2. Background
2.1. Definition and Development of 211 Service
Upon dialing 211, where 211 service is active, a caller is routed to a 211 call center,1 and then to an agency that can provide information concerning social services such as assistance with housing, utility bills, food, child care, senior services, counseling, job services, and other non-emergency situations not currently addressed by either 911 or 311 services.2
On July 31, 2000, the Federal Communications Commission (FCC) issued its N11 Third Report and Order assigning the 211 dialing code as a national abbreviated dialing code to be used for access to community information and referral (I&R) providers.3 The FCC also noted the assignment of the 211 code to I&R providers satisfied the public interest standards for assignments of N11 codes, recognized a great public need could be met through the implementation of a 211 dialing program, and encouraged States to implement 211 programs.4 Furthermore, the FCC directed that "states will be allowed to continue to make local assignments that do not conflict with our national assignments."5
On January 23, 2002, the Commission instituted Rulemaking (R.) 02-01-025 to determine whether and how a 211 program would be implemented in California. On February 13, 2003, the Commission issued Decision (D.) 03-02-029, which adopted the regulatory policies, procedures, and guidelines needed to implement 211 dialing in California, in conformance with the FCC delegation of authority to the states.
2.2. The Current Rulemaking
2-1-1 California is a joint endeavor of California Association of Information and Referral Services6 and the United Way of California to implement 211 services across California. In particular, 2-1-1 California works with local, state, and federal government agencies and legislators on solutions that will guarantee everyone in California is able to find help by calling 2-1-1. 2-1-1 California has also worked closely with emergency service providers and the California Office of Emergency Services, especially in regard to statewide disaster preparedness.7
On February 4, 2010, pursuant to Public Utilities (Pub. Util.) Code § 1708.5 and Rule 6.3 of the Rules of Practice and Procedure,8 2-1-1 California, filed its Petition of 2-1-1 California to Designate Lead Entity and to Enable Emergency Access to 211 services in Counties and Localities without Existing 211 Centers (Petition).9
In response to 2-1-1 California's petition on June 3, 2010, the Commission issued its Order Instituting Rulemaking Regarding Whether to Allow Access to 211 Services in Counties and Localities Without 211 Centers.10 No hearings were held in the current rulemaking, but two workshops were held, in which parties were able to voice their suggestions and concerns regarding the proposed revisions to the 211 program. A complete record has been developed from the parties' filing of comments, responses to requests from the assigned ALJ, and the transcripts from the two workshops.11 This record and D.03-02-029 provide the information set forth in Sections 3 and 4 below.
This decision does not address the provision of 911 service. 911 service remains the number to call in life-threatening situations.
1 A 211 call center is the local or regional office in which information and referral (I&R) specialists (or 211 service providers) receive and respond to calls from the public, and provide information and referral to local health and human services agencies and organizations.
2 911 is called when someone wants to report a crime in progress or a fire, or requests an ambulance. 311 is called when non-emergency municipal services are required, such as removal of debris in the street, potholes, and non-working street lights.
3 N11 Third Report and Order at Ordering Paragraph 52 (July 31, 2001).
4 Id. at 21.
5 Id. at 43.
6 Members include 211 service providers operating in California.
7 See 2-1-1 California's report Trial By Fire: How 2-1-1's Regional Response to the 2007 Southern California Wildfires Underscored the Need for a Statewide Network at 6-7. http://www.211us.org/documents/211Wildfires.pdf
8 All subsequent references to "Commission Rules" are to the Commission's Rules of Practice and Procedure, Chapter 1, Division 1 of Title 20 of the California Code of Regulations. The current version is available on the Commission's website: http://docs.cpuc.ca.gov/published/RULES_PRAC_PROC/105138.htm.
9 Section 1708.5 authorizes "interested persons to petition the commission to adopt, amend, or repeal a regulation." Pursuant to Pub. Util. Code § 1708.5, the Commission considers the petition and, within six months, either denies the petition or institutes a proceeding to adopt, repeal, or amend the regulation in question.
10 Parties to this Rulemaking include 2-1-1 California, the Division of Ratepayer Advocates (DRA), AT&T, California Cable & Telecommunications Association (CCTA), Verizon Wireless, Caltel, and Access Humboldt.
11 For details of the various comments and responses filed by the parties, see Sections 7 and 8 of this decision.
