Source: http://www.fcc.gov/print/node/42612
Timestamp: 2014-04-18 14:54:41
Document Index: 184810716

Matched Legal Cases: ['§ 0', '§ 104', '§ 618', '§ 255', '§ 106', '§ 104', '§ 618', '§ 255', '§ 104', '§ 617', '§ 618', '§ 618', '§ 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', '§ 618', '§ 104', '§ 14', '§ 255', 'art 6', 'art 7', '§ 104', '§ 618', '§ 618', '§ 618', '§ 6', '§ 3002', '§ 6', '§ 618', '§ 14', '§ 6', '§ 618']

CVAA Report to Congress
DA 12-1602
Communications Act of 1934, as Enacted by )
the Twenty-First Century Communications and )Video Accessibility Act of 2010
Adopted: October 5, 2012 Released: October 5, 2012
By the Acting Chief, Consumer and Governmental Affairs Bureau: TABLE OF CONTENTS
INTRODUCTION AND OVERVIEW ...............................................................................1
COMMUNICATIONS ACCESSIBILITYA.
Background1. Section 255 ................................................................................................8
2. Section 716 ................................................................................................9
3. Section 718 ..............................................................................................12
4. Implementation of Sections 716, 717, and 718 .......................................13
5. Scope of this First Biennial Report ........................................................15
Compliance with Sections 255, 716, and 718 ......................................................17
Accessibility Barriers in New Communications Technologies ............................42
Complaints Received Pursuant to Section 717.....................................................471.
Number and Nature of Complaints Received .........................................51
Actions Taken to Resolve Such Complaints ..........................................54
Time to Resolve Each Complaint ...........................................................57
Actions for Mandamus and Appeals Filed .............................................58
Effect of Section 717’s Recordkeeping and Enforcement Requirements on the Development and Deployment of New Communications Technologies..............59
Conclusion ...........................................................................................................64
COMMISSION ACTIONS TO IMPLEMENT THE CVAA ...........................................74A.
Section 102. Hearing aid compatibility. .............................................................75
Section 103. Relay services. ...............................................................................79
Section 104. Access to advanced communications services and equipment. .....84
Section 105. National Deaf-Blind Equipment Distribution Program. ................94
Section 106. Emergency Access Advisory Committee. .....................................98
Section 201. Video Programming Access Advisory Committee. .....................103
Section 202. Video description and closed captioning. ....................................107
Section 203. Closed captioning decoder and video description capability. ......115
Section 204. User interfaces on digital apparatus. ............................................120
Section 205. Access to video programming guides and menus provided on navigation devices. ............................................................................................122
Other Accessibility-Related Commission Activities. ........................................124
APPENDIX A: List of CommentersAPPENDIX B: Commission Actions to Implement the CVAAAPPENDIX C: Commission Outreach and EducationAPPENDIX D: CVAA Consumer Guides
The Consumer and Governmental Affairs Bureau (CGB) of the Federal Communications Commission (FCC or Commission), pursuant to its delegated authority,1prepared this Biennial Report (Report) for submission to the Committee on Commerce, Science, and Transportation of the Senate, and the Committee on Energy and Commerce of the House of Representatives (to the Committees or to Congress) in accordance with the Twenty-First Century Communications and Video Accessibility Act of 2010 (CVAA).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 (Communications 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. 2.
Following passage of the CVAA on October 8, 2010, the Commission began implementing this landmark legislation by releasing multiple public notices and six 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 timely completed their CVAA-assigned charges.6 Throughout this implementation period, the agency has worked with consumer, industry, and government stakeholders to ensure effective and 1 47 C.F.R. § 0.361.2 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. See also CVAA, § 104(a); codified at 47 U.S.C. § 618(b). This Report is being submitted concurrently to Congress. 3 S. Rep. No. 111-386 at 1 (2010) (Senate Report); H.R. Rep. No. 111-563 at 19 (2010) (House Report).4 Id.; 47 U.S.C. § 255. 5 See Senate Report at 1-2; House Report at 19.6 CVAA, §§ 106 (Emergency Access Advisory Committee), 201 (Video Programming and Emergency Access Advisory Committee).
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 various provisions of the CVAA and has met every one of the CVAA’s rigorous rulemaking deadlines.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.
In accordance with the CVAA, Section II of this Report presents information and assessments related to the accessibility of telecommunications and advanced communications services and equipment.8 Section II.A provides a general overview of Sections 255, 716, and 718 of the Communications Act, which are the statutory provisions governing accessible communications, followed by a brief discussion of the Commission’s actions to implement Section 716, 717(a), and 718, and the scope of this first biennial Report. 9 Sections 716, 717, and 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 [4]-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 [5]. 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 [6]-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 athttp://hraunfoss.fcc.gov/edocs_public/attachmatch/FCC-11-151A1.pdf [7].
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 [8]. 8 CVAA, § 104(a); codified at 47 U.S.C. § 618(b). 9 47 U.S.C. §§ 255, 617, 618(a), 619.
718 are among the new provisions added to the Communications Act by the CVAA.10 Sections 716 and 718 expand the scope of the Communications Act’s accessibility requirements to cover advanced communications services and equipment, and Internet browsers built into mobile phones, respectively. Section 717(a) addresses the recordkeeping and enforcement obligations of service providers and equipment manufacturers that are subject to Sections 255, 716, and 718. 4.
Sections II.B, C, D, and E of this Report present the information which the Commission must submit to Congress every two years after October 8, 2010, the date of enactment of the CVAA, as required by Section 717(b)(1) of the Communications Act.11 The Report must include the following information and assessments:12
An assessment of the level of compliance with Sections 255 (accessibility of telecommunications services and equipment), 716 (accessibility of advanced communications services and equipment), and 718 (accessibility of Internet browsers built into mobile phones). See, infra, Section II.B.
An evaluation of the extent to which any accessibility barriers still exist with respect to new communications technologies. See, infra, Section II.C.
The number and nature of complaints received pursuant to Section 717(a) (recordkeeping and enforcement obligations of service providers and equipment manufacturers that are subject to Sections 255, 716, and 718) during the two years that are the subject of the report. See, infra, Section II.D.1.
A description of the actions taken to resolve such complaints, including forfeiture penalties assessed. See, infra, Section II.D.2.
The length of time that was taken by the Commission to resolve each such complaint. See, infra, Section II.D.3.
The number, status, nature, and outcome of any actions for mandamus filed and of any appeals filed. See, infra, Section II.D.4. (G)
An assessment of the effect of the recordkeeping and enforcement requirements of Section 717 on the development and deployment of new communications technologies.13 See, infra, Section II.E.
To inform the Commission’s preparation of the report, the Commission released a public notice on July 12, 2012, inviting comments related to the development of the Report (the CVAA Assessment PN).14 Those comments, though sparse, helped to inform the Commission’s tentative findings.15 On August 23, 2012, the Commission released a public notice seeking comment on its tentative findings pursuant to Section 717(b)(2) of the Communications Act (the 10 CVAA, § 104(a); 47 U.S.C. §§ 617, 618, 619.11 47 U.S.C. § 618(b)(1). 12 For convenience, in the list of required information and assessments, each item is cross-referenced to the section of the Report addressing that item.
13 47 U.S.C. §§ 618(b)(1)(A)-(G). 14 Consumer and Governmental Affairs Bureau Seeks Comment on the Accessibility of Communications Technologies for the First Biennial Report Under the Twenty-First Century Communications and Video Accessibility Act, CG Docket No. 10-213, Public Notice, DA 12-1125, 27 FCC Rcd 7693, released July 12, 2012 (CVAA Assessment PN), available at http://hraunfoss.fcc.gov/edocs_public/attachmatch/DA-12 [9]-1125A1.pdf.
15 Only four comments were filed by consumer groups and three industry parties filed comments. See Appendix A for a list of commenters.
CVAA Tentative Findings PN).16 Comments in response to the CVAA Tentative Findings PNwere also sparse.17
Section II.F concludes this section of the Report by summarizing the comments received in response to the CVAA Tentative Findings PN and affirming those tentative findings, which are presented as findings in this Report.18
Finally, Section III of this Report presents a summary of other actions taken by the Commission related to the CVAA during the previous two years.
COMMUNICATIONS ACCESSIBILITY A.
Section 255 of the Communications Act, enacted in 1996, requires providers of telecommunications service 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.19 When these requirements are notreadily 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.20 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.21 Equipment covered under Section 255 includes, but is not limited to, CPE, such as wireline, cordless, and wireless telephones, fax machines, and answering machines.22 In addition, the rules implementing Section 255 cover voice mail and 16 47 U.S.C. § 618(b)(2); Consumer and Governmental Affairs Bureau Seeks Comment on its Tentative Findings About the Accessibility of Communications Technologies for the First Biennial Report Under the Twenty-First Century Communications and Video Accessibility Act, CG Docket No. 10-213, Public Notice, DA 12-1391, 27 FCC Rcd ___, released August 23, 2012 (CVAA Tentative Findings PN), available at http://hraunfoss.fcc.gov/edocs_public/attachmatch/DA-12-1391A1.pdf [10].
17 Only three consumer groups, one consumer, and two industry parties filed comments. See Appendix A for a list of commenters.
18 See ¶¶ 39-41 (findings on compliance with Sections 255, 716, and 718), ¶¶ 45-46 (findings on accessibility barriers in new communications technologies), and ¶ 63 (findings on the effect of Section 717’s recordkeeping and enforcement requirements on the development and deployment of new communications technologies).
19 47 U.S.C. §§ 255(b), (c). See also 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). 20 47 U.S.C. § 255(d).21 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. 22 The Communications Act defines telecommunications equipment as “equipment, other than customer premises equipment, used by a carrier to provide telecommunications services, and includes software 5
interactive voice response systems (phone systems that provide callers with menus of choices).23 In 2007, the Commission adopted rules extending Section 255’s accessibility obligations to interconnected voice over Internet protocol (VoIP) service providers and interconnected VoIP equipment manufacturers.24 2.
Section 716 of the Communications 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”).25 This requirement may be satisfied by: (1) building accessibility into the service or equipment;26 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.27 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.28
“Advanced communications services” include: (1) interconnected VoIP service; (2) non-interconnected VoIP service; (3) electronic messaging service; and (4) interoperable video conferencing service.29 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.30 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.31 Interoperable video conferencing services provide real-time video communications, including audio, to enable users to share information.32 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).
23 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 [11]. 24 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). 25 47 U.S.C. §§ 617(a)(1), (b)(1), (g). 26 47 U.S.C. §§ 617(a)(2)(A), (b)(2)(A). 27 47 U.S.C. §§ 617(a)(2)(B), (b)(2)(B). 28 47 U.S.C. §§ 617(c). 29 47 U.S.C. § 153(1). See also 47 C.F.R. § 14.10(c). 30 See 47 U.S.C. §§ 153(25), 153(36); 47 C.F.R. § 9.3. 31 47 U.S.C. § 153(19). 32 47 U.S.C. § 153(27).
Section 716 of the Communications Act does not apply to services or equipment, including interconnected VoIP services and equipment, which were subject to Section 255 on October 7, 2010.33 Those services and equipment remain subject to the requirements of Section 255.34 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 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 a visual impairment, unless doing so is not achievable.35 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.36 4.
Implementation of Sections 716, 717, and 718
After the CVAA was enacted, the Commission sought comment on the new communications accessibility provisions of the CVAA.37 The comments received in response to that public notice helped to inform the Commission’s notice of proposed rulemaking, released March 3, 2011.38 On October 7, 2011, the Commission released a report and order adopting rules to implement Sections 716 and 717 of the Communications Act and a further notice of proposed rulemaking addressing related matters and seeking comment on issues concerning the implementation of Section 718 of the Communications Act.39
33 47 U.S.C. § 617(f). 34 Id. 35 47 U.S.C. § 619(a). 36 47 U.S.C. § 619(b).37 Consumer & Governmental Affairs Bureau and Wireless Telecommunications Bureau Seek Comment on Advanced Communication Provisions of the Twenty-First Century Communications and Video Accessibility Act of 2010, CG Docket No. 10-213, Public Notice, DA 10-2029, 25 FCC Rcd 14589, released October 21, 2010 (ACS PN), available at http://hraunfoss.fcc.gov/edocs_public/attachmatch/DA-10-2029A1.pdf [12]. 38 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, Notice of Proposed Rulemaking, FCC 11-37, 26 FCC Rcd 3133 (2011) (ACS NPRM), available at http://hraunfoss.fcc.gov/edocs_public/attachmatch/FCC-11-37A1.pdf [13]. 39 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 when referring to the report and order portion; and ACS FNPRM when referring to the further notice of proposed rulemaking portion), available at 7
The rules adopted by the Commission in the ACS Report and Order became effective January 30, 2012.40 Since that date, manufacturers and service providers have been required to take accessibility into account in the design of their products and services.41 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.42 Under the transition period established by the Commission, covered equipment and services must fully comply with the rules implementing Section 716 by October 8, 2013.43 In accordance with the CVAA, Section 718 of the Communications Act also becomes effective on October 8, 2013.44 Finally, the associated complaint procedures established pursuant to Section 717 of the Communications Act will be available to consumers on October 8, 2013.45
Scope of this First Biennial Report
The evaluation of compliance with Sections 716 and 718 in this first biennial Report is, of necessity, circumscribed by the transition period described above. Nonetheless, the Commission, pursuant to Section 255 of the Communications 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.46 As a result, for this first Report, the Commission provides 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 also considers 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 considers 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 addresses accessibility barriers that still exist with respect to new communications technologies. This initial Report does not assess the accessibility of Internet browsers built into mobile phones, required under Section 718 of the Communications http://hraunfoss.fcc.gov/edocs_public/attachmatch/FCC-11-151A1.pdf [7]. The rules adopted in the ACS Report and Order are codified in 47 C.F.R. Part 14. The ACS FNPRM is discussed further in Section III.C, below.
40 The rules became effective 30 days after their publication in the Federal Register on December 30, 2011. ACS Report and Order and ACS FNPRM, 26 FCC Rcd at 14696, ¶ 328. See also 76 Fed. Reg. 82240 (Dec. 30, 2011).
41 See ACS Report and Order, 26 FCC Rcd at 14602, ¶ 108.42 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 information about the compatibility of these products and services with peripheral devices or specialized CPE commonly used by people with disabilities to achieve access. 47 U.S.C. § 618(a)(5)(A). These recordkeeping requirements are effective January 30, 2013, one year after the effective date of the regulations. Id. 43 ACS Report and Order, 26 FCC Rcd at 14602-3, ¶ 110.44 CVAA, § 104(b).45 47 C.F.R. §§ 14.30(c), 14.32-14.37.46 47 U.S.C. § 255; 47 C.F.R. Part 6 and Part 7.
Act, however, because that provision will not take effect until October 8, 2013,47 and the Commission has not yet issued final rules implementing that provision.
Given the competing requirements to submit this first biennial Report to Congress two years after the enactment of the CVAA on October 8, 2010, and the CVAA requirement to seek comment on our tentative findings before submitting this Report,48 the time period covered by this first Report is less than a full two years. With respect to the Commission’s assessment of complaints received, required by Sections 717(b)(1)(C)-(F) of the Communications Act, this Report covers the time period between October 8, 2010, and December 31, 2011. Limiting the review to complaints received as of December 31 was necessary to compile the relevant information and to seek comment on our tentative findings as required by the CVAA.49 Subsequent biennial reports, however, will cover a full two years each, with each report covering a period beginning January 1 of the first year and ending December 31 of the second year, providing sufficient time for compilation, assessment, and the receipt of comments prior to submission to Congress on the October 8 anniversary of the CVAA enactment.50
Compliance with Sections 255, 716, and 718
Section 717(b)(1)(A) of the Communications Act requires the Commission to provide an assessment of the level of compliance with Sections 255, 716, and 718 of the Communications Act.51 In the CVAA Assessment PN, the Commission sought comment on the level of compliance with pre-existing requirements, under the Commission’s accessibility rules predating the CVAA, to make telecommunications and interconnected VoIP services and equipment accessible to people with disabilities since the enactment of the CVAA on October 8, 2010.52 The Commission also sought comment on the extent to which initial industry efforts to comply with the CVAA have begun to have an impact on the accessibility of non-interconnected VoIP, electronic messaging, and interoperable video conferencing services and equipment.53 In addition, the Commission asked for information about compliance by service providers and equipment manufacturers with respect to ensuring access to information and documentation, training of personnel having direct contact with the public, and the inclusion of people with disabilities through all stages of product and service development.54 We discuss each of these issues, in turn, below.
47 CVAA, § 104(b).48 47 U.S.C. §§ 618(b)(1) and (2). 49 47 U.S.C. § 618(b)(2). 50 We believe it is most appropriate for these periodic reports to review complaints and other developments for the time period 1/1/20XX - 12/31/20XX+1. We find that this approach will allow the Commission adequate time to solicit public comment on the issues that it must address in such reports, consistent with Section 717(b)(2) and best achieves the CVAA’s objectives.
51 47 U.S.C. § 618(b)(1)(A).52 CVAA Assessment PN, 27 FCC Rcd at 7696-7697, ¶ 7.53 Id., 27 FCC Rcd at 7698, ¶ 9.54 Id., 27 FCC Rcd at 7697, ¶ 8.
Section 255 Accessibility. Comments on the state of compliance with Section 255 were received almost exclusively from consumer representatives.55 From the perspective of the American Council of the Blind (ACB) and the American Foundation for the Blind (AFB), devices covered under Section 255 are pervasively not accessible; a state that they claim has remained constant since the passage of the CVAA.56 According to ACB, the current Section 255 complaint process is inadequate, and thus has discouraged consumers from filing complaints, even though “[a]ccessibility of devices covered under Section 255 is abysmal.”57
AFB asserts that, with respect to achieving accessibility under Section 255, “Apple’s iPhone continues to be the only smart phone providing truly equal access at no extra cost to users with vision loss” and that “accessible choices in the feature phone market are not that much more extensive.”58 In discussing the implementation of Section 255 (which requires accessible feature phones), ACB also appears to credit Panasonic for its efforts to produce devices that meet the needs of people who are blind and visually impaired.59 However, ACB goes on to note that those efforts have not been enough to provide this consumer market with much choice.60
The Hearing Loss Association of America (HLAA) notes that mainstream “non-
mobile”61 analog and digital phones, especially phones at lower price points, often do not 55 Comments were received from both industry and consumer representatives with respect to the inclusion of people with disabilities through all stages of product and service development; information, documentation, and training; and service plans, which are discussed further in paragraphs 31 to 39, below. 56 See ACB Comments at 1; AFB Comments at 2 (“we would be incredulous if anyone were to conclude that the status quo of pervasive inaccessibility has changed much . . . since the Fall of 2010”). As evidence, AFB cites their comments previously filed in CVAA and other accessibility-related proceedings, and asks that those comments be formally incorporated into this proceeding. See AFB Comments at 2. AFB’s view is also supported by comments filed in 2010 by other groups representing individuals who are blind or visually impaired. See, e.g., ACB Reply Comments, State of Accessibility for Mobile Phone Devices for People Who Are Blind, Deaf Blind or Who Have Low Vision, Docket 10-145 (Sept. 22, 2010), available at http://apps.fcc.gov/ecfs/document/view?id=7020913421 [14] (because “only one model of cell phone provides complete built-in accessibility . . . [and] only a select few models of smart phones are even compatible with add-on text to speech software that is often more costly than the device itself,” blind or visually impaired users are required to memorize phone numbers and specific key sequences to make calls, and have no access to “features such as battery status, message indicators, caller identification, and sending or receiving text messages”); National Federation of the Blind Reply Comments, State of Accessibility for Mobile Phone Devices for People Who Are Blind, Deaf Blind or Who Have Low Vision, Docket 10-145 (Oct. 14, 2010), available at http://apps.fcc.gov/ecfs/document/view?id=7020916852 [15] (“There is only one wireless device in the marketplace that is fully accessible to the blind user.”). 57 ACB Comments at 1. See also Section II.D of this Report for information about complaints filed with the Commission since the enactment of the CVAA that allege violations of Section 255.
58 AFB Comments at 2. 59 See ACB Comments at 1.60 Id.61 In the CVAA Assessment PN, the Commission sought input on the state of accessibility of services and equipment used with the following: (1) “non-mobile” services, including, but not limited to analog and digital telephone handsets and cordless phones used with landline and interconnected VoIP services; and (2) “mobile” or wireless services, including basic phones used primarily or exclusively for voice calls and high-end wireless devices or smart phones that are used for voice, text, data and other computing capabilities. CVAA Assessment PN, 27 FCC Rcd at 7696-7697, ¶ 7.
incorporate ports that accept neck loops.62 Further, HLAA asserts that some mainstream phones have speakerphone or Bluetooth features with sound quality that is inadequate for people with a significant hearing loss to understand what is being said.63
On the positive side, HLAA reports seeing “a steady improvement in the accessibility of both landline and mobile phones for people with hearing loss, and that is a credit to both the manufacturers and service providers who make [hearing aid compatible] phones available.”64 The Telecommunications Industry Association (TIA) further notes its development of hearing aid compatible standards, specifically, TIA-1083, defining measurement procedures and performance requirements for the handset-generated audio band magnetic noise of wireline telephones,65 and ANSI/TIA 4965, a new standard using Conversational Gain, which provides test methods for both analog and digital telephones and, according to TIA, “is expected to play a significant role in efforts to reduce interference problems experienced by people using hearing aids with digital cordless telephones.”66 Consumer Groups also report that the response time provided by interactive voice response phone systems has lengthened, making such systems easier for callers to use, even for deaf or hard of hearing callers who use relay services.67 They also report that some deaf or hard of hearing people are able to access voice mail messages by using Google Talk, an application that transcribes messages into text using speech recognition technology.68 According to Consumer Groups, users report that this feature works fairly well for calls where the speaker can be clearly heard with minimal background noise.69
Section 716 Accessibility. Comments on the state of compliance with Section 716 were received almost exclusively from industry representatives.70 The Consumer Electronics Association (CEA) reports that manufacturers and providers are in the process of determining which of their equipment and services are subject to the new accessibility requirements, ensuring that their business units and product development teams understand the substantive accessibility 62 HLAA Comments at 2.63 Id. HLAA and Consumer Groups note also that hearing aid compatibility ratings are not currently required by the U.S. Food and Drug Administration for hearing aids, making the task of finding a hearing aid compatible phone even more challenging for consumers. HLAA Comments at 4; Consumer Groups Comments at 7-8. “Consumer Groups” consist of the following organizations: Telecommunications for the Deaf and Hard of Hearing, Inc.; National Association of the Deaf; Association of Late-Deafened Adults, Inc.; Deaf and Hard of Hearing Consumer Advocacy Network; Cerebral Palsy and Deaf Organization; and the Technology Access Program at Gallaudet University.
64 HLAA Comments at 4.65 TIA Comments on Tentative Findings at 2-3. The full name for the TIA-1083 standard is the “Telephone Terminal Equipment Handset Magnetic Measurement procedure and Performance Requirements.” 66 Id. at 3. “Conversational Gain” is a new method of measuring telephone speech amplification. TIA Comments at 6. TIA further notes that a package label is being created to help hearing aid users identify products with reduced interference potential. TIA Comments on Tentative Findings at 3.
67 Consumer Groups Comments at 8.68 Id.69 Id. 70 The American Foundation for the Blind (AFB) urges the Commission “to avoid making any precipitous analysis” of the impact of the Section 716 accessibility obligations, because any such analysis at this early date would “need to rely almost exclusively on claims by covered industry players.” AFB Comments at 2.
requirements, and modifying their internal business processes and systems to perform the tasks needed to comply with the new rules.71 23.
Comments of CTIA-The Wireless Association (CTIA) provide an extensive list of actions that CTIA asserts are being taken by its members to address compliance with Section 716. In general, CTIA contends that the wireless industry currently actively considers accessibility for persons with all types of disabilities, takes the necessary steps to ensure that such disabilities are considered at the beginning of product and service design, and regularly integrates accessibility considerations into their business operations.72 CTIA also reports that, since the enactment of the CVAA, AT&T has incorporated “accessibility checklists” into its standard project process and expanded efforts to collaborate with handset manufacturers and third-party stakeholders on optimum accessibility specifications.73 In addition, according to CTIA, Verizon Wireless is standardizing its processes to ensure that accessibility issues are considered throughout the design, build, and refresh/updating periods.74
Regarding specific accessibility developments, CTIA reports that wireless manufacturers have designed equipment with built-in accessibility solutions, such as text-to-speech and screen readers, hearing aid compatibility, haptic (tactile) feedback, text communications, and voice activated features.75 In addition, CTIA adds: Many wireless devices today include built-in features including visual and vibrating alerts and notifications, speakerphones, text and IM applications, tactilely discernible keypads (e.g. QWERTY) and shortcut keys, displays with adjustable brightness and font sizes, predictive text and word completion (e.g. AutoText) and spell check, multiple device form factors (e.g. touch, flip, candy bar, etc.), and, more recently, voice activated features.76 25.
CTIA mentions that BlackBerry® and Nokia devices include many of these features, and that the DROID™ by Motorola embeds accessibility features, such as a large backlit touch screen and keypad with raised keys.77 CTIA also notes that Apple’s iPhone includes accessibility features, such as screen magnification and VoiceOver screen reader technology,78and “Samsung’s Galaxy Nexus using Google’s Android operating system has preinstalled software that provides spoken, vibration and sound feedback to notify and alert users about various actions, such as launching an application, upcoming events, and receiving incoming calls.”79 CTIA also reports that, in 2012, RIM introduced BlackBerry® Screen Reader, which provides audible output of the visual information displayed on the screen.80 71 CEA Comments at 5.72 CTIA Comments at 16.73 Id. at 17.74 Id.75 Id. at 4.76 Id. at 8.77 Id. 78 Id. at 9. 79 Id.80 Id. at 8. 12
CTIA explains further that wireless manufacturers, such as RIM, Inc., incorporate accessible features into their application requirements that encourage applications developers to utilize built-in accessibility features.81 CTIA also notes that AT&T has been developing a speech recognition application programming interface (API) that was recently opened up to developers to permit such developers to integrate the API’s speech capabilities into their applications.82
Wireless manufacturers, according to CTIA, also design devices to be compatible with assistive technology accessibility hardware and software solutions, such as alternate entry devices, TTYs, adaptive keyboards, screen readers, magnifiers, text-to-speech, and speech-to-text technology.83 Wireless service providers, CTIA adds, are making third-party applications available to consumers to improve accessibility, particularly for individuals who are blind or visually impaired.84 For example, AT&T offers Mobile Accessibility Lite for Android; Sprint, Boost Mobile, and Virgin Mobile USA offer “Wireless Accessibility” for Android users; and Verizon Wireless offers text-to-speech TALKS™ software for certain devices.85 28.
Notwithstanding all of these efforts, CTIA urges the Commission to develop prospective guidelines so “wireless entities understand precisely what they must do for a product or service to be considered ‘accessible.’”86
Comments filed by the Consumer Groups are mixed with respect to their opinions about the availability of accessible advanced communications products and services. First, Consumer Groups express concerns about the lack of interoperable video conferencing services and inaccessible advanced communications service components of video gaming.87 They also note with dismay that the iPhone 4S with Siri is not hearing aid compatible. Nevertheless, Consumer Groups applaud some industry initiatives, such as offering text/data-only plans for people who cannot make voice telephone calls, and web portals linked to services for people with disabilities.88 Consumer Groups further recognize Apple, Inc., as “an example of a leading manufacturer that embraces accessibility throughout many of its products by featuring universal design principles.”89
81 Id. 82 Id. at 7.83 Id. at 9. 84 Id. at 10.85 Id. at 10-11. But see Letter from Tamara Preiss, Vice President, Federal Regulatory Affairs, Verizon, to Marlene H. Dortch, Secretary, FCC, CG Docket No. 10-213 (filed Sept. 6, 2012) (“To clarify, Verizon Wireless previously marketed devices that provided TALKS, but transitioned to a text-to-speech software called ‘Mobile Accessibility’ in mid-2012 for certain devices marketed after that time and available on a greater number of Android devices.”).
86 Id. at 18. But see 47 C.F.R. §§ 6.3(a), 7.3(a), 14.21(b).87 Consumer Groups Comments at 9-13. See also ¶ 44, infra.88 Consumer Groups Comments at 6.89 Id. The term “universal design” means “a concept or philosophy for designing and delivering products and services that are usable by people with the widest possible range of functional capabilities, which include products and services that are directly accessible (without requiring assistive technologies) and 13
Inclusion of people with disabilities through all stages of product and service development. 90 Various industry associations report that their members are taking steps to consult with people with disabilities and the accessibility community.91 For example, CTIA reports that AT&T has an Advisory Panel on Access and Aging.92 Also according to CTIA, Verizon Wireless conducts quarterly calls with leading national disability advocates and has shared handsets with the American Foundation for the Blind Labs to evaluate and offer recommendations for their next generation of devices.93 Similarly, CTIA adds, Motorola has “increased efforts to reach out regularly to disability advocacy groups, standards agencies and research organizations, and to work closely with the manufacturers of devices for people with accessibility needs.”94 31.
TIA states that its members “have also been (and plan to continue to) liaising with the disability community to develop and share best practices and to develop standards for inclusive design.”95 As an example, TIA notes that its members consulted with the disability community in the development of voluntary industry Conversational Gain standards for wireline phones.96 TIA states that it is actively involved in further development of the hearing aid compatibility standard for wireless devices, and that the percentage of hearing aid compatible phones across offering tiers and models has increased over time.97
One consumer advocacy group, however, reports that it is “unaware of mainstream mobile phone manufacturers or service providers who include people with hearing loss in their market research, product design, testing, pilot demonstrations or product trials.”98 According to HLAA, while some mobile phone manufacturers are working with non-consumer entities, such as hearing aid companies and research institutions, at least on a limited basis, manufacturers have not sought much input from HLAA about features that would make mobile phones accessible and usable for people with hearing loss since the ATIS hearing aid compatibility incubator group disbanded around 2010.99 products and services that are interoperable with assistive technologies.” 29 U.S.C. § 3002(a)(19). Seealso ACS Report and Order and ACS FNPRM, 26 FCC Rcd at 14620, ¶ 151.
90 See 47 C.F.R. §§ 6.7(b)(3), 7.7(b)(3). Beginning January 30, 2013, covered entities must keep records of information about their efforts to consult with people with disabilities. See 47 U.S.C. § 618(a)(5)(A); 47 C.F.R. § 14.31(a)(1).
91 See CEA Comments at 5; CTIA Comments at 4; TIA Comments at 4.92 CTIA Comments at 17.93 Id.94 Id.95 TIA Comments at 4-5.96 Id. at 5. “Conversational Gain” is a new method of measuring telephone speech amplification. Id. at 6.97 Id. at 5-6.98 HLAA Comments at 3. 99 See HLAA Comments at 4. The ATIS hearing aid compatibility incubator group was formed by the Alliance for Telecommunications Industry Solutions (ATIS) to “investigate performance between hearing aids (HAs) and Wireless Device (WDs) to determine methods of enhancing interoperability and usability for consumers with hearing aids in order for those in the hearing aid and cellular wireless industries to meet the requirements of the [Federal Communications Commission]” and completed its work in November 14
Information, documentation, and training.100 CTIA reports that Verizon offers free 411 assistance for individuals who are blind, or who have low vision, dexterity disabilities, or cognitive disabilities, and provides these customers with bills and other print material in alternate formats such as in Braille and large print.101 Likewise, CTIA states that U.S. Cellular provides written material in Braille and large print for individuals who are visually impaired.102 34.
CTIA claims that wireless service providers and manufacturers train and educate personnel about accessibility issues, citing AT&T’s customer service center for customers with disabilities and RIM’s internal training module on accessibility.103 As a result, industry believes that the disability community “is better informed about the diverse range of wireless services, equipment and applications that are available to meet their needs.”104 35.
CTIA also claims that persons with disabilities are better informed because of CTIA’s award-winning website AccessWireless.org and other collaborative efforts by the wireless industry and the accessibility community.105 According to CTIA, the recently revamped and re-launched AccessWireless.org site features direct links to service provider and manufacturer accessibility websites; information relevant to individuals who are senior citizens, deaf or hard of hearing, blind, and physically, cognitively or speech impaired; tools for service providers’ retail store employees to help customers; and other features.106 In addition, “CTIA also has partnered with the Mobile Manufacturers Forum (‘MMF’) to bring the Global Accessibility Reporting Initiative (‘GARI’) to AccessWireless.org,” to provide an online database that consumers can use to search for wireless handsets based on built-in accessibility features.107 36.
Notwithstanding these efforts by industry, some consumers complain about the training of customer service personnel. HLAA reports that “personnel often do not know what a [hearing aid compatible] phone is or how to find which phones are [hearing aid compatible] among those the service provider sells.”108 As a result, consumers shopping for hearing aid 2010. ATIS: Hearing Aid Compatibility Incubator at http://www.atis.org/hac/index.asp [16] (viewed August 10, 2012).
100 See 47 C.F.R. §§ 6.11, 7.11, 14.20(d).101 CTIA Comments at 7.102 Id.103 Id. at 14-15.104 Id. at 15.105 Id. at 4. AccessWireless.org was a recipient of an FCC Chairman’s Award for Advancement in Accessibility in 2011. FCC Chairman Julius Genachowski Joins Commissioner Michael Copps to Honor Innovators in Accessibility Communications Technologies, October 28, 2011, available at http://hraunfoss.fcc.gov/edocs_public/attachmatch/DOC-310717A1.pdf [17]. 106 CTIA Comments at 4.107 Id. at 13. TIA, many of whose members are also members of the MMF, notes that the FCC incorporated GARI on its Accessibility Clearinghouse website. TIA Comments at 7.
108 HLAA Comments at 3.
compatible mobile phones in retail stores may not find what they need unless the store staff is in fact well trained and knowledgeable.109
Service plans. CTIA states that wireless service providers such as CTIA members Sprint, AT&T, T-Mobile, Verizon Wireless, and U.S. Cellular are offering voice, text, and data service plans specifically for persons with disabilities, including unlimited text or data plans or message- or data-only plans for people who are deaf, hard of hearing or have a speech disability.110
Consumer Groups, however, are concerned about the growing trend towards metering and capping data plans, particularly because of the impact on deaf and hard of hearing individuals who rely on video technology for direct communication and for telecommunications through a relay service.111 Consumer Groups report that some of their members are exceeding wireless monthly 2 GB and 3 GB data caps and that many are paying overage fees, which advocates predict will become a larger problem as wireless network speeds improve and video availability and use increases.112 Consumer Groups contend that these increasing costs add to the higher costs that people who are deaf or hard of hearing already pay for equipment and services to achieve functionally equivalent telecommunications.113 Consumer Groups and the major wireless providers are engaged in discussions about possible solutions to ensure that the deaf and hard of hearing community does not experience a significant disparity in costs.114 39.
Findings on compliance with Sections 255, 716, and 718.115 With respect to Section 255, based on the limited record provided in response to the CVAA Assessment PN, the Commission finds that services and equipment subject to this longstanding statutory obligation generally are meeting the hearing aid compatibility needs of people with hearing loss, and that feature phones continue to offer only limited accessibility for consumers who are blind or visually impaired. The record indicates that consumers who are blind or visually impaired have consistently and persistently expressed frustration with the overall inaccessibility of telecommunications equipment that has grown increasingly complex over time.116 Although the Commission has successfully resolved some informal Section 255 complaints,117 we agree with 109 See id. But see Letter from Tamara Preiss, Vice President, Federal Regulatory Affairs, Verizon, to Marlene H. Dortch, Secretary, FCC, CG Docket No. 10-213 (filed Sept. 6, 2012) (noting that HAC ratings are included on the call-out-cards located adjacent to handsets in Verizon stores; HAC information and HAC ratings are available on Verizon Wireless’ website; customer service representatives cannot advise consumers whether a particular handset will meet a particular consumer’s needs; and handsets are available for in-store testing with a consumer’s hearing aid).
110 CTIA Comments at 6.111 Consumer Groups Comments at 13.112 Id. at 14.113 Id.114 Id.115 As noted above, see ¶ 5, supra, in the CVAA Tentative Findings PN, the Commission sought comment on these findings pursuant to Section 717(b)(2) of the Communications Act. 47 U.S.C. § 618(b)(2); CVAA Tentative Findings PN, 27 FCC Rcd ___. See also Section II.F of this Report, infra (summarizing the comments received and affirming these findings).
116 See, e.g., ¶ 18 of this Report, supra.117 See Section II.D of this Report, infra.
ACB that the resolution of Section 255 complaints during this reporting period does not necessarily “provide the entire picture” with respect to compliance.118 The complaint data indicate that the Section 255 complaint process has resolved relatively simple complaints;119 thus we find that the resolution of these types of complaints is only one factor in assessing the level of compliance with Section 255. 40.
The Commission is currently without sufficient information to accurately assess the level of compliance with Section 716 of the Communications Act. The Commission expects to be better informed after October 8, 2013, wh