identification
number (ID), street address, and CA ID
for each CA working at home; and
• The location and call center IDs of
call centers providing supervision for athome workstations, and the names of
persons at such call centers responsible
for oversight of these workstations.
16. In addition, providers had to
submit a six-month implementation
report that includes:
• A description of the screening
process used to select CAs who may
work from home;
VerDate Sep<11>2014
15:54 Jun 05, 2019
Jkt 247001
• Copies of training materials and
written protocols for at-home CAs;
• The total number of CAs who have
worked at home during the reporting
period;
• The total number of 911 calls
handled during the reporting period;
• A description and copies of any
survey results or self-evaluations
concerning CAs’ experience handling
calls at home;
• The total number of CAs terminated
from the program;
• The total number of complaints, if
any, submitted to the provider regarding
its at-home call-handling program or
calls handled by at-home CAs; and
• The total number of on-site
inspections of at-home workstations
conducted, along with the dates and
locations of such inspections.
17. To what extent is the information
required in monthly reports sufficient to
support compensation requests and
protect against waste, fraud, and abuse?
Should the Commission continue to
require VRS providers to submit such
information as well as implementation
reports at six-month intervals? If so,
should these information reporting
requirements be retained, modified,
eliminated, or supplemented in any
manner? Should any reported
information be made available to the
public? For example, if a VRS provider
takes a survey of its CAs concerning
their participation in the at-home VRS
call handling program, could the
aggregated responses be made public, as
long as identifying information for CAs
and respondents is redacted?
18. Limitation on Service. The
Commission proposes to increase or
remove the pilot program’s 30 percent
limit on a provider’s at-home callhandling minutes. Increasing the limit
would allow each provider greater scope
to make its own determination on the
extent to which it can efficiently make
use of at-home call handling while
remaining in compliance with our
minimum TRS standards. The
Commission seeks comment on the
costs and benefits of this proposal and
on whether the limit should be retained
at a higher level, e.g., 50 percent, or
removed entirely. For example, could
the limit be completely removed
without significantly increasing the risk
of fraud or abuse, in reliance on the
safeguards described above?
Providing Service to New and Porting
Users Pending Database Verification
19. To eliminate unnecessary
inconvenience to VRS registrants,
without a significant increase in the risk
of waste, fraud, and abuse, and in
response to a petition by the five
PO 00000
Frm 00010
Fmt 4702
Sfmt 4702
currently certified VRS providers, the
Commission proposes to allow VRS
providers to provide service to new and
porting users for up to two weeks
pending the completion of identity
verification. The Commission believes
this change would be helpful to ensure
that service to new and porting VRS
users can be commenced efficiently and
without undue delay or disruption of
service, in order to facilitate
competition and ensure the functional
equivalence of this service.
Compensation for calls placed or
received by the user during this period
would be paid only if the user’s identity
is ultimately verified.
20. For most users, identity
verification is completed within hours
of data submission to the User Database,
but for some users, verification can take
longer, e.g., due to technical problems
or because the user’s identity cannot be
verified without the submission of
additional information. Under the
proposed rule change, a consumer
would not be subjected to a delay in
commencement of service as a result of
verification issues that are often beyond
the consumer’s control.
21. Under this proposal, VRS
providers could assign a telephone
number and begin service to a new or
porting user immediately after
registration. This telephone number
would be entered in the TRS Numbering
Directory on a temporary basis so that
VRS calls (as well as point-to-point
calls) may be placed to and from the
number, either through the default
provider or on a dial-around basis. In
the event that the user’s identity is not
verified within the two-week period, the
number would be removed from the
Numbering Directory. The Commission
believes that any resulting risk of waste,
fraud, or abuse is minimal because,
under the Commission’s proposal, no
compensation may be requested or paid
until the user’s identity has been
verified. The Commission seeks
comment on the costs and benefits of
this proposal.
Requiring Enterprise and Public
Videophone Log-In Procedures
22. The Commission seeks further
comment on the Commission’s proposal
in the 2017 VRS Improvements FNPRM,
82 FR 17613, to require default VRS
providers to implement log-in
procedures for individuals using
enterprise and public videophones for
VRS calls. The Commission believes
that a log-in procedure is needed to
safeguard the TRS program from waste,
fraud, and abuse because there is no
record identifying the actual user of an
enterprise or public videophone. As the
E:\FR\FM\06JNP1.SGM
06JNP1
khammond on DSKBBV9HB2PROD with PROPOSALS
Federal Register / Vol. 84, No. 109 / Thursday, June 6, 2019 / Proposed Rules
success of fraudulent activity often
depends on the perpetrators remaining
anonymous, we believe user log-in is
needed to ensure that enterprise and
public videophones are actually used
only by registered VRS users.
23. The Commission clarifies that,
under the proposed log-in rule, VRS
calls made to or from an enterprise or
public videophone will be compensable
only if: (1) The individual using the
videophone is a registered VRS user; (2)
before placing or receiving the call, the
user provides a log-in code, consisting
of the user’s North American
Numbering Plan (NANP) telephone
number and a personal identification
number (PIN) or password, which the
VRS provider then validates through a
prescribed procedure; and (3) the VRS
provider includes the user’s telephone
number, as well as other information
reasonably requested by the TRS Fund
administrator, in the call detail records
(CDRs) submitted to the TRS Fund
administrator with the provider’s
request for compensation. The user can
request a PIN or password from his or
her default VRS provider at the time of
registration or any time thereafter. The
necessary log-in information and format
will be determined by the TRS
Numbering Administrator, in
consultation with the User Database
administrator and the Commission.
Individuals who have not previously
registered for VRS must do so before
they can make VRS calls at enterprise or
public videophones. The Commission
seeks further comment on this proposal,
including the proposed log-in procedure
detailed below.
24. Because the proposed log-in
procedure will limit access to enterprise
and public videophones to registered
VRS users, the Commission seeks
comment on whether to revise the
certification requirement for enterprise
videophones adopted in the Report and
Order of document FCC 19–39, so as to
be consistent with the restriction to
registered users. Should the
Commission require VRS providers to
submit to the User Database a
certification by the responsible
individual for an enterprise videophone
that the organization, business, or
agency will make reasonable efforts to
ensure that only registered VRS users
are permitted to use the phone for VRS?
25. Because total usage of enterprise
and public videophones averages more
than one million minutes per month,
the Commission believes this degree of
usage is sufficient to justify imposing a
log-in requirement to help prevent the
recurrence of significant VRS fraud. The
Commission seeks comment on its
assumptions and its estimate of
VerDate Sep<11>2014
15:54 Jun 05, 2019
Jkt 247001
enterprise and public videophone usage.
The Commission also does not believe
that the log-in procedure is a ‘‘solution
to a problem that does not exist,’’ as
claimed by Sorenson Communications,
LLC (Sorenson). Nonetheless, the
Commission seeks comment on the
assumptions underlying its proposals in
this regard.
26. Some commenters argue that a
log-in requirement would conflict with
functional equivalency, burden
consumers, and hinder effective
communication, noting that some public
videophone users are not registered,
while others may have difficulty
remembering a PIN. However, the
Commission believes that any burden
imposed on users by the log-in
requirement would be minor compared
to its substantial benefit in preventing
the misuse of enterprise and public
videophones. Individuals use log-ins
regularly to access smartphones,
voicemail, and email, as well as work,
school, and personal computers, and
commercial, retail, and financial
accounts. To use such devices and
services, consumers routinely need to
remember (or store in a retrievable
location) usernames, passwords, and
PINs. Further, consumers would not
need to remember separate telephone
numbers and PINs for each VRS
provider, as once a user obtains a
telephone number and PIN from one
provider, that log-in information may be
used to place a VRS call from any
enterprise or public videophone. The
Commission seeks comment on these
assumptions. The Commission also seek
comment on the cost to the VRS
providers of having to provide a PIN
reset service if this proposal is adopted.
27. Neustar’s Log-In Procedure
Proposal. Neustar, the TRS Numbering
Administrator, explains that online login systems are common and suggests
that providers could use the widely
relied-upon OAuth standard to
implement log-in functionality. OAuth
allows one party (in this case the default
VRS provider for an enterprise or public
videophone) to request another party (in
this case the default VRS provider for
the individual using the videophone) to
authenticate a person’s authorization for
them, without the first party learning
the identity or credentials of that
person. Providers could develop a
standard using the OAuth 2.0 protocol
or utilize an existing standard, such as
OpenID Connect, which is an
interoperable authentication protocol
based on the OAuth family of
specifications. OAuth might be applied
as follows: when a VRS user enters a
telephone number and PIN at an
enterprise or public videophone, the
PO 00000
Frm 00011
Fmt 4702
Sfmt 4702
26383
default VRS provider serving the
videophone checks the TRS Numbering
Directory to determine the user’s default
VRS provider for that number, and
sends the telephone number and PIN to
that provider; if authentication is
positive, the user’s default VRS provider
transmits a token that allows the user to
place or receive a VRS call at the
videophone.
28. Neustar asserts that the cost and
effort to develop an OAuth-based log-in
feature would be reasonable and that
development could be completed within
six months. Neustar explains that many
providers already utilize a username/
password capability that could be
extended to OAuth, and that even for
providers who currently lack such a
capability, the availability of open
source code means that the cost of
implementing OAuth servers and
username/password capability will be
modest. The Commission therefore
tentatively concludes that the benefits of
adopting a login requirement would far
exceed the minimal costs of
implementing it.
29. If the VRS industry implements
OAuth, the Commission believes that
would enable enterprise OAuth
integrations which would allow for an
enterprise user to provide the VRS
telephone number and log in with the
user’s enterprise credentials, and the
enterprise would attest to the VRS
provider that an authorized user has
logged in. The Commission seeks
comment on the costs and feasibility of
Neustar’s proposal and on the
Commission’s tentative conclusion that
these costs will be minimal. What are
the estimated costs of implementing an
OAuth based log-in solution, including
the streamlined version proposed by
Neustar, and how would those costs
vary by provider? While Sorenson
estimates a cost of ‘‘over $1 million’’ for
‘‘creating, testing, and deploying an
OAuth authorization server and
modifying and testing videophone
software,’’ it fails to support this claim.
The Commission therefore seeks cost
information regarding this estimate and
any updated estimate. How much of the
estimated cost is attributable to an
OAuth server and how much is
attributable to necessary videophone
software modification? What kinds of
videophone software would need to be
modified, and why? What costs would
be incurred by other providers? Are
there significant differences in software
modification costs for public and
enterprise videophones, respectively?
30. It appears that total
implementation costs could be reduced
if the Commission exempted certain
kinds of videophones from the log-in
E:\FR\FM\06JNP1.SGM
06JNP1
khammond on DSKBBV9HB2PROD with PROPOSALS
26384
Federal Register / Vol. 84, No. 109 / Thursday, June 6, 2019 / Proposed Rules
requirement. For example, Sorenson
claims that that its ntouch videophones
were not designed to have an internet
browser and therefore cannot be
modified to support a log-in
mechanism. How many unmodifiable
ntouch public and enterprise
videophones are currently in use, and
how much usage is there for such
videophones? How much of the total
estimated implementation cost would
be saved by exempting them? Are there
other videophones currently used in
public and enterprise locations that do
not have, and cannot be modified to
support, an internet browser? How
many such videophones are there and
how much of the total estimated
implementation cost would be saved by
exempting them? How much usage is
there of unmodifiable public and
enterprise videophones, and would the
implementation costs saved justify the
increased risk of fraud from continuing
to allow unidentified use of such
phones? Would it be more cost effective
to implement a log-in solution through
VRS software used on third-party
equipment, such as a personal computer
or wireless device? To what extent is
such third-party equipment with VRS
software deployed or deployable for use
as enterprise and public videophones? If
the Commission exempts existing
videophones that cannot support
browser functionality, should it require
that, before registering new enterprise
and public videophones, the default
VRS provider must confirm that such
phones have browser functionality and
support OAuth log-in capability? The
Commission also seeks comment from
manufacturers, vendors, and owners of
enterprise telephone systems and other
non-provider equipment and software
used for enterprise and public
videophones, regarding the ability of
such systems to support log-in
capability.
31. OAuth 2.0 enables devices
without browsers or an ability to
securely enter passcodes, such as legacy
devices in public areas, where people
can see what characters a user is typing
on a screen, to still have secure
authentication. However, the OAuth 2.0
solution to this problem requires the
user to have access to the internet with
a browser. Is it likely that a user who
wants to use a public or semi-public
legacy device will have access to the
internet, perhaps on a personal mobile
phone; personal or communal tablet; or
personal or public workstation or
laptop? If the users who have
smartphones, tablets, or laptops can use
them to communicate via VRS, are these
users making use of public and
VerDate Sep<11>2014
15:54 Jun 05, 2019
Jkt 247001
enterprise videophones? If not, who is
making use of public and enterprise
videophones? In the case of public
phones, are the users generally
individuals without smartphones,
tablets, or laptops? In the case of
enterprise phones, are the users
generally using the enterprise phones to
ensure that their videocalls are made
over the communications facilities
managed by the enterprise?
32. Sorenson also claims that there are
‘‘significant security vulnerabilities’’ in
OAuth and other third-party
authentication applications. According
to the studies cited by Sorenson,
however, such vulnerabilities are not
caused by OAuth 2.0 itself but by
‘‘home-brewed adaptations’’ in which
‘‘the implicit security assumptions and
operational requirements . . . are often
not clearly documented or wellunderstood by the 3rd-party mobile app
developers.’’ What specific security
issues would providers face in
implementing an OAuth-based log-in
solution, and what safeguards are
available to address such concerns? Are
there alternative log-in solutions that
would not raise similar security
vulnerability concerns?
33. To date only Neustar has proposed
a log-in solution. Are there other log-in
solutions the Commission should
consider? The OAuth specification is
designed for use with HTTP. Would a
session initiation protocol (SIP)-based
standard, such as RADIUS or Diameter
provide a more cost-effective or secure
standard for implementing a log-in
solution? The Commission also
proposes to establish a common
protocol for the log-in procedure to
ensure that user log-ins can be quickly
authenticated regardless of the user’s
default provider. Neustar indicates that
in its role as the TRS Numbering
administrator it could act as a proxy and
direct the OAuth authentication process
to the correct VRS provider without
revealing the provider’s identity to the
provider of the enterprise or public
videophone. The Commission seeks
comment on this approach.
Alternatively, should the Commission
allow each provider to develop its own
log-in protocol rather than require
providers to implement a common
protocol? What are the costs and
benefits of each alternative approach?
To what extent do providers already use
log-in procedures for users to access
VRS? Could such existing log-in
procedures be incorporated into a log-in
procedure for enterprise and public
videophones?
34. Exemptions. The Commission
proposes to exempt point-to-point calls
from the log-in requirement, because
PO 00000
Frm 00012
Fmt 4702
Sfmt 4702
such calls are not billed to the TRS
Fund. How would exempting point-topoint calls affect the implementation of
a log-in procedure? At what point in the
call process should a user be prompted
to log-in to complete a VRS call on an
enterprise or public videophone?
35. Where an enterprise videophone
is located within a private workspace or
a private room within a long-term health
care facility, the Commission proposes
to allow the VRS provider to permit one
registered VRS user to log in a single
time and thereafter to continue using
the videophone without repeated logins, so long as that user continues to be
eligible and registered for VRS. In
addition, the Commission proposes to
broaden this proposed log-in exemption
to allow relatively convenient access to
shared enterprise devices, while
limiting usage of the device to registered
VRS users. For enterprise videophones
at reception desks or other work areas
in places of employment, the
Commission proposes to allow up to
five registered users to be
simultaneously logged in to a
videophone, provided that the phone is
configured so that each user must select
his or her user profile before placing or
answering a VRS call. To limit misuse
of this exemption, the Commission
proposes to require VRS providers to
keep records of users that are preauthorized under each of these
exceptions and to discontinue
permission for such automatic use by
any individual that the provider knows
or has reason to believe no longer needs
access to the device. What are the
associated costs, benefits, and technical
concerns?
36. The Commission also proposes to
exempt 911 calls from the log-in
requirement, so that providers may
complete emergency calls from
enterprise and public videophones at
any time and without delay. The
Commission seek comments on this
proposal. Are there technical concerns
with implementing a log-in exemption
for calls to 911?
37. Finally, the Commission proposes
to exempt from the log-in requirement
otherwise eligible VRS calls made from
public videophones located in
emergency shelters and domestic abuse
shelters, so long as the registration data
provided to the User Database in
advance of such use identifies the
phone as an emergency or domestic
shelter videophone. The Commission
believes there may be situations where
individuals fleeing their homes may not
have made log-in arrangements in
advance of an emergency or domestic
abuse incident, or may forget to retrieve
such information when rushing to a
E:\FR\FM\06JNP1.SGM
06JNP1
Federal Register / Vol. 84, No. 109 / Thursday, June 6, 2019 / Proposed Rules
khammond on DSKBBV9HB2PROD with PROPOSALS
shelter. Providing individuals the ability
to establish telephone communications
could be vital to their health and safety
in crisis situations. The Commission
seeks comment on this proposal. Are
there other locations where the
Commission should adopt an emergency
situation exemption to the log-in
requirement for enterprise and public
phones? How should the Commission
define the scope of exempt locations for
this purpose?
38. Alternatives to a Log-In
Requirement. The Commission also asks
for comment on alternatives to a log-in
requirement. For example, Sorenson
argues that, once enterprise and public
videophones are registered in the User
Database, it should be sufficient for a
VRS user to enter the user’s VRS
telephone number (without a PIN)
before completing a call, noting that the
TRS Fund administrator would have the
ability to monitor usage trends at these
phones to identify anomalous call
patterns that may require further
investigation. Sorenson also states that
it requires all users who place a VRS
call from a public phone to digitally
sign to indicate that they have a hearing
or speech disability and need VRS to
communicate. Sorenson’s certification
states:
By clicking the ‘‘Accept,’’ you certify
that you have a hearing or speech
disability and that you need VRS to be
able to communicate with other people.
You further certify that you understand
that the cost of VRS calls is paid for by
contributions from other
telecommunications users to the
interstate Telecommunications Relay
Service Fund.
39. Sorenson also proposes that the
person responsible for compliant use of
the enterprise or public videophone
self-certify their status as the
responsible person on a quarterly basis.
The Commission seeks comment on
Sorenson’s proposals and invites
commenters to propose other
alternatives. The Commission asks
commenters to address the costs and
benefits of each alternative, including
the extent to which such alternatives
will protect the TRS Fund from waste,
fraud, and abuse.
Technical Correction of the Data
Collection Rule
40. The Commission proposes a
technical correction of 47 CFR
64.604(c)(5)(iii)(D), which addresses
requirements imposed on TRS providers
generally regarding data collection and
audits. When the Commission amended
this provision (then designated as
§ 64.604(c)(5)(iii)(C)) in 2011, it appears
that a portion of the text of paragraph
VerDate Sep<11>2014
15:54 Jun 05, 2019
Jkt 247001
(1) was inadvertently deleted.
Accordingly, the Commission proposes
to amend paragraph (1) to restore the
missing text, to read as follows (with the
restored text in bold, underlined type):
TRS providers seeking compensation from
the TRS Fund shall provide the administrator
with true and adequate data, and other
historical, projected and state rate related
information reasonably requested to
determine the TRS Fund revenue
requirements and payments. TRS providers
shall provide the administrator with the
following: Total TRS minutes of use, total
interstate TRS minutes of use, total operating
expenses and total TRS investment in general
in accordance with part 32 of this chapter,
and other historical or projected information
reasonably requested by the administrator for
purposes of computing payments and
revenue requirements.
41. The Commissions seeks comment
on this proposed amendment, which the
Commission does not anticipate will
have any effect on the current practices
of the TRS Fund administrator or TRS
providers.
Initial Regulatory Flexibility Analysis
42. As required by the Regulatory
Flexibility Act of 1980, as amended, the
Commission has prepared this Initial
Regulatory Flexibility Analysis (IRFA)
of the possible significant economic
impact on a substantial number of small
entities by the policies and rules
proposed in document FCC 19–39.
Written public comments are requested
on this IRFA. Comments must be
identified as responses to the IRFA and
must be filed by the deadline for
comments specified in the DATES
section. The Commission will send a
copy of document FCC 19–39 to the
Chief Counsel for Advocacy of the Small
Business Administration.
Need for, and Objectives of, the
Proposed Rules
43. In document FCC 19–39, the
Commission proposes to (1) permit
communications assistants (CAs) to
handle video relay service (VRS) calls at
home on a permanent basis; (2) allow
VRS providers to provide service to new
and ported users at their own risk for up
to two weeks while the
telecommunications relay service (TRS)
user registration database (Database)
administrator is verifying the user’s
registration information; and (3)
implement log-in procedures to
authenticate users prior to their use of
enterprise and public videophones. If
adopted, these proposals would
improve video communications for
people with disabilities, while
safeguarding the VRS program against
waste, fraud, and abuse by ensuring that
only eligible individuals use enterprise
PO 00000
Frm 00013
Fmt 4702
Sfmt 4702
26385
and public videophones to place VRS
calls.
Legal Basis
44. The authority for this proposed
rulemaking is contained in 47 U.S.C.
151, 225.
Small Entities Impacted
45. The rules proposed in document
FCC 19–39 will affect obligations of VRS
providers. These services can be
included within the broad economic
category of All Other
Telecommunications.
Description of Projected Reporting,
Recordkeeping, and Other Compliance
Requirements
46. The proposals to permit CAs to
handle VRS calls at home on a
permanent basis and to allow VRS
providers to provide service to new and
ported users for up to two weeks while
the Database administrator is verifying
the user’s registration information do
not create any new reporting,
recordkeeping, or other compliance
requirements on VRS providers beyond
what is already required. The rules
requiring users to log in when using
enterprise and public videophones will
require VRS providers to collect and
retain log-in information from users.
Steps Taken To Minimize Significant
Impact on Small Entities, and
Significant Alternatives Considered
47. The proposal to permit CAs to
handle VRS calls at home would make
the current pilot program permanent,
and participation in the program would
continue to be optional for VRS
providers. The Commission is not
proposing any new requirements that
would increase regulatory requirements
beyond those that are already required
as part of the pilot program. The
existing and proposed requirements
would apply equally to all VRS
providers and are necessary to prevent
waste, fraud, and abuse of the TRS Fund
by ensuring that CAs are subject to
proper supervision and accountability.
To the extent there are differences in
operating costs resulting from
economies of scale, those costs are
reflected in the different rate structures
applicable to large and small VRS
providers.
48. The proposal to allow VRS
providers to provide service to new and
ported users for up to two weeks while
the Database administrator is verifying
the user’s registration information
would simply provide a new option for
VRS providers. The Commission is not
proposing any new requirements that
would increase regulatory requirements
E:\FR\FM\06JNP1.SGM
06JNP1
26386
Federal Register / Vol. 84, No. 109 / Thursday, June 6, 2019 / Proposed Rules
beyond those that are already required.
The existing and proposed requirements
would apply equally to all VRS
providers and are necessary to prevent
waste, fraud, and abuse of the TRS Fund
by ensuring that providers are not
compensated for service provided to
users who do not satisfy the verification
requirements. To the extent there are
differences in operating costs resulting
from economies of scale, those costs are
reflected in the different rate structures
applicable to large and small VRS
providers.
49. The provision of VRS to enterprise
and public videophones is optional for
VRS providers. The proposed user login requirements for such videophones
would apply equally to all VRS
providers and users, and are necessary
to prevent waste, fraud, and abuse of the
TRS Fund by ensuring that only
registered users can use such phones for
VRS calls. The log-in requirements for
enterprise and public videophones
would be no more burdensome than
user authentication procedures for pay
phones and for any type of commercial
activity such as on-line banking and bill
paying and use of various other internet
services. To the extent there are
differences in operating costs resulting
from economies of scale, those costs are
reflected in the different rate structures
applicable to large and small VRS
providers.
50. The Commission seeks comment
from all interested parties. Small
entities are encouraged to bring to the
Commission’s attention any specific
concerns they may have with the
proposals outlined in document FCC
19–39. The Commission expects to
consider the economic impact on small
entities, as identified in comments filed
in response to document FCC 19–39, in
reaching its final conclusions and taking
action in this proceeding.
Federal Rules Which Duplicate,
Overlap, or Conflict With, the
Commission’s Proposals
51. None.
List of Subjects in 47 CFR Part 64
khammond on DSKBBV9HB2PROD with PROPOSALS
Individuals with disabilities,
Telecommunications, Telephones.
Federal Communications Commission.
Marlene Dortch,
Secretary.
Proposed Rules
For the reasons discussed in the
preamble, the Federal Communications
Commission proposes to amend 47 part
64 as follows:
VerDate Sep<11>2014
15:54 Jun 05, 2019
Jkt 247001
PART 64—MISCELLANEOUS RULES
RELATING TO COMMON CARRIERS
1. The authority citation for part 64
continues to read as follows:
■
Authority: 47 U.S.C. 154, 201, 202, 217
218, 220, 222, 225, 226, 227, 228, 251(a),
251(e), 254(k), 262, 403(b)(2)(B), (c), 616, 620,
and 1401–1473, unless otherwise noted.
2. Amend § 64.604 by revising
paragraph (c)(5)(iii)(D)(1) to read as
follows:
■
§ 64.604
Mandatory minimum standards.
*
*
*
*
*
(c) * * *
(5) * * *
(iii) * * *
(D) * * *
(1) TRS providers seeking
compensation from the TRS Fund shall
provide the administrator with true and
adequate data, and other historical,
projected and state rate related
information reasonably requested to
determine the TRS Fund revenue
requirements and payments. TRS
providers shall provide the
administrator with the following: total
TRS minutes of use, total interstate TRS
minutes of use, total operating expenses
and total TRS investment in general in
accordance with part 32 of this chapter,
and other historical or projected
information reasonably requested by the
administrator for purposes of computing
payments and revenue requirements.
*
*
*
*
*
■ 3. Amend § 64.611 by revising
paragraphs (a)(4) and (a)(6)(ii)(A) and by
adding paragraphs (a)(6)(vi) through
(viii) to read as follows:
§ 64.611
internet-based TRS registration.
(a) * * *
(4) TRS User Registration Database
information for VRS.
(i) Registration information. Prior to
requesting compensation from the TRS
Fund for service provided to a
consumer, a VRS provider shall obtain
the consumer’s:
(A) Full name;
(B) Date of birth;
(C) Full residential address;
(D) Telephone number; and
(E) Last four digits of the consumer’s
Social Security number or Tribal
identification number.
(ii) Registration submission. Each VRS
provider shall collect and transmit to
the TRS User Registration Database, in
a format prescribed by the administrator
of the TRS User Registration Database,
the following information for each of its
new and existing registered internetbased TRS users: Full name; full
residential address; ten-digit telephone
number assigned in the TRS numbering
PO 00000
Frm 00014
Fmt 4702
Sfmt 4702
directory; last four digits of the social
security number or Tribal Identification
number, if the registered internet-based
TRS user is a member of a Tribal nation
and does not have a social security
number; date of birth; Registered
Location; VRS provider name and dates
of service initiation and termination; a
digital copy of the user’s selfcertification of eligibility for VRS and
the date obtained by the provider; the
date on which the user’s identification
was verified; and (for existing users
only) the date on which the registered
internet-based TRS user last placed a
point-to-point or relay call.
(iii) Each VRS provider must obtain,
from each new and existing registered
internet-based TRS user, consent to
transmit the registered internet-based
TRS user’s information to the TRS User
Registration Database. Prior to obtaining
consent, the VRS provider must
describe to the registered internet-based
TRS user, using clear, easily understood
language, the specific information being
transmitted, that the information is
being transmitted to the TRS User
Registration Database to ensure proper
administration of the TRS program, and
that failure to provide consent will
result in the registered internet-based
TRS user being denied service. VRS
providers must obtain and keep a record
of affirmative acknowledgment by every
registered internet-based TRS user of
such consent.
(iv) VRS providers must, for existing
registered internet-based TRS users,
submit the information in paragraph
(a)(3) of this section to the TRS User
Registration Database within 60 days of
notice from the Commission that the
TRS User Registration Database is ready
to accept such information. Calls from
or to existing registered internet-based
TRS users that have not had their
information populated in the TRS User
Registration Database within 60 days of
notice from the Commission that the
TRS User Registration Database is ready
to accept such information shall not be
compensable.
(v) VRS providers must submit the
information in paragraph (a)(4) of this
section upon initiation of service for
users registered after 60 days of notice
from the Commission that the TRS User
Registration Database is ready to accept
such information.
*
*
*
*
*
(6) * * *
(ii) * * *
(A) A default VRS provider for an
enterprise or public videophone shall
obtain a written certification from the
individual responsible for the
videophone, attesting that the
E:\FR\FM\06JNP1.SGM
06JNP1
Federal Register / Vol. 84, No. 109 / Thursday, June 6, 2019 / Proposed Rules
individual understands the functions of
the videophone and that the cost of VRS
calls made on the videophone is
financed by the federally regulated
Interstate TRS Fund, and for enterprise
videophones, that the organization,
business, or agency will make
reasonable efforts to ensure that
registered VRS users are permitted to
use the phone for VRS.
*
*
*
*
*
(vi) Beginning 180 days after notice
from the Commission that the TRS User
Registration Database and TRS
Numbering Directory are ready to
process log-in information from
enterprise and public videophones, VRS
calls at such videophones shall not be
compensable from the TRS Fund unless
the videophone has been registered in
accordance with this section, the
videophone user is a registered VRS
user, and the videophone user has
logged into the videophone.
(vii) Only one user may be logged into
an enterprise or public videophone at
any time, except that, for an enterprise
videophone located at a reception desk
or other work area, up to five users may
be logged in simultaneously, provided
that the phone is configured so that each
user must select his or her individual
user profile before answering or placing
a call. Providers shall keep records of
users that are pre-authorized under this
paragraph and shall discontinue
permission for such automatic use by
any individual that the provider knows
or has reason to believe no longer needs
access to the device.
(viii) Emergency 911 calls from
enterprise and public videophones and
calls from public videophones installed
in emergency shelters shall be exempt
from the videophone user log in
requirements of paragraph (a)(6)(vi) of
this section.
*
*
*
*
*
■ 4. Amend § 64.615 by revising
paragraphs (a)(2)(i) through (v) to read
as follows:
khammond on DSKBBV9HB2PROD with PROPOSALS
§ 64.615 TRS User Registration Database
and administrator.
(a) * * *
(2) * * *
(i) VRS providers shall validate the
eligibility of a party using an enterprise
or public videophone by querying the
designated database in accordance with
paragraph (a)(1) of this section.
(ii) VRS providers shall transmit with
such queries any log-in information
specified in the database administrator’s
instructions for validating such calls.
(iii) VRS providers shall require their
CAs to terminate any call which does
not include an individual eligible to use
VRS or, pursuant to the provider’s
VerDate Sep<11>2014
15:54 Jun 05, 2019
Jkt 247001
policies, the call does not appear to be
a legitimate VRS call, and VRS
providers may not seek compensation
for such calls from the TRS Fund.
(iv) Emergency 911 calls from
enterprise and public videophones shall
be exempt from the videophone
validation requirements of paragraph
(a)(2)(i) of this section.
(v) Emergency 911 calls from
enterprise and public videophones and
calls from public videophones installed
in emergency shelters shall be exempt
from the videophone user log-in
requirements of paragraph (a)(2) of this
section.
*
*
*
*
*
[FR Doc. 2019–11210 Filed 6–5–19; 8:45 am]
BILLING CODE 6712–01–P
SURFACE TRANSPORTATION BOARD
49 CFR Part 1152
[Docket No. EP 749 (Sub-No. 1); Docket No.
EP 753]
Limiting Extensions of Trail Use
Negotiating Periods; Rails-to-Trails
Conservancy—Petition for Rulemaking
Surface Transportation Board.
Supplemental notice of
proposed rulemaking.
AGENCY:
ACTION:
The Surface Transportation
Board (Board) grants in part a petition
filed by the Rails-to-Trails Conservancy
(RTC) in Docket No. EP 753 and amends
its prior proposal in Docket No. EP 749
(Sub-No. 1) to revise certain regulations
related to the National Trails System
Act. Specifically, the Board proposes to
modify, through this supplemental
notice of proposed rulemaking (SNPR),
its regulations to establish a new oneyear period for any initial interim trail
use negotiating period, instead of the
existing 180-day initial negotiating
period; to permit up to three one-year
extensions of the initial period if the
trail sponsor and the railroad agree; and
to permit additional one-year extensions
if the trail sponsor and the railroad
agree and good cause is shown.
DATES: Comments are due by July 8,
2019; replies are due by July 26, 2019.
ADDRESSES: Comments and replies may
be submitted either via the Board’s efiling format or in paper format. Any
person using e-filing should attach a
document and otherwise comply with
the instructions found on the Board’s
website at www.stb.gov at the E-filing
link. Any person submitting a filing in
paper format should send an original to:
Surface Transportation Board, Attn:
Docket No. EP 749 (Sub-No. 1) et al.,
SUMMARY:
PO 00000
Frm 00015
Fmt 4702
Sfmt 4702
26387
395 E Street SW, Washington, DC
20423–0001.
FOR FURTHER INFORMATION CONTACT:
Sarah Fancher, (202) 245–0355.
Assistance for the hearing impaired is
available through the Federal Relay
Service at (800) 877–8339.
On June
14, 2018, the National Association of
Reversionary Property Owners
(NARPO), filed a petition requesting
that the Board consider issuing three
rules related to 16 U.S.C. 1247(d), the
codification of section 8(d) of the
National Trails System Act (Trails Act),
Public Law 90–543, section 8, 82 Stat.
919, 925 (1968) (codified, as amended,
at 16 U.S.C. 1241–1251). After
considering NARPO’s petition for
rulemaking and the comments received,
the Board granted the petition in part as
it pertained to its first proposed rule and
instituted a rulemaking proceeding in
Limiting Extensions of Trail Use
Negotiating Periods (NPR), EP 749 (SubNo. 1) (STB served Oct. 2, 2018) (83 FR
50,326), to propose modifications to 49
CFR 1152.29 that would limit the
number of 180-day extensions of the
interim trail use negotiating period to a
maximum of six extensions, absent
extraordinary circumstances. See
discussion infra Extensions of the
Interim Trail Use Negotiating Period
section (Discussing the Board’s NPR).
The Board, however, denied NARPO’s
petition with regard to its other two
proposed rules.1
On March 22, 2019, after the comment
period closed in Docket No. EP 749
(Sub-No. 1), RTC petitioned the Board to
institute a rulemaking proceeding to
further revise section 1152.29 to
establish a one-year period for any
initial interim trail use negotiating
period and codify the Board’s authority
to grant extensions of the negotiating
period for good cause shown. RTC
acknowledges that its petition overlaps
to some extent with the NPR (RTC Pet.
4–5); both RTC’s petition and the
Board’s NPR pertain to the same
regulation, section 1152.29. As
explained below, the Board will
consolidate that proceeding, Rails-toTrails Conservancy—Petition for
Rulemaking, Docket No. EP 753, with
Limiting Extensions of Trail Use
SUPPLEMENTARY INFORMATION:
1 In its petition, NARPO also requested that the
Board require a railroad or trail sponsor negotiating
an interim trail use agreement to send notice of the
issuance of a Certificate of Interim Trail Use (CITU)
or Notice of Interim Trail Use (NITU) to landowners
adjacent to the right-of-way covered by the CITU/
NITU; and require all entities, including
government entities, filing a request for a CITU/
NITU, or extension thereof, to pay a filing fee.
E:\FR\FM\06JNP1.SGM
06JNP1
Agencies
[Federal Register Volume 84, Number 109 (Thursday, June 6, 2019)]
[Proposed Rules]
[Pages 26379-26387]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2019-11210]
=======================================================================
-----------------------------------------------------------------------
FEDERAL COMMUNICATIONS COMMISSION
47 CFR Part 64
[CG Docket Nos. 10-51 and 03-123; FCC 19-39]
Improving Video Relay Service and Direct Video Calling
AGENCY: Federal Communications Commission.
ACTION: Proposed rule.
-----------------------------------------------------------------------
SUMMARY: In this document, the Federal Communications Commission (FCC
or Commission) proposes to: permit communications assistants (CAs) to
handle video relay service (VRS) calls at home on a permanent basis;
allow VRS providers to provide service to new and porting VRS users for
up to two weeks while the telecommunications relay service (TRS) user
registration database (User Database or Database) administrator is
verifying the user's registration information, with compensation paid
only after the user's identity is verified; and implement log-in
procedures to authenticate users prior to their use of enterprise and
public videophones for VRS calls. By these proposals, the Commission
seeks to improve VRS while safeguarding the program against waste,
fraud, and abuse.
DATES: Comments are due August 5, 2019. Reply comments are due
September 4, 2019.
ADDRESSES: You may submit comments, identified by CG Docket Nos. 10-51
and 03-123, by either of the following methods:
Federal Communications Commission's website: https://www.fcc.gov/ecfs/filings. Follow the instructions for submitting
comments.
Paper Filers: Parties who choose to file by paper must
file an original and one copy of each filing. If more than one docket
or rulemaking number appears in the caption of this proceeding, filers
must submit two additional copies for each additional docket or
rulemaking number. Filings can be sent by hand or messenger delivery,
by commercial overnight courier, or by first-class or overnight U.S.
Postal Service mail. All filings must be addressed to the Commission's
Secretary, Office of the Secretary, Federal Communications Commission.
People with Disabilities: Contact the FCC to request
reasonable accommodations (accessible format documents, sign language
interpreters, CART, etc.) by email: [email protected] or phone: (202) 418-
0530 or TTY: (888) 835-5322.
For detailed instructions for submitting comments and additional
information on the rulemaking process, see document FCC 19-39 at:
https://docs.fcc.gov/public/attachments/FCC-19-39A1.pdf.
FOR FURTHER INFORMATION CONTACT: Michael Scott, Consumer and
Governmental Affairs Bureau, at (202) 418-1264, or email
[email protected].
SUPPLEMENTARY INFORMATION: This is a summary of the Commission's
Further Notice of Proposed Rulemaking
[[Page 26380]]
(FNPRM), document FCC 19-39, adopted on May 9, 2019, released on May
15, 2019, in CG Docket Nos. 10-51 and 03-123. The Report and Order in
document FCC 19-39 is published elsewhere in this issue of the Federal
Register. The full text of document FCC 19-39 is available for public
inspection and copying via the Commission's Electronic Comment Filing
System (ECFS), and during regular business hours at the FCC Reference
Information Center, Portals II, 445 12th Street SW, Room CY-A257,
Washington, DC 20554. To request materials in accessible formats for
people with disabilities (Braille, large print, electronic files, audio
format), send an email to [email protected] or call the Consumer and
Governmental Affairs Bureau at (202) 418-0530 (voice) or (202) 418-0432
(TTY).
This proceeding shall be treated as a ``permit-but-disclose''
proceeding in accordance with the Commission's ex parte rules. 47 CFR
1.1200 et seq. Persons making ex parte presentations must file a copy
of any written presentation or a memorandum summarizing any oral
presentation within two business days after the presentation (unless a
different deadline applicable to the Sunshine period applies). Persons
making oral ex parte presentations are reminded that memoranda
summarizing the presentation must (1) list all persons attending or
otherwise participating in the meeting at which the ex parte
presentation was made, and (2) summarize all data presented and
arguments made during the presentation. If the presentation consisted
in whole or in part of the presentation of data or arguments already
reflected in the presenter's written comments, memoranda, or other
filings in the proceeding, the presenter may provide citations to such
data or arguments in his or her prior comments, memoranda, or other
filings (specifying the relevant page and/or paragraph numbers where
such data or arguments can be found) in lieu of summarizing them in the
memorandum. Documents shown or given to Commission staff during ex
parte meetings are deemed to be written ex parte presentations and must
be filed consistent with rule 1.1206(b). In proceedings governed by
rule 1.49(f) or for which the Commission has made available a method of
electronic filing, written ex parte presentations and memoranda
summarizing oral ex parte presentations, and all attachments thereto,
must be filed through the electronic comment filing system available
for that proceeding, and must be filed in their native format (e.g.,
.doc, .xml, .ppt, searchable .pdf). Participants in this proceeding
should familiarize themselves with the Commission's ex parte rules.
Initial Paperwork Reduction Act of 1995 Analysis
The FNPRM in document FCC 19-39 seeks comment on proposed rule
amendments that may result in modified information collection
requirements. If the Commission adopts any modified information
collection requirements, the Commission will publish another notice in
the Federal Register inviting the public to comment on the
requirements, as required by the Paperwork Reduction Act. Public Law
104-13; 44 U.S.C. 3501-3520. In addition, pursuant to the Small
Business Paperwork Relief Act of 2002, the Commission seeks comment on
how it might further reduce the information collection burden for small
business concerns with fewer than 25 employees. Public Law 107-198; 44
U.S.C. 3506(c)(4).
Synopsis
1. VRS is a form of TRS that enables people with hearing or speech
disabilities who use sign language to make telephone calls over
broadband with a videophone. In addition to enabling communication
between American Sign Language (ASL) users and voice users, the VRS
system also enables ASL users to communicate directly with other ASL
users via video.
Permitting At-Home Interpreting on a Permanent Basis
2. The Commission proposes to convert the Commission's pilot VRS
at-home call-handling program, which allows VRS providers to have their
CAs handle some VRS calls from at-home workstations, to a permanent
program that will be subject to safeguards designed to maintain service
quality, protect call confidentiality, and prevent waste, fraud, and
abuse. The Commission believes that taking this action is likely to
expand the available pool of qualified sign-language interpreters who
can work as VRS interpreters (i.e., CAs) and improve VRS reliability,
which will advance the Commission's goal of ensuring a high quality,
functionally equivalent VRS program in furtherance of the objectives of
section 225 of the Communications Act.
3. The Commission believes that the benefits anticipated in the
pilot at-home call-handling program are being realized. Specifically,
the VRS provider reports required under the pilot program indicate that
allowing CAs to work at home: has enabled providers to attract and
retain qualified CAs for whom working at the companies' call centers is
not a practical option; has improved working conditions and
productivity of CAs working at home; can improve network reliability
and redundancy; and has the potential to help providers better respond
to calls in accordance with the Commission's speed-of-answer rules when
unforeseen circumstances occur. The Commission seeks comment on whether
this depiction of these benefits is accurate, and whether other
benefits have been realized during the pilot program or are likely to
be realized if the program is authorized on a permanent basis. Are
there any disadvantages to making this program permanent?
4. The Commission also seeks comment on whether, and to what
extent, a rule change permitting at-home interpreting is likely to
reduce or increase the total costs of the VRS program. Current program
participants anticipate a significant net savings in VRS costs if
permanent authorization allows the scale of the program to be expanded.
The Commission seeks comment on how this would be achieved, and any
additional information about costs incurred by participating providers.
For example, costs could include training and supervising CAs,
installing facilities and software to serve home workstations,
troubleshooting and maintaining security at home workstations, ensuring
compliance, and preparing required reports.
5. The Commission believes that the various safeguards established
as conditions for participation in the pilot program generally have
been effective in preventing waste, fraud, and abuse, meeting the TRS
mandatory minimum standards, and ensuring the confidentiality,
reliability, and quality of at-home interpreting. The Commission seeks
comment on the extent to which the pilot program's safeguards generally
have been effective. The Commission lists below each of the safeguards
and seeks comment on the extent to which each should be retained,
modified, eliminated, or supplemented if the Commission makes this
program permanent. When responding, the Commission urges commenters,
especially participating providers, to provide detailed information,
including quantitative data to the extent available, in support of
their views on whether and how these governing rules should be
modified, as well as the costs and benefits of incorporating each into
the
[[Page 26381]]
permanent program. Further, the Commission seeks comment on any
differences in call quality between traditional call centers and CAs
working from home.
6. Personnel Safeguards. The pilot program requires CAs working
from their homes to have a minimum of three years of VRS experience. In
addition, before allowing a CA to work at home, a VRS provider must:
Ensure that the CA has sufficient experience, skills, and
knowledge to effectively interpret from at-home workstations, including
a thorough understanding of the Commission's mandatory minimum
standards;
Provide additional training to CAs to ensure that they
understand and follow the provider's protocols for at-home call
handling;
Establish, and provide to the CA in writing, the grounds
and process for dismissal from the at-home program if the CA fails to
adhere to the Commission's TRS rules, including the specific
requirements for at-home call handling; and
Obtain a written certification from each CA as to their
understanding of and commitment to complying with the Commission's TRS
rules, and their understanding of the grounds and process for dismissal
from the at-home program.
While CAs are working from home, the VRS provider must:
Provide support equivalent to that provided CAs in call
centers, including, where appropriate, the opportunity to team
interpret; and
Ensure that supervisors are readily available to resolve
problems that may arise during a relay call.
Are these requirements effective in ensuring that CAs working at
home can effectively handle VRS calls or should they be modified in any
way? What, if any, screening, training, and disciplinary issues have
been encountered in the pilot program and how have these been
addressed? How should any such issues be dealt with in the Commission's
rules?
7. Technical and Environmental Safeguards. Under the pilot program,
VRS providers are required to ensure that at-home workstations enable
the provision of confidential and uninterrupted service to the same
extent as the provider's call center, and that calls handled by at-home
CAs are seamlessly integrated into the provider's call routing,
distribution, tracking, and support systems. Specifically, the provider
must:
Require that home workstations be placed in a separate
location within the home, with restricted access and effective means to
minimize the impact of outside noise and prevent eavesdropping;
Configure at-home workstations to enable the CA to use all
call-handling technology to the same extent as other CAs, including the
ability to transition a non-emergency call to an emergency call, engage
in virtual teaming with another CA, and allow supervisors to
communicate with and oversee calls;
Ensure that each at-home workstation is capable of
supporting VRS in compliance with the Commission's mandatory minimum
standards, including the provision of system redundancy and other
safeguards to the same degree as at call centers, and including the
ability to route VRS calls around individual CA workstations in the
event they experience a network outage or other service interruption;
and
Connect workstations to the provider's network over a
secure connection to ensure caller privacy.
8. Are these safeguards sufficient to ensure that CAs working from
at-home workstations can provide high-quality, confidential, and
uninterrupted service, and if not, what modifications to these
requirements are necessary? What technical and environmental issues
have been encountered in the pilot program, how have they affected the
integration of calls handled by at-home CAs into the call routing,
distribution, tracking and support systems, and how have any such
technical challenges been addressed? How should any such issues be
dealt with in the Commission's rules? Are some of the current
safeguards--e.g., the requirement for system redundancy at each
workstation, disproportionately burdensome in relation to their value
for the stated purpose(s)?
9. Monitoring and Oversight Requirements. To ensure that providers
appropriately monitor and oversee the at-home call handling pilot
program, they have been required to:
Inspect and approve each at-home workstation before
activating a CA's workstation for use;
Equip each at-home workstation with monitoring technology
sufficient to ensure that off-site supervision approximates the level
of supervision at the provider's call center, including the ability to
monitor both ends of a call, i.e., video and audio, to the same extent
as is possible in a call center, and regularly analyze any data
collected to proactively address possible waste, fraud, and abuse;
Conduct random, unannounced inspections of at least five
percent (5%) of all at-home workstations per year; and
Keep all records pertaining to at-home workstations,
including the data produced by any at-home workstation monitoring
technology, except for any data that records the content of an
interpreted conversation, for a minimum of three years.
10. Do these monitoring and oversight requirements enable VRS
providers to appropriately supervise the CAs working at home? What
monitoring and oversight issues have been encountered in the pilot
program and how have they been addressed? Which requirements were found
to be most useful to ensure effective supervision of CAs? Under a
permanent program, the number of at-home workstations is likely to
increase. To what extent is this likely to increase the risk that
individual CA workstations may fall short of full compliance with
technical, environmental, and privacy safeguards? To ensure that
providers detect and promptly address any such compliance issues,
should the Commission increase the required annual percentage of at-
home workstations that must be subject to random, unannounced provider
inspections--for example to 10 or 15% of a provider's at-home
workstations each year? What are the costs and benefits of adopting
this requirement?
11. In addition to compliance with the above safeguards, during the
pilot program, at-home workstations and workstation records must be
available for review, audit, and unannounced inspections by the
Commission and the TRS Fund administrator to the same extent as VRS
call centers. The Commission proposes that, if made permanent, at-home
workstations and records continue to be subject to such inspections to
the same extent as regular call centers. The Commission seeks comment
on this proposal.
12. Authorization to Participate in the At-Home Call Handling
Program. To participate in the pilot program, each VRS provider was
required to submit a detailed plan to demonstrate its ability to
achieve full compliance with the above safeguards and the Commission's
mandatory minimum TRS standards, including:
A description of the provider's at-home CA screening and
training process, the protocols and expectations established for CAs
working at home, and the grounds and process for dismissing a CA from
the at-home program;
All steps that the provider would take to install a
workstation in a CA's home, including an evaluation to ensure the
workstation was sufficiently secure
[[Page 26382]]
and equipped to prevent eavesdropping and outside interruptions;
A description of the monitoring technology to be used to
ensure that off-site supervision approximated the level of supervision
at the provider's call center;
An explanation of how the provider's workstations would
connect to the provider's network, including how these would be
integrated into the call center routing, distribution, tracking, and
support systems, and how the provider would ensure system redundancy in
the event of service disruptions in at-home workstations;
A signed certification by an officer of the provider
affirming that the provider would conduct random and unannounced
inspections of at least five percent (5%) of all at-home workstations
during the year; and
A commitment to comply with all other at-home call-
handling safeguards and TRS rules.
13. To what extent should providers be required to provide the same
level of detailed information, certification, and commitment, if at-
home call handling is permitted on a permanent basis? Is any of the
required information no longer necessary or disproportionately
burdensome to its value in ensuring high-quality call handling and
preventing fraud, waste, and abuse? What, if any, additional
information should be collected to help the Commission maintain call
quality and prevent fraud, waste, and abuse?
14. Under the pilot program, Commission approval for participation
can be canceled at any time if the provider fails to maintain
compliance. The Commission proposes that the Commission retain such
option and seeks comment on this approach.
15. Data Collection Requirements. For calls handled at home
workstations, the pilot program rules have required VRS providers to
submit the following data in their monthly requests for compensation,
in addition to the data otherwise required to receive payment for
handling calls:
A unique call center identification number (ID), street
address, and CA ID for each CA working at home; and
The location and call center IDs of call centers providing
supervision for at-home workstations, and the names of persons at such
call centers responsible for oversight of these workstations.
16. In addition, providers had to submit a six-month implementation
report that includes:
A description of the screening process used to select CAs
who may work from home;
Copies of training materials and written protocols for at-
home CAs;
The total number of CAs who have worked at home during the
reporting period;
The total number of 911 calls handled during the reporting
period;
A description and copies of any survey results or self-
evaluations concerning CAs' experience handling calls at home;
The total number of CAs terminated from the program;
The total number of complaints, if any, submitted to the
provider regarding its at-home call-handling program or calls handled
by at-home CAs; and
The total number of on-site inspections of at-home
workstations conducted, along with the dates and locations of such
inspections.
17. To what extent is the information required in monthly reports
sufficient to support compensation requests and protect against waste,
fraud, and abuse? Should the Commission continue to require VRS
providers to submit such information as well as implementation reports
at six-month intervals? If so, should these information reporting
requirements be retained, modified, eliminated, or supplemented in any
manner? Should any reported information be made available to the
public? For example, if a VRS provider takes a survey of its CAs
concerning their participation in the at-home VRS call handling
program, could the aggregated responses be made public, as long as
identifying information for CAs and respondents is redacted?
18. Limitation on Service. The Commission proposes to increase or
remove the pilot program's 30 percent limit on a provider's at-home
call-handling minutes. Increasing the limit would allow each provider
greater scope to make its own determination on the extent to which it
can efficiently make use of at-home call handling while remaining in
compliance with our minimum TRS standards. The Commission seeks comment
on the costs and benefits of this proposal and on whether the limit
should be retained at a higher level, e.g., 50 percent, or removed
entirely. For example, could the limit be completely removed without
significantly increasing the risk of fraud or abuse, in reliance on the
safeguards described above?
Providing Service to New and Porting Users Pending Database
Verification
19. To eliminate unnecessary inconvenience to VRS registrants,
without a significant increase in the risk of waste, fraud, and abuse,
and in response to a petition by the five currently certified VRS
providers, the Commission proposes to allow VRS providers to provide
service to new and porting users for up to two weeks pending the
completion of identity verification. The Commission believes this
change would be helpful to ensure that service to new and porting VRS
users can be commenced efficiently and without undue delay or
disruption of service, in order to facilitate competition and ensure
the functional equivalence of this service. Compensation for calls
placed or received by the user during this period would be paid only if
the user's identity is ultimately verified.
20. For most users, identity verification is completed within hours
of data submission to the User Database, but for some users,
verification can take longer, e.g., due to technical problems or
because the user's identity cannot be verified without the submission
of additional information. Under the proposed rule change, a consumer
would not be subjected to a delay in commencement of service as a
result of verification issues that are often beyond the consumer's
control.
21. Under this proposal, VRS providers could assign a telephone
number and begin service to a new or porting user immediately after
registration. This telephone number would be entered in the TRS
Numbering Directory on a temporary basis so that VRS calls (as well as
point-to-point calls) may be placed to and from the number, either
through the default provider or on a dial-around basis. In the event
that the user's identity is not verified within the two-week period,
the number would be removed from the Numbering Directory. The
Commission believes that any resulting risk of waste, fraud, or abuse
is minimal because, under the Commission's proposal, no compensation
may be requested or paid until the user's identity has been verified.
The Commission seeks comment on the costs and benefits of this
proposal.
Requiring Enterprise and Public Videophone Log-In Procedures
22. The Commission seeks further comment on the Commission's
proposal in the 2017 VRS Improvements FNPRM, 82 FR 17613, to require
default VRS providers to implement log-in procedures for individuals
using enterprise and public videophones for VRS calls. The Commission
believes that a log-in procedure is needed to safeguard the TRS program
from waste, fraud, and abuse because there is no record identifying the
actual user of an enterprise or public videophone. As the
[[Page 26383]]
success of fraudulent activity often depends on the perpetrators
remaining anonymous, we believe user log-in is needed to ensure that
enterprise and public videophones are actually used only by registered
VRS users.
23. The Commission clarifies that, under the proposed log-in rule,
VRS calls made to or from an enterprise or public videophone will be
compensable only if: (1) The individual using the videophone is a
registered VRS user; (2) before placing or receiving the call, the user
provides a log-in code, consisting of the user's North American
Numbering Plan (NANP) telephone number and a personal identification
number (PIN) or password, which the VRS provider then validates through
a prescribed procedure; and (3) the VRS provider includes the user's
telephone number, as well as other information reasonably requested by
the TRS Fund administrator, in the call detail records (CDRs) submitted
to the TRS Fund administrator with the provider's request for
compensation. The user can request a PIN or password from his or her
default VRS provider at the time of registration or any time
thereafter. The necessary log-in information and format will be
determined by the TRS Numbering Administrator, in consultation with the
User Database administrator and the Commission. Individuals who have
not previously registered for VRS must do so before they can make VRS
calls at enterprise or public videophones. The Commission seeks further
comment on this proposal, including the proposed log-in procedure
detailed below.
24. Because the proposed log-in procedure will limit access to
enterprise and public videophones to registered VRS users, the
Commission seeks comment on whether to revise the certification
requirement for enterprise videophones adopted in the Report and Order
of document FCC 19-39, so as to be consistent with the restriction to
registered users. Should the Commission require VRS providers to submit
to the User Database a certification by the responsible individual for
an enterprise videophone that the organization, business, or agency
will make reasonable efforts to ensure that only registered VRS users
are permitted to use the phone for VRS?
25. Because total usage of enterprise and public videophones
averages more than one million minutes per month, the Commission
believes this degree of usage is sufficient to justify imposing a log-
in requirement to help prevent the recurrence of significant VRS fraud.
The Commission seeks comment on its assumptions and its estimate of
enterprise and public videophone usage. The Commission also does not
believe that the log-in procedure is a ``solution to a problem that
does not exist,'' as claimed by Sorenson Communications, LLC
(Sorenson). Nonetheless, the Commission seeks comment on the
assumptions underlying its proposals in this regard.
26. Some commenters argue that a log-in requirement would conflict
with functional equivalency, burden consumers, and hinder effective
communication, noting that some public videophone users are not
registered, while others may have difficulty remembering a PIN.
However, the Commission believes that any burden imposed on users by
the log-in requirement would be minor compared to its substantial
benefit in preventing the misuse of enterprise and public videophones.
Individuals use log-ins regularly to access smartphones, voicemail, and
email, as well as work, school, and personal computers, and commercial,
retail, and financial accounts. To use such devices and services,
consumers routinely need to remember (or store in a retrievable
location) usernames, passwords, and PINs. Further, consumers would not
need to remember separate telephone numbers and PINs for each VRS
provider, as once a user obtains a telephone number and PIN from one
provider, that log-in information may be used to place a VRS call from
any enterprise or public videophone. The Commission seeks comment on
these assumptions. The Commission also seek comment on the cost to the
VRS providers of having to provide a PIN reset service if this proposal
is adopted.
27. Neustar's Log-In Procedure Proposal. Neustar, the TRS Numbering
Administrator, explains that online log-in systems are common and
suggests that providers could use the widely relied-upon OAuth standard
to implement log-in functionality. OAuth allows one party (in this case
the default VRS provider for an enterprise or public videophone) to
request another party (in this case the default VRS provider for the
individual using the videophone) to authenticate a person's
authorization for them, without the first party learning the identity
or credentials of that person. Providers could develop a standard using
the OAuth 2.0 protocol or utilize an existing standard, such as OpenID
Connect, which is an interoperable authentication protocol based on the
OAuth family of specifications. OAuth might be applied as follows: when
a VRS user enters a telephone number and PIN at an enterprise or public
videophone, the default VRS provider serving the videophone checks the
TRS Numbering Directory to determine the user's default VRS provider
for that number, and sends the telephone number and PIN to that
provider; if authentication is positive, the user's default VRS
provider transmits a token that allows the user to place or receive a
VRS call at the videophone.
28. Neustar asserts that the cost and effort to develop an OAuth-
based log-in feature would be reasonable and that development could be
completed within six months. Neustar explains that many providers
already utilize a username/password capability that could be extended
to OAuth, and that even for providers who currently lack such a
capability, the availability of open source code means that the cost of
implementing OAuth servers and username/password capability will be
modest. The Commission therefore tentatively concludes that the
benefits of adopting a login requirement would far exceed the minimal
costs of implementing it.
29. If the VRS industry implements OAuth, the Commission believes
that would enable enterprise OAuth integrations which would allow for
an enterprise user to provide the VRS telephone number and log in with
the user's enterprise credentials, and the enterprise would attest to
the VRS provider that an authorized user has logged in. The Commission
seeks comment on the costs and feasibility of Neustar's proposal and on
the Commission's tentative conclusion that these costs will be minimal.
What are the estimated costs of implementing an OAuth based log-in
solution, including the streamlined version proposed by Neustar, and
how would those costs vary by provider? While Sorenson estimates a cost
of ``over $1 million'' for ``creating, testing, and deploying an OAuth
authorization server and modifying and testing videophone software,''
it fails to support this claim. The Commission therefore seeks cost
information regarding this estimate and any updated estimate. How much
of the estimated cost is attributable to an OAuth server and how much
is attributable to necessary videophone software modification? What
kinds of videophone software would need to be modified, and why? What
costs would be incurred by other providers? Are there significant
differences in software modification costs for public and enterprise
videophones, respectively?
30. It appears that total implementation costs could be reduced if
the Commission exempted certain kinds of videophones from the log-in
[[Page 26384]]
requirement. For example, Sorenson claims that that its ntouch
videophones were not designed to have an internet browser and therefore
cannot be modified to support a log-in mechanism. How many unmodifiable
ntouch public and enterprise videophones are currently in use, and how
much usage is there for such videophones? How much of the total
estimated implementation cost would be saved by exempting them? Are
there other videophones currently used in public and enterprise
locations that do not have, and cannot be modified to support, an
internet browser? How many such videophones are there and how much of
the total estimated implementation cost would be saved by exempting
them? How much usage is there of unmodifiable public and enterprise
videophones, and would the implementation costs saved justify the
increased risk of fraud from continuing to allow unidentified use of
such phones? Would it be more cost effective to implement a log-in
solution through VRS software used on third-party equipment, such as a
personal computer or wireless device? To what extent is such third-
party equipment with VRS software deployed or deployable for use as
enterprise and public videophones? If the Commission exempts existing
videophones that cannot support browser functionality, should it
require that, before registering new enterprise and public videophones,
the default VRS provider must confirm that such phones have browser
functionality and support OAuth log-in capability? The Commission also
seeks comment from manufacturers, vendors, and owners of enterprise
telephone systems and other non-provider equipment and software used
for enterprise and public videophones, regarding the ability of such
systems to support log-in capability.
31. OAuth 2.0 enables devices without browsers or an ability to
securely enter passcodes, such as legacy devices in public areas, where
people can see what characters a user is typing on a screen, to still
have secure authentication. However, the OAuth 2.0 solution to this
problem requires the user to have access to the internet with a
browser. Is it likely that a user who wants to use a public or semi-
public legacy device will have access to the internet, perhaps on a
personal mobile phone; personal or communal tablet; or personal or
public workstation or laptop? If the users who have smartphones,
tablets, or laptops can use them to communicate via VRS, are these
users making use of public and enterprise videophones? If not, who is
making use of public and enterprise videophones? In the case of public
phones, are the users generally individuals without smartphones,
tablets, or laptops? In the case of enterprise phones, are the users
generally using the enterprise phones to ensure that their videocalls
are made over the communications facilities managed by the enterprise?
32. Sorenson also claims that there are ``significant security
vulnerabilities'' in OAuth and other third-party authentication
applications. According to the studies cited by Sorenson, however, such
vulnerabilities are not caused by OAuth 2.0 itself but by ``home-brewed
adaptations'' in which ``the implicit security assumptions and
operational requirements . . . are often not clearly documented or
well-understood by the 3rd-party mobile app developers.'' What specific
security issues would providers face in implementing an OAuth-based
log-in solution, and what safeguards are available to address such
concerns? Are there alternative log-in solutions that would not raise
similar security vulnerability concerns?
33. To date only Neustar has proposed a log-in solution. Are there
other log-in solutions the Commission should consider? The OAuth
specification is designed for use with HTTP. Would a session initiation
protocol (SIP)-based standard, such as RADIUS or Diameter provide a
more cost-effective or secure standard for implementing a log-in
solution? The Commission also proposes to establish a common protocol
for the log-in procedure to ensure that user log-ins can be quickly
authenticated regardless of the user's default provider. Neustar
indicates that in its role as the TRS Numbering administrator it could
act as a proxy and direct the OAuth authentication process to the
correct VRS provider without revealing the provider's identity to the
provider of the enterprise or public videophone. The Commission seeks
comment on this approach. Alternatively, should the Commission allow
each provider to develop its own log-in protocol rather than require
providers to implement a common protocol? What are the costs and
benefits of each alternative approach? To what extent do providers
already use log-in procedures for users to access VRS? Could such
existing log-in procedures be incorporated into a log-in procedure for
enterprise and public videophones?
34. Exemptions. The Commission proposes to exempt point-to-point
calls from the log-in requirement, because such calls are not billed to
the TRS Fund. How would exempting point-to-point calls affect the
implementation of a log-in procedure? At what point in the call process
should a user be prompted to log-in to complete a VRS call on an
enterprise or public videophone?
35. Where an enterprise videophone is located within a private
workspace or a private room within a long-term health care facility,
the Commission proposes to allow the VRS provider to permit one
registered VRS user to log in a single time and thereafter to continue
using the videophone without repeated log-ins, so long as that user
continues to be eligible and registered for VRS. In addition, the
Commission proposes to broaden this proposed log-in exemption to allow
relatively convenient access to shared enterprise devices, while
limiting usage of the device to registered VRS users. For enterprise
videophones at reception desks or other work areas in places of
employment, the Commission proposes to allow up to five registered
users to be simultaneously logged in to a videophone, provided that the
phone is configured so that each user must select his or her user
profile before placing or answering a VRS call. To limit misuse of this
exemption, the Commission proposes to require VRS providers to keep
records of users that are pre-authorized under each of these exceptions
and to discontinue permission for such automatic use by any individual
that the provider knows or has reason to believe no longer needs access
to the device. What are the associated costs, benefits, and technical
concerns?
36. The Commission also proposes to exempt 911 calls from the log-
in requirement, so that providers may complete emergency calls from
enterprise and public videophones at any time and without delay. The
Commission seek comments on this proposal. Are there technical concerns
with implementing a log-in exemption for calls to 911?
37. Finally, the Commission proposes to exempt from the log-in
requirement otherwise eligible VRS calls made from public videophones
located in emergency shelters and domestic abuse shelters, so long as
the registration data provided to the User Database in advance of such
use identifies the phone as an emergency or domestic shelter
videophone. The Commission believes there may be situations where
individuals fleeing their homes may not have made log-in arrangements
in advance of an emergency or domestic abuse incident, or may forget to
retrieve such information when rushing to a
[[Page 26385]]
shelter. Providing individuals the ability to establish telephone
communications could be vital to their health and safety in crisis
situations. The Commission seeks comment on this proposal. Are there
other locations where the Commission should adopt an emergency
situation exemption to the log-in requirement for enterprise and public
phones? How should the Commission define the scope of exempt locations
for this purpose?
38. Alternatives to a Log-In Requirement. The Commission also asks
for comment on alternatives to a log-in requirement. For example,
Sorenson argues that, once enterprise and public videophones are
registered in the User Database, it should be sufficient for a VRS user
to enter the user's VRS telephone number (without a PIN) before
completing a call, noting that the TRS Fund administrator would have
the ability to monitor usage trends at these phones to identify
anomalous call patterns that may require further investigation.
Sorenson also states that it requires all users who place a VRS call
from a public phone to digitally sign to indicate that they have a
hearing or speech disability and need VRS to communicate. Sorenson's
certification states:
By clicking the ``Accept,'' you certify that you have a hearing or
speech disability and that you need VRS to be able to communicate with
other people. You further certify that you understand that the cost of
VRS calls is paid for by contributions from other telecommunications
users to the interstate Telecommunications Relay Service Fund.
39. Sorenson also proposes that the person responsible for
compliant use of the enterprise or public videophone self-certify their
status as the responsible person on a quarterly basis. The Commission
seeks comment on Sorenson's proposals and invites commenters to propose
other alternatives. The Commission asks commenters to address the costs
and benefits of each alternative, including the extent to which such
alternatives will protect the TRS Fund from waste, fraud, and abuse.
Technical Correction of the Data Collection Rule
40. The Commission proposes a technical correction of 47 CFR
64.604(c)(5)(iii)(D), which addresses requirements imposed on TRS
providers generally regarding data collection and audits. When the
Commission amended this provision (then designated as Sec.
64.604(c)(5)(iii)(C)) in 2011, it appears that a portion of the text of
paragraph (1) was inadvertently deleted. Accordingly, the Commission
proposes to amend paragraph (1) to restore the missing text, to read as
follows (with the restored text in bold, underlined type):
TRS providers seeking compensation from the TRS Fund shall
provide the administrator with true and adequate data, and other
historical, projected and state rate related information reasonably
requested to determine the TRS Fund revenue requirements and
payments. TRS providers shall provide the administrator with the
following: Total TRS minutes of use, total interstate TRS minutes of
use, total operating expenses and total TRS investment in general in
accordance with part 32 of this chapter, and other historical or
projected information reasonably requested by the administrator for
purposes of computing payments and revenue requirements.
41. The Commissions seeks comment on this proposed amendment, which
the Commission does not anticipate will have any effect on the current
practices of the TRS Fund administrator or TRS providers.
Initial Regulatory Flexibility Analysis
42. As required by the Regulatory Flexibility Act of 1980, as
amended, the Commission has prepared this Initial Regulatory
Flexibility Analysis (IRFA) of the possible significant economic impact
on a substantial number of small entities by the policies and rules
proposed in document FCC 19-39. Written public comments are requested
on this IRFA. Comments must be identified as responses to the IRFA and
must be filed by the deadline for comments specified in the DATES
section. The Commission will send a copy of document FCC 19-39 to the
Chief Counsel for Advocacy of the Small Business Administration.
Need for, and Objectives of, the Proposed Rules
43. In document FCC 19-39, the Commission proposes to (1) permit
communications assistants (CAs) to handle video relay service (VRS)
calls at home on a permanent basis; (2) allow VRS providers to provide
service to new and ported users at their own risk for up to two weeks
while the telecommunications relay service (TRS) user registration
database (Database) administrator is verifying the user's registration
information; and (3) implement log-in procedures to authenticate users
prior to their use of enterprise and public videophones. If adopted,
these proposals would improve video communications for people with
disabilities, while safeguarding the VRS program against waste, fraud,
and abuse by ensuring that only eligible individuals use enterprise and
public videophones to place VRS calls.
Legal Basis
44. The authority for this proposed rulemaking is contained in 47
U.S.C. 151, 225.
Small Entities Impacted
45. The rules proposed in document FCC 19-39 will affect
obligations of VRS providers. These services can be included within the
broad economic category of All Other Telecommunications.
Description of Projected Reporting, Recordkeeping, and Other Compliance
Requirements
46. The proposals to permit CAs to handle VRS calls at home on a
permanent basis and to allow VRS providers to provide service to new
and ported users for up to two weeks while the Database administrator
is verifying the user's registration information do not create any new
reporting, recordkeeping, or other compliance requirements on VRS
providers beyond what is already required. The rules requiring users to
log in when using enterprise and public videophones will require VRS
providers to collect and retain log-in information from users.
Steps Taken To Minimize Significant Impact on Small Entities, and
Significant Alternatives Considered
47. The proposal to permit CAs to handle VRS calls at home would
make the current pilot program permanent, and participation in the
program would continue to be optional for VRS providers. The Commission
is not proposing any new requirements that would increase regulatory
requirements beyond those that are already required as part of the
pilot program. The existing and proposed requirements would apply
equally to all VRS providers and are necessary to prevent waste, fraud,
and abuse of the TRS Fund by ensuring that CAs are subject to proper
supervision and accountability. To the extent there are differences in
operating costs resulting from economies of scale, those costs are
reflected in the different rate structures applicable to large and
small VRS providers.
48. The proposal to allow VRS providers to provide service to new
and ported users for up to two weeks while the Database administrator
is verifying the user's registration information would simply provide a
new option for VRS providers. The Commission is not proposing any new
requirements that would increase regulatory requirements
[[Page 26386]]
beyond those that are already required. The existing and proposed
requirements would apply equally to all VRS providers and are necessary
to prevent waste, fraud, and abuse of the TRS Fund by ensuring that
providers are not compensated for service provided to users who do not
satisfy the verification requirements. To the extent there are
differences in operating costs resulting from economies of scale, those
costs are reflected in the different rate structures applicable to
large and small VRS providers.
49. The provision of VRS to enterprise and public videophones is
optional for VRS providers. The proposed user log-in requirements for
such videophones would apply equally to all VRS providers and users,
and are necessary to prevent waste, fraud, and abuse of the TRS Fund by
ensuring that only registered users can use such phones for VRS calls.
The log-in requirements for enterprise and public videophones would be
no more burdensome than user authentication procedures for pay phones
and for any type of commercial activity such as on-line banking and
bill paying and use of various other internet services. To the extent
there are differences in operating costs resulting from economies of
scale, those costs are reflected in the different rate structures
applicable to large and small VRS providers.
50. The Commission seeks comment from all interested parties. Small
entities are encouraged to bring to the Commission's attention any
specific concerns they may have with the proposals outlined in document
FCC 19-39. The Commission expects to consider the economic impact on
small entities, as identified in comments filed in response to document
FCC 19-39, in reaching its final conclusions and taking action in this
proceeding.
Federal Rules Which Duplicate, Overlap, or Conflict With, the
Commission's Proposals
51. None.
List of Subjects in 47 CFR Part 64
Individuals with disabilities, Telecommunications, Telephones.
Federal Communications Commission.
Marlene Dortch,
Secretary.
Proposed Rules
For the reasons discussed in the preamble, the Federal
Communications Commission proposes to amend 47 part 64 as follows:
PART 64--MISCELLANEOUS RULES RELATING TO COMMON CARRIERS
0
1. The authority citation for part 64 continues to read as follows:
Authority: 47 U.S.C. 154, 201, 202, 217 218, 220, 222, 225,
226, 227, 228, 251(a), 251(e), 254(k), 262, 403(b)(2)(B), (c), 616,
620, and 1401-1473, unless otherwise noted.
0
2. Amend Sec. 64.604 by revising paragraph (c)(5)(iii)(D)(1) to read
as follows:
Sec. 64.604 Mandatory minimum standards.
* * * * *
(c) * * *
(5) * * *
(iii) * * *
(D) * * *
(1) TRS providers seeking compensation from the TRS Fund shall
provide the administrator with true and adequate data, and other
historical, projected and state rate related information reasonably
requested to determine the TRS Fund revenue requirements and payments.
TRS providers shall provide the administrator with the following: total
TRS minutes of use, total interstate TRS minutes of use, total
operating expenses and total TRS investment in general in accordance
with part 32 of this chapter, and other historical or projected
information reasonably requested by the administrator for purposes of
computing payments and revenue requirements.
* * * * *
0
3. Amend Sec. 64.611 by revising paragraphs (a)(4) and (a)(6)(ii)(A)
and by adding paragraphs (a)(6)(vi) through (viii) to read as follows:
Sec. 64.611 internet-based TRS registration.
(a) * * *
(4) TRS User Registration Database information for VRS.
(i) Registration information. Prior to requesting compensation from
the TRS Fund for service provided to a consumer, a VRS provider shall
obtain the consumer's:
(A) Full name;
(B) Date of birth;
(C) Full residential address;
(D) Telephone number; and
(E) Last four digits of the consumer's Social Security number or
Tribal identification number.
(ii) Registration submission. Each VRS provider shall collect and
transmit to the TRS User Registration Database, in a format prescribed
by the administrator of the TRS User Registration Database, the
following information for each of its new and existing registered
internet-based TRS users: Full name; full residential address; ten-
digit telephone number assigned in the TRS numbering directory; last
four digits of the social security number or Tribal Identification
number, if the registered internet-based TRS user is a member of a
Tribal nation and does not have a social security number; date of
birth; Registered Location; VRS provider name and dates of service
initiation and termination; a digital copy of the user's self-
certification of eligibility for VRS and the date obtained by the
provider; the date on which the user's identification was verified; and
(for existing users only) the date on which the registered internet-
based TRS user last placed a point-to-point or relay call.
(iii) Each VRS provider must obtain, from each new and existing
registered internet-based TRS user, consent to transmit the registered
internet-based TRS user's information to the TRS User Registration
Database. Prior to obtaining consent, the VRS provider must describe to
the registered internet-based TRS user, using clear, easily understood
language, the specific information being transmitted, that the
information is being transmitted to the TRS User Registration Database
to ensure proper administration of the TRS program, and that failure to
provide consent will result in the registered internet-based TRS user
being denied service. VRS providers must obtain and keep a record of
affirmative acknowledgment by every registered internet-based TRS user
of such consent.
(iv) VRS providers must, for existing registered internet-based TRS
users, submit the information in paragraph (a)(3) of this section to
the TRS User Registration Database within 60 days of notice from the
Commission that the TRS User Registration Database is ready to accept
such information. Calls from or to existing registered internet-based
TRS users that have not had their information populated in the TRS User
Registration Database within 60 days of notice from the Commission that
the TRS User Registration Database is ready to accept such information
shall not be compensable.
(v) VRS providers must submit the information in paragraph (a)(4)
of this section upon initiation of service for users registered after
60 days of notice from the Commission that the TRS User Registration
Database is ready to accept such information.
* * * * *
(6) * * *
(ii) * * *
(A) A default VRS provider for an enterprise or public videophone
shall obtain a written certification from the individual responsible
for the videophone, attesting that the
[[Page 26387]]
individual understands the functions of the videophone and that the
cost of VRS calls made on the videophone is financed by the federally
regulated Interstate TRS Fund, and for enterprise videophones, that the
organization, business, or agency will make reasonable efforts to
ensure that registered VRS users are permitted to use the phone for
VRS.
* * * * *
(vi) Beginning 180 days after notice from the Commission that the
TRS User Registration Database and TRS Numbering Directory are ready to
process log-in information from enterprise and public videophones, VRS
calls at such videophones shall not be compensable from the TRS Fund
unless the videophone has been registered in accordance with this
section, the videophone user is a registered VRS user, and the
videophone user has logged into the videophone.
(vii) Only one user may be logged into an enterprise or public
videophone at any time, except that, for an enterprise videophone
located at a reception desk or other work area, up to five users may be
logged in simultaneously, provided that the phone is configured so that
each user must select his or her individual user profile before
answering or placing a call. Providers shall keep records of users that
are pre-authorized under this paragraph and shall discontinue
permission for such automatic use by any individual that the provider
knows or has reason to believe no longer needs access to the device.
(viii) Emergency 911 calls from enterprise and public videophones
and calls from public videophones installed in emergency shelters shall
be exempt from the videophone user log in requirements of paragraph
(a)(6)(vi) of this section.
* * * * *
0
4. Amend Sec. 64.615 by revising paragraphs (a)(2)(i) through (v) to
read as follows:
Sec. 64.615 TRS User Registration Database and administrator.
(a) * * *
(2) * * *
(i) VRS providers shall validate the eligibility of a party using
an enterprise or public videophone by querying the designated database
in accordance with paragraph (a)(1) of this section.
(ii) VRS providers shall transmit with such queries any log-in
information specified in the database administrator's instructions for
validating such calls.
(iii) VRS providers shall require their CAs to terminate any call
which does not include an individual eligible to use VRS or, pursuant
to the provider's policies, the call does not appear to be a legitimate
VRS call, and VRS providers may not seek compensation for such calls
from the TRS Fund.
(iv) Emergency 911 calls from enterprise and public videophones
shall be exempt from the videophone validation requirements of
paragraph (a)(2)(i) of this section.
(v) Emergency 911 calls from enterprise and public videophones and
calls from public videophones installed in emergency shelters shall be
exempt from the videophone user log-in requirements of paragraph (a)(2)
of this section.
* * * * *
[FR Doc. 2019-11210 Filed 6-5-19; 8:45 am]
BILLING CODE 6712-01-P