[Federal Register Volume 66, Number 15 (Tuesday, January 23, 2001)]
[Proposed Rules]
[Pages 7438-7443]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 01-1758]



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FEDERAL COMMUNICATIONS COMMISSION

47 CFR Part 2

[ET Docket No. 00-258, RM-9911, RM-9920, FCC 00-455]


New Advanced Wireless Services

AGENCY: Federal Communications Commission.

ACTION: Proposed rule.

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SUMMARY: This document explores the possible use of frequency bands 
below 3 GHz to support the introduction of new advanced wireless 
services, including third generation (``3G'') as well as future 
generations of wireless systems. Advanced wireless systems could 
provide, for example, a wide range of voice, data, and broadband 
services over a variety of mobile and fixed networks. By these actions, 
we initiate proceedings to provide for the introduction of new advanced 
wireless services to the public, consistent with our obligations under 
section 706 of the 1996 Telecommunications Act, and promote increased 
competition among terrestrial services.

DATES: Comments must be submitted on or before February 22, 2001, and 
reply comments on or before March 9, 2001.

FOR FURTHER INFORMATION CONTACT: Rodney Small, Ira Keltz, or Geraldine 
Matise, Office of Engineering and Technology, (202) 418-2452, (202) 
418-0616, or (202) 418-2322, respectively; internet: [email protected], 
[email protected], or [email protected], respectively.

SUPPLEMENTARY INFORMATION: This is a summary of the Commission's Notice 
of Proposed Rule Making, ET Docket No. 00-258, FCC 00-455, adopted 
December 29, 2000, and released January 5, 2001. The full text of this 
decision is available on the Commission's Internet site, at 
www.fcc.gov. It is also available for inspection and copying during 
regular business hours in the FCC Reference Center, Room CY-A257, 445 
12th Street, SW, Washington, DC, and also may be purchased from the 
Commission's duplication contractor, International Transcription 
Service, Inc., (202) 857-3800.

Summary of Notice of Proposed Rule Making

    1. In November 1999, the Commission issued a Policy Statement, in 
which we set forth guiding principles for our spectrum management 
activities in the new millennium and discussed reallocating several 
bands for new advanced mobile and fixed communications services. In 
developing the allocation proposals presented below, we have been 
guided in large measure by the principles set forth in our Policy 
Statement, 14 FCC Rcd 19868 (1999). We are proposing a flexible 
allocation approach for the provision of advanced wireless services. As 
indicated in the Policy Statement, a flexible allocation approach will 
allow licensees freedom in determining the services to be offered and 
the technologies to be used in providing those services. This 
flexibility will allow licensees to make the most efficient use of 
their assigned frequencies in response to market forces.
    2. The fundamental issues in this proceeding are the amount of 
additional spectrum that should be made available for use by new 
advanced mobile and fixed services, including 3G systems, and the 
frequency bands in which this spectrum should be located. The 
International Telecommunication Union (``ITU'') has identified a number 
of frequency bands that could be used for advanced mobile and fixed 
communications services, including 3G systems. Some of these bands 
already are used in the United States for first or second generation 
wireless systems that may transition to advanced wireless systems over 
time. Consequently, this NPRM will focus primarily on additional 
frequency bands for possible use by advanced mobile and fixed systems, 
including two frequency bands that are not currently available for non-
Federal Government use. We have included these bands in our analysis in 
order to develop a complete record on all possible frequency bands for 
new advanced mobile and fixed systems. We expect that the record 
developed in response to this NPRM will inform our decisions on the 
amount of spectrum to allocate or designate from each candidate band 
for advanced wireless systems.

A. Service Requirements

    3. We request comment on a variety of issues regarding the 
introduction of advanced wireless services, including: the types of 
services likely to be offered and the time period over which they would 
be introduced; the technical standards for systems likely to be 
deployed (e.g., data rates, modulation techniques); the ability to 
transition existing systems to advanced systems; and steps to 
facilitate global or regional roaming. We request comment on how much 
additional spectrum will be needed to satisfy unmet and projected 
mobile requirements such as toll-quality voice, high-speed data 
including Internet and other multimedia applications, and full-motion 
video. What size spectrum blocks would be appropriate to implement 
advanced wireless systems? What is the minimum spectrum block size 
needed? When will additional spectrum be needed? We note that whether 
spectrum is clear, shared, or segmented may impact the amount of 
spectrum required, and the amount of spectrum that may be made 
available. Commenters should be mindful that the total amount of 
spectrum and the size of spectrum blocks will affect the amount of 
competition that could be introduced in the provision of advanced 
wireless services.

B. Spectrum Requirements

    4. In this proceeding, we believe that it is prudent to explore the 
possible use of several frequency bands that could be used for advanced 
wireless systems. We believe in this way we can ensure that the 
spectrum needs for advanced services, such as 3G, can best be met. We 
first explore the possible use of frequency bands already being used by 
cellular and PCS systems and other spectrum that will soon be available 
for additional mobile and fixed service use. We then explore the 
possible use of five additional frequency bands for advanced wireless 
systems. We propose to allocate for mobile and fixed services the 1710-
1755 MHz band that was designated for reallocation from Federal 
Government to non-Federal Government use under two statutory 
directives, the 1993 Omnibus Budget Reconciliation Act (``OBRA-93'') 
and the Balanced Budget Act of 1997 (``BBA-97''). Next, we seek comment 
on providing mobile and fixed service allocations for the 1755-1850 MHz 
band, if spectrum in the band is made available for non-Federal 
Government use, with some continued Federal use. Next, we propose to 
designate advanced mobile and fixed service use of the 2110-2150 MHz 
and 2160-2165 MHz bands that were identified for reallocation under the 
Commission's 1992 Emerging Technologies proceeding. Finally, we seek 
comment on various approaches for the 2500-2690 MHz band.
    5. We also solicit comment on several options for pairing these 
frequency bands. Although our options do not exhaust the range of all 
possible spectrum options, we believe that asking for comment on 
specific options will help focus the record. We also solicit comment on 
other possible arrangements and pairing options across all of the bands 
discussed in the NPRM. In soliciting comment on these options, we 
tentatively conclude that we should not reserve any spectrum 
exclusively for

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advanced wireless systems, but rather should make additional spectrum 
available generally for mobile and fixed use as proposed in our 
November 1999 Policy Statement. We believe that reserving spectrum in 
the United States exclusively for 3G mobile is not the best approach 
and that the determination of the best use of these bands should be 
left to market forces. Finally, we note that we recently adopted a 
Policy Statement, 15 FCC Rcd 80367 (2000), and a Notice of Proposed 
Rule Making, 15 FCC Rcd 81475 (2000) on secondary markets, in which we 
recognized that a functioning system of secondary markets could 
increase the amount of spectrum available to prospective users, uses, 
and to new wireless technologies by making more effective use of 
spectrum already assigned to existing licensees. The deployment of 
advanced wireless services in some of the frequency bands described 
below could be facilitated by the introduction of increased flexibility 
and other features designed to encourage secondary markets for spectrum 
in these bands.
(a) Currently Allocated Spectrum
    6. As noted in the NPRM, the ITU has identified for possible 3G 
systems several frequency bands, portions of which in the United States 
(approximately 210 megahertz of spectrum) are already allocated or in 
use for Mobile and Fixed services. The 806-960 MHz and the 1850-1910/
1930-1990 MHz bands, which are currently used by cellular, Specialized 
Mobile Radio, and broadband Personal Communications services, may 
eventually be transitioned for use by advanced wireless systems. In 
addition, approximately 70 megahertz of spectrum that is already 
allocated for Mobile and Fixed services and could be used to deploy new 
advanced wireless systems has yet to be auctioned in many parts of the 
country. Approximately 40 megahertz of new spectrum is in the 1850-
1910/1930-1990 MHz bands, and approximately 30 megahertz of new 
spectrum is in the 746-806 MHz band, which was recently allocated for 
fixed and mobile services. We seek comment on the potential use of 
these bands for deploying advanced wireless systems. Commenters should 
address when advanced wireless systems could be deployed in this 
spectrum; how much spectrum in these bands could be used for advanced 
wireless systems; any regulatory impediments for using this spectrum 
for advanced wireless systems; the impact of using these bands on 
global roaming, harmonization and economies of scale; and any other 
considerations relevant to deploying advanced wireless systems in this 
spectrum.
(b) Additional Candidate Spectrum
    7. We seek comment on the potential use of the bands below for 
deploying advanced wireless systems. In addition to the specific 
proposals below, commenters should address how much spectrum in these 
bands could be used for advanced wireless systems; when advanced 
wireless systems could be deployed in this spectrum; any regulatory 
impediments for using this spectrum for advanced wireless systems; the 
impact of using these bands on global roaming, harmonization and 
economies of scale; and any other considerations relevant to deploying 
advanced wireless systems in this spectrum.

(1) 1710-1755 MHz

    8. This band is allocated in Region 2 on a primary basis to the 
Fixed and Mobile Services. The band in the United States is currently 
used by the Federal Government for point-to-point microwave 
communications, military tactical radio relay, airborne telemetry, and 
precision guided munitions. The National Telecommunications and 
Information Administration (``NTIA'') identified this spectrum for 
transfer to the Commission for mixed use, effective in 2004, to satisfy 
the requirements of the OBRA-93. As required under OBRA-93, all 
microwave communication facilities in the 1710-1755 MHz band that are 
operated by Federal power agencies will continue to operate and must be 
protected from interference. A list of exempted Federal power agency 
microwave systems is presented in the 1995 NTIA Spectrum Report. 
Additionally, 17 Department of Defense sites must also be protected 
indefinitely for continued military use. BBA-97 requires this spectrum 
to be assigned for commercial use by competitive bidding, with the 
auction to commence after January 1, 2001. According to the NTIA report 
issued in response to OBRA-93, non-exempt Federal Government incumbents 
do not have to vacate the band until January 2004 and are entitled to 
compensation for relocation to another band.
    9. We propose that the 1710-1755 MHz band be allocated for mobile 
and fixed services on a co-primary basis. This would allow this band to 
be used for the introduction of new advanced mobile and fixed 
communications services, including 3G systems. We seek comment on this 
proposal.
    10. We recently adopted a Notice of Proposed Rulemaking (Notice) in 
ET Docket No. 00-221, FCC 00-395, adopted November 1, 2000, and 
released November 20, 2000, that proposes to reallocate 27 megahertz of 
spectrum transferred from Federal Government use for non-Government 
services. As stated in that Notice, the Strom Thurmond National Defense 
Authorization Act for Fiscal Year 1999 (``NDAA-99'') provides for 
mandatory reimbursement of Government spectrum users in the 1710-1755 
MHz band, as well as reimbursement of Government spectrum users when 
future actions lead to the relocation of a Federal Government station. 
Specifically, NDAA-99 provides that any Government entity on such 
spectrum that is to be relocated proposes to relocate itself, shall 
notify NTIA of the marginal costs anticipated to be incurred in 
relocation or modifications necessary to accommodate prospective non-
Government licensees. NTIA is directed in turn to notify the Commission 
of such costs before the auction concerned, and the Commission must 
then notify potential bidders prior to the auction of the estimated 
relocation or modification costs based on the geographic area covered 
by the proposed licenses. Further, NDAA-99 required any new licensee 
benefiting from Government station relocation to compensate the 
Government entity in advance for relocation or modification costs. Such 
compensation may take the form of a cash payment or in-kind 
compensation.
    11. As we noted in the Notice in ET Docket No. 00-221, statutory 
authority is conferred on NTIA and the Commission to promulgate rules 
governing relocation for new licensees seeking to relocate Federal 
Government entities. In that rulemaking proceeding, we proposed the 
Commission's relocation procedures for the transfer spectrum at issue 
in that proceeding and coordinated those proposals with NTIA. NTIA will 
conduct a rulemaking proceeding in the near future regarding relocation 
rules for Federal Government incumbents, and we will work jointly to 
establish an overall relocation policy. The proposals we have made in 
ET Docket No. 00-221 apply equally to the 1710-1755 MHz band, and thus 
we propose to apply to the 1710-1755 MHz band the same relocation 
procedures that are ultimately adopted in ET Docket No. 00-221. We seek 
comment on this proposal.
    12. As noted above, there will be continuing permanent and 
temporary use of the 1710-1755 MHz band by Federal users. We request 
comment on the effect of advanced mobile and fixed operations on 
Federal incumbents, and vice versa, in the band. Finally, we

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request comment on potential mitigating techniques to protect incumbent 
Federal users of this band.

(2) 1755-1850 MHz

    13. This band is allocated in Region 2 on a primary basis to the 
Fixed and Mobile Services, and to the space operation service (Earth-
to-space) and space research service (Earth-to-space) by footnote 
S.5386. The 1755-1850 MHz band is currently used by the Federal 
Government for four main functions. Those functions are space 
telecommand, tracking, and control (``TT&C,'' or space operations); 
medium capacity fixed microwave services; tactical radio battlefield 
networks; and aeronautical mobile applications, including telemetry, 
video, target scoring systems, and precision munitions. As noted above, 
NTIA is studying the possible use of the 1755-1850 MHz band for 
advanced wireless systems. If spectrum in the 1755-1850 MHz band 
ultimately is made available for non-Federal Government use, we seek 
comment on allocating the spectrum for mobile and fixed services on a 
co-primary basis. This would allow the spectrum to be used for the 
introduction of new advanced mobile and fixed communications services, 
including 3G systems.
    14. In addressing our allocations for this band, commenters should 
take into consideration the NTIA Interim Report on the current use of 
and potential for co-frequency sharing or reallocation of the band. The 
NTIA Interim Report states that Federal Government use of the band 
encompasses several different types of use, and that electromagnetic 
compatibility analyses indicate potentially serious sharing problems 
between 3G systems and Federal Government systems, particularly uplink 
satellite control, military radiorelay, and air combat training 
systems. The NTIA Interim Report presents two possible segmentation 
options: (1) pairing two 45 megahertz segments within the 1710-1850 MHz 
band for 3G systems, e.g., 1710-1755 MHz (handsets) and 1805-1850 MHz 
(base stations), and (2) pairing approximately 80 megahertz of spectrum 
in the 1710-1790 MHz band, which would be made available for 3G systems 
(handsets) in phases, with spectrum above 2110 MHz (base stations). The 
band is undergoing further study, with a Final Report that will 
consider relocation options scheduled to be released in March, 2001.
    15. As discussed in the NPRM, NDAA-99 provides for mandatory 
reimbursement of Federal Government spectrum users when future actions 
lead to the relocation of a Federal station. NDAA-99 therefore pertains 
to the 1755-1850 MHz band. Additionally, the National Defense 
Authorization Act of 2000 (NDAA-2000) sets certain conditions before 
the Department of Defense surrenders use of a band of frequencies in 
which it is a primary user. The proposals we have made in ET Docket No. 
00-221 concerning relocation procedures, discussed above, apply equally 
to the 1755-1850 MHz band. We thus seek comment on applying to the 
1755-1850 MHz band the same relocation procedures that are ultimately 
adopted in ET Docket No. 00-221.
    16. If spectrum in the 1755-1850 MHz band is made available for 
advanced wireless systems, account would have to be taken of some 
Federal uses that will continue into the foreseeable future. 
Accordingly, we request comment on the effect of continuing permanent 
and temporary use of that band by Federal incumbents on potential 
advanced mobile and fixed use of the band. If incumbent users had to be 
relocated, we request comment on how those users could be accommodated 
in other frequency bands. In particular, we request that commenters 
identify which frequency bands could accommodate incumbent Federal 
Government services.

(3) 2110-2150 MHz and 2160-2165 MHz

    17. These bands, which are allocated in Region 2 on a primary basis 
to the Fixed and Mobile Services, have been used in the United States 
for a variety of services. These bands were identified by the 
Commission in 1992 for reallocation to services using new and 
innovative technologies under its Emerging Technologies proceeding. In 
November 1998, the Commission proposed that portions of the 2110-2200 
MHz band be reallocated as follows: the 2110-2150 MHz band would be 
allocated to the Fixed and Mobile Services for assignment by 
competitive bidding, the 2160-2162 MHz band would be allocated for 
shared use by the Multipoint Distribution Service (``MDS'') and 
Instructional Television Fixed Service (``ITFS'') and fixed microwave 
use, and the 2162-2165 MHz band would be allocated for fixed and mobile 
emerging technologies. In its 1999 Policy Statement, the Commission 
stated its intention to initiate a separate proceeding to propose using 
these bands for advanced mobile and fixed communication services. BBA-
97 requires reallocation of the 2110-2150 MHz band and assignment by 
competitive bidding by September 30, 2002.
    18. Currently, these bands are used primarily for non-Federal 
Government Fixed and Mobile services licensed under either the Fixed 
Microwave Service in Part 101 of the Commission's Rules or the Public 
Mobile Services under Part 22 of the Commission's. We note that many of 
the stations were licensed subsequent to the Emerging Technologies 
First Report and Order, 57 FR 49020, October 29, 1992, and have 
secondary status. Additionally, licenses of stations with primary 
status that made major modifications were converted to secondary 
status.
    19. The 2110-2150 MHz and 2160-2165 MHz bands are currently 
allocated to the Fixed, Mobile, and Space Research (Deep Space) 
services. We are not proposing to change this allocation. Instead, we 
are proposing that incumbent users of these bands (excluding the Space 
Research service) be relocated, if necessary, and the band be 
designated for the provision of advanced mobile and fixed 
communications services. We seek comment on this proposal.
    20. In the 2110-2150 MHz and 2160-2165 MHz bands, fixed microwave 
service incumbents are entitled to compensation for relocation to other 
frequency bands under the policies adopted in the Emerging Technologies 
proceeding for incumbent fixed users in the frequency bands reallocated 
for broadband PCS (see 47 CFR Sec. 101.69--Sec. 101.81 and 
Sec. 101.99). Specifically, fixed microwave service incumbents are 
entitled to compensation for relocation of any links that may pose an 
interference threat to new fixed or mobile system licensees, including 
all engineering, equipment, site, and FCC fees. Also, the new licensees 
must complete all activities necessary for implementing the replacement 
facilities, including engineering and cost analysis of the relocation 
procedures, and must test the new facilities to ensure comparability 
with the existing facilities. We note that the Commission recently 
modified some of the relocation procedures for incumbent Fixed users at 
2165-2200 MHz in order to accommodate the entry of the MSS in that band 
(see Second Report and Order and Second Memorandum Opinion and Order in 
ET Docket No. 95-18, 15 FCC Rcd 12315 (2000), recon. pending, petition 
for review pending), 65 FR 48174, August 7, 2000 and 65 FR 60382, 
October 11, 2000. Because channels at 2165-2200 MHz are paired with 
spectrum at 2115-2150 MHz, we also adopted a new procedure on 
reimbursement of relocation costs that

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will apply to those paired links at issue in this proceeding that are 
relocated as a result of MSS entry in the higher band. The new 
procedure takes into account that different new licensees may be 
responsible for relocating each half of a channel pair for a given 
incumbent licensee. Consequently, it is possible that a new entrant in 
the 2110-2150 MHz band could be assigned spectrum that would have two 
sets of relocation procedures in effect.
    21. We thus propose to use the modified relocation procedures 
(i.e., those designated for fixed microwave service incumbents in the 
2165-2200 MHz and 2115-2150 MHz bands) for any incumbent user of the 
2110-2150/2160-2165 MHz bands, including MDS entities at 2160-2162 MHz. 
We seek comment on this proposal. We also invite comment from MDS/ITFS 
licensees on the current and planned use of the MDS channels 1, 2, and 
2a in the 2150-2162 MHz band. Because the 2150-2162 MHz spectrum was 
not the focus of the FCC Interim Report, we ask the MDS/ITFS licensees 
to discuss the use of those channels in their business plans in 
conjunction with the channels in the 2500-2690 MHz band. In particular, 
we ask MDS/ITFS licensees what effect reallocation or relocation of the 
2150-2162 MHz band would have on their current and planned use of the 
spectrum. We also invite comment from other interested parties on the 
current and future use of the 2150-2160 MHz band since this band is 
adjacent to the 2110-2150 MHz and 2160-2165 MHz bands.
    22. In the Emerging Technologies proceeding, we reallocated the 4 
GHz, 6 GHz, 10 GHz, and 11 GHz microwave bands to provide that private 
and common carrier fixed wireless users, and fixed satellite users, 
where appropriate, would each have co-primary status. This action was 
taken to provide spectrum relocation options to incumbent users. We 
realize that this action was taken over seven years ago and spectrum 
use has changed since that time. Additionally, because spectrum 
coordination is accomplished by industry, we are not in a position to 
determine the number of frequency coordination conflicts that arise 
when new stations are proposed in any of these frequency bands. 
However, we believe that many of the incumbents in the 2110-2150 MHz 
and 2160-2165 MHz bands can be accommodated in the 4 GHz, 6 GHz, 10 
GHz, and 11 GHz bands. Additionally, we note that relocation is not 
strictly a spectrum issue. Incumbents can be relocated using other 
mediums, such as fiber, and our relocation policies take this factor 
into consideration in allowing for the provision of comparable 
facilities. We seek comment on the various relocation options that 
exist for incumbents in the affected bands.
    23. Finally, we note that the 2110-2150 MHz bands must be auctioned 
by September 30, 2002. Due to similarities in allocation, usage, and 
current licensing, we propose to auction the 2160-2165 MHz band in this 
same timeframe. We request comment on this proposal.

(4) 2500-2690 MHz

    24. This band is allocated in Region 2 on a primary basis to the 
Fixed, Fixed Satellite, Mobile except aeronautical mobile, and 
Broadcasting-Satellite Services. In the United States, this band is 
allocated to the Fixed service and is used primary by two non-Federal 
Government services, Multichannel MDS and ITFS. There are currently 
thirty-one 6 megahertz channels and one 4 megahertz channel, or 190 MHz 
of spectrum, allocated to MDS and ITFS in this band. About 2,500 MDS 
licensees transmit programming from one or more fixed stations, which 
is received by multiple receivers at various locations. ITFS stations 
are licensed on a site specific basis as was MDS originally. However, 
in 1996, the Commission awarded one geographic MDS license in each of 
487 Basic Trading Areas. In general, the ITFS channels are grouped at 
the lower end of the band from 2500-2596 MHz and the MDS channels 
occupy the 2596-2660 MHz portion of the band. The remaining ITFS and 
MDS channels are interleaved in the portion of the band above 2660 MHz. 
MDS and ITFS operators typically operate in a symbiotic relationship, 
with MDS operators providing funding used by ITFS licensees for their 
educational mission in exchange for the extra channel capacity needed 
to make MDS systems viable. Today, most ITFS licensees lease excess 
capacity to MDS operators.
    25. The FCC Interim Report considered three band segmentation plans 
that could provide 90 megahertz of spectrum for advanced mobile and 
fixed communications systems while retaining 100 megahertz of spectrum 
for ITFS/MDS. The Interim Report concluded that large separation 
distances between 3G and ITFS/MDS systems are needed to allow co-
channel sharing. The Interim Report also found that there are few 
geographic areas where incumbent systems are not operating, and that 
segmenting the band would raise technical and economic difficulties for 
incumbents, especially in their ability to provide service to rural 
areas. The band is undergoing further study, with a Final Report that 
will consider relocation options scheduled to be released in March, 
2001. We request comment on all aspects of the FCC Interim Report.
    26. If spectrum in this band is made available for advanced 
wireless systems, we seek comment on allocating the spectrum for Mobile 
and Fixed services on a co-primary basis. An allocation for Mobile 
service would allow for additional flexibility in the use of this band, 
allowing the spectrum to be used for the introduction of new advanced 
mobile and fixed communications services, including 3G systems.
    27. We also invite comment on the public interest costs and 
benefits of adding a mobile allocation to these bands without any 
mandatory relocation. Consistent with our secondary markets initiative, 
are there any steps that the FCC should take to facilitate a secondary 
market in these bands to allow them to evolve to their highest valued 
use, whether that be fixed broadband, mobile applications, or some 
other use? Could current ITFS/MDS licensees reorganize their systems to 
continue providing current services and also offer new mobile services 
on a competitive basis with other wireless system providers, such as 
cellular or PCS? Could a portion of this spectrum be made available to 
new entities? If so, which portion of the band and how much spectrum 
could be made available? How would reallocation of a portion of this 
band affect MDS operations at 2150-2160/2162 MHz band? We invite ITFS 
licensees to discuss whether adding a Mobile service allocation in the 
2500-2690 MHz band would be beneficial to educators and, if so, how 
such operations could be utilized in an educational context. We also 
ask ITFS licensees to comment on what effect, if any, reallocation or 
relocation will have on their distance learning programs and overall 
educational mission. We also invite MDS licensees to discuss whether 
adding a mobile service allocation in the 2500-2690 MHz band would be 
beneficial to their plans for use of the band. In addressing these 
issues, commenters should take into consideration that 66 megahertz of 
this band has already been auctioned to MDS licensees and that the 
current MDS/ITFS sharing and leasing arrangements in this band are 
complex.
    28. If a portion of this band were to be made available for 
advanced services and incumbent users had to be relocated, we request 
comment on how incumbent users could be accommodated in other frequency

[[Page 7442]]

bands. In particular, we request that commenters identify which 
frequency bands could accommodate incumbent MDS/ITFS services. If a 
portion of this band were made available for advanced services, either 
through reallocation or relocation, we seek comment on applying to 
incumbent users in this band the same relocation procedures that we 
decide to apply to incumbent users in the 2110-2150 MHz and 2160-2165 
MHz bands. In particular, we request that commenters provide 
information about the type and the amount of costs to relocate 
incumbent MDS/ITFS operations. For example, could equipment be retuned 
or would facilities need to be replaced? What would be the cost to 
retune or replace equipment? We expect to rely on some of the 
information filed in response to this Notice in conducting the second 
phase of the study on the 2500-2690 MHz band, which will focus on 
relocation options and the costs and benefits of such action.

(5) Pairing Options

    29. We recognize that the optimal use of the 1710-1755 MHz, 1755-
1850 MHz, 2110-2150 MHz, 2160-2165 MHz, and 2500-2690 MHz bands for 
introducing advanced mobile and fixed services may be achieved by 
pairing these bands with one another or with other spectrum that has 
been identified for these services. As a way to focus this discussion, 
we solicit comment on several possible band pairing schemes, including 
those discussed in the FCC Interim Report. When evaluating pairing 
options, commenters should specify how much spectrum they believe will 
be required for advanced mobile and fixed communications systems from 
each band in each option addressed; the time period in which spectrum 
in the paired bands could be made available and whether those time 
periods are consistent with deployment plans; and whether the 
separation distance between the paired bands would impair the 
economical development of duplex equipment. Commenters also should 
address the following topics: the potential for sharing or segmenting 
the frequency bands to facilitate the implementation of advanced 
wireless systems; whether reallocation or relocation of incumbent users 
may be needed; and the identification of frequency bands to accommodate 
incumbent users that would have to be relocated.

Initial Final Regulatory Flexibility Analysis

    30. As required by the Regulatory Flexibility Act (``RFA''), the 
Commission has prepared this Initial Regulatory Flexibility Analysis 
(``IRFA'') of the possible significant economic impact on small 
entities by the policies and rules proposed in this NPRM. Comment is 
requested on this IRFA. Comments must be identified as responses to the 
IRFA and must be filed by the deadlines for comments on the NPRM. The 
Commission will send a copy of the NPRM, including this IRFA, to the 
Chief Counsel for Advocacy of the Small Business Administration. See 5 
U.S.C. 603(a).

Need for, and Objectives of, the Proposed Rules

    31. The NPRM proposes the possible use of several frequency bands 
that could be used for advanced wireless communications systems, and 
solicits comments on various pairing options for those bands. The 
objective of these proposed actions is to allocate spectrum that could 
be used to provide a wide range of voice, data, and broadband services 
over a variety of mobile and fixed networks.

Legal Basis

    32. The proposed action is authorized under Sections 4(i), 7(a), 
303(c), 303(f), 303(g), and 303(r) of the Communications Act of 1934, 
as amended, 47 U.S.C. 154(i), 157(a), 303(c), 303(f), 303(g), and 
303(r).

Description and Estimate of the Number of Small Entities to Which 
the Proposed Rules May Apply

    33. The RFA directs agencies to provide a description of, and, 
where feasible, an estimate of the number of small entities that may be 
affected by the proposed rules, if adopted. The Regulatory Flexibility 
Act defines the term ``small entity'' as having the same meaning as the 
terms ``small business,'' ``small organization,'' and ``small business 
concern'' under section 3 of the Small Business Act. A small business 
concern is 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 SBA.
    34. A small organization is generally ``any not-for-profit 
enterprise which is independently owned and operated and is not 
dominant in its field.'' Nationwide, as of 1992, there were 
approximately 275,801 small organizations. The definition of ``small 
governmental jurisdiction'' is one with populations of fewer than 
50,000. There are 85,006 governmental jurisdictions in the nation. This 
number includes such entities as states, counties, cities, utility 
districts and school districts. There are no figures available on what 
portion of this number has populations of fewer than 50,000. However, 
this number includes 38,978 counties, cities and towns, and of those, 
37,556, or 96 percent, have populations of fewer than 50,000. The 
Census Bureau estimates that this ratio is approximately accurate for 
all government entities. Thus, of the 85,006 governmental entities, we 
estimate that 96 percent, or about 81,600, are small entities that may 
be affected by our rules. Nationwide, there are 4.44 million small 
business firms, according to SBA reporting data. The applicable 
definition of small entity is the definition under the SBA rules 
applicable to radiotelephone (wireless) companies. This provides that a 
small entity is a radiotelephone company employing no more than 1,500 
persons. According to the Bureau of the Census, only 12 radiotelephone 
firms from a total of 1,178 such firms that operated during 1992 had 
1,000 or more employees; therefore, at least 1,166 radiotelephone firms 
in 1992 had 1,500 or fewer employees. We are unable at this time to 
quantify the specific impact of our proposals on these firms, but 
invite comment on this issue.

Description of Projected Reporting, Recordkeeping, and Other 
Compliance Requirements

    35. This item deals only with the possible use of frequency bands 
below 3 GHz to support the introduction of new advanced wireless 
services, and does not propose service rule. Thus, the item proposes no 
new reporting, recordkeeping, or other compliance requirements.

Steps Taken To Minimize Significant Economic Impact on Small 
Entities, and Significant Alternatives Considered

    36. The RFA requires an agency to describe any significant 
alternatives that it has considered in reaching its proposed approach, 
which may include the following four alternatives: (1) The 
establishment of differing compliance or reporting requirements or 
timetables that take into account the resources available to small 
entities; (2) the clarification, consolidation, or simplification of 
compliance or reporting requirements under the rule for small entities; 
(3) the use of performance, rather than design, standards; and (4) an 
exemption from coverage of the rule, or any part thereof, for small 
entities. We considered proposing spectrum for the mobile-satellite 
service in the 2500-2520/2670-2690 MHz bands, as requested by the 
Satellite Industry Association, but rejected that alternative for 
technical

[[Page 7443]]

reasons and because the MSS already has access to a significant amount 
of spectrum below 3 GHz. We believe that our proposal to explore the 
possible use of several frequency bands that could be used to provide a 
wide range of voice, data, and broadband services over a variety of 
mobile and fixed networks may provide new opportunities for small 
entities. We request comment on alternatives that could minimize the 
impact of this proposed action on small entities.

Federal Rules that May Duplicate, Overlap, or Conflict With the 
Proposed Rules

    37. None.

Ordering Clauses

    38. Pursuant to the authority contained in sections 1, 4(i), 7(a), 
301, 303(c), 303(f), 303(g), 303(r), 308, and 309(j) of the 
Communications Act of 1934, as amended, 47 U.S.C. sections 151, 154(i), 
157(a), 301, 303(c), 303(f), 303(g), 303(r), 308, and 309(j), this 
Notice of Proposed Rulemaking Is Adopted.
    39. The petition filed by the Cellular Telecommunications Industry 
Association, RM-9920, Is Granted to the extent consistent with the 
terms of the Notice of Proposed Rulemaking.
    39. The petition filed by the Satellite Industry Association, RM-
9911, Is Denied.
    40. The Commission's Consumer Information Bureau, Reference 
Information Center, Shall Send a copy of this Notice of Proposed 
Rulemaking, including the Initial Regulatory Flexibility Analysis, in a 
report to Congress pursuant to the Small Business Regulatory 
Enforcement Fairness Act of 1996, see 5 U.S.C. 801(a)(1)(A); and shall 
also send a copy of the Notice of Proposed Rulemaking, including the 
Initial Regulatory Flexibility Analysis, to the Chief Counsel for 
Advocacy of the Small Business Administration.

List of Subjects in 47 CFR Part 2

    Communications equipment, Radio, Table of frequency allocations.

Federal Communications Commission.
Magalie Roman Salas,
Secretary.
[FR Doc. 01-1758 Filed 1-22-01; 8:45 am]
BILLING CODE 6712-01-P