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https://tools.ietf.org/html/rfc7641#section-4.5 In order not to cause congestion, servers MUST strictly limit the number of simultaneous outstanding notifications/responses that they transmit to a given client to NSTART (1 by default; see Section 4.7 of RFC 7252 [RFC7252]). An outstanding notification/response is either a confirmable message for which an acknowledgement has not yet been received and whose last retransmission attempt has not yet timed out or a non-confirmable message for which the waiting time that results from the following rate-limiting rules has not yet elapsed. Delay sending of PDUs if active CON request waiting for ACK. Do not start of another Observer unsolicited response if active CON waiting waiting for ACK. Display outgoing PDU if log level DEBUG or higher to help troubleshooting. This does not fix the ratelimiting of non-confirmable messages, which should be handled by the application.