[Federal Register Volume 62, Number 14 (Wednesday, January 22, 1997)]
[Rules and Regulations]
[Pages 3232-3240]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 97-1350]


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FEDERAL COMMUNICATIONS COMMISSION

47 CFR Part 1

[ET Docket No. 93-62; FCC 96-487]


Guidelines for Evaluating the Environmental Effects of 
Radiofrequency Radiation

AGENCY: Federal Communications Commission.

ACTION: Final rule.

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SUMMARY: This First Memorandum Opinion and Order (``MO&O'') amends the 
Commission's Rules to extend the transition period for applicants and 
station licensees to determine compliance with our new requirements for 
evaluating the environmental effects of radiofrequency (RF) 
electromagnetic fields from transmitters regulated by the Federal 
Communications Commission (FCC). For most radio services, the 
transition period is extended by eight months to September 1, 1997. For 
the Amateur Radio Service the transition period is extended to January 
1, 1998. The extensions are necessary to allow applicants and licensees 
adequate time to understand and implement requirements for ensuring 
compliance with RF exposure guidelines adopted by the FCC in August of 
1996.

EFFECTIVE DATES: January 22, 1997.

FOR FURTHER INFORMATION CONTACT: Robert Cleveland or Richard Engelman, 
Office of Engineering and Technology, Federal Communications 
Commission, (202) 418-2464.

SUPPLEMENTARY INFORMATION: This is a summary of the Commission's First 
Memorandum Opinion and Order (First MO&O) in ET Docket 93-62, FCC 96-
487, adopted December 23, 1996, and released December 24, 1996. The 
complete text of the First MO&O is available for inspection and copying 
during business hours in the FCC Reference Center (Room 239), 1919 M 
Street, N.W., Washington, D.C., and also may be purchased from the 
Commission's copy contractor, International Transcription Services, 
Inc., (202) 857-3800, 2100 M Street, N.W., Suite 140, Washington, D.C. 
20037. The text of the First MO&O can also be viewed and downloaded 
from the World Wide Web site of the FCC's Office of Engineering and 
Technology. The address is: www.fcc.gov/Bureaus/Engineering_
Technology/Orders/fcc96487.txt.

Summary of the First Memorandum Opinion and Order

    1. On August 1, 1996, the FCC adopted a Report and Order, 61 FR 
41006, August 7, 1996, in this proceeding which amended the FCC's rules 
for evaluating the environmental effects of radiofrequency (RF) 
electromagnetic fields produced by FCC-regulated transmitters.1 
Human exposure to RF electromagnetic fields is one of several 
environmental factors considered by the FCC in determining whether its 
actions may adversely affect the quality of the human environment as 
required by the National Environmental Policy Act (NEPA).2 The 
FCC's Report and Order adopted new guidelines and methods for 
evaluating human exposure to RF fields based on updated recommendations 
from the National Council on Radiation Protection and Measurements 
(NCRP) and the American National Standards Institute (ANSI).
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    \1\ See Report and Order, ET Docket 93-62, 11 FCC Rcd 15123 
(1996).
    \2\ National Environmental Policy Act of 1969, 42 U.S.C. Section 
4321, et seq.
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    2. The Report and Order also provided a transition period for 
applicants and stations to come into compliance with the new 
guidelines. After considering the comments filed in this proceeding and 
the impact of the new requirements, the FCC concluded that the new 
requirements would apply to station applications filed after January 1, 
1997, as described in the amended 47 CFR 1.1307(b)(4). Also, 
recognizing that this relatively short transition period might cause 
some difficulties for certain applicants, we gave our Bureaus delegated 
authority for one year to address, through the granting of waivers or 
similar actions, the specific needs of individual parties that make a 
good-cause showing that they require additional time to comply with the 
new guidelines.
    3. Seventeen petitions for reconsideration and/or clarification, as 
well as a motion for extension of the effective date, were filed in 
response to the Report and Order. The petitioners ask that we extend 
the transition period beyond January 1, 1997, arguing that the existing 
transition period does not allow adequate time for affected parties to 
achieve compliance with the new requirements. This request is supported 
by comments filed by others in response to these petitions. In 
addition, the Amateur Radio Relay League, Inc., (ARRL) requests that we 
provide a reasonable transition period for compliance with the 
requirements adopted in the Report and Order regarding amateur radio 
license examinations and question pools.
    4. Opposition to the proposals to extend the transition period was 
filed by several groups. These latter parties generally argue that an 
extension could result in adverse public health risks and would allow 
the continued proliferation of facilities that do not comply with the 
new requirements.
    5. The Commission has decided to grant the petitioners' request to 
extend the transition period. We are extending the transition period so 
that the new RF guidelines will apply to station applications filed 
after September 1,

[[Page 3233]]

1997, as described in Section 1.1307(b)(4) of the rules. When we 
adopted the Report and Order, we anticipated that it might cause 
difficulties for certain applicants to have to determine compliance 
with the new RF guidelines by January 1, 1997. Accordingly, we gave 
delegated authority to our Bureaus to extend this transition period on 
a case-by-case basis. Based on the petitions and comments we have now 
received, it is clear that most station applicants will need additional 
time to determine that they comply with the new requirements. An 
extension of the transition period would eliminate the need for the 
filing and granting of individual waiver requests, and would allow time 
for our applicants and licensees to review the results of the decisions 
we will be taking in the near future to address the other issues raised 
in the petitions. It would also allow applicants to review the revised 
Bulletin 65 and to make the necessary measurements or calculations to 
determine that they are in compliance.
    6. While we concur with petitioners who request that we extend the 
transition period, we believe that it would be unnecessary, in most 
circumstances, to extend the transition period for a full year or more. 
At the same time, we do not concur with petitioners who suggest that 
granting any extension of the transition period will have significant 
adverse effects on public health. Accordingly, we are extending the 
transition period for station applications until September 1, 1997.
    7. We are also extending the transition period to January 1, 1998, 
for amateur operators to come into compliance with the new 
requirements. We see merit in the arguments expressed by the ARRL that, 
due to the uniqueness of the Amateur Radio Service, additional time is 
needed to ensure compliance. In particular, we note that amateur 
stations can use a wide variety of equipment and antennas, and this can 
make it very difficult to determine whether excessive RF 
electromagnetic fields may be produced by individual stations. 
Furthermore, all amateur radio stations in the past had been 
categorically exempt from these regulations, and many amateur operators 
may not be familiar with the new requirements and may need additional 
time to determine how to perform correctly a routine environmental 
evaluation.
    8. With respect to amateur operator license examination 
requirements, we agree with the arguments raised by the ARRL. The 
volunteers recently released revised versions of two of the pools which 
contain the required questions. Teachers and publishers are currently 
incorporating the new material into training manuals and courses for 
use by those preparing to take the examinations starting July 1, 1997. 
Work is also underway to similarly revise the third and final question 
pool for use starting July 1, 1998. We are, therefore, staying the 
enforcement of the new examination provisions adopted in the Report and 
Order in the amended 47 CFR Sec. 97.503(b) to July 1, 1997, with 
respect to Element 2 and 3(A) examinations and to July 1, 1998, with 
respect to Element 3(B) examinations. Recognizing that a relatively 
short transition period might cause some difficulties for certain 
applicants, we are delegating authority, as we did in the Report and 
Order, to our Bureaus until July 1, 1998, to address the specific needs 
of individual parties that make a good cause showing that they require 
additional time to meet the new guidelines. Such relief could come 
through waivers of our rules or through other similar actions.
    9. The rules we are adopting temporarily relieve existing 
restrictions. Pursuant to 5 U.S.C. Secs. 553(d)(1) and 553(d)(3), we 
find that good cause exists to make these rules effective immediately 
rather than to follow the normal practice of making them effective 30 
days after publication in the Federal Register. This will permit all 
parties filing applications during the next 30 days to take advantage 
of the extension of the transition periods. Accordingly, pursuant to 
the authority contained in Sections 4(i), 7(a), 303(c), 303(f), 303(g), 
303(r) and 332(c)(7) of the Communications Act of 1934, as amended, 47 
U.S.C. Sections 154(i), 157(a), 303(c), 303(f), 303(g), 303(r) and 
332(c)(7), it is ordered that, effective upon adoption, Part 1 of the 
Commission's Rules and Regulations, 47 CFR Part 1, is amended as 
specified in rule changes.
    10. It is further ordered that, to the extent discussed above and 
as reflected in the new rules, certain aspects of the various petitions 
and motions filed in this proceeding are granted. It is also ordered 
that motions filed by the Ad-hoc Association of Parties Concerned about 
the Federal Communications Commission's Radiofrequency Health and 
Safety Rules (``Ad-hoc Association'') to accept a late-filed petition 
for reconsideration, by the Ad-hoc Association to accept a late filed 
reply to an opposition to a petition for reconsideration, and by the 
Cellular Phone Taskforce to accept a late-filed opposition to petition 
for reconsideration and clarification are granted. Because the 
decisions we are taking in this proceeding relate specifically to 
important public health issues, we believe that it is in the public 
interest to consider these late-filed documents along with all of the 
other timely petitions and comments in this proceeding. It is also 
ordered that enforcement of the amendments to 47 CFR Secs. 97.503(b)(1) 
and 97.503(b)(2) adopted in the Report and Order are stayed until July 
1, 1997, and enforcement of the amendments to 47 CFR Sec. 97.503(b)(3) 
is stayed until July 1, 1998.

Final Regulatory Flexibility Analysis

    11. As required by Section 603 of the Regulatory Flexibility Act, 5 
U.S.C. Sec. 603 (RFA), an Initial Regulatory Flexibility Analysis 
(IRFA) was incorporated in the Notice of Proposed Rule Making (Notice), 
58 FR 19393, March 14, 1993.3 The Commission sought written public 
comments on the proposals in the Notice, including on the IRFA. In the 
Report and Order in this proceeding, the Commission adopted a Final 
Regulatory Flexibility Analysis (FRFA).4 Petitions for 
reconsideration were filed in response to the Report and Order by 
seventeen parties. Several technical and legal issues have been raised 
in the petitions and subsequent comments. In addition, several 
petitions have raised questions about the original FRFA. This First 
Memorandum Opinion and Order addresses those petitions and comments 
requesting extension of the transition period specified in the Report 
and Order. We intend to address the other issues raised in the 
petitions in a separate action in the very near future. This FRFA 
addresses the impact of the extension of the transition period as well 
as the comments that were made on the original FRFA contained in the 
Report and Order. The FRFA conforms to the RFA, as amended by the 
Contract With America Advancement Act of 1996 (CWAAA), Public Law No. 
104-121, 110 Stat. 847 (1996).5
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    \3\ See Notice of Proposed Rule Making, ET Docket No. 93-62, 8 
FCC Rcd 2849 (1993).
    \4\ See Appendix A to Report and Order, ET Docket 93-62, 11 FCC 
Rcd 15123 (1996), 61 FR 41006 (August 7, 1996).
    \5\ Subtitle II of the CWAAA is ``The Small Business Regulatory 
Enforcement Fairness Act of 1996'' (SBREFA), codified at 5 U.S.C. 
Sec. 601 et seq.
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12. Need for and Purpose of This Action

    The National Environmental Policy Act (NEPA) of 1969 requires 
agencies of the Federal Government to evaluate the effects of their 
actions on the quality of the human environment. To meet its 
responsibilities under NEPA, the Commission has adopted revised

[[Page 3234]]

radiofrequency (RF) exposure guidelines for purposes of evaluating 
potential environmental effects of RF electromagnetic fields produced 
by FCC-regulated facilities. The new guidelines reflect more recent 
scientific studies of the biological effects of RF electromagnetic 
fields. Based on the petitions and comments received in response to the 
Report and Order, it is clear that most station applicants need 
additional time to understand the new requirements and determine that 
they comply with them. This First Memorandum Opinion and Order 
addresses those needs.

13. Summary of Issues Raised by the Public Comments in Response to the 
Initial Regulatory Flexibility Analysis

    No comments were filed in direct response to the IRFA. In general 
comments on the Notice, however, some commenters raised issues that 
might affect small entities. These issues were discussed in the FRFA 
contained in the Report and Order in this proceeding.

14. Summary of Issues Raised Regarding the Final Regulatory Flexibility 
Analysis (FRFA) by the Petitions, Motions, and Comments in Response to 
the Report and Order

    The American Radio Relay League, Inc. (ARRL), points out that we 
did not consider in the original FRFA the impact that new amateur 
operator license examination requirements would have on the ARRL and 
other Volunteer Examiner Coordinators (VEC), which the ARRL alleges 
should be treated as small business entities. 6 The ARRL expresses 
particular concern that the new rules, which were effective 
immediately, required that additional questions be added to the amateur 
operator license examinations. The ARRL indicates that the examinations 
now in circulation do not contain the requisite number of questions, 
and it would be impossible for the thousands of volunteer examiners 
(VEs) to comply with the new requirements unless they are given time to 
implement them. The ARRL requests that the implementation dates for the 
new examination requirements be extended to July 1, 1997, for certain 
examinations and to July 1, 1998, for other examinations. The ARRL 
maintains that such an extension would permit the VECs to make the 
required changes as they are routinely revising the existing 
examinations.
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    \6\ See ARRL ``Motion for Extension of Effective Date of 
Rules,'' filed on November 7, 1996, at 1-6.
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    15. Paging Network, Inc. (PageNet) and the Personal Communications 
Industry Association (PCIA) maintain that the original FRFA 
underestimates the number of transmitters that will require a 
determination of compliance with the new rules and the associated 
burden on communications carriers.7 PCIA notes that the original 
FRFA indicates that we receive only 10,000 paging applications a year, 
and calculates that only 1176 will be subject to routine environmental 
evaluation. According to PCIA, however, many paging facilities can be 
constructed without prior Commission authorization and, therefore, 
significant numbers of facilities are built annually that are not 
included in the 10,000 total. Further, PCIA continues, some of those 
10,000 applications are renewal applications that may cover hundreds of 
sites, and the assumption that only 11% will require evaluation does 
not appear to be accurate. PCIA notes that initial feedback from 
carriers indicates that a substantially higher number of applications 
will require routine evaluation. PCIA also calls our estimate of one 
burden hour per routine evaluation ``unrealistic.'' Instead, PCIA 
maintains, the process of evaluation may possibly involve a site visit 
and field measurements, which can take 24 hours.
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    \7\ PageNet Petition at 2-3, PCIA Petition at 11.
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    16. These comments have been considered during the preparation of 
this revised FRFA, as indicated in Section IV below. In addition, as 
discussed in Section V, we have taken certain steps to address the 
concerns raised regarding the amount of burden imposed by these rules.

17. Description and Estimate of the Small Entities Subject to the 
Rules.

    The rules being adopted in this First Memorandum Opinion and Order 
apply to the following eleven industry categories and services. The RFA 
generally defines the term ``small business'' as having the same 
meaning as the term ``small business concern'' under the Small Business 
Act, 15 U.S.C. Sec. 632. Based on that statutory provision, we will 
consider a small business concern one which (1) is independently owned 
and operated; (2) is not dominant in its field of operation; and (3) 
satisfies any additional criteria established by the Small Business 
Administration (SBA). The RFA SBREFA provisions also apply to nonprofit 
organizations and to governmental organizations. Since the Regulatory 
Flexibility Act amendments were not in effect until the record in this 
proceeding was closed, the Commission was unable to request information 
regarding the number of small business within each of these services or 
the number of small business that would be affected by this action. We 
have, however, made estimates based on our knowledge about applications 
that have been submitted in the past. To the extent that a government 
entity may be a licensee or an applicant, the impact on those entities 
is included in the estimates for small businesses below.
    18. Under the new rules adopted in the Report and Order, many radio 
services are categorically excluded from having to determine compliance 
with the new RF exposure limits. This exclusion is based on a 
determination that there is little potential for these services causing 
exposures in excess of the limits. Within the following services that 
are not categorically excluded in their entirety, many transmitting 
facilities are categorically excluded based on antenna location and 
power. These categorical exclusions significantly reduce the burden 
associated with these rules, and may reduce the impact of these rules 
on small businesses. Furthermore, the extension of the transition 
periods contained in this First Memorandum Opinion and Order will 
reduce the impact on applicants, particularly small businesses, by 
allowing them adequate time to understand the new requirements and 
ensure that their facilities are in compliance with them in a orderly 
and reasonable manner.

A. Cellular Radio Telephone Service

    19. The Commission has not developed a definition of small entities 
applicable to cellular licensees. Therefore, the applicable definition 
of small entity is the definition under the Small Business 
Administration (SBA) rules applicable to radiotelephone companies. This 
definition provides that a small entity is a radiotelephone company 
employing fewer than 1,500 persons.8 Since the Regulatory 
Flexibility Act amendments were not in effect until the record in this 
proceeding was closed, the Commission was unable to request information 
regarding the number of small cellular businesses and is unable at this 
time to make a precise estimate of the number of cellular firms which 
are small businesses.
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    \8\ 13 CFR Sec. 121.201, Standard Industrial Classification 
(SIC) Code 4812.
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    20. The size data provided by the SBA does not enable us to make a 
meaningful estimate of the number of cellular providers which are small 
entities because it combines all radiotelephone

[[Page 3235]]

companies with 500 or more employees.9 We therefore used the 1992 
Census of Transportation, Communications, and Utilities, conducted by 
the Bureau of the Census, which is the most recent information 
available. That census shows that only 12 radiotelephone firms out of a 
total of 1,178 such firms which operated during 1992 had 1,000 or more 
employees.10 Therefore, even if all 12 of these large firms were 
cellular telephone companies, all of the remainder were small 
businesses under the SBA's definition. We assume that, for purposes of 
our evaluations and conclusions in the Final Regulatory Flexibility 
Analysis, all of the current cellular licensees are small entities, as 
that term is defined by the SBA. Although there are 1,758 cellular 
licenses, we do not know the number of cellular licensees, since a 
cellular licensee may own several licenses.
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    \9\ U.S. Small Business Administration 1992 Economic Census 
Employment Report, Bureau of the Census, U.S. Department of 
Commerce, SIC Code 4812 (radiotelephone communications industry data 
adopted by the SBA Office of Advocacy).
    \10\ U.S. Bureau of the Census, U.S. Department of Commerce, 
1992 Census of Transportation, Communications, and Utilities, UC92-
S-1, Subject Series, Establishment and Firm Size, Table 5, 
Employment Size of Firms: 1992, SIC Code 4812 (issued May 1995).
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    21. We assume that all of the current rural cellular licensees are 
small businesses. Two small business associations filed comments in our 
proceeding on ``Revision of the Commission's Rules to Ensure 
Compatibility with Enhanced 911 Emergency Calling Systems'' of 
relevance. The Organization for the Protection and Advancement of Small 
Telephone Companies (OPASTCO) states that 2/3 of its 440 members 
provide cellular service.11 The Rural Cellular Association (RCA) 
states that its members serve 80 cellular service areas.12 We 
recognize that these numbers represent only part of the current rural 
cellular licensees because there might be other rural companies not 
represented by either association.
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    \11\ OPASTCO Comments at 1-2, CC Docket No. 94-102, filed 
January 9, 1995.
    \12\ RCA Comments at 2, CC Docket No. 94-102, filed January 9, 
1995.
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    22. The Commission processes roughly 700 applications for cellular 
transmitters facilities, involving 7,000 site locations, per year. 
Because we do not require licensees to provide us with site 
information, we cannot predict precisely how many of these applications 
will exceed our categorical exclusion criteria. However, we estimate 
that approximately 2,800 transmitting facilities will exceed the 
categorical exclusion criteria and will require a determination of 
compliance with the new RF exposure limits, based on calculations or 
measurements.

B. Personal Communications Service (PCS)

    23. The broadband PCS spectrum is divided into six frequency blocks 
designated A through F. Pursuant to 47 CFR Sec. 24.720(b), the 
Commission has defined ``small entity'' for Blocks C and F licensees as 
firms that had average gross revenues of less than $40 million in the 
three previous calendar years. This regulation defining ``small 
entity'' in the context of broadband PCS auctions has been approved by 
the SBA. 13
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    \13\ See Implementation of Section 309(j) of the Communications 
Act--Competitive Bidding, PP Docket No. 93-253, Fifth Report and 
Order, 9 FCC Rcd 5532, 5581-84 (1994).
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    24. The Commission has auctioned broadband PCS licenses in Blocks 
A, B, and C. We do not have sufficient data to determine how many small 
businesses under the Commission's definition bid successfully for 
licenses in Blocks A and B. As of now, there are approximately 90 non-
defaulting winning bidders that qualify as small entities in the Block 
C auctions. Based on this information, we conclude that the number of 
broadband PCS licensees affected by the rule adopted in this Report and 
Order includes the 90 non-defaulting winning bidders that qualify as 
small entities in the Block C broadband PCS auction.
    25. At present, no licenses have been awarded for Blocks D, E, and 
F for spectrum. Therefore, there are no small businesses currently 
providing these services. However, a total of 1,479 licenses will be 
awarded in the D, E, and F Block broadband PCS auctions, which have 
started. Eligibility for the 493 F Block licensees is limited to 
``entrepreneurs'' with the average gross revenues of less than $125 
million in the last two years. However, we cannot estimate how many 
small businesses under the Commission's definition will win F Block 
licenses, or D and E Block licenses. Given the fact that nearly all 
radiotelephone companies have fewer than 1,000 employees and that no 
reliable estimate of the number of prospective D, E, and F Block 
licensees can be made, we assume, for purposes of our evaluations and 
conclusions in this FRFA, that all of the licenses will be awarded to 
small entities, as that term is defined by the SBA.
    26. After all PCS licenses have been issued, the Commission expects 
to receive approximately 1,000 applications per year involving 10,000 
sites. Because we do not require licensees to provide us with site 
information, we cannot predict precisely how many of these applications 
will exceed our categorical exclusion criteria. However, we estimate 
that approximately 3000 sites will not meet the categorical exclusion 
criteria and will involve a determination of compliance with the RF 
exposure guidelines.

C. Private Land Mobile Radio Services, Specialized Mobile Radio (SMR)

    27. Pursuant to 47 CFR Sec. 90.814(b)(1), the Commission has 
defined ``small entity'' for geographic area 800 MHz and 900 MHz SMR 
licenses as firms that had average gross revenues of less than $15 
million in the three previous calendar years. This regulation defining 
``small entity'' in the context of 800 MHz and 900 MHz SMR has been 
approved by the SBA.14
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    \14\ See Amendment of Parts 2 and 90 of the Commission's Rules 
to Provide for the Use of 200 Channels Outside the Designated Filing 
Areas in the 896-901 MHz and the 935-940 MHz Bands Allotted to the 
Specialized Mobile Radio Pool, PR Docket No. 89-553, Second Order on 
Reconsideration and Seventh Report and Order, 11 FCC Rcd 2639, 2693-
702 (1995); Amendment of Part 90 of the Commission's Rules to 
Facilitate Future Development of SMR Systems in the 800 MHz 
Frequency Band, PR Docket No. 93-144, First Report and Order, Eighth 
Report and Order, and Second Further Notice of Proposed Rulemaking, 
11 FCC Rcd 1463 (1995).
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    28. The rule adopted in the Report and Order applied only to 
certain ``covered'' SMR providers in the 800 MHz and 900 MHz bands that 
either hold geographic area licenses or have obtained extended 
implementation authorizations. We do not know how many firms provide 
800 MHz or 900 MHz geographic area SMR service pursuant to extended 
implementation authorizations, nor how many of these providers have 
average gross revenues of less than $15 million. Since the Regulatory 
Flexibility Act amendments were not in effect until the record in this 
proceeding was closed, the Commission was unable to request information 
regarding the number of small businesses in this category. We do know 
that one of these firms has over $15 million in average gross revenues. 
We assume, for purposes of our evaluations and conclusions in this 
FRFA, that the remaining existing extended implementation 
authorizations may be held by small entities, as that term is defined 
by the SBA.
    29. The Commission recently held auctions for geographic area 
licenses in the 900 MHz SMR band. There were 60

[[Page 3236]]

winning bidders who qualified as small entities under the Commission's 
definition in the 900 MHz auction. Based on this information, we 
conclude that the number of geographic area SMR licensees affected by 
the rule adopted in the Report and Order includes these 60 small 
entities.
    30. No auctions have been held for 800 MHz geographic area SMR 
licenses. Therefore, no small entities currently hold these licenses. A 
total of 525 licenses will be awarded for the upper 200 channels in the 
800 MHz geographic area SMR auction. However, the Commission has not 
yet determined how many licenses will be awarded for the lower 230 
channels in the 800 MHz geographic area SMR auction. There is no basis 
to estimate, moreover, how many small entities within the SBA's 
definition will win these licenses. Given the facts that nearly all 
radiotelephone companies have fewer than 1,000 employees and that no 
reliable estimate of the number of prospective 800 MHz licensees can be 
made, we assume, for purposes of our evaluations and conclusions in 
this FRFA, that all of the licenses will be awarded to small entities, 
as that term is defined by the SBA.
    31. The Commission receives about 3,000 applications for covered 
SMR transmitters facilities per year. We do not have adequate 
information to predict precisely how many of these applications will 
exceed our categorical exclusion criteria. However, we estimate that 
approximately 1,000 transmitters will exceed categorical exclusion 
criteria and will require a determination of compliance.

D. Satellite Communications Services

    32. The Commission has not developed a definition of small entities 
applicable to satellite communications licensees. Therefore, the 
applicable definition of small entity is the definition under the Small 
Business Administration (SBA) rules applicable to Communications 
Services, Not Elsewhere Classified. This definition provides that a 
small entity is expressed as one with $11.0 million or less in annual 
receipts.15
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    \15\ 13 CFR Sec. 121.201, Standard Industrial Classification 
(SIC) Code 4899.
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    33. Because the Regulatory Flexibility Act amendments were not in 
effect until the comment period for this proceeding was closed, the 
Commission was unable to request information regarding the number of 
licensees in the international services discussed below that meet this 
definition of a small business. Thus, we are providing an estimate of 
licensees that constitute a small business.
    34. Fixed Satellite Earth Stations. Fixed satellite earth stations 
include international and domestic earth stations operating in the 4/6 
GHz AND 11/12/14 GHz bands. There are approximately 4200 earth station 
authorizations, a portion of which are Fixed Satellite Earth Stations. 
Although we were unable to request the revenue information, we estimate 
that some of the licensees of these earth stations would constitute a 
small business under the SBA definition.
    35. Fixed Satellite Small Earth Stations. Small transmit/receive 
earth stations operate in the 4/6 GHz frequency bands with antennas 
that are two meters or less in diameter. There are 4200 earth station 
authorizations, a portion of which are Fixed Satellite Small Earth 
Stations. Although we were unable to request the revenue information, 
we estimate that some of the fixed satellite small earth stations would 
constitute a small business under the SBA definition.
    36. Fixed Satellite Very Small Aperture Terminal (VSAT) Systems. 
VSAT systems operate in the 12/14 GHz frequency bands. Although various 
size small earth stations may be used, all stations of a particular 
size must be technically identical. Because these stations operate on a 
primary basis, frequency coordination with terrestrial microwave 
systems is not required. Thus, a single ``blanket'' application may be 
filed for a specified number of small antennas and one or more hub 
stations. The Commission has processed 377 applications for fixed 
satellite VSAT systems. At this time, we are unable to make a precise 
estimate of the number of small businesses that are VSAT system 
licensees and could be impacted by this action.
    37. Mobile Satellite Earth Stations. Mobile satellite earth 
stations are intended to be used while in motion or during halts at 
unspecified points. These stations operate as part of a network that 
includes a fixed hub station or stations. The network may provide a 
variety of land, maritime and aeronautical voice and data services. 
There are 2 mobile satellite licensees. At this time, we are unable to 
make a precise estimate of the number of small businesses that are 
mobile satellite earth station licensees and could be impacted by this 
action.
    38. Radio Determination Satellite Earth Stations. A radio 
determination satellite earth station is used in conjunction with a 
radio determination satellite service (rdss) system for the purpose of 
providing position location information. These stations operate as part 
of a network that includes a fixed hub station or stations and operate 
in the frequency bands (1610-1626.5 MHz and 2483.5-2500 MHz) allocated 
to rdss. There are 4 licensees. At this time, we are unable to make a 
precise estimate of the number of small businesses that are radio 
determination satellite earth station licensees and could be impacted 
by the forfeiture guidelines.
    39. It should be noted that in most of the satellite areas 
discussed above, the Commission issues one license to an entity but 
generally issues blanket license authority for thousands or even 
hundreds of thousands of earth stations or hand held transceivers. 
Overall, the Commission receives about 600 applications for satellite 
facilities per year. All applicants for satellite earth stations 
(except for receive-only stations) must make a determination of 
compliance with the limits, based on calculations or measurements.

E. Radio Broadcast Service

    40. The extension of the transition period contained in this First 
Memorandum Opinion and Order will apply to television broadcasting 
licensees, radio broadcasting licensees and potential licensees of 
either service. The Small Business Administration defines a television 
broadcasting station that has no more than $10.5 million in annual 
receipts as a small business.16 Television broadcasting stations 
consist of establishments primarily engaged in broadcasting visual 
programs by television to the public, except cable and other pay 
television services.17 Included in this industry are commercial, 
religious, educational, and other television stations.18 Also 
included are establishments primarily engaged in television 
broadcasting and which produce taped television program

[[Page 3237]]

materials.19 Separate establishments primarily engaged in 
producing taped television program materials are classified under 
another SIC number.20 There were 1,509 television stations 
operating in the nation in 1992.21 That number has remained fairly 
constant as indicated by the approximately 1,550 operating television 
broadcasting stations in the nation as of August, 1996.22 For 1992 
23 the number of television stations that produced less than $10.0 
million in revenue was 1,155 establishments.24
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    \16\ 13 CFR Sec. 121.201, Standard Industrial Code (SIC) 4833 
(1996).
    \17\ Economics and Statistics Administration, Bureau of Census, 
U.S. Department of Commerce, 1992 ``CENSUS OF TRANSPORTATION, 
COMMUNICATIONS AND UTILITIES, ESTABLISHMENT AND FIRM SIZE,'' Series 
UC92-S-1, Appendix A-9 (1995).
    \18\ Id. See Executive Office of the President, Office of 
Management and Budget, Standard Industrial Classification Manual 
(1987), at 283, which describes ``Television Broadcasting Stations 
(SIC Code 4833) as:
    Establishments primarily engaged in broadcasting visual programs 
by television to the public, except cable and other pay television 
services. Included in this industry are commercial, religious, 
educational and other television stations. Also included here are 
establishments primarily engaged in television broadcasting and 
which produce taped television program materials.
    \19\ Economics and Statistics Administration, Bureau of Census, 
U.S. Department of Commerce, 1992 ``CENSUS OF TRANSPORTATION, 
COMMUNICATIONS AND UTILITIES, ESTABLISHMENT AND FIRM SIZE,'' Series 
UC92-S-1, Appendix A-9 (1995).
    \20\ Id. SIC 7812 (Motion Picture and Video Tape Production); 
SIC 7922 (Theatrical Producers and Miscellaneous Theatrical Services 
(producers of live radio and television programs).
    \21\ FCC News Release No. 31327, Jan. 13, 1993; Economics and 
Statistics Administration, Bureau of Census, U.S. Department of 
Commerce, supra. note 78, Appendix A-9.
    \22\ FCC News Release No. 64958, Sept. 6, 1996.
    \23\ Census for Communications' establishments are performed 
every five years ending with a ``2'' or ``7''. See Economics and 
Statistics Administration, Bureau of Census, U.S. Department of 
Commerce, supra. note 78, III.
    \24\ The amount of $10 million was used to estimate the number 
of small business establishments because the relevant Census 
categories stopped at $9,999,999 and began at $10,000,000. No 
category for $10.5 million existed. Thus, the number is as accurate 
as it is possible to calculate with the available information.
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    41. Additionally, the Small Business Administration defines a radio 
broadcasting station that has no more than $5 million in annual 
receipts as a small business.25 A radio broadcasting station is an 
establishment primarily engaged in broadcasting aural programs by radio 
to the public.26 Included in this industry are commercial 
religious, educational, and other radio stations.27 Radio 
broadcasting stations which primarily are engaged in radio broadcasting 
and which produce radio program materials are similarly 
included.28 However, radio stations which are separate 
establishments and are primarily engaged in producing radio program 
material are classified under another SIC number.29 The 1992 
Census indicates that 96 percent (5,861 of 6,127) radio station 
establishments produced less than $5 million in revenue in 1992.30 
Official Commission records indicate that 11,334 individual radio 
stations were operating in 1992.31 As of August, 1996, official 
Commission records indicate that 12,088 radio stations were 
operating.32
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    \25\ 13 CFR Sec. 121.201, SIC 4832.
    \26\ Economics and Statistics Administration, Bureau of Census, 
U.S. Department of Commerce, supra. note 78, Appendix A-9.
    \27\ Id.
    \28\ Id.
    \29\ Id.
    \30\ The Census Bureau counts radio stations located at the same 
facility as one establishment. Therefore, each co-located AM/FM 
combination counts as one establishment.
    \31\ FCC News Release No. 31327, Jan. 13, 1993.
    \32\ FCC News Release No. 64958, Sept. 6, 1996.
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    42. Thus, the proposed rules will affect approximately 1,550 
television stations; approximately 1,194 of those stations are 
considered small businesses.33 Additionally, the proposed rules 
will affect 12,088 radio stations, approximately 11,605 of which are 
small businesses.34 These estimates may overstate the number of 
small entities since the revenue figures on which they are based do not 
include or aggregate revenues from non-television or non-radio 
affiliated companies. We recognize that the proposed rules may also 
impact minority and women owned stations, some of which may be small 
entities. In 1995, minorities owned and controlled 37 (3.0%) of 1,221 
commercial television stations and 293 (2.9%) of the commercial radio 
stations in the United States.35 According to the U.S. Bureau of 
the Census, in 1987 women owned and controlled 27 (1.9%) of 1,342 
commercial and non-commercial television stations and 394 (3.8%) of 
10,244 commercial and non-commercial radio stations in the United 
States.36 We recognize that the numbers of minority and women 
broadcast owners may have changed due to an increase in license 
transfers and assignments since the passage of the 1996 Act.
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    \33\ We use the 77 percent figure of TV stations operating at 
less than $10 million for 1992 and apply it to the 1996 total of 
1550 TV stations to arrive at 1,194 stations categorized as small 
businesses.
    \34\ We use the 96% figure of radio station establishments with 
less than $5 million revenue from the Census data and apply it to 
the 12,088 individual station count to arrive at 11,605 individual 
stations as small businesses.
    \35\ ``Minority Commercial Broadcast Ownership in the United 
States'', U.S. Dep't of Commerce, National Telecommunications and 
Information Administration, The Minority Telecommunications 
Development Program (``MTDP'') (April 1996). MTDP considers minority 
ownership as ownership of more than 50% of a broadcast corporation's 
stock, voting control in a broadcast partnership, or ownership of a 
broadcasting property as an individual proprietor. Id. The minority 
groups included in this report are Black, Hispanic, Asian, and 
Native American.
    \36\ See Comments of American Women in Radio and Television, 
Inc. in MM Docket No. 94-149 and MM Docket No. 91-140, at 4 n.4 
(filed May 17, 1995), citing 1987 Economic Censuses, ``Women-Owned 
Business,'' WB87-1, U.S. Dep't of Commerce, Bureau of the Census, 
August 1990 (based on 1987 Census). After the 1987 Census report, 
the Census Bureau did not provide data by particular communications 
services (four-digit Standard Industrial Classification (SIC) Code), 
but rather by the general two-digit SIC Code for communications 
(#48). Consequently, since 1987, the U.S. Census Bureau has not 
updated data on ownership of broadcast facilities by women, nor does 
the FCC collect such data. However, we sought comment on whether the 
Annual Ownership Report Form 323 should be amended to include 
information on the gender and race of broadcast license owners. 
``Policies and Rules Regarding Minority and Female Ownership of Mass 
Media Facilities,'' Notice of Proposed Rulemaking, 10 FCC Rcd 2788, 
2797 (1995).
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    43. In addition to owners of operating radio and television 
stations, any entity who seeks or desires to obtain a television or 
radio broadcast license may be affected by the rules adopted in this 
action. The number of entities that may seek to obtain a television or 
radio broadcast license is unknown.
    44. The Commission receives about 1,800 applications for broadcast 
facilities per year. All applicants must make a determination of 
compliance with the limits, either by calculation or measurement.

F. Stations in the Maritime Services

    45. The Report and Order required licensees and applicants for ship 
satellite earth terminals to make a determination of compliance with 
the new RF exposure requirements. The Commission has not developed a 
definition of small entities applicable to ship satellite earth station 
licensees. Therefore, the applicable definition of small entity is the 
definition under the Small Business Administration (SBA) rules 
applicable to radiotelephone companies. This definition provides that a 
small entity is a radiotelephone company employing fewer than 1,500 
persons.
    46. Ship mobile satellite service (MSS) stations are similar to 
mobile satellite earth stations, as discussed above, except that earth 
stations are aboard maritime vessels rather than traditional earth 
stations in the MSS. In the area of ship MSS, the Commission has two 
pending licensees for operation of the satellite service, one of which 
can be considered small business.
    47. The Commission receives about 272 applications for ship earth 
stations per year. All applicants must make a determination of 
compliance with the new RF exposure limits.

G. Experimental, Auxiliary, and Special Broadcast and Other Program 
Distribution Services

    48. This service involves a variety of transmitters, generally used 
to relay broadcast programming to the public (through translator and 
booster stations) or within the program distribution chain (from a 
remote news gathering unit back to the station). It also includes

[[Page 3238]]

Instructional Television Fixed Service stations, which are used to 
relay programming to the home or office, similar to that provided by 
cable television systems. The Commission has not developed a definition 
of small entities applicable to broadcast auxiliary licensees. 
Therefore, the applicable definition of small entity is the definition 
under the Small Business Administration (SBA) rules applicable to 
radiotelephone companies. This definition provides that a small entity 
is a radiotelephone company employing fewer than 1,500 persons.
    49. Our computer databases show that there are 532 FM translator 
and booster stations, 4,152 low power TV, TV translators and TV booster 
stations, and 142 Instructional Television Fixed Service (ITFS) 
stations which are not categorically excluded from complying with the 
new RF exposure requirements adopted in the Report and Order.37 
All of these stations would be impacted by the extension of the 
transition period being adopted in this action. The FCC does not 
collect financial information on any broadcast facility and the 
Department of Commerce does not collect financial information on these 
auxiliary broadcast facilities. We believe, however, that most, if not 
all, of these auxiliary facilities, including Low Power TV stations, 
could be classified as small businesses by themselves. We also 
recognize that many translators and boosters are owned by a parent 
station which, in some cases, would be covered by the revenue 
definition of small business entity discussed above. These stations 
would likely have annual revenues that exceed the SBA maximum to be 
designated as a small business (either $5 million for a radio station 
or $10.5 million for a TV station). As we indicated earlier, 96% of 
radio stations and 77% of TV stations are designated as small.
---------------------------------------------------------------------------

    \37\ Low power TV, TV translators and boosters, and FM 
translators and boosters are categorically excluded if their power 
is less than or equal to 100 watts. ITFS stations are categorically 
excluded if their power is less than 1640 watts EIRP or if the 
center of their antenna is more than 10 meters above ground and the 
antenna is not located on a rooftop. See 47 CFR Sec. 1.1307(b)(1). 
Our database records do not indicate how many of the 142 ITFS 
stations that are authorized more than 1640 watts operate with non-
rooftop antennas. According to the FCC news release, ``Broadcast 
Station Totals as of June 30, 1996'', released July 10, 1996, there 
are a total of 2,637 FM translator and booster stations, 4,910 TV 
translator and booster stations, and 1,903 low power TV stations. 
There are also 2,032 ITFS licensees.
---------------------------------------------------------------------------

    50. The approximate number of annual applications processed by the 
Commission for this service is 1,032. We do not have adequate 
information to predict precisely how many of these applications will 
exceed our categorical exclusion criteria. However, based on our 
existing database records, we would expect that 42% of these 
applications would be required to have a determination made regarding 
compliance with the new RF exposure limits.

H. Multipoint Distribution Service (MDS)

    51. This service involves a variety of transmitters, which are most 
commonly used to deliver programming to subscribers of wireless cable 
systems, similar to that provided by cable television systems. The 
Commission has refined the definition of ``small entity'' for the 
auction of MDS as an entity that together with its affiliates has 
average gross annual revenues that are not more than $40 million for 
the preceding three calendar years.38 This definition of a small 
entity in the context of MDS auctions has been approved by the 
SBA.39
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    \38\ 47 CFR Sec. 21.961(b)(1).
    \39\ See ``Amendment of Parts 21 and 74 of the Commission's 
Rules With Regard to Filing Procedures in the Multipoint 
Distribution Service and in the Instructional Television Fixed 
Service and Implementation of Section 309(j) of the Communications 
Act--Competitive Bidding,'' MM Docket No. 94-31 and PP Docket No. 
93-253, Report and Order, 10 FCC Rcd 9589 (1995).
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    52. The Commission completed its MDS auction in March 1996 for 
authorizations in 493 basic trading areas (BTAs). Of 67 winning 
bidders, 61 qualified as small entities. Five bidders indicated that 
they were minority-owned and four winners indicated that they were 
women-owned businesses. MDS is a service heavily encumbered with 
approximately 1,573 previously authorized and proposed MDS facilities 
and information available to us indicates that no MDS facility 
generates revenue in excess of $11 million annually. We conclude that 
for purposes of this FRFA, there are approximately 1,634 small MDS 
providers as defined by the SBA and the Commission's auction rules.
    53. The approximate number of annual applications processed by the 
Commission for MDS is 900. We do not have adequate information to 
predict precisely how many of these applications will exceed our 
categorical exclusion criteria. However, we estimate that approximately 
113 will not meet the categorical exclusion criteria and have to make a 
determination of compliance with the RF exposure limits.

I. Paging and Radiotelephone Service, and Private Land Mobile Radio 
Services, Paging Operations

    54. Since the Commission has not yet approved a small entities 
definition for paging services, we will utilize the SBA's definition 
applicable to radiotelephone companies, i.e., an entity employing less 
than 1,500 persons.
    55. The Commission anticipates that a total of 16,754 non-
nationwide geographic area licenses will be granted or auctioned. The 
geographic area licenses will consist of 2,754 MTA licenses and 14,000 
EA licenses. In addition to the 47 Rand McNally MTAs, the Commission is 
licensing Alaska as a separate MTA and adding three MTAs for the U.S. 
territories, for a total of 51 MTAs. No auctions of paging licenses 
have been held yet, and there is no basis to determine the number of 
licenses that will be awarded to small entities. Given the fact that 
nearly all radiotelephone companies have fewer than 1,000 employees, 
and that no reliable estimate of the number of prospective paging 
licensees can be made, we assume, for purposes of this FRFA, that all 
the 16,754 geographic area paging licenses will be awarded to small 
entities, as that term is defined by the Small Business Administration 
(SBA).
    56. We estimate that the approximately 600 current paging carriers 
could take the opportunity to partition and/or disaggregate a license 
to obtain an additional license through partitioning or disaggregation. 
We estimate that up to 52,062 licensees or potential licensees could 
take the opportunity to partition and/or disaggregate a license or 
obtain a license through partitioning or disaggregation. This number is 
based on the total estimate of paging carriers (approximately 600) and 
non-nationwide geographic area licenses to be awarded (16,754) and our 
estimate that each license will probably not be partitioned and/or 
disaggregated to no more than three parties. Given the fact that nearly 
all radiotelephone companies have fewer than 1,000 employees, and that 
no reliable estimate of the number of future paging licensees can be 
made, we assume for purposes of this FRFA that all of the licensees 
will be awarded to small businesses. We believe that it is possible 
that a significant number of up to approximately 52,062 licensees or 
potential licensees who could take the opportunity to partition and/or 
disaggregate a license or who could obtain a license through 
partitioning

[[Page 3239]]

and/or disaggregation will be a small business.
    57. In our original FRFA, we indicated that we receive about 10,000 
applications for paging facilities per year; 1,176 transmitters were 
expected to exceed the categorical exclusion. PageNet and PCIA have 
commented that these numbers underestimate the impact on paging 
carriers. PCIA notes that many paging facilities can be constructed 
without prior Commission authorization, and therefore significant 
numbers of paging facilities are built annually that are not included 
in the 10,000 count. PCIA questions our initial estimate that 11% of 
the applications would require routine evaluations, and believes most 
of these routine evaluations would involve field measurements that 
could take around 24 hours to complete. Although both PageNet and PCIA 
question our original analysis, neither party has submitted detailed 
information on how many paging facilities they believe would be covered 
under the new rules.
    58. We have categorically excluded from routine environmental 
evaluation all paging stations that operate with an ERP of 1000 watts 
or less. We have also categorically excluded paging stations that use 
antennas that are not located on a rooftop and are at least 10 meters 
above ground. Paging is authorized under both Part 22 and Part 90 of 
our rules. For Part 22 paging, we estimate that we receive 10,000 
applications for paging stations per year, 2939 of these involve power 
more than 1000 watts ERP. We believe that 40% of these would be located 
on a rooftop. For Part 90 paging, we estimate that we receive 2,000 
applications per year, 200 of which would be above 1000 watts. We 
believe that 75% of these would be located on a rooftop. Virtually all 
of the non-rooftop installations in both Parts 22 and 90 would use 
antennas more that 10 meters above ground and, therefore, would be 
categorically excluded.
    59. As of January 1995, we have allowed paging licensees to 
increase the ERP of their stations to 3500 watts without notifying us 
as long as the service contour does not change. In addition, we do 
require licensees to file information with respect to transmitters used 
for contour fill-in. Therefore, it is impossible to determine precisely 
the actual number of paging transmitters for which a routine 
environmental evaluation will be required. However, if we presume that: 
(1) for every application there are actually 2 transmitting facilities 
(in some cases there will be more and in many cases there will only be 
one facility); (2) only 10% of the ``fill in'' facilities will use more 
than 1000 watts (because they are filling in the service, these 
transmitters likely do not need as much power) but 75% of these will be 
located on a rooftop; and (3) only 10% of those stations that were 
initially 1000 watts or below ultimately increase their power (they 
could have originally asked for more power if they needed it); then a 
total of 2,643 paging stations per year would be subject to routine 
environmental evaluation requirements.
    60. We believe that many of the routine environmental evaluations 
can be done rather quickly, by reviewing OET Bulletin 65, considering 
the station and site configuration, and determining whether anyone 
would have access to an area near enough to the antenna that the RF 
exposure limits might be exceeded. These studies would take on the 
order of 1-3 hours to complete per transmitter site. In some cases, 
field measurements or more detailed calculations would be necessary, 
especially if more than one transmitter is located in the same area. 
The more detailed studies could take 24 hours, as suggested by PCIA.

J. Experimental Radio Service

    61. The Commission has not developed a definition of small entities 
applicable to experimental licensees. Therefore, the applicable 
definition of small entity is the definition under the Small Business 
Administration (SBA) rules applicable to radiotelephone companies. This 
definition provides that a small entity is a radiotelephone company 
employing fewer than 1,500 persons.40 Since the Regulatory 
Flexibility Act amendments were not in effect until the record in this 
proceeding was closed, the Commission was unable to request information 
regarding the number of small experimental radio businesses and is 
unable at this time to make a precise estimate of the number of 
Experimental Radio Services which are small businesses.
---------------------------------------------------------------------------

    \40\ 13 CFR Sec. 121.201, Standard Industrial Classification 
(SIC) Code 4812.
---------------------------------------------------------------------------

    62. The majority of experimental licenses are issued to companies 
such as Motorola and Department of Defense contractors such as 
Northrop, Lockheed and Martin Marietta. Businesses such as these may 
have as many as 200 licenses at one time. The majority of these 
applications, 70 percent, are from entities such as these. Given this 
fact, the remaining 30 percent of applications, we assume, for purposes 
of our evaluations and conclusions in this FRFA, will be awarded to 
small entities, as that term is defined by the SBA.
    63. The Commission processes approximately 1,000 applications a 
year for experimental radio operations. About half or 500 of these are 
renewals and the other half are for new licenses. We do not have 
adequate information to predict precisely how many of these 
applications will exceed our categorical exclusion criteria. However, 
we estimate that approximately 500 of these applications will be 
required to make an initial determination of compliance with our new RF 
guidelines.

K. Amateur Radio Service Volunteer Examiner Coordinator (VECs)

    64. In our original FRFA, we did not analyze the possible impact 
and burden on Amateur Radio Service (ARS) VECs. The ARRL has commented 
that our original FRFA is flawed because it fails to address the impact 
of the rules on small business entities such as itself and one other 
VEC.41 The Commission has not developed a definition for a small 
business or small organization that is applicable for VECs. The RFA 
defines the term ``small organization'' as meaning ``any not-for-profit 
enterprise which is independently owned and operated and is not 
dominant in its field . . .'' 42 Our rules do not specify the 
nature of the entity that may act as a VEC.43 However, all of the 
sixteen VEC organizations would appear to meet the RFA definition for 
small organization. Consequently, we have now analyzed the burden 
associated with this action on VECs.
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    \41\ The ARRL/VEC and the W5YI-VEC are components of 
organizations that publish materials marketed to persons for the 
purpose of preparing for passing the examinations required for the 
grant of an amateur operator license. This publishing activity, 
however, is separate from their VEC activity.
    \42\ 5 U.S.C. Sec. 601(4).
    \43\ Our rules, however, require that a VEC be an organization 
that has entered into a written agreement with the FCC to coordinate 
the examinations for amateur operator licenses. The examinations are 
prepared and administered by tens of thousands of amateur operators 
who serve as VEs. The VEC organization must exist for the purpose of 
furthering the amateur service, be capable of serving as a VEC in at 
least one of the thirteen VEC regions, agree to coordinate the 
examinations, agree to assure that every examinee is registered 
without regard to race, sex, religion, national origin or membership 
in any amateur service organization, and cooperate in maintaining 
the question pools for the VEs. See 47 CFR Secs. 97.521 and 97.523, 
which outline the qualifications for VECs and question pools.
---------------------------------------------------------------------------

    65. The VECs coordinate the activities of the VEs who prepare and 
administer the Commission's amateur operator license examination 
system. The administering VEs prepare written examinations using 
questions drawn

[[Page 3240]]

from common question pools.44 The VEs also prepare the questions 
for the question pools which are maintained by the VECs. The questions 
in the pools are updated and revised periodically. In the Report and 
Order, we required that new examination questions on RF safety be added 
to the examinations. That requirement was made effective immediately. 
In response to the Report and Order, the ARRL filed a petition 
requesting that we allow the examinations to be modified according to 
the VECs' normal revision schedule. We are adopting such an 
implementation plan into this First Memorandum Opinion and Order. As a 
result, the VECs can proceed with their normal schedule for soliciting 
questions from the VEs and revising the question pools. The VECs, 
therefore, will have a minimum burden in meeting the new requirements.
---------------------------------------------------------------------------

    \44\ See 47 CFR Sec. 97.507, which outlines the requirements for 
preparing examinations for an amateur operator license.
---------------------------------------------------------------------------

66. Summary of Projected Reporting, Recordkeeping and Other Compliance 
Requirements

    This First Memorandum Opinion and Order extends the transition 
period associated with the new RF exposure rules that were adopted in 
the Report and Order. There are no reporting, recordkeeping or other 
compliance requirements associated with the extension of the transition 
period and this action.

67. Steps Taken to Minimize the Economic Impact on Small Entities

    We have made every effort to devise ways to minimize the impact of 
the new RF exposure requirements on small entities, while protecting 
the health and safety of the public. We have incorporated substantial 
flexibility in the procedures to make compliance as minimally 
burdensome as possible. In particular, we took the following steps in 
the Report and Order to ease the impact on small businesses:
    68. We created categorical exclusions that require only those 
transmitters that appear to have the highest potential to create a 
significant environmental effect to perform an environmental 
evaluation.
    69. We indicated that we would revise OST Bulletin No. 65 in the 
near future to provide guidance for determining compliance with FCC-
specified RF limits. This should be of particular assistance to small 
businesses since it will provide straightforward information that 
should allow a quick understanding of the requirements and a quick 
assessment of the potential for compliance problems without the need 
for an expensive consultant or measurement.
    70. We allowed various methods for ensuring compliance with RF 
limits such as fencing, warning signs, labels, and markings, locked 
doors in roof-top areas, and the use of personal monitors and RF 
protective clothing in an occupational environment.
    71. We rejected our initial proposal to adopt induced and contact 
currents limits due to the lack of reliable equipment available.
    72. We specified a variety of acceptable testing methods and 
procedures that may be used to determine compliance. This will allow 
each small business to choose a procedure that best meets its needs in 
the manner that is least burdensome to it.
    73. We have always allowed multiple transmitter sites, i.e., 
antenna farms, to pool their resources and have only one study done for 
the entire site. This is very common at sites that have multiple 
entities such as TV, FM, paging, cellular, etc. In most circumstances, 
rather than each licensee hiring a separate consultant and submitting a 
study showing their compliance with the guidelines, one consulting 
radio technician or radio engineer can be hired by the group of 
licensees. The consultant surveys the entire site for compliance and 
gives his recommendations and findings to each of the licensees at the 
site. The licensees can then use the findings to show their compliance 
with the guidelines. In this way the cost of compliance is minimized as 
no one licensee has to pay the entire consulting fee, rather just a 
portion of it.
    74. In this First Memorandum Opinion and Order, we have also taken 
the following additional steps to reduce the burden on small businesses 
and organizations:
    75. We extended the transition period for station applicants to 
come into compliance with the new requirements. This will give 
licensees, and applicants for new stations many of which may be small 
businesses, more time to learn the nature of the new requirements, make 
studies to determine whether they comply, and take steps to come into 
compliance if necessary.
    76. We decided to permit the required changes in the ARS 
examinations to be made as the examinations are being routinely 
revised. This ensures that a minimal burden is put on the small 
organizations acting as VECs.

77. Report to Congress

    The Commission shall send a copy of this Final Regulatory 
Flexibility Analysis, along with this Report and Order, in a report to 
Congress pursuant to the Small Business Regulatory Enforcement Fairness 
Act of 1996, 5 U.S.C. Sec. 801(a)(1)(A).

List of Subjects in 47 CFR Part 1

    Radio, Reporting and recordkeeping requirements.

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

Rule Changes

    Title 47 of the Code of Federal Regulations, part 1, is amended as 
follows:

PART 1--PRACTICE AND PROCEDURE

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

    Authority: 47 U.S.C. 151, 154, 303 and 309(j) unless otherwise 
noted.

    2. Section 1.1307 is amended by revising the introductory text of 
paragraph (b)(4) to read as follows:


Sec. 1.1307  Actions which may have a significant environmental effect, 
for which Environmental Assessments (EAs) must be prepared.

* * * * *
    (b) * * *
    (4) Transition Provisions. For applications filed with the 
Commission prior to September 1, 1997 (January 1, 1998 for the Amateur 
Radio Service only), Commission actions granting construction permits, 
licenses to transmit or renewals thereof, equipment authorizations, or 
modifications in existing facilities require the preparation of an 
Environmental Assessment if the particular facility, operation or 
transmitter would cause human exposure to levels of radiofrequency 
radiation that are in excess of the requirements contained in 
paragraphs (b) (4)(i) through (4)(iii) of this section. These 
transition provisions do not apply to applications for equipment 
authorization or use of mobile, portable, and unlicensed devices 
specified in paragraph (b)(2) of this section.
* * * * *
[FR Doc. 97-1350 Filed 1-21-97; 8:45 am]
BILLING CODE 6712-01-P