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Rules Adopted, More Wireless Handsets for Consumers with Hearing Loss
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Federal Communications Commission DA 12-550
Governing Hearing Aid-Compatible Mobile )
By the Chief, Wireless Telecommunications Bureau and the Chief, Office of Engineering and Technology:
A. Adoption of the 2011 ANSI Standard............................................................................................ 10B. Transitional Testing and Disclosure Requirements for Multi-Band and Multi-Mode Handsets......................................................................................................................................... 14
C. Transition Period for Applying Deployment Benchmarks ............................................................ 21
IV. PROCEDURAL MATTERS................................................................................................................ 24
A. Final Regulatory Flexibility Analysis ............................................................................................ 24B. Final Paperwork Reduction Act Analysis ...................................................................................... 25C. Congressional Review Act............................................................................................................. 26
V. ORDERING CLAUSES....................................................................................................................... 27
APPENDIX A – List of CommentersAPPENDIX B – Final RulesAPPENDIX C – Final Regulatory Flexibility Analysis
The Commission’s wireless hearing aid compatibility rules ensure that consumers with hearing loss are able to access wireless communications services through a wide selection of handsets without experiencing disabling radio frequency (RF) interference or other technical obstacles. In order to ensure that the hearing aid compatibility rules cover the greatest number of wireless handsets and reflect recent technological advances, the Wireless Telecommunications Bureau (WTB) and Office of Engineering and Technology (OET) adopt in this Third Report and Order, pursuant to authority delegated by the Commission, the most current hearing aid compatibility technical standard.
The standard that we adopt today was developed through a voluntary, consensus-driven approach and is broadly supported by both industry and consumer groups. We extend our appreciation for the efforts of the many parties involved in developing this standard. We strongly encourage all parties to continue their efforts to refine and develop standards applicable to new telephone technologies that may create potential for interference with hearing aids.
To ensure that a selection of digital wireless handset models is available to consumers with hearing loss, the Commission’s rules require both manufacturers and service providers to meet defined benchmarks for deploying hearing aid-compatible wireless phones. Specifically, manufacturers and service providers are required to offer minimum numbers or percentages of handset models that meet technical standards for compatibility with hearing aids operating in both acoustic coupling and inductive coupling modes.1 These benchmarks apply separately to each air interface for which the manufacturer or service provider offers handsets.2
To define and measure the hearing aid compatibility of handsets, the Commission’s rules reference the 2007 revision of American National Standards Institute (ANSI) technical standard C63.19 (the “2007 ANSI Standard”), formulated by the Accredited Standards Committee C63® – Electromagnetic Compatibility (ASC C63®).3 A handset is considered hearing aid-compatible for acoustic coupling if it meets a rating of at least M3 under the 2007 ANSI Standard.4 A handset is considered hearing aid-compatible for inductive coupling if it meets a rating of at least T3.5 The 2007 ANSI Standard specifies testing procedures for determining the M-rating and T-rating of digital wireless handsets that operate over the air interfaces that, at the time it was promulgated, were commonly used for wireless services in the 800-950 MHz and 1.6-2.5 GHz bands.
1 47 C.F.R. § 20.19(c), (d). Hearing aids operating in acoustic coupling mode receive through a microphone and then amplify all sounds surrounding the user, including both desired sounds, such as a telephone’s audio signal, and unwanted ambient noise. Hearing aids operating in inductive coupling mode turn off their microphone to avoid amplifying unwanted ambient noise, instead using a telecoil to receive only audio signal-based magnetic fields generated by inductive coupling-capable telephones. The hearing aid converts these fields back to sound or a signal appropriate for cochlear implant users.
2 Id. The term air interface refers to the technology that ensures compatibility between mobile radio service equipment, such as handsets, and a service provider’s base stations. To further ensure that the handsets available to consumers with hearing loss include the newest and most advanced technologies, manufacturers are required to partially refresh their offerings of hearing aid-compatible phones each year, and service providers must offer a range of hearing aid-compatible phones with differing levels of functionality. Id. § 20.19(c)(1)(ii), (c)(4)(ii), (d)(4)(ii).
3 47 C.F.R. § 20.19(b)(1)(ii), (b)(2)(ii).4 47 C.F.R. § 20.19(b)(1)(ii). To use a digital wireless phone with a hearing aid or cochlear implant in acoustic coupling mode, RF interference and other electromagnetic interference from the wireless phone must be controlled. ANSI C63.19 specifies ratings for digital wireless phones, M1 through M4, based on their RF emission levels, with M1 being the highest emissions and M4 the lowest emissions. The standard also provides a methodology for rating hearing aids from M1 to M4 based on their immunity to interference, with M1 being the least immune and M4 the most immune. To determine whether a particular digital wireless phone is likely to interfere with a particular hearing aid, the immunity rating of the hearing aid is added to the emissions rating of the wireless phone. A sum of 4 indicates that the wireless phone will be usable; a sum of 5 indicates that the wireless phone will provide normal use; and a sum of 6 or greater indicates that the wireless phone will provide excellent performance with that hearing aid. See Accredited Standards Committee C63® – Electromagnetic Compatibility, American National Standard Methods of Measurement of Compatibility between Wireless Communications Devices and Hearing Aids, ANSI C63.19-2007 (June 8, 2007) at 5.
5 47 C.F.R. § 20.19(b)(2)(ii). Handsets are rated from T1 to T4 for inductive coupling capability in a similar manner to the M-ratings.
ASC C63® recently adopted an updated version of ANSI C63.19 (the “2011 ANSI Standard”). The 2011 ANSI Standard was published on May 27, 2011,6 and ASC C63® subsequently requested that the Commission adopt this newer version of the standard into its rules.7 The 2011 ANSI Standard expands the operating frequency range for covered wireless devices to 698 MHz - 6 GHz.8 It also establishes a direct method for measuring the RF interference level of wireless devices to hearing aids, which enables testing procedures to be applied to operations over any RF air interface or protocol.9 In addition, the 2011 ANSI Standard exempts from testing certain low power transmitters that are unlikely to cause unacceptable RF interference to hearing aids and deems those transmitters to meet an acceptable M rating.10
To ensure that the hearing aid compatibility standard codified in the rules remains current, the Commission has delegated to the Chief of WTB and the Chief of OET limited authority to update its rules as revisions to ANSI technical standard C63.19 are published.11 In particular, the Commission delegated the authority to conduct a notice-and-comment rulemaking proceeding on the use of future versions of the standard that do not raise major compliance issues.12 In addition, the Commission delegated authority to the Chief of WTB and the Chief of OET to conduct rulemaking proceedings to adopt future versions of the ANSI Standard that add frequency bands or air interfaces not covered by previous versions, if the new version does not impose materially greater obligations than those imposed on services already subject to the hearing aid compatibility rules.13 Under Section 20.19(k)(1), WTB and OET shall set an effective date for new obligations imposed on manufacturers and Commercial Mobile Radio Service (CMRS) providers as a result of their adoption of technical standards for additional frequency bands and air interfaces that is no less than one year after release of the order for manufacturers and Tier I carriers14 and no less than 15 months after release for other service providers.15
6 See Accredited Standards Committee C63® – Electromagnetic Compatibility, American National Standard Methods of Measurement of Compatibility between Wireless Communications Devices and Hearing Aids, ANSI C63.19-2011 (May 27, 2011). The standard is available for purchase from IEEE Operations Center, 445 Hoes Lane, Piscataway, NJ 08854-4141, by calling (732) 981-0060, or going to http://www.ieee.org. A copy of the standard is also available for inspection at the Federal Communications Commission (FCC), 445 12th St., SW., Reference Information Center, Room CY-A257, Washington, DC 20554.
7 See Supplemental Report and Comments of ANSI ASC C63®, WT Docket Nos. 07-250, 01-309, 06-150, at 3 (June 24, 2011) (ASC C63® Supplemental Report).
8 See 2011 ANSI Standard at 13.9 Id. at 12, 14-15. As a result of the change to a direct measurement methodology, the 2011 ANSI Standard is also able to eliminate certain conservative assumptions that were incorporated into the 2007 ANSI Standard. Thus, for example, it will be approximately 2.2 dB easier for a GSM phone to receive an M3 rating under the 2011 ANSI Standard. See ASC C63® Supplemental Report, Annex A at iv.
10 2011 ANSI Standard at 12-13; see ASC C63® Supplemental Report, Annex A at ii.11 See Amendment of the Commission’s Rules Governing Hearing Aid Compatible Mobile Handsets, WT Docket No. 07-250, Second Further Notice of Proposed Rulemaking, 26 FCC Rcd 14991, 14993 ¶ 4 (2011) (Second Further Notice) (describing Commission’s goal of ensuring that the hearing aid compatibility standard codified in the rules would remain current).
12 47 C.F.R. § 20.19(k)(2).13 Id. § 20.19(k)(1).14 Tier I carriers are CMRS providers with nationwide footprints. See Revision of the Commission’s Rules to Ensure Compatibility with Enhanced 911 Emergency Calling Systems; Phase II Compliance Deadlines for Non-Nationwide Carriers, CC Docket No. 94-102, Order to Stay, 17 FCC Rcd 14841, 14843 ¶ 7 (2002). Tier II carriers are non-nationwide mid-sized CMRS providers with more than 500,000 subscribers as of the end of 2001. Tier III 3
On November 1, 2011, we released the Second Further Notice, which drew upon the request of ASC C63® to adopt the 2011 ANSI Standard as an applicable technical standard for evaluating the hearing aid compatibility of wireless handsets. In the Second Further Notice, we tentatively concluded to adopt the 2011 ANSI Standard.16 We proposed a 12-month transition period during which multi-band and/or multi-mode handset models with certain operations not covered by the 2007 ANSI Standard could continue to be tested under that standard and launched as hearing aid-compatible with appropriate disclosure.17 We also sought comment on whether a transition period of two years, with an additional three months for non-Tier I service providers, would be appropriate before applying handset deployment benchmarks to handset operations over air interfaces and frequency bands that are newly covered under the 2011 ANSI Standard.18
Comments were due January 13, 2012, and reply comments were due January 30, 2012. We received six comments and four reply comments. Comments came from parties representing a range of interests, including handset manufacturers, service providers, hearing loss advocacy groups, and hearing aid manufacturers.19 While commenters generally support adoption of the 2011 ANSI Standard as proposed, they express differing views regarding transition time frames, and some commenters request that we clarify aspects of the 2011 ANSI Standard’s implementation.
In the discussion below, we find that the 2011 ANSI Standard offers benefits both to manufacturers and service providers and to consumers, and we therefore add it as an applicable standard alongside the 2007 version of the technical standard in the Commission’s rules. We adopt a transition period of 12 months during which new multi-band and multi-mode handsets that include operations not covered by the 2007 version of the standard may be designated as hearing aid-compatible based on testingof only those operations that are covered under the 2007 ANSI Standard. In addition to the current disclosure rule that applies to handsets that have not been tested for hearing aid compatibility for some of their operations,20 we adopt a general disclosure requirement to inform users about any operations in such handsets that the manufacturer may have tested under the 2011 version and found not to meet hearing aid compatibility criteria for those operations prior to submitting the handset for certification under the 2007 ANSI Standard. We also adopt a 24-27 month transition period for applying the Commission’s existing deployment benchmarks to manufacturers’ and service providers’ offerings of handsets operating over newly covered frequency bands and air interfaces. We find that these rule changes will not impose undue carriers are non-nationwide small CMRS providers with no more than 500,000 subscribers as of the end of 2001. See id. at 14846-48 ¶¶ 19-24.
15 47 C.F.R. § 20.19(k)(1). The current hearing aid compatibility rules apply only to certain CMRS providers and to the manufacturers of handsets used to deliver those services, and the Commission has not delegated authority to expand the rules’ applicability beyond those services. In a separate Notice, the Commission has proposed rules to extend hearing aid compatibility requirements to all customer equipment used to provide wireless voice communications over any type of network among members of the public or a substantial portion of the public via a built-in speaker where the equipment is typically held to the ear. See Amendment of the Commission’s Rules Governing Hearing Aid-Compatible Mobile Handsets, WT Docket No. 07-250, Policy Statement and Second Report and Order and Further Notice of Proposed Rulemaking, 25 FCC Rcd 11167, 11192-11200 ¶¶ 74-93 (2010) (Second R&O and Further Notice).
16 Second Further Notice, 26 FCC Rcd at 14994 ¶ 6.17 Id. at 14994-95, 14996 ¶¶ 7, 9.18 Id. at 14995-96 ¶ 8.19 A full list of commenters and the short forms by which they are referenced is in Appendix A.20 See 47 C.F.R. § 20.19(f)(2).
burdens on manufacturers and service providers, including small wireless carriers and other small entities, and will benefit consumers with hearing loss by facilitating their access to the newest wireless communications services through a wider selection of hearing aid-compatible handsets.
Adoption of the 2011 ANSI Standard
We hereby adopt the 2011 ANSI Standard, as proposed, as an applicable technical standard for evaluating the hearing aid compatibility of wireless phones. The commenters unanimously support this proposal.21 Codification of the 2011 ANSI Standard serves the public interest by applying the Commission’s hearing aid compatibility rules to operations over additional frequency bands and air interface technologies. The new testing methodologies in the 2011 ANSI Standard will also greatly improve the measurement of potential hearing aid interference. We find that adopting this new technical standard will not raise any major compliance issues or impose materially greater obligations with respect to newly covered frequency bands and air interfaces than those already imposed under the Commission’s rules. We also find no evidence that adopting the 2011 ANSI Standard will impose significant costs on manufacturers or service providers.22
As set forth in the proposed rules in the Second Further Notice, the new rules will permit new handset models to be tested for certification using either the 2007 or 2011 ANSI Standard.23 All existing grants of certification issued under the 2007 ANSI Standard, as well as any pre-2010 grants under earlier versions of ANSI C63.19,24 remain valid, and no existing handset models will need to be retested or recertified as hearing aid-compatible.25 Consistent with existing rules that do not permit a handset model to be certified partly under one version of the ANSI Standard and partly under another,26manufacturers must test each new handset model either exclusively under the 2007 ANSI Standard or exclusively under the 2011 ANSI Standard both during and after the 12-month transition period discussed below.27
21 See AT&T Reply Comments at 1-2; Consumer Groups Comments at 1; CTIA Comments at 2, 4; HIA Comments at 1-2; RCA Reply Comments at 1-2; Samsung Comments at 2; Sprint Comments at 1; TIA Comments at 2-3.
22 CTIA states that adoption of the new standard is unlikely to raise any new or additional major compliance issues or impose materially greater obligations with respect to handsets operating in newly covered frequency bands and air interfaces, and CTIA goes on to state that if compliance costs increase significantly in the future, then the Commission should expeditiously revise its rules to address these cost increases. CTIA Comments at 8. We will evaluate any such future costs and address them as necessary in the Commission’s ongoing hearing aid compatibility proceedings. See generally Second Further Notice, 26 FCC Rcd at 14994 ¶ 5.
23 Second Further Notice, 26 FCC Rcd at 14999 App. A (setting forth proposed rule Sections 20.19(b)(1) and (2)). 24 47 C.F.R. § 20.19(b)(1)(ii), (b)(2)(ii) (stating that grants of certification issued before January 1, 2010, under earlier versions of ANSI C63.19 remain valid).
25 Several commenters requested that we clarify that handsets already certified under the 2007 ANSI Standard will continue to be treated as hearing aid-compatible without any need for recertification. See AT&T Reply Comments at 5; CTIA Comments at 6-7; RCA Reply Comments at 2; Sprint Comments at 2. This was our intent, and it is reflected in the rules both as proposed and as adopted. See infra App. B (Final Rules Section 20.19(b)(1), (2)).
26 Wireless Telecommunications Bureau and Office of Engineering and Technology Clarify Use of Revised Wireless Phone Hearing Aid Compatibility Standard, Public Notice, 21 FCC Rcd 6384, 6385 (2006) (“Applicants for certification may rely on only one version of the ANSI C63.19 standard, 2001, 2005 or 2006, and must identify which version they are using for compatibility testing and for rating wireless phones, consistent with 47 C.F.R. § 2.947(b).”); Amendment of the Commission’s Rules Governing Hearing Aid-Compatible Mobile Handsets, WT Docket No. 07-250, First Report and Order, 23 FCC Rcd 3406, 3439 ¶ 82 (2008) (“[A] party can use either the 2006 or 2007 standard for new certifications through 2009, but must use a single version for all certification tests and criteria for both the M and T ratings with respect to a given device.”).
27 See infra paras. 14-20.
While supporting adoption of the 2011 ANSI Standard, some commenters ask the Commission to provide additional guidance on certain testing techniques under the standard so that test equipment can be developed and the relevant tests applied. In particular, Samsung states that guidelines are required to facilitate use of the Modulation Interference Factor (MIF) testing technique.28 Similarly, some commenters contend that guidance is necessary to enable hearing aid compatibility testing under the 2011 ANSI Standard for Voice over Long Term Evolution (VoLTE) transmissions.29 We anticipate that the manufacturers and standards bodies working with OET will be able quickly to develop guidance for the MIF testing techniques and for determination of the M rating for VoLTE transmissions. To the extent such guidance has not been issued, OET will work with manufacturers to the extent of its authority so that the manufacturers can provide test reports that sufficiently demonstrate compliance with the rules as required by Section 2.1033(d) of the rules.30 We recognize, however, that it may take longer to develop guidance for testing the inductive coupling capability of VoLTE transmissions under the 2011 ANSI Standard. Accordingly, as discussed below, until such guidance is issued, OET will adapt its certification procedures so that manufacturers can use the 2011 ANSI Standard for these handsets during a 12-month transition period.31 We further note that under the rules we adopt today, as an alternative to using the 2011 ANSI Standard, handsets introduced during the 12-month transition period may be tested under the 2007 ANSI Standard for their operations that are covered under that standard and treated as hearing aid-compatible only for those operations.32 Finally, because Section 2.1033(d) currently refers to the U-ratings that were used in early versions of ANSI Standard C63.19,33 we also take this opportunity to conform this rule to the terminology used in the 2007 and 2011 ANSI Standards. We find good cause not to provide public notice and an opportunity for comment on this rule change under Section 553(b)(3)(B) of the Administrative Procedure Act because the change is purely ministerial and necessary to conform the Commission’s written rules to ANSI Standard C63.19.34
In addition to the need for technical guidance, commenters raise two other issues related to the 2011 ANSI Standard. While it supports the standard’s adoption, HIA is concerned that certain low power devices that are deemed M4 without testing under the 2011 ANSI Standard because they are unlikely to cause interference may in fact cause interference to hearing aids.35 As HIA suggests, we will work with ASC C63® to monitor how these handsets perform and will consider future action if needed. 28 See Samsung Comments at 4-5: see also TIA Comments at 4 (stating that additional transition time is necessary so that the Commission can issue guidance and MIF testing equipment can be developed).
29 See AT&T Reply Comments at 3; CTIA Reply Comments at 9-10; Samsung Comments at 5. VoLTE is a technology that will enable LTE systems, which were originally designed for data, to be used for voice communications. Because VoLTE has not yet been implemented, handsets that include LTE capability currently rely on other air interfaces for voice transmissions. VoLTE refers to the native voice capability of an LTE system, and it is distinguished from Voice over Internet Protocol capability that may be provided over LTE through a third-party application. Questions regarding hearing aid compatibility testing for voice capabilities offered through third-party applications will be addressed separately by the Commission. See Second R&O and Further Notice, 25 FCC Rcd at 11198-99 ¶ 89 (seeking comment on how rules should address circumstances where voice capability may be enabled by a party other than the manufacturer).
30 47 C.F.R. § 2.1033(d).31 See infra para. 17.32 See infra paras. 14-20.33 See 47 C.F.R. § 2.1033(d).34 5 U.S.C. § 553(b)(3)(B); see also 47 C.F.R. § 0.241(a)(1) (delegating authority to OET to make editorial changes to rules).
35 HIA Comments at 4.
Also, Consumer Groups, in light of the more accurate testing methodology under the 2011 ANSI Standard, advocate eliminating the existing rule that allows phones operating over the GSM air interface in the 1900 MHz band to be tested with reduced power under some circumstances.36 As Consumer Groups acknowledge, this issue is outside the scope of the Second Further Notice, and the Commission will address it separately.37
Transitional Testing and Disclosure Requirements for Multi-Band and Multi-Mode Handsets
As proposed in the Second Further Notice and Multi-Band Principles,38 we adopt a 12-
month transition period for testing of multi-band and multi-mode handsets that incorporate operations which are not covered under the 2007 ANSI Standard. Specifically, for the 12 months following Federal Register publication of rules adopting the 2011 ANSI Standard, as an alternative to using the 2011 ANSI Standard, we will permit manufacturers to certify such handsets as hearing aid-compatible if they meet hearing aid compatibility criteria under the 2007 ANSI Standard for all operations covered under that standard, provided they meet the disclosure obligations set forth below.39 After the end of the 12-month transition period, any new handset model containing operations that are not covered under the 2007 ANSI Standard will have to meet hearing aid compatibility criteria under the 2011 ANSI Standard for all of its operations in order to be considered hearing aid-compatible over any air interface.40 Handset models that are certified under the transitional rule during the 12-month transition period, however, may continue to be counted and marketed as hearing aid-compatible after the transition period has ended without additional testing or certification.
Several commenters explicitly support adopting a transition period for testing of handsets with newly covered operations,41 and none oppose this proposal. The transitional rule recognizes that at the time the new rules become effective, some manufacturers will be