Source: http://www.fcc.gov/document/tentative-findings-accessibility-communications-technologies?fontsize=largeFont
Timestamp: 2014-09-02 00:37:59
Document Index: 309084451

Matched Legal Cases: ['§ 618', '§ 618', '§ 255', '§ 106', '§ 618', '§ 255', 'art 6', 'art 7', '§ 12181', '§ 255', 'art 6', '§ 153', '§ 153', 'art 7', '§ 617', '§ 617', '§ 617', '§ 617', '§ 153', '§ 14', '§ 153', '§ 9', '§ 153', '§ 153', '§ 617', '§ 619', '§ 619', 'art 14']

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Tentative Findings on Accessibility of Communications Technologies
DA 12-1391
CONSUMER AND GOVERNMENTAL AFFAIRS BUREAU SEEKS COMMENT ON ITS TENTATIVE FINDINGS ABOUT THE ACCESSIBILITY OF COMMUNICATIONS TECHNOLOGIES FOR THE FIRST BIENNIAL REPORT UNDER THE
Comment Date: September 6, 2012
By this Public Notice (Notice) and consistent with the requirements of the Twenty-First Century Communications and Video Accessibility Act of 2010 (CVAA),1 the Consumer and Governmental Affairs Bureau (CGB) of the Federal Communications Commission (FCC or Commission) hereby seeks comment on tentative findings for the first biennial report (Report) required by the CVAA to be submitted to Congress by October 8, 2012.2 Public comment will assist the Commission in assessing the level of compliance with congressional mandates that telecommunications and advanced communications services and equipment be accessible to and usable by individuals with disabilities, the effect of related recordkeeping and enforcement requirements, and the extent to which accessibility barriers still exist with respect to new communications technologies. 2.
The purpose of the CVAA is to “update the communications laws to help ensure that individuals with disabilities are able to fully utilize communications services and equipment and better access video programming.”3 In enacting the CVAA, Congress noted that the communications marketplace had undergone a “fundamental transformation” since it last acted on these issues in 1996 when it added Section 255 to the Communications Act of 1934, as amended (hereinafter referred to as 1 Pub. L. No. 111-260, 124 Stat. 2751 (2010) (as codified in various sections of 47 U.S.C.); Pub. L. 111-265, 124 Stat. 2795 (2010) (making technical corrections to the CVAA). The foregoing are collectively referred to hereinafter as the CVAA.
2 See Section 717(b)(1) of the Communications Act, as added by the CVAA, codified at 47 U.S.C. § 618(b)(1). The Report will be submitted to the Committee on Commerce, Science, and Transportation of the Senate, and the Committee on Energy and Commerce of the House of Representatives. See also S. Rep. No. 111-386 at 9 (Senate Report); H.R. Rep. No. 111-563 at 27 (House Report) (2010) (“New section 717(b) [47 U.S.C. § 618(b)] requires the Commission to issue a report to Congress every two years assessing the level of compliance with the requirements of this Act, as well as other matters related to the effectiveness of the Commission’s complaint resolution process.” 3 Senate Report at 1; House Report at 19.
“the Communications Act” or “the Act”).4 Although Section 255 addressed the accessibility of telecommunications services and equipment, Congress since concluded that people with disabilities often have not shared in the benefits of this rapid technological advancement.5 Implementation of the CVAA is a critical step in addressing this inequity.
Following passage of the CVAA in October 2010, the Commission moved quickly to implement this landmark legislation by releasing multiple public notices and six notices or further notices of proposed rulemakings seeking comment on CVAA-related issues. In addition, it established and has since overseen the work of two advisory committees required by the CVAA, both of which completed their CVAA-assigned charges on time.6 Throughout this implementation period, the agency has worked with consumer, industry, and government stakeholders to ensure effective and timely implementation of the new law. As a result, the Commission has, since passage of the new law, already released five reports and orders adopting rules to implement different provisions of the CVAA and has met every one of the CVAA deadlines for Commission action.7 Resources throughout the Commission, from virtually every bureau and office within the Commission, have contributed to this effort. We understand the importance of this legislation to the millions of Americans with disabilities and we are committed to continuing to fully meet our responsibilities under the CVAA.
4 47 U.S.C. § 255.5 Senate Report at 1-2; House Report at 19.6 See CVAA, §§ 106 (Emergency Access Advisory Committee), 201 (Video Programming and Emergency Access Advisory Committee).
7 Since the enactment of the CVAA, the Commission has released the following reports and orders:
Implementation of the Twenty-First Century Communications and Video Accessibility Act of 2010, Section 105, Relay Services for Deaf-Blind Individuals, CG Docket No. 10-210, Report and Order, FCC 11-56, 26 FCC Rcd 5640 (2011) (establishing the National Deaf-Blind Equipment Distribution Program), available at http://hraunfoss.fcc.gov/edocs_public/attachmatch/FCC-11-56A1.pdf.
Video Description: Implementation of the Twenty-First Century Communications and Video Accessibility Act of 2010, MB Docket No. 11-43, Report and Order, FCC 11-126, 26 FCC Rcd 11847 (2011) (reinstating the Commission’s video description rules, as modified by the CVAA) available at http://hraunfoss.fcc.gov/edocs_public/attachmatch/FCC-11-126A1.pdf. Contributions to the Telecommunications Relay Services (TRS) Fund, CG Docket No. 11-47, Report and Order, FCC 11-150, 26 FCC Rcd 14532 (2011) (requiring VoIP service providers to contribute to the TRS Fund) available at http://hraunfoss.fcc.gov/edocs_public/attachmatch/FCC-11-150A1.pdf. Implementation of Sections 716 and 717 of the Communications Act of 1934, as Enacted by the Twenty-First Century Communications and Video Accessibility Act of 2010; Amendments to the Commission’s Rules Implementing Sections 255 and 251(a)(2) of the Communications Act of 1934, as Enacted by the Telecommunications Act of 1996; and In the Matter of Accessible Mobile Phone Options for People who are Blind, Deaf-Blind, or Have Low Vision, CG Docket Nos. 10-213 and 10-145, WT Docket No. 96-198, Report and Order and Further Notice of Proposed Rulemaking, FCC 11-151, 26 FCC Rcd 14557 (2011) (ACS Report and Order and ACS FNPRM) (requiring accessible advanced communications services and equipment and establishing recordkeeping and enforcement requirements for entities covered under Sections 255, 716, and 718 of the Communications Act) available at http://hraunfoss.fcc.gov/edocs_public/attachmatch/FCC-11-151A1.pdf.
Closed Captioning of Internet Protocol-Delivered Video Programming: Implementation of the Twenty-First Century Communications and Video Accessibility Act of 2010, MB Docket No. 11-154, Report and Order, FCC 12-9, 27 FCC Rcd 787 (2012) (requiring closed captioning of video programming delivered using Internet protocol after such programming was shown on television and updating apparatus closed captioning requirements) available at http://hraunfoss.fcc.gov/edocs_public/attachmatch/FCC-12-9A1.pdf. 2
Background and Scope of First Report
An assessment of the effect of the recordkeeping and enforcement requirements of Section 717 on the development and deployment of new communications technologies.8
Section 255. Section 255 of the Communications Act, enacted in 1996, requires providers of telecommunications services and manufacturers of telecommunications equipment or customer premises equipment (CPE) to ensure that such services and equipment are accessible to and usable by individuals with disabilities, if readily achievable.9 When these requirements are not readily achievable, covered entities must ensure that their services and equipment are compatible with existing peripheral devices or specialized CPE commonly used by individuals with disabilities to achieve access, if readily achievable.10 The Commission’s rules implementing Section 255 govern telecommunications services, including telephone calls, call waiting, speed dialing, call forwarding, computer-provided directory assistance, call monitoring, caller identification, call tracing, and repeat dialing.11 Equipment covered under Section 255 includes, but is not limited to, CPE, such as wireline, cordless, and wireless telephones, fax machines, and answering machines.12 In addition, the rules implementing Section 255 cover voice mail and interactive voice response systems (phone systems that provide callers with menus of choices).13 In 2007, the Commission adopted rules extending Section 255’s accessibility obligations to 8 See 47 U.S.C. § 618(b)(1). 9 47 U.S.C. §§ 255(b) and (c); 47 C.F.R. Part 6 and Part 7. “Readily achievable” is defined as “easily accomplishable and able to be carried out without much difficulty or expense.” 42 U.S.C. § 12181(9). 10 47 U.S.C. § 255(d).11 See Implementation of Sections 255 and 251(a)(2) of the Communications Act of 1934, as Enacted by the Telecommunications Act of 1996: Access to Telecommunications Service, Telecommunications Equipment and Customer Premises Equipment by Persons with Disabilities, Report and Order and Further Notice of Inquiry, 16 FCC Rcd 6417, 6449, ¶ 77 (1999) (Section 255 Order). See also 47 C.F.R. Part 6. 12 The Communications Act defines telecommunications equipment as “equipment, other than customer premises equipment, used by a carrier to provide telecommunications services, and includes software integral to such equipment (including upgrades).” 47 U.S.C. § 153(52). It defines “customer premises equipment” as “equipment employed on the premises of a person (other than a carrier) to originate, route or terminate telecommunications.” 47 U.S.C. § 153(16).
13 See 47 C.F.R. Part 7. See also FCC Section 255 Consumer Guide available at http://www.fcc.gov/guides/disabled-persons-telecommunications-access-section-255. 3
interconnected voice over Internet protocol (VoIP) service providers and interconnected VoIP equipment manufacturers.14
Section 716. Section 716 of the Act requires providers of advanced communications services and manufacturers of equipment used for advanced communications services to ensure that their services and equipment are accessible to and usable by individuals with disabilities, unless doing so is not achievable (defined as “with reasonable effort or expense”).15 This requirement may be satisfied by: (1) building accessibility into the service or equipment;16 or (2) by using third-party applications, peripheral devices, software, hardware, or CPE that is available to consumers at nominal cost and that individuals with disabilities can access.17 When ensuring accessibility through either of those options is not achievable, covered entities must ensure that their services and equipment are compatible with existing peripheral devices or specialized CPE commonly used by individuals with disabilities to achieve access, unless that is not achievable.18
“Advanced communications services” include: (1) interconnected VoIP service; (2) non-
interconnected VoIP service; (3) electronic messaging service; and (4) interoperable video conferencing service.19 In contrast to interconnected VoIP services, which enable people to make and receive calls to and from the public switched telephone network (PSTN), non-interconnected VoIP services include services that enable real-time voice communications either to or from the PSTN (but not both) or which neither begin nor end on the PSTN at all.20 Electronic messaging services, such as e-mail, short message service (SMS) text messaging, and instant messaging, enable real-time or near real-time text messages between individuals over communications networks.21 Interoperable video conferencing services provide real-time video communications, including audio, to enable users to share information.22 8.
Section 716 of the Act does not apply to services or equipment, including interconnected VoIP services and equipment, which were subject to Section 255 on October 7, 2010.23 Those services and equipment remain subject to the requirements of Section 255.24 As a result, Section 716 requirements apply to providers of non-interconnected VoIP services, electronic messaging services, and interoperable video conferencing services, and to manufacturers of equipment used for these services.
Section 718. Section 718 requires mobile phone service providers and manufacturers to make Internet browsers built into mobile phones accessible to and usable by people who are blind or have 14 Implementation of Sections 255 and 251(a)(2) of the Communications Act of 1934, as Enacted by the Telecommunications Act of 1996: Access to Telecommunications Service, Telecommunications Equipment and Customer Premises Equipment by Persons with Disabilities; Telecommunications Relay Services and Speech-to-Speech Services for Individuals with Hearing and Speech Disabilities, Report and Order, FCC 07-110, 22 FCC Rcd 11275 (2007). 15 47 U.S.C. §§ 617(a)(1), (b)(1), (g). 16 47 U.S.C. §§ 617(a)(2)(A), (b)(2)(A). 17 47 U.S.C. §§ 617(a)(2)(B), (b)(2)(B). 18 47 U.S.C. § 617(c). 19 47 U.S.C. § 153(1). See also 47 C.F.R. § 14.10(c). 20 47 U.S.C. §§ 153(25), 153(36); 47 C.F.R. § 9.3. 21 47 U.S.C. § 153(19). 22 47 U.S.C. § 153(27). 23 47 U.S.C. § 617(f). 24 Id. 4
a visual impairment, unless doing so is not achievable.25 This requirement may be satisfied with or without the use of third-party applications, peripheral devices, software, hardware, or CPE that is available to consumers at nominal cost and that individuals with disabilities can access.26 10.
Implementation of Sections 716, 717, and 718. On October 7, 2011, the Commission released a Report and Order adopting rules to implement Sections 716 and 717 of the Act and a Further Notice of Proposed Rulemaking addressing related matters and seeking comment on issues concerning the implementation of Section 718 of the Act.27 The rules adopted by the Commission in the ACS Report and Order became effective January 30, 2012.28 Since that date, manufacturers and service providers have been required to take accessibility into account in the design of their products and services. One year later, beginning on January 30, 2013, covered manufacturers and service providers must comply with recordkeeping requirements pertaining to the accessibility of their products and services.29 Under the transition period established by the Commission, covered equipment and services must fully comply with the rules implementing Section 716 by October 8, 2013.30 In accordance with the CVAA, Section 718 of the Act also becomes effective on October 8, 2013.31 Finally, the associated complaint procedures established pursuant to Section 717 of the Act will be effective on October 8, 2013.32
Scope of the Report. The evaluation of compliance with Sections 716 and 718 in the Report will, of necessity, be circumscribed by the transition period described above. Nonetheless, the Commission, pursuant to Section 255 of the Act and its implementing rules, has established requirements and complaint procedures to ensure that telecommunications and interconnected VoIP services and equipment are accessible to and usable by individuals with disabilities.33 As a result, for this first Report, the Commission will provide information about complaints alleging violations of Section 255 filed under those existing procedures and an assessment of industry compliance with those accessibility requirements. The Commission will also consider the extent to which initial industry efforts to comply with Section 716 have begun having an impact on the accessibility of services and equipment subject to Section 716. In addition, the Commission will consider the extent to which initial efforts to maintain accessibility-related records have begun having an impact on the accessibility of services and equipment subject to Sections 255 and 716 and on the development and deployment of new communications technologies. Finally, this Report will addresses accessibility barriers that still exist with respect to new communications technologies. This initial Report will not assess the accessibility of Internet browsers built into mobile 25 47 U.S.C. § 619(a). 26 47 U.S.C. § 619(b).27 See ACS Report and Order and ACS FNPRM, 26 FCC Rcd 14557. The rules adopted in the ACS Report and Order are codified in 47 C.F.R. Part 14.
28 The rules became effective 30 days after their publication in the Federal Register on December 30, 2011. See ACS Report and Order and ACS FNPRM, 26 FCC Rcd at 14696, ¶ 328. See also 76 Fed. Reg. 82240 (Dec. 30, 2011).
29 Specifically, covered entities must keep records of their efforts to implement Sections 255, 716, and 718, including information about their efforts to consult with people with disabilities, descriptions of the accessibility features of their products and services, and i