TR45 LAES/2004.08.11.08 R1
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Telecommunications Industry Association
TR-45.2 Intersystem Operations
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Montreal, Quebec, CANADA
August 11, 2004
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TITLE:
Proposed Re-organization of TR45 LAES Work Product
DATE:
August 11, 2004
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SOURCE:
Ben Levitan
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Work:
Mobile:
E-Mail
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703-856-3222
703-856-3222
Ben.Levitan@nextel.com
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ABSTRACT:
This contribution proposes re-organization of the J-STD-025 work and related Lawfully
Authorized Electronic Surveillance work for efficiency.
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RECOMMENDATION:
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Review, discuss and approve recommended proposal.
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Notice
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The contributor grants a free, irrevocable license to the Telecommunications Industry Association (TIA) to incorporate text or other
copyrightable material contained in this contribution and any modifications thereof in the creation of a TIA Publication; to copyright
and sell in TIA's name any TIA Publication even though it may include all or portions of this contribution; and at TIA's sole discretion
to permit others to reproduce in whole or in part such contribution or the resulting TIA Publication. This contributor will also be
willing to grant licenses under such copyrights to third parties on reasonable, non-discriminatory terms and conditions for purpose of
practicing a TIA Publication which incorporates this contribution.
This document has been prepared by NEXTEL Communications to assist the TIA Engineering Committee. It is proposed to the
Committee as a basis for discussion and is not to be construed as a binding proposal on NEXTEL Communications. NEXTEL
Communications specifically reserves the right to amend or modify the material contained herein and nothing herein shall be
construed as conferring or offering licenses or rights with respect to any intellectual property of NEXTEL Communications other than
provided in the copyright statement above.
The company represented by this individual may have patents or published pending patent applications, the use of which may be
essential to the practice of all or part of this contribution incorporated in a TIA Publication and the company represented by this
individual is willing to grant a license to applicants for such intellectual property contained in this contribution in a manner consistent
with 2a) or 2b) of Annex H of the TIA Engineering Manual. A license under any Essential Patent(s) or published pending patent
application(s) held by the undersigned company will be made available under reasonable terms and conditions that are demonstrably
free of any unfair discrimination to applicants only and to the extent necessary for the practice of the TIA Publication.
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TR45 LAES/2004.08.11.08 R1
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Executive Summary
This contribution proposes a reorganization of the Lawfully Authorized Electronic Surveillance work. The
original work was intended for circuit switched systems and was appropriately developed as a joint effort
between the wireless and wireline community.
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Today, a wide variety of networks, systems and technologies have evolved that are under the mandate to
support law enforcement. Attempts to add all the new technologies to J-STD-025, (a circuit switched
solution) have been ineffective and confusing.
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Further, since many vendors required to support CALEA compliance build stand-alone platforms for the
specific technologies, the approach of using “one standard” is inefficient. The current working
arrangement does not lend itself to have the true experts of these technologies involved in the development
of the standard.
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This contribution suggests that:
1) J-STD-025, the current standards document should service two functions.
a. The document becomes the index of to all CALEA solutions, pointing to existing or
developing CALEA standards that are technology or service specific and are developed
by the experts in that technology.
b. The current J-STD-025 standard will becomes a requirements document repository for
CALEA compliance
c. The current J-STD-025 document will break off the section that contains the solution for
circuit switched CALEA compliance as a separate document, which will serve as the
circuit switched telephony solution.
2) TR45 LAES (the ad hoc standards group of TR45) should become a focus group of the TR45
committee and meet as a part of that meeting. The LAES focus group will be the “CALEA
compliance advisory team for the TR45 assuring that any new projects developed have built
CALEA capability into their systems if judged necessary by law enforcement and the FCC (just as
TR45 AHAG takes the role of security review of all new projects.) Further, they can act as
advisors to developers of CALEA solutions rather than attempt to bring the technology experts to
the LAES meetings, which has not been largely successful.
3) There are a number of existing CALEA solutions for various technologies which don’t need to be
reinvented and placed in J-STD-025. These only have to be pointed to in J-STD-025 re-organized
document. To have a document included in the J-STD-025 “Index” the technical committee must
have their document approved through their own standards development process and approved by
the CIS.
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Introduction
Lawfully Authorized Electronic Surveillance (J-STD-025) was originally developed in 1997 in response to
the 103rd Congress of the United States new Public Law 103-414 requiring telecommunications carriers to
provide cooperation with law enforcement in the interception of communications. In the ten years since the
inception of the law, telecommunication capabilities have increased dramatically and the variety of access
types have increased significantly. Further, the network has increasingly become “unbundled” (meaning
that carriers don’t have to buy turnkey networks from a single vendor. Due to standards which define the
network as a series of functional entities, a carrier has the option of building their network using equipment
that is connected together in a compatible manner that comes from multiple vendors.). Further, carriers can
now combine multiple technologies in a network allowing a migration from 2G networks to 3G networks in
an evolutionary manner. J-STD-025 was an appropriate tool for telecommunication providers and law
enforcement in 1994 however in 2004, it has become clear that a single document is unwieldy and is
actually inappropriate as a guide to CALEA compliance.
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J-STD-025 was appropriate for circuit switched switch-centric systems. With the advent of IP networks,
IMS, broadband networks for voice communications and the large number of service specific platforms
such as Multimedia Media Messaging Service (MMS) servers, Push-to-Talk over Cellular (PoC) servers
and fraud systems, a single Surveillance document is no longer appropriate nor is it serving industry’s
needs. Additionally, it is not possible for the TR45 LAES Ad Hoc to gather all the necessary experts
needed to produce technically accurate recommendations for each of the new platforms and technology
networks in service today.
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This contribution proposes a reorganizing of the CALEA documentation to be more useful for service
providers, manufacturers, third-party service providers and law enforcement. TR45 LAES Ad Hoc would
then be responsible for the “Table of Contents” of the plethora of wiretap standards and for the
identification of CALEA mandated capabilities. The technology experts in each specific area will produce
the recommendations with assistance and liaison with TR45 LAES Ad Hoc.
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Scope of LAES
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TR-45 LAES Ad Hoc’s technical areas of responsibility is the development of standards,
recommendations and technical reports to support Law Enforcement’s need in the United States for
surveillance of a subscribers communication use and activity (“wiretap”) when lawfully authorized by
an appropriate court order.
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TR-45 LAES Ad Hoc produces surveillance capabilities for all subscriber useable features, standards
and networks developed by any TIA committee, including circuit switched and packetized network
architectures.
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The original solution for LAES published in 1997 was predominately a solution for the circuit
switched public network and the circuit switched mobile telephony network. As such, a joint
recommendation was appropriate.
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Court challenges, industry negotiations and actual implementations revealed a number of challenges in
the document, which lead to additions, changes and several upgrades.
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Proposal
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This contribution proposes the restructuring of the J-STD-025 series recommendation in order to make
it easier for service providers, manufacturers, third party providers and law enforcement themselves to
develop standards. Further, this new structure enables equipment vendors to more easily build CALEA
compliant systems and allows law enforcement to more easily declare “compliance”.
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This contribution proposes the “unbundling” of J-STD-025 into more manageable pieces that will
allow all parties to more easily use the standards, and easily find the sections of the standard that are
appropriate to their equipment or service.
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For example, companies that provide data only services have no need to understand or implement the
voice capabilities of J-STD-025 however, without implementing the full J-STD-025 they can be
considered “non-compliant”. Further, if that company provides services as a “third party provider” to
a network, it is unclear who is responsible for the CALEA compliance of the equipment. Ultimately,
the Operator is responsible, however, often with third-party solutions, the Operator does not have
access to the data used by the third party thus often point to that equipment as the “network provider”.
Unbundling will solve these problems.
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Justification of Unbundling/Reorganizing
a.
Third Party Scenarios – During the implementation of J-STD-025 in 1999, several operators
were using a third party fraud solution. The solution intercepted ANSI-41 Registration
Messages from visiting systems and performed validation on behalf of the carrier. Under
CALEA, the third parties equipment was part of the carrier’s network; however, since the
network only received a small number of the registration messages they could not report
“Serving System” changes to Law Enforcement. The Operator pointed to the third party as
the “network” responsible for providing this information. The third party, since it only saw
IS-41 registration messages and no voice services, could not become fully CALEA compliant
without a negotiated agreement with Law Enforcement. These negotiations were extensive
and never full resolved. Providing a “recommendation” for the fraud systems would have
solved the problems of both the Operator and the Third Party. This is also the case for
“Messaging Systems” such as stand alone SMS systems, stand alone MMS servers and in the
future PoC services and systems.
b.
Inappropriate Parallels – Much discussion has taken place lately on how to fit Voice over Packet
Networks into J-STD-025. Each section of J-STD-025 has been reviewed and the discussion has
centered on what changes have to be made to support VoP. For example, the circuit switched
section of J-STD-025 requires that after cut through, any dialed digits (DTMF tone) entered by a
subject need to be reported. This was originally intended to determine what numbers are being
dialed by a subject who is using an 800-number calling card to place multiple calls during a single
“call session”. There is not really an appropriate parallel in VoP. Attempting to fit the round pegs
of VoP into the square holes provided by J-STD-025 is simply not appropriate. A separate
recommendation on VoP would be more appropriate, and serve industry and law enforcement
more effectively. Similarly, in other cases of this technology and other new technologies, some
requirements do not "translate" directly from one technology to another, requiring a revision of the
requirement. In other instances, the solutions to provide similar information may be completely
different. There may not be identical parallels of all circuit switched concepts in all technologies.
c.
Future Services Evaluated – The FBI filed with the FCC to review interception requirements
for Broadband, PoC, and other services. These services may provide end-to-end voice
communications without the involvement of a circuit switch public network at all. As such
providing these networks with J-STD-025 as their source for CALEA compliance information
would only be confusing and ineffective.
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Separate needs for separate networks – J-STD designation shows that the recommendation is
a joint effort. In this case the work started as a joint effort of TIA and Committee T1. Today
the two groups work in parallel and there is little “joint” work at this point.
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Simplify voting and balloting – Tremendous confusion has ensued due to the Joint Balloting
process that has been used for LAES. From the first ballot where, TIA approved the ballot
and T1 rejected it, there have been difficulties in maintaining a consistent set of documents.
Unbundling of the recommendation will allow the most technically aware parties to vote on
the separate recommendation as appropriate. For example, in the case of Packet Cable
standards, the Packet Cable Association, with it’s own experts, can develop and approve a
recommendation related to its own technology. TR45 LAES Ad Hoc can update their “index”
to allow parties interested in locating Packet Cable CALEA specifications to easily locate
them.
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Proposed Re-organization of J-STD-025
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The CALEA law Public Law 103-414 has four basic requirements:
1) Expeditiously intercept call content
2) Expeditiously intercept call identifying information
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3) Deliver the information to Law Enforcement at a location away from the carriers premise
4) Make the system unobtrusive and minimize interference. Protect all identities.
This is the basis of the CALEA recommendation. As such it is proposed that the following
reorganization take place. The actual final “names” of the recommendations is not considered here nor
is it pertinent to the discussion at this point. If it is desired, J-STD-025 can be superceded, revised, or
renumbered.
A new recommendation could supercede J-STD-025 and newly numbered
recommendations can be issued based on a new project number.
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The current J-STD-025 work should be RESTRUCTURED into several volumes and modified as such:
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a)
b)
c)
d)
e)
f)
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Volume 1: Introduction to CALEA – Includes the purpose and legal mandate for CALEA.
Much of the existing discussions already in J-STD-025 series can be kept in this section.
Volume II: Description of CALEA – Includes the Stage 0 description of LAES. Much of
this is already well discussed in J-STD-025 and can be reused in this section. Also the Stage
1 descriptions of CALEA in J-STD-025 are appropriate.
Volume III: Encoding for LAES – This section discusses the LAESP developed for
communications to the LEA equipment. Much of the text already in the protocol section of JSTD-025 is still valid.
Volumes IV: NEW SECTION – Development of LAES recommendations for
communications technologies. This section will describe a standardized approach for
developing a recommendation for any new technology. It will provide a checklist for
technology owners to develop a “safe harbor” recommendation. For example, in the case of
third party fraud system provider described on page 4a above, the approach would lead the
developers to the conclusion that they did need to provide CALEA compliance for all call
identifying information they have readily available but not for any of the voice capabilities
required by CALEA. Further, the final recommendation that they would produce would be in
“technology language appropriate terms” rather than the forced terms used in J-STD-025 and
make it easier for the developers to build CALEA into their equipment yet easily meet the
four goals intended by Congress in Public Law 103-414.
Volume V: Definitions and Acronyms for LAES – This section can be pulled right from
the existing LAES J-STD-025 documentation
Part VI: NEW SECTION – Index to LAES recommendations for communications
technologies. This section is simply a living list of recommendations that support CALEA
compliance. It may contain a short description of each technology. An example of the
section is shown:
a. Public Switched Telephone Networks – J-STD-025-A published by TIA. Provides
safe harbor for telecommunication networks that provide circuit switched telephony
services.
b. Multi-media Messaging Service Platforms - Recommendation XXX published by
YYY.
Provides safe harbor for telecommunication platforms that support
Multimedia Messaging.
c. Broadband Networks – Recommendation AAA published by BBB. Provides safe
harbor for stand-alone broadband networks.
d. PoC – Recommendation CCC published by DDD. Provides safe harbor for Push-toTalk over Cellular Networks.
Volume VII: Public Switched Telephone Networks – This section can be pulled right from
the existing LAES J-STD-025-A documentation. This provides the safe harbor for
telecommunication networks that provide circuit switched telephony services.
Volumes VIII – TBD: Individual Volumes developed by TIA Committees for different
technologies/services (as appropriate).
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Proposed Re-alignment of TR45 LAES Ad Hoc Mission and Scope or
disbanding of the Ad Hoc
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After these changes are implemented and the Lawfully Authorized Surveillance documents across the
industry are indexed, there may no longer be a need to have an Ad Hoc for LAES. Updates and
maintenance for the documents can occur under the TR45 committee per standard document
maintenance rules.
If it is determined that the group needs to continue, the group does not need to meet separately from
TR45. Since the attendance to the stand-alone meetings has been minimal in the past two years, it
would benefit the topic to meet as part of TR45 as a whole during the quarterly meeting. The group
could simply be reduced to the status of a focus group.
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Should the group remain as an ad hoc, the mission and scope of TR45 LAES Ad Hoc would need to be
aligned with this re-organization of the J-STD-025 work. The group should be a focal point of
information to TIA/TR-45 members on CALEA work TR45 LAES Ad Hoc would fold back into TR45
as a focus group and perform:
1) Management and tracking of the TIA/TR-45 CALEA projects. They will provide a central
place for law enforcement and carriers to determine what documents are needed to provide
safe harbor. Also advise other TIA/TR-45 committees and possibly external organizations of
the need to develop CALEA standards for their network equipment or systems.
2) Management of Part I to VI of the reorganized J-STD-025. This includes:
a. Adding new requirements for CALEA as determined by court decisions or FCC
action for those technologies within the scope of TIA/TR45 LAES.
b. Updating of the Part VI, the index of recommendation.
c. Voting on the changes to Parts I to VI per TIA procedures.
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Reinstatement of the Goal
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In the end, the goal of this contribution is to assure that the very important law enforcement work move
forward in an efficient manner that satisfies Carriers, Vendors, Users, Law Enforcement and the Public
Interest and further that the maximum participation in the decisions that need to be made for this
deliverable be achieved.
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