Source: https://www.federalregister.gov/documents/2012/09/05/2012-21336/facilitating-the-use-of-microwave-for-wireless-backhaul-and-other-uses-and-providing-additional
Timestamp: 2018-02-21 10:25:12
Document Index: 745627415

Matched Legal Cases: ['art 101', 'art 101', '§\u2009101', '§\u2009101', '§\u2009101', '§\u2009101', '§\u2009101', '§\u2009101', '§\u2009101', '§\u2009101', '§\u2009101', '§\u2009101', '§\u20091', '§\u20091', '§\u20091', '§\u2009101', '§\u2009101', '§\u2009101', '§\u2009101', '§\u2009101']

A Proposed Rule by the Federal Communications Commission on 09/05/2012
Submit comments on or before October 5, 2012. Submit reply comments on or before October 22, 2012.
54511-54517 (7 pages)
https://www.federalregister.gov/d/2012-21336 https://www.federalregister.gov/d/2012-21336
Federal Communications Commission, 445 12th Street SW., Washington, DC 20554. You may submit comments, identified by FCC 12-87, or by WT Docket No. 10-153, or by any of the following methods:
Federal Communications Commission's Web Site: http:// www.fcc.gov/cgb/ecfs/.. Follow the instructions for submitting comments.
For further information contact John Schauble, Deputy Chief, Wireless Telecommunications Bureau, Broadband Division, at 202-418-0797 or by email to John.Schauble@fcc.gov.
This is a summary of the Commission's Second Further Notice of Proposed Rulemaking and Second Notice of Inquiry, FCC 12-87, adopted and released on August 3, 2012. The full text of this document is available for inspection and copying during normal business hours in the FCC Reference Information Center, Room CY-A257, 445 12th Street SW., Washington, DC 20554. The complete text may be purchased from the Commission's duplicating contractor, Best Copy and Printing, Inc. (BCPI), Portals II, 445 12th Street SW., Room CY-B402, Washington, DC 20554, (202) 488-5300, facsimile (202) 488-5563, or via email at fcc@bcpiweb.com. The complete text is also available on the Commission's Web site at http://hraunfoss.fcc.gov/edocs_public/attachmatch/FCC-12-87A1.doc. Alternative formats (computer diskette, large print, audio cassette, and Braille) are available by contacting Brian Millin at (202) 418-7426, TTY (202) 418-7365, or via email to bmillin@fcc.gov.
1. In this Second Further Notice of Proposed Rulemaking, we continue our efforts to improve and modernize our rules and increase the flexibility of our part 101 rules to promote wireless backhaul. We seek more detailed comment on specific proposals made by parties to allow use of smaller antennas and wider channels in other part 101 microwave bands. We also seek comment on a proposal to revise our rules to change our treatment of smaller antennas in the 10.7-11.7 GHz band (11 GHz band).
This concept was codified in § 101.115(f) of the Commission's rules.
6. Comsearch argues that allowing a licensee to reduce its EIRP from the maximum allowed by the rule negates the intent of the rule and does not provide proper interference protection. According to Comsearch, most 11 GHz links operate with far less power than the maximum authorized under the rules. Comsearch argues that if a link using a Category B antenna is operating significantly below the maximum power authorized under our rules, it will not have to modify the link because its power is already below the power radiated using a Category A antenna with maximum power. Comsearch asks that § 101.115(f) of the Commission's rules be modified to replace the phrase “and operating with the maximum EIRP allowed by the rules” with “and operating with the authorized EIRP.”
7. The Fixed Wireless Communications Coalition (FWCC) generally supports Comsearch's request for relief. FWCC is concerned, however, that Comsearch's proposed rule change would give applicants incentives to apply for more power they need in case a later applicant raises an interference concern. FWCC offers two proposals for addressing that concern. FWCC's first proposal is to add language to § 101.115(f) limiting the circumstances under which a licensee could reduce EIRP without changing to a Category A antenna. Alternatively, FWCC proposes to amend § 101.113 of the Commission's rules to clarify that a licensee may not hold an authorization for substantially more power than it actually needs.
8. We seek comment on amending §§ 101.103 and 101.115(f) of the Commission's rules to address the concerns raised by Comsearch and FWCC. We note that theoretically, the existing rules could allow licensees using lower EIRP to avoid having to change antennas to correct interference problems. At the same time, § 101.115(f) has been in effect for several years, and we are unaware of instances where this rule has led to interference disputes or precluded the placement of links in an area. We ask proponents of this change to provide examples of instances where the existing rules have led to interference problems or precluded other users from using 11 GHz spectrum within a given area. We also ask commenters to provide specific data on the costs and benefits associated with this proposed rule change.
9. If rule changes are appropriate, we tentatively conclude that the best method of resolving the issue would be to change the term “maximum EIRP” to “authorized EIRP” and making the changes to § 101.113 proposed by FWCC. The term “authorized EIRP” is subjective since applicants select the power at which they propose to operate. Absent some additional limitations in the rule, we agree with FWCC that merely inserting the term “authorized EIRP” into § 101.115(f) would give applicants incentive to propose excessive power. Of the two alternatives offered by FWCC, it appears that the proposed changes to § 101.113 would maximize licensee flexibility to resolve interference issues while clearly stating that applicants must request the minimum power necessary. We seek comment on this tentative conclusion, and any associated benefits or costs of this proposal.
10. Currently, if a licensee must upgrade its antenna in order to resolve an interference problem, it must upgrade to an antenna meeting the higher Category A standards contained in our rules. We propose to allow licensees to make lesser upgrades (i.e., to an antenna that does not meet Category A standards) if the lesser upgrade would resolve the interference.
15. We believe it would be appropriate to seek input on whether a comprehensive review of our antenna standards is appropriate and what changes would be appropriate as part of that review. We ask commenters to offer specific proposals and rule language so that the Commission and parties can evaluate the proposals and offer meaningful comment. We ask whether we can tighten our antenna standards while still allowing the affordable deployment of wireless backhaul facilities. Are the ETSI standards a useful benchmark for changing our standards? Are there factors unique to the United States market that justify different standards? Does the fact that many microwave bands are shared with other services affect the appropriate standards? Would changing the standards allow these bands to be used for new and innovative standards? We seek comment on these and other related questions, including any associated costs and benefits.
16. We also seek comment on Comsearch's more specific suggestions. It appears that we would have to replace the existing table in § 101.115 of the Commission's rules with some other means of indicating the appropriate suppression levels. What would be the best means of implementing such a change in our rules? What changes to our rules would be necessary to take into account cross-polarized signals? What would be the costs and benefits of any such rule changes?
19. By issuing this Second Notice of Inquiry, we intend to start a broad discussion of our microwave antenna standards. We invite commenters to raise additional questions and ideas. We also encourage a broad range of affected parties to comment, including current licensees, equipment manufacturers, operators who are interested in using microwave facilities, licensees who share spectrum with microwave operators, frequency coordinators, and other interested parties.
20. The proceeding shall be treated as a “permit-but-disclose” proceeding in accordance with the Commission's ex parte rules. Persons making ex parte presentations must file a copy of any written presentation or a memorandum summarizing any oral presentation within two business days after the presentation (unless a different deadline applicable to the Sunshine period applies). Persons making oral ex parte presentations are reminded that memoranda summarizing the presentation must (1) list all persons attending or otherwise participating in the meeting at which the ex parte presentation was made, and (2) summarize all data presented and arguments made during the presentation. If the presentation consisted in whole or in part of the presentation of data or arguments already reflected in the presenter's written comments, memoranda or other filings in the proceeding, the presenter may provide citations to such data or arguments in his or her prior comments, memoranda, or other filings (specifying the relevant page and/or paragraph numbers where such data or arguments can be found) in lieu of summarizing them in the memorandum. Documents shown or given to Commission staff during ex parte meetings are deemed to be written ex parte presentations and must be filed consistent with rule § 1.1206(b). In proceedings governed by rule § 1.49(f) or for which the Commission has made available a method of electronic filing, written ex parte presentations and memoranda summarizing oral ex parte presentations, and all attachments thereto, must be filed through the electronic comment filing system available for that proceeding, and must be filed in their native format (e.g., .doc, .xml, .ppt, searchable .pdf). Participants in this proceeding should familiarize themselves with the Commission's ex parte rules.
21. Pursuant to §§ 1.415 and 1.419 of the Commission's rules, 47 CFR 1.415, 1.419, interested parties may file comments and reply comments on or before the dates indicated on the first page of this document. Comments may be filed using the Commission's Electronic Comment Filing System (ECFS). See Electronic Filing of Documents in Rulemaking Proceedings, 63 FR 24121 (1998).
Availability of Documents: The public may view the documents filed in this proceeding during regular business hours in the FCC Reference Information Center, Federal Communications Commission, 445 12th Street SW., Room CY-A257, Washington, DC 20554, and on the Commission's Internet Home Page: http://www.fcc.gov. Copies of comments and reply comments are also available through the Commission's duplicating contractor: Best Copy and Printing, Inc., 445 12th Street SW., Room CY-B402, Washington, DC 20554, 1-800-378-3160.
22. This document does not contain proposed information collection(s) subject to the Paperwork Reduction Act of 1995 (PRA), Public Law 104-13. In addition, therefore, it does not contain any new or modified “information collection burden for small business concerns with fewer than 25 employees,” pursuant to the Small Business Paperwork Relief Act of 2002, Public Law 107-198, see 44 U.S.C. 3506(c)(4).
23. As required by the Regulatory Flexibility Act of 1980, as amended (RFA), the Commission has prepared this present Initial Regulatory Flexibility Analysis (IRFA) of the possible significant economic impact on a substantial number of small entities by the policies and rules proposed in this Second Further Notice of Proposed Rulemaking (2nd FNPRM). Written public comments are requested on this IRFA. Comments must be identified as responses to the IRFA and must be filed by the deadlines specified in the 2nd FNPRM for comments. The Commission will send a copy of this 2nd NPRM, including this IRFA, to the Chief Counsel for Advocacy of the Small Business Administration (SBA).
24. In this Second Further Notice of Proposed Rulemaking, we propose five additional changes to our rules involving microwave stations. These changes are described in further detail below. First, we propose to allow the use of smaller antennas in the 12700-13150 MHz band (13 GHz band) fixed service (FS) band. Second, we seek comment on amending our rules for the 11 GHz band to clarify the rules concerning antenna upgrades. Finally, we propose to provide additional flexibility to licensees who must upgrade their antennas to resolve interference issues.
25. With respect to the first proposal, § 101.115(b) of the Commission's rules establishes directional antenna standards designed to maximize the use of microwave spectrum while avoiding interference between operators. The rule on its face does not mandate a specific size of antenna. Rather, it specifies certain technical parameters—maximum beamwidth, minimum antenna gain, and minimum radiation suppression—that, depending on the state of technology at any point in time, directly affect the size of a compliant antenna. Smaller antennas have several advantages. They cost less to manufacture and distribute, are less expensive to install because they weigh less and need less structural support, and cost less to maintain because they are less subject to wind load and other destructive forces. In addition, the modest weight of small antennas makes them practical for installation at sites incapable of supporting large dishes, including many rooftops, electrical transmission towers, water towers, monopoles and other radio towers. Smaller antennas raise fewer aesthetic objections, thereby permitting easier compliance with local zoning and homeowner association rules and generating fewer objections. On the other hand, smaller antennas have increased potential to cause interference because smaller antennas result in more radiofrequency energy being transmitted in directions away from the actual point-to-point link. We seek comment on whether we can allow smaller antennas in the 13 GHz band without producing harmful interference.
27. Finally, we propose to allow licensees to make intermediate antenna upgrades to resolve interference issues. Currently, a licensee using an antenna meeting Category B standards must upgrade to an antenna meeting Category A standards if an antenna upgrade is necessary to resolve an interference issue. Currently, under § 101.115(c) of the Commission's rules, if an existing antenna is insufficient to resolve interference, the operator must upgrade to an antenna meeting performance standard A. There may be instances where an applicant or licensee could resolve an interference issue or conflict by upgrading to an antenna that does not meet Category A standards but would resolve the interference problem. An intermediate upgrade may allow a licensee to maintain operations from an existing site or reduce costs to the point where operation remains economic.
30. Small Businesses, Small Organizations, and Small Governmental Jurisdictions. Our action may, over time, affect small entities that are not easily categorized at present. We therefore describe here, at the outset, three comprehensive, statutory small entity size standards. First, nationwide, there are a total of approximately 27.5 million small businesses, according to the SBA. In addition, a “small organization” is generally “any not-for-profit enterprise which is independently owned and operated and is not dominant in its field.” Nationwide, as of 2007, there were approximately 1,621,315 small organizations. Finally, the term “small governmental jurisdiction” is defined generally as “governments of cities, towns, townships, villages, school districts, or special districts, with a population of less than fifty thousand.” Census Bureau data for 2011 indicate that there were 89,476 local governmental jurisdictions in the United States. We estimate that, of this total, as many as 88,506 entities may qualify as “small governmental jurisdictions.” Thus, we estimate that most governmental jurisdictions are small.
31. Wireless Telecommunications Carriers (except satellite). The appropriate size standard under SBA rules is for the category Wired Telecommunications Carriers. Under that size standard, such a business is small if it has 1,500 or fewer employees. Census Bureau data for 2007, which now supersede data from the 2002 Census, show that there were 3,188 firms in this category that operated for the entire year. Of this total, 3,144 had employment of 999 or fewer, and 44 firms had employment of 1,000 employees or more. Thus under this category and the associated small business size standard, the Commission estimates that the majority of wireless telecommunications carriers (except satellite) are small entities that may be affected by our proposed action.
32. Fixed Microwave Services. Microwave services include common carrier, private-operational fixed, and broadcast auxiliary radio services. At present, there are approximately 31,549 common carrier fixed licensees and 89,633 private and public safety operational-fixed licensees and broadcast auxiliary radio licensees in the microwave services. Microwave services include common carrier, private-operational fixed, and broadcast auxiliary radio services. They also include the Local Multipoint Distribution Service (LMDS), the Digital Electronic Message Service (DEMS), and the 24 GHz Service, where licensees can choose between common carrier and non-common carrier status. The Commission has not yet defined a small business with respect to microwave services. For purposes of the IRFA, the Commission will use the SBA's definition applicable to Wireless Telecommunications Carriers (except satellite)—i.e., an entity with no more than 1,500 persons is considered small. For the category of Wireless Telecommunications Carriers (except Satellite), Census data for 2007, which supersede data contained in the 2002 Census, show that there were 1,383 firms that operated that year. Of those 1,383, 1,368 had fewer than 100 employees, and 15 firms had more than 100 employees. Thus under this category and the associated small business size standard, the majority of firms can be considered small. The Commission notes that the number of firms does not necessarily track the number of licensees. The Commission estimates that virtually all of the Fixed Microwave licensees (excluding broadcast auxiliary licensees) would qualify as small entities under the SBA definition.
33. Satellite Telecommunications and All Other Telecommunications. Two economic census categories address the satellite industry. The first category has a small business size standard of $15 million or less in average annual receipts, under SBA rules. The second has a size standard of $25 million or less in annual receipts.
35. The second category, i.e. “All Other Telecommunications” comprises “establishments primarily engaged in providing specialized telecommunications services, such as satellite tracking, communications telemetry, and radar station operation. This industry also includes establishments primarily engaged in providing satellite terminal stations and associated facilities connected with one or more terrestrial systems and capable of transmitting telecommunications to, and receiving telecommunications from, satellite systems. Establishments providing Internet services or voice over Internet protocol (VoIP) services via client-supplied telecommunications connections are also included in this industry.” For this category, Census Bureau data for 2007 show that there were a total of 2,383 firms that operated for the entire year. Of this total, 2,347 firms had annual receipts of under $25 million and 12 firms had annual receipts of $25 million to $49,999,999. Consequently, the Commission estimates that the majority of All Other Telecommunications firms are small entities that might be affected by our action.
36. This 2nd FNPRM proposes no new reporting or recordkeeping requirements.
38. The actions proposed in the FNPRM would provide additional options to all licensees, including small entity licensees. Such actions will serve the public interest by providing additional flexibility for broadcasters to use microwave spectrum. The rules will therefore open up beneficial economic opportunities to a variety of spectrum users, including small businesses. Because the actions proposed in the FNPRM will improve beneficial economic opportunities for all businesses, including small businesses, a detailed discussion of alternatives is not required.
41. It is ordered that the Commission's Consumer and Governmental Affairs Bureau, Reference Information Center, shall send a copy of this Second Further Notice of Proposed Rulemaking, including the Initial Regulatory Flexibility Analysis, to the Chief Counsel for Advocacy of the Small Business Administration.
42. It is further ordered, pursuant to sections 1, 2, 4(i), 7, 201, 301, 302, 303, 307, 308, 309, 310, 319, 324, 332, and 333 of the Communications Act of 1934, as amended, 47 U.S.C. 151, 152, 154(i), 157, 201, 301, 302, 303, 307, 308, 309, 310, 319, 324, 332, and 333, and section 706 of the Telecommunications Act of 1996, as amended, 47 U.S.C. 1302, that this Second Further Notice of Proposed Rulemaking is hereby adopted and that comment is sought on these proposals.
43. It is further ordered, pursuant to sections 1, 2, 4(i), 7, 201, 301, 302, 303, 307, 308, 309, 310, 319, 324, 332, and 333 of the Communications Act of 1934, as amended, 47 U.S.C. 151, 152, 154(i), 157, 201, 301, 302, 303, 307, 308, 309, 310, 319, 324, 332, and 333, and section 706 of the Telecommunications Act of 1996, as amended, 47 U.S.C. 1302, that this Second Notice of Inquiry is hereby adopted.
2. Amend § 101.113 by revising the first sentence of paragraph (a) introductory text and by revising paragraph (b) to read as follows:
(b) The maximum power of transmitters that use Automatic Transmitter Power Control (ATPC) and the power of non-ATPC transmitters shall not exceed, the power input or output specified in the instrument of station authorization. The power of non-ATPC transmitters shall be maintained as near as practicable to, the power input or output specified in the instrument of station authorization. A licensee that reduces power in order to resolve interference pursuant to § 101.115(f) must update its license to reflect the reduced power level.
3. Amend § 101.115 by revising the entry “12,200 to 13,250” in the table in paragraph (b)(2) and paragraphs (c) and (f) to read as follows:
Maximum beam-width to 3 dB points 1 (included angle in degrees)
12,200 to 13,250 9 A 1.0 n/a 23 28 35 39 41 42 50
B1 2.0 n/a 20 25 28 30 32 37 47
B2 2.0 n/a 17 24 28 32 35 60 60
[FR Doc. 2012-21336 Filed 9-4-12; 8:45 am]