[Federal Register Volume 60, Number 100 (Wednesday, May 24, 1995)]
[Rules and Regulations]
[Pages 27423-27425]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-12704]



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FEDERAL COMMUNICATIONS COMMISSION

47 CFR Part 15

[GEN Docket No. 90-314, FCC 95-167]


Unlicensed Personal Communications Services; Radio Frequency 
Devices

Agency: Federal Communications Commission.

action: Final rule.

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summary: By this action, the Commission affirms its designation of 
UTAM, Inc., to manage the transition of the 1910-1930 MHz band from the 
Private Operational Fixed Microwave Service to unlicensed Personal 
Communication Service (PCS) operations. Further, the Commission accepts 
UTAM's plan for the relocation of fixed microwave operations from this 
spectrum and the deployment of unlicensed PCS devices. The Commission 
is requiring UTAM to submit reports at six-month intervals on the 
progress of the plan's implementation. UTAM's management of the 
transition of the 1910-1930 MHz band will help to ensure that new and 
innovative unlicensed PCS devices, such as wireless PBX equipment, 
wireless messaging systems, wireless local area networks, and a broad 
range of data communication products, are made available as rapidly as 
possible without disrupting fixed microwave service.

effective date: June 23, 1995.

for further information contact: David L. Means, Office of Engineering 
and Technology, New Technology Development Division, (301) 725-1585, 
extension 206.

supplementary information: This is a summary of the Commission's Fourth 
Memorandum Opinion and Order, FCC 95-167, adopted April 19, 1995, and 
released May 12, 1995. The full text of this decision is available for 
inspection and copying during normal business hours in the FCC Dockets 
Branch (Room 230), 1919 M Street, NW., Washington, DC. Copies may also 
be purchased from the Commission's duplicating contractor, 
International Transcription Services, at (202) 857-3800 or 2100 M 
Street, NW., Suite 140, Washington, DC 20037.

Summary of the Memorandum Option and Order

    1. This Fourth Memorandum Opinion and Order affirms its designation 
of UTAM, Inc., to manage the transition of the 1910-1930 MHz band from 
the Private Operational Fixed Microwave Service to unlicensed Personal 
Communication Service (PCS) operations. Further, the Commission accepts 
UTAM's plan for the relocation of fixed microwave operations from this 
spectrum and the deployment of unlicensed PCS devices. The Commission 
is requiring UTAM to submit reports at six-month intervals on the 
progress of the plan's implementation.
    2. The 1910-1930 MHz band is currently occupied by 383 fixed point-
to-point microwave links. In the Second Report and Order, 58 FR 59174, 
November 8, 1993, the Commission designated UTAM as the coordinator for 
the transition of the unlicensed PCS band from the fixed microwave 
service to unlicensed PCS, conditioned on UTAM's submission and the 
Commissions acceptance of: (1) A funding plan that is equitable to all 
prospective manufacturers of unlicensed devices, and (2) a plan for 
``band clearing'' that will permit the implementation of nomadic 
devices and, in particular, nomadic data PCS devices, as promptly as 
possible.
    3. On August 1, 1994, UTAM, Inc., submitted its plan for managing 
the transition of the 1910-1930 MHz band to use by unlicensed PCS 
operations. The UTAM plan describes UTAM's organization and governance, 
financing plan, bank clearing plan, coordination procedures, protection 
of proprietary information, dispute resolution procedures and UTAM's 
plans for ending its coordination role and dissolving itself.
    4. We find that UTAM's cost and revenue projections are reasonable. 
These projections appear to be based on conservative estimates and to 
allow for situations where a revenue source may develop somewhat 
slowly. While we recognize that there is always some uncertainty in 
making such projections, we are convinced that there will eventually be 
sufficient revenues to totally fund relocation of the microwave 
incumbents. It seems fair to assume the PCS licensees will bear 
approximately half the cost of relocating the incumbent microwave links 
in the 1910-1930 MHz band, since these links are paired with links in 
the licensed PCS spectrum. We agree with UTAM that its estimate of the 
cost for relocating each link is conservative, which should provide 
some margin if UTAM is faced with relocating more links than it 
anticipates. We do not agree with arguments that the relocation of 
links would be disrupted if there are funding shortfalls. We note, in 
particular, that UTAM will not initiate relocation negotiations until 
adequate funding is available. Further, [[Page 27424]] we believe that 
UTAM is taking adequate steps to control interference so as to avoid 
the need to relocate microwave links prematurely. We also see no need 
to require UTAM to establish a contingency fund for such situations. We 
are satisfied that the BIS study provides a reasonable estimate of 
unlicensed PCS device deployment and takes due account of demand that 
may be satisfied through other equipment or services. Even if demand 
for unlicensed PCS devices does not fall within the range predicted by 
the BIS study, or if licensed PCS penetration lags or negotiations with 
incumbents take longer than anticipated, the safeguards included in the 
plan ensure that the only consequence will be that band clearing will 
simply take longer. With regard to concerns about equity in the band 
clearing process, we agree with UTAM that the plan clearly indicates 
that donated funds may be designated for clearing any part of the 
spectrum that the donor chooses and will be credited as an advance 
against the donor's clearing fees. Thus, no company interested in 
clearing the asynchronous band segment for deployment of nomadic 
products will be forced to subsidize coordination activities.
    5. We believe that UTAM's band clearing plan is workable and 
appropriate. While we understand concerns for the need to make spectrum 
available for nomadic operations promptly, we also recognize the 
practical difficulties UTAM faces in clearing the 1910-1930 MHz band. 
We believe that UTAM has devised a workable strategy for expediting 
nomadic device deployment given the existing constraints, such as the 
need to fund and negotiate the relocation of the incumbent microwave 
links, and the fact that incumbent public safety licensees are not 
required to relocate for five years. While we are sympathetic to 
desires for a more rapid deployment scheme for nomadic data devices in 
this spectrum, none is apparent. We believe that the only way to make 
the band fully available to nomadic devices is to completely clear it. 
The most effective way to do so is to enable non-nomadic devices to be 
deployed so that fees from such deployment can be used to complete the 
band clearing process as rapidly as possible. While we share doubts 
regarding the potential of the ``wedge'' clearing approach to make 
significant amounts of spectrum available to nomadic devices prior to 
complete band clearing, this approach appears to be the soundest plan 
given the constraints. As an alternative for those developers of 
nomadic devices whose needs could be accommodated by the UTAM plan, we 
note that we recently allocated additional spectrum at 2390-2400 MHz 
for unlicensed data PCS devices, and this spectrum will not require 
clearing. We believe that the immediate needs of unlicensed nomadic 
data PCS devices can be accommodated in this spectrum. Operation in the 
2390-2400 MHz band will not require participation in UTAM and will not 
be governed by the UTAM plan.
    6. With regard to concerns about deployment of nomadic devices 
prior to complete band clearing, we addressed this matter in the 
Memorandum Opinion and Order in this proceeding, 59 FR 32830, June 24, 
1994. We stated therein that when we have determined that spectrum is 
available, or will soon be available, for deployment of nomadic 
devices, we will issue a Public Notice announcing the date upon which 
we will begin accepting and processing applications for certification 
of such devices. We believe that this plan will adequately ensure that 
nomadic operations do not cause interference to fixed microwave 
operations. We believe UTAM's commitment to voluntarily address the 
concerns of the incumbent microwave community regarding coordination 
with PCS licensees to negotiate microwave relocations on a system-wide 
basis where possible and appropriately will further the relocation 
process. Such system-wide coordination and negotiation activities will 
promote more rapid availability of spectrum and minimize the relocation 
burden for incumbent microwave licensees. We believe that is neither 
necessary nor practical for the Commission to require such system-wide 
negotiations. Similarly, we believe that UTAM has adequately responded 
to concerns about clearing priorities and updating of the zone status.
    7. We believe that UTAM has adequately responded to the concerns 
that have been raised about its coordination procedures. Its 
explanation that appropriate adjustments have already been incorporated 
into the TIA Bulletin 10F criteria and stated intention to coordinate 
system deployed in Zone 1 areas at maximum system capacity appear to 
adequately address the concerns of the microwave community. We also 
note that UTAM is taking steps to respond to the concerns of HP and 
other manufacturers regarding the necessity for advance warning for 
``stop deployment'' orders. We are similarly convinced that UTAM will 
be gathering sufficient information to monitor manufacturer compliance 
with its LVP and to expeditiously locate any source of interference, 
should it occur. We disagree that we intended that UTAM develop and 
specify a standard procedure or specific technology to prevent 
unauthorized deployment of unlicensed PCS devices. In fact, we 
previously stated that we would allow UTAM broad flexibility in 
establishing the means it uses to fulfill its responsibility for 
ensuring that unlicensed devices do not interfere with existing 
microwave operations. We continue to believe that this is the 
appropriate approach. We believe that the standards for disablement 
mechanisms outlined in the plan, with the clarifications provided by 
UTAM in its response to the comments, will adequately protect incumbent 
microwave operations from potential interference caused by unauthorized 
relocation of unlicensed devices. We also agree with UTAM that further 
requirements would not prevent those who wish to intentionally violate 
the rules from doing so.
    8. Regarding enforcement, we believe that the requirements of 
Section 15.307(b) of the Commission's rules are adequate to ensure 
manufacturers' compliance with the procedures established by UTAM, and 
that no additional rules are necessary or desirable. We fully intend to 
take appropriate enforcement action against parties that violate the 
rules and procedures we have established with regard to operation in 
the unlicensed spectrum at 1910-1930 MHz. We further believe that the 
clarifications UTAM provides regarding its dispute resolution 
procedures remove any confusion over UTAM's intent to work in good 
faith to resolve any disputes that may arise.
    9. We find that UTAM has provided adequate and sufficient 
information to satisfy the conditions laid out in the Second Report and 
Order. As explained above, we believe that UTAM has adequately 
addressed all of the relevant issues. We find no merit in arguments 
that UTAM's authorization should be revoked or limited. While Apple 
challenges UTAM's governance, it offers no specifics as to how the 
governance procedures should be changed or otherwise improved. Further, 
we disagree that it is necessary or desirable to identify an 
alternative entity at this time to manage the band transition should 
UTAM cease operation. We note that no alternative to UTAM has been 
suggested or come forward. Therefore, we are reaffirming UTAM has the 
coordinator for the transition of the 1910-1930 MHz band from fixed 
microwave services to use by unlicensed PCS.
    10. We do not believe it is necessary to require UTAM to submit a 
revised [[Page 27425]] plan that includes the additional information 
presented in its reply comments. We recognize that, to some extent, the 
plan and details of its implementation are a work in progress. 
Accordingly, we believe the appropriate course of action is to monitor 
UTAM's implementation of the plan. We are requiring UTAM to furnish 
biannual reports on its progress in implementing the plan. The first 
report will be due July 1, 1995, and every six months thereafter. The 
reports should provide an update on the status of the financial and 
band clearing plans, the extent of incumbent microwave relocation, and 
the extent of unlicensed PCS device deployment. Additionally, the 
reports should provide updated projections of future band clearing and 
unlicensed PCS implementation based on the best and most current data 
available at the time the report is prepared. We also are requiring 
that the report provide information on any problems or difficulties 
encountered in implementing the plan and how they are being resolved.

Ordering Clauses

    11. Accordingly, It Is Ordered, pursuant to sections 4(i), 7(a), 
302, 303(c), 303(f), 303(g), and 303(r) of the Communications Act of 
1934, as amended, U.S.C. Sections 154(i), 157(a), 302, 303(c), 303(f), 
303(g), and 303(r), that UTAM, Inc. is designated to coordinate and 
manage the transition of the 1910-1930 MHz band from the Private 
Operational Fixed Microwave Service to unlicensed PCS operations. It Is 
Further Ordered, that UTAM, Inc., shall submit to the Commission 
reports on its progress in implementing its plan beginning on July 1, 
1995, and every six months thereafter. It Is Further Ordered, that Part 
15 is amended as shown to remove the conditions attached to UTAM's 
designation as the coordinator for unlicensed PCS operations in the 
1910-1930 MHz band.

List of Subjects in 47 CFR Part 15

    Radio.

Federal Communications Commission.
William F. Caton,
Acting Secretary.

    Part 15 of Chapter I of Title 47 of the Code of Federal Regulations 
is amended as follows:

PART 15--RADIO FREQUENCY DEVICES

    1. The authority citation for part 15 continues to read as follows:

    Authority: Secs. 4, 302, 303, 304, and 307 of the Communications 
Act of 1934, as amended, 47 U.S.C. Sections 154, 302, 303, 304, and 
307.

    2. Section 15.307(a) is revised to read as follows:


Sec. 15.307  Coordination with fixed microwave service.

    (a) UTAM, Inc., is designated to coordinate and manage the 
transition of the 1910-1930 MHz band from Private Operational-Fixed 
Microwave Service (OFS) operating under part 94 of this chapter to 
unlicensed PCS operations.
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[FR Doc. 95-12704 Filed 5-23-95; 8:45 am]
BILLING CODE 6712-01-M