satcom,
R1 and R2 signaling are completely incompatible. Are you trying to run R2 at one end and R1 at the other?
Normally, and E&M circuit is wink start, meaning that I wink my M lead, which you receive on your E lead. You then insert a tone detector to start receiving the digits that I will send. When you get a connection on your end, you bring your M lead high, which I receive on my E lead, and we consider call established.
The wink is used to reduce the likelihood of glare, or both ends attempting to originate on the same circuit at the same time. It woks in a manner very similar to the way ethernet networks handle collisions.
All that said, I have used pulse E&M once about a million years ago, and can't remember how it worked exactly, other than the fact that the call setup times are unreasonably long. It takes 1 second to pulse a 0, or at least 1/2 of a second if you can configure your equipment to do 20 pps.
You can send 10 digits MF in 1 second.
Where are you that you are using R1 and R2? These are old protocols and subject to toll fraud.
And for mitchld, the best E&M reference that I have ever seen was the manual for a Timplex Link/1, but that was back in the 80s when the only websites were on milnet and arpanet. And they were all text. But try this one and let me know if this is the level of detail that you are looking for:
pansophic