NAS Level Congestion Control

When the network detects EMM signalling congestion, it may perform NAS level
congestion control. The NAS level congestion control consists of general NAS le
vel mobility management control and subscribed APN based congestion control

Under general overload conditions the network may reject mobility managemen
t signalling requests from UEs. The network should not reject requests for emerg
ency bearer services and requests from high priority users
When general NAS level mobility management control is active, the network may pr
ioritize rejecting messages that has the NAS signalling low priority indicator b
efore rejecting messages without the NAS signalling low priority indicator
When the NAS level congestion control is active in mobility management, the netw
ork may include a value for the back-off timer (T3346) in the reject messages
If the UE enters a new PLMN which is not in the list of equivalent PLMNs, it sha
ll stop timer T3346 when initiating mobility management procedures in the new PL
MN
When subscribed APN based congestion control is active for a particular APN, the
network may reject attach request from UEs with a subscription to this APN
A UE configured for NAS signalling low priority indicates this by including the
Device properties IE in the appropriate NAS message and setting the low priority
indicator to "MS is configured for NAS signalling low priority"
The UE shall set the low priority indicator to "MS is not configured for NAS sig
nalling low priority" for the following cases

The UE has a PDN connection for emergency bearer services established or is

establishing a PDN connection for emergency bearer services
15

The UE is accessing the network with access class 11

The UE responds to paging