The issue you raise is not created by IP telephony.
The problem exists from the start of Pay as you go cellphones. There are now huge numbers of these phones circulating, all capable of making emergency calls, and large numbers of them totally untraceable back to an end user, due to various reasons like the user has moved (innocent) through to the user deliberately wanting a communication device that is untraceable so supplied false details to start off with.
However, even with this, I do not currently see the anything different from Brian's listed priorities.
regards
Keith
Keith Drage
Lucent Technologies
drage at lucent.com
tel: +44 1793 776249