[Federal Register Volume 67, Number 220 (Thursday, November 14, 2002)]
[Rules and Regulations]
[Pages 68944-68951]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 02-28894]


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FEDERAL COMMUNICATIONS COMMISSION

47 CFR Part 76

[CS Docket No. 00-2; FCC 02-287]


Implementation of the Satellite Home Viewer Improvement Act of 
1999: Application of Network Nonduplication, Syndicated Exclusivity, 
and Sports Blackout Rules to Satellite Retransmissions of Broadcast 
Signals.

AGENCY: Federal Communications Commission.

ACTION: Final rule.

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SUMMARY: This document revises regulations which the Commission adopted 
to implement certain aspects of the Satellite Home Viewer Improvement 
Act of 1999. This document addresses petitions for reconsideration 
filed by the Office of the Commissioner of Baseball, the National 
Basketball Association, the National Football League, the National 
Hockey League, and the Division 1-A Athletic Director's Association 
(``Sports Leagues'') as well as by EchoStar Satellite Corporation 
(``EchoStar'') and DirecTV, Inc. (``DirecTV''). The modifications to 
the regulations are largely technical and pertain to notifications of 
sporting events and programming to be blacked out, as well as to the 
criteria for eligibility to request sports blackout protection.

DATES: Effective December 16, 2002, except for Sec. Sec.  76.122(c)(2) 
and 76.127(c), which contain information collection requirements that 
have not been approved by OMB. The Federal Communications Commission 
will publish a document in the Federal Register announcing the 
effective date for the amendments to Sec. Sec.  76.122(c)(2) and 
76.127(c).

FOR FURTHER INFORMATION CONTACT: Peter Corea at (202) 418-7200 or via 
Internet at [email protected]. For additional information concerning the 
information collection(s) contained in this document, contact Les Smith 
at 202-418-0217, or via the Internet at [email protected].

SUPPLEMENTARY INFORMATION: This is a summary of the Commission's Report 
and Order on Reconsideration (``Order''), FCC 02-287, adopted October 
10, 2002; released October 17, 2002. The full text of this decision is

[[Page 68945]]

available for inspection and copying during normal business hours in 
the FCC Reference Information Center, Portals II, 445 12th Street, SW, 
Room CY-A257, Washington, DC 20554, and may be purchased from the 
Commission's copy contractor, Qualex International, Portals II, 445 
12th Street, SW, Room CY-B402, Washington, DC 20554, telephone (202) 
863-2893, facsimile (202) 863-2898, or via e-mail [email protected] or 
may be viewed via Internet at http://www.fcc.gov/mb/.
    Paperwork Reduction Act: This Order contains new or modified 
information collection(s). The Commission, as part of its continuing 
effort to reduce paperwork burdens, invites the general public to 
comment on the information collection(s) contained in this Order as 
required by the Paperwork Reduction Act of 1995, Public Law 104-13. A 
Notice of Public Information Collection(s) being Reviewed by the 
Federal Communications Commission is published elsewhere in this 
Federal Register.

Synopsis of the Order

Introduction

    1. In this Order on Reconsideration, we consider three petitions 
for reconsideration of the Commission's Report and Order in 
Implementation of the Satellite Home Viewer Improvement Act of 1999: 
Application of Network Non-Duplication, Syndicated Exclusivity, and 
Sports Blackout Rules To Satellite Retransmissions of Broadcast 
Signals, (65 FR 68082, November 14, 2000) (hereinafter ``Report and 
Order'') which implemented section 339 of the Communications Act of 
1934 (``Act''), as amended by the section 1008 of the Satellite Home 
Viewer Improvement Act of 1999 (``SHVIA''). Section 339(d)(4) defines 
``satellite carrier'' by reference to the definition in the Copyright 
Act of 1947, as amended, 17 U.S.C. 119(d). The Report and Order adopted 
rules to apply the network non-duplication, syndicated exclusivity, and 
sports blackout rules, previously applicable only to cable television 
systems, to satellite carriers' retransmission of nationally 
distributed superstations, and to apply the sports blackout rule to 
satellite carriers' retransmission of network stations. The network 
non-duplication, syndicated exclusivity, and sports blackout rules 
(collectively referred to herein as ``the exclusivity rules''), protect 
exclusive contractual rights that have been negotiated between program 
providers and broadcasters or other rights holders. The satellite 
network non-duplication and syndicated exclusivity rules provide that 
specific programs must be deleted from ``nationally distributed 
superstations'' delivered to subscribers within a specified area if the 
programs are subject to exclusive rights pursuant to contracts with 
local stations. A ``nationally distributed superstation'' is a 
television broadcast station, licensed by the Commission, that meets 
the following three criteria: (A) It is not owned or operated by or 
affiliated with a television network that, as of January 1, 1995, 
offered interconnected program service on a regular basis for 15 or 
more hours per week to at least 25 affiliated television licensees in 
10 or more States; (B) on May 1, 1991, it was retransmitted by a 
satellite carrier and was not a network station at that time; and (C) 
it was, as of July 1, 1998, retransmitted by a satellite carrier under 
the statutory license of section 119 of title 17, United States Code. 
The only television broadcast stations that meet this definition are 
KTLA-TV (Los Angeles), WPIX-TV (New York), KWGN-TV (Denver), WSBK-TV 
(Boston), WWOR-TV (New York) and WGN-TV (Chicago).
    No new station can meet the date-specific criteria set forth in the 
definition. The sports blackout rule provides that sporting events 
carried on distant stations retransmitted to a specified area must be 
deleted when carriage would violate sporting teams' or leagues' 
exclusive rights in the local market.
    2. The issues raised on reconsideration are largely technical 
issues pertaining to the operation of the rules. The Office of the 
Commissioner of Baseball, the National Basketball Association, the 
National Football League, the National Hockey League, and the Division 
1-A Athletic Director's Association (``Sports Leagues'') jointly filed 
a petition for reconsideration concerning the timing for submitting 
deletion notifications to satellite carriers and the method of 
determining when the blackout rule is triggered. EchoStar Satellite 
Corporation (``EchoStar'') filed a petition for reconsideration 
concerning the duration of the phase-in period and the timing and 
application of the notification requirements, with which DirecTV, Inc. 
(``DirecTV'') joined in part. The Association of Local Television 
Stations (``ALTV'') and the Motion Picture Association of America 
(``MPAA''), as well as the Petitioners, filed oppositions or comments 
in response to the petitions.
    3. Our response to the petitions is governed by the Communications 
Act and our own rules. Reconsideration of a Commission decision is 
warranted only if the petitioner cites a material error of fact or law, 
or presents additional facts and circumstances that raise substantial 
or material questions of fact that were not considered and that 
otherwise warrant Commission review of its prior action. The Commission 
will not reconsider arguments that have already been considered. For 
the reasons stated herein, we deny EchoStar's and DirecTV's petitions 
and deny in part and grant in part the Sports Leagues' petition. We 
also take this opportunity to clarify and, where necessary, amend some 
of the requirements in the Report and Order and the rules.

Background and Summary of Petitions

    4. In implementing sections of the SHVIA in the Report and Order, 
the Commission was guided by the directive to place satellite carriers 
on equal footing with cable operators, while also taking into 
consideration that the operational structures of cable operators and 
satellite carriers are different. To allow satellite carriers a 
reasonable period of time to adjust to the new non-duplication and 
syndicated exclusivity rules, the Commission gave carriers 120 days 
from the time they received blackout request notices to implement the 
necessary deletions for the first six months the rules were effective. 
The rules took effect on November 29, 2000. Therefore, the six month 
period ended May 29, 2001.
    5. With respect to the sports blackout rule, the Commission applied 
the rule to satellite retransmission of nationally distributed 
superstations as well as to satellite retransmission of network 
stations. Although the satellite sports blackout rules are very similar 
to the cable rules, the notification periods in the satellite context 
differ to ensure that satellite carriers are notified of blackouts as 
soon as the rights holder has the information in hand. In addition, in 
order to afford satellite carriers an opportunity to adjust to the new 
requirements, the Commission provided a phase-in period for 
implementing the sports blackout rules, albeit somewhat shorter than 
the phase-in for the non-duplication and syndicated exclusivity rules.
    6. EchoStar's petition for reconsideration requests a one-year 
phase-in period, rather than the 120-day transition provided in the 
Report and Order. EchoStar also requests a longer notification period 
for sports blackout requests, and it objects to the application of the 
sports blackout rule to all network stations. DirecTV's petition for 
reconsideration joins EchoStar's petition with respect to application 
of the sports blackout rule to all network stations and the length of 
the

[[Page 68946]]

notification period. The Sports Leagues object to the requirement that 
notice of sports blackouts be given within 48 hours of the telecast 
schedule being set. The Sports Leagues also contend that Sec.  76.128 
does not precisely track the defunct rule section it was intended to 
replace.

Order on Reconsideration

Transition Phase-In Period

    7. Background. In the Report and Order the Commission gave 
satellite carriers time to phase-in compliance with the new network 
non-duplication and syndicated exclusivity rules to ensure that they 
would have adequate equipment and personnel to implement the deletions, 
and to arrange for programming to substitute for deleted programming. 
To afford both satellite carriers and broadcasters a reasonable period 
of time to adjust to the new requirements and review the contract 
language, the Commission provided that broadcasters would have up to 
six months from the effective date of the Report and Order to 
renegotiate contracts, and required that they notify satellite carriers 
of deletion requests within sixty days of signing a renegotiated 
contract. For notices provided before June 1, 2001, satellite carriers 
were given 120 days before they were required to implement the 
necessary deletions. For notices provided to satellite carriers after 
June 1, 2001, the normal time requirements--within sixty days of 
notification--apply. The six month period for renegotiations expired in 
May, 2001.
    8. With respect to the sports blackout rule, the Commission 
required that rights holders provide sixty days advance notice for any 
sports blackout that would occur on or before March 31, 2001. As of 
April 1, 2001, the regular notice requirements, including twenty-four 
hour notice for changes in previously scheduled blackouts, became 
applicable. Because satellite carriers were complying with 
contractually required sports blackouts prior to the implementation of 
the SHVIA requirements, it was unnecessary to provide the same length 
of time to phase-in the sports blackout rules as provided for the 
network non-duplication and syndicated exclusivity rules.
    9. In its petition for reconsideration, EchoStar reiterated its 
request for a one-year phase-in period to assess the ability of its 
subscriber qualification system to differentiate protection zones for 
superstation and network programming. Three of the superstations 
informed EchoStar that the exclusivity rule requirements could require 
deletion of all programming from 8:30 a.m. to 9 p.m., which would 
prompt EchoStar to decide not to offer these superstations to their 
subscribers. EchoStar also stated that if the number and complexity of 
deletion requests make it necessary to replace its entire conditional 
access system, the replacement process would take nine to twelve months 
to complete from the time it receives such requests. EchoStar disagreed 
with the Commission's conclusions concerning the need for new equipment 
and suggested the Commission require rights holders to submit deletion 
requests for a year before they would be implemented. The Sports 
Leagues, ALTV, and MPAA opposed EchoStar's petition. Further, MPAA 
asserts that the 120-day notice phase-in period stretches beyond the 
one-year effective date Congress required in the SHVIA.
    10. Discussion. The transition period provided in the Report and 
Order ended in 2001, as did the one-year period EchoStar requested in 
the original proceeding and again on reconsideration. Nonetheless, we 
rule on the merits and decline to extend the phase-in period for the 
implementation of syndicated exclusivity, network non-duplication and 
sports blackout rules beyond the phase-in periods provided by the 
Report and Order and rules. The Report and Order rejected EchoStar's 
proposal for a transition period of one year as unnecessary, 
impractical and unlikely to assist EchoStar in planning for deletions 
given that rights holders would not submit deletion requests knowing 
that they would not be acted upon for a year. Satellite carriers did 
not demonstrate that they needed additional time to develop new 
equipment in addition to their existing blackout and conditional access 
equipment. EchoStar has not provided sufficient justification for its 
request and has not presented new arguments that would warrant 
reconsideration of this issue. EchoStar asserts that its system is near 
capacity, but has not provided evidence of how the capacity was used or 
how additional burdens affect the capacity. Although we understand that 
EchoStar did not have specific deletion requests when it submitted 
comments in the rulemaking proceeding, the potential scope of the 
deletions required by the statutory mandate were largely apparent when 
the statute took effect at the end of 1999. We therefore deny 
EchoStar's petition for reconsideration with respect to lengthening the 
phase-in periods.

Sports Blackout Rule

The Sports Blackout Rule Applied to Retransmission of Network Stations
    11. Background. In the Report and Order the Commission applied the 
sports blackout rule to retransmission of nationally distributed 
superstations and network stations. The Commission's sports broadcasts 
rule (``sports blackout rule'') is designed to allow the holder of the 
exclusive distribution rights of sporting events, to control, through 
contractual agreements, the display of that event on local cable and, 
pursuant to the SHVIA, on satellite systems. The sports blackout rule 
is triggered when a subject sporting event will not be aired live by 
any local television station carried on a community unit cable system. 
Under the sports blackout rule, the holder of the rights to the event 
(e.g., a sports team or league, rather than a broadcaster) has the 
power to demand that the local cable system or satellite carrier 
blackout the distant importation of the subject sporting event. The 
zone of protection afforded by the sports blackout rule generally is 35 
miles surrounding the reference point of the broadcast station's 
community of license in which the live sporting event is taking place. 
Unlike the network non-duplication and syndicated exclusivity rules, 
the sports blackout rule applies to retransmission of distant network 
stations as well as to nationally distributed superstations. In the 
case of retransmission of network stations, the SHVIA instructed the 
Commission to apply the cable sports blackout rule to satellite 
carriers only ``to the extent technically feasible and not economically 
prohibitive.'' In the Report and Order the Commission considered 
DirecTV's request that the Commission invoke the ``technical/economic 
hardship exception of section 339(b)(1)(B)'' and decline to apply any 
sports blackout requirement on satellite retransmission of network 
stations. The Commission determined, however, that DirecTV and EchoStar 
had not provided sufficient information regarding the costs and burdens 
imposed by the requirement to satisfy the statutory exception. The 
burden requires a showing that conforming to rules similar to those 
applicable to cable operators ``would entail a very serious economic 
threat to the health of the carrier.''
    12. EchoStar's petition seeks reconsideration of that decision. 
EchoStar maintains that ``there was simply no historical evidence 
available to satellite carriers to illustrate the burdens from future 
compliance'' and that the benefit to sports rights holders

[[Page 68947]]

is small compared to the ``formidable burden'' on satellite carriers. 
EchoStar notes that the distant network signals in question may only be 
retransmitted to unserved households of which there are few within any 
protection zone. The statutory copyright license only permits 
retransmission of distant signals to ``unserved households.'' Under 
copyright law ``unserved households'' are those that are unable to 
receive an over-the-air network signal of Grade B intensity or better. 
In addition, ``grandfathered'' households, as well as recreational 
vehicles and commercial trucks, are included in the definition of 
unserved households. EchoStar follows that ``the limited practical 
significance of the rules does not necessarily lessen the difficulty 
that the satellite carrier would still confront in blacking out the 
sports programming for those few households.'' DirecTV agrees and 
asserts that blacking out a small area or small number of subscribers 
in the satellite context is more complex than in the cable context 
because of the several steps an operator must go through, including 
encoding information; data entry; scheduling and processing; and 
triggering each blackout manually by individually watching each event. 
DirecTV further asserts that these steps ``raise a question of whether 
the Commission was justified in concluding that the application of 
sports blackout rules to satellite carrier retransmission of network 
stations is ``technically feasible and not economically prohibitive.'''
    13. EchoStar argues that it is in a better position to make a 
preliminary estimate of the possible burden of complying with the 
blackout rules as applied to network programming during the 
reconsideration process because it has evidence of actual deletion 
requests, which it could not have had during the initial rulemaking 
proceeding. EchoStar states that the primary issue determining the 
impact of network blackout rules is the ``number of different regions 
that must be defined as possible blackout zones, even more so than the 
number of programs and events to be blacked out.'' EchoStar describes 
its anticipated problem in implementing sports blackouts to be a result 
of the complexity of, and lack of coordination for, blackout zones 
among the various sports leagues. EchoStar states that its current 
sports blackout system for ESPN and Fox uses 128 different blackout 
zones coordinated with individual consumer's receivers, each associated 
with a single blackout region for twelve categories of sports. EchoStar 
explains that because several sports teams that are in close proximity 
will have overlapping blackout zones, it will need to implement ``a 
mosaic of smaller zone ``pieces''' to make up a complete blackout zone, 
which will rapidly consume its blackout resources. EchoStar asserts 
that if it receives blackout requests for zones that differ from its 
current contractual blackout zones, and if it gets a significant 
increase in the number of requests, as it expects with the addition of 
blackout requirements for network stations along with syndicated 
exclusivity and network non-duplication requests, that it will likely 
have to replace its existing conditional access system for one with 
expanded capabilities. EchoStar estimates the costs of system upgrade 
in the $75 to $100 million range, and also provides an estimated figure 
of $123.5 million dollars for total system replacement.
    14. The Sports Leagues assert that EchoStar does not present any 
new evidence to substantiate its claimed injury, but instead presents 
arguments lacking foundation in fact and failing to satisfy the burden 
imposed by Congress. The Sports Leagues also contend that the 35-mile 
zone of protection applied to nationally distributed superstations 
should be the same protection zone used to blackout network stations 
and, therefore, ``no new codes [in addition to codes for the sports 
blackout rule as applied to nationally distributed superstations] 
should be necessary in implementing the [sports blackout rule] for 
network signals.'' Further the Sports Leagues point out that EchoStar 
does not attempt to differentiate nationally distributed superstations 
from network stations. The Sports Leagues argue that EchoStar has 
failed to support assertions that its coding is ``near capacity'' and 
cannot therefore accommodate blackouts of sporting events carried on 
network stations.
    15. Discussion. EchoStar has presented evidence regarding the 
potential burden imposed by the sports blackout rule, and suggested 
that additional capacity demands on its system in connection with 
providing sports blackout for network stations could require an 
overhaul of its entire conditional access system, but has not presented 
evidence of the burdens specifically associated with the application of 
the sports blackout rule to the retransmission of the signals of 
network stations. EchoStar asserts that the complexity of and lack of 
coordination for blackout zones among the various sports leagues 
creates difficulties in implementing sports blackouts. In connection 
with this reconsideration proceeding, the four major sports leagues 
have agreed to use a single, standardized zip code list for purposes of 
the Sports Blackout Rule and have provided such a list to the satellite 
carriers. In order to receive blackout protection, Sec.  76.127(b) 
obligates rights holders to provide detailed information in the 
blackout notices, including accurate zip code information. Therefore, 
to ensure accurate application of sports blackout protection, the 
Sports Leagues will be responsible for keeping the standardized zip 
code list current. Although satellite carriers' other contractual 
arrangements may still create the need for multiple codes in each 
market, the standard zip code list will reduce the overall burdens on 
satellite carriers in meeting sports blackout requirements. 
Nevertheless, as the Commission found in the Report and Order, 
EchoStar's evidence offered for reconsideration does not identify 
separately the burdens imposed by blacking out network stations and the 
burdens imposed by blacking out nationally distributed superstations, 
nor does it provide information on the costs--incremental or total--of 
deleting network stations. We are, therefore, unable to make a 
meaningful evaluation of EchoStar's claim that it may not have capacity 
to implement the required number of sports blackout zones based on the 
record. Accordingly, we deny EchoStar's petition for reconsideration.

Forty-Eight Hour Notification Period

    16. Background. In order to activate the protections of the sports 
blackout rule, specific notification procedures regarding the sporting 
events to be deleted must be followed. The notification requirement for 
sports blackout, as historically applied to cable systems, requires 
several days advance notice, but in certain circumstances can be given 
as little as twenty-four hours in advance. With respect to cable 
systems, notifications for regularly scheduled events subject to the 
sports blackout rule must be received no later than the Monday 
preceding the calendar week during which the deletion is to be made. 
Notifications for events not regularly scheduled, or when the schedule 
is revised, must be received within 24 hours after the time of the 
deleted telecast is known, but in no event less than 24 hours before 
the event will take place. Nothing we adopt herein regarding 
modifications to notice requirements for the satellite sports blackout 
rule is intended to modify the cable sports blackout rule.
    17. In the original rulemaking proceeding, DirecTV described a 
satellite blackout system that is more complex than cable. The 
Commission

[[Page 68948]]

acknowledged in the Report and Order that although ``the process 
described by DirecTV did not appear to present such a serious technical 
or economic burden as to excuse compliance with the sports blackout 
rules altogether, it does suggest that the challenge of implementing 
multiple, simultaneous blackouts and identifying and arranging 
substitute programming is greater for satellite carriers than for cable 
operators.'' DirecTV proposed a notification period of 60 days prior to 
the start of a season for sports with a specific season, 60 days prior 
to the event for non-seasonal but regularly scheduled events, 30 days 
for events not regularly scheduled, and ten working days for revisions 
to previously submitted notices. The Commission found that satellite 
carriers made ``reasonable arguments in support of revising the 
notification periods in the satellite sports blackout rules to the 
extent possible without depriving the teams and leagues of their 
contractual rights by establishing time frames that afford practical 
protection.''
    18. In the Report and Order the Commission found that satellite 
carriers were complying with contractually mandated sports blackouts, 
which require that they delete sporting events and provide subscribers 
with replacement programming. However, recognizing differences in the 
structure and operation of the satellite and cable industries, the 
Commission ruled that some adjustment in the application of the sports 
blackout rules was justified. The Commission found that the lack of 
specific information in the record limited our ability to finely tailor 
the notice requirements with respect to satellite sports blackout. The 
Commission therefore declined to adopt DirecTV's notification 
proposals, and instead ruled that the sports blackout rules for 
satellite carriers would retain the same advance notice requirements 
used in the cable context for regularly scheduled events (notice must 
be received the Monday before the calendar week in which the deletion 
is to be made), but would also require that rights holders notify 
satellite carriers within 48 hours of the time the telecast to be 
deleted is known.
    19. In its petition for reconsideration, EchoStar asserts that the 
complexity of carrying local sports broadcasts over a nationwide 
satellite system requires more time to black out programming than for 
cable operators. EchoStar argues that the rule requiring notice within 
48 hours of the time a telecast is scheduled, without establishing a 
limit on how close in time the scheduling of the event can be to the 
event itself, does not give satellite carriers enough time to comply 
because the notice might be delayed until as late as twenty-four hours 
before the event to be broadcast. EchoStar requests that the Commission 
reconsider its decision regarding notification periods for sports 
blackout, and align the notification period with the network non-
duplication and syndicated exclusivity rules requiring a minimum of 
sixty days notice. In addition, EchoStar requests that the Commission 
not allow deletion requests for unscheduled events.
    20. The Sports Leagues state that the requirement that rights 
holders notify satellite carriers within 48 hours of the time the 
telecast is known creates a significant and unwarranted burden on the 
Sports Leagues while also causing confusion on the part of the 
satellite carries. The rule, according to the Sports Leagues, results 
in a piecemeal notice scheme where numerous, often unnecessary, notices 
must be sent. The Sports Leagues explain that the various sports teams 
make decisions to televise their away games at different times in the 
pre-season months. The Sports Leagues contend that the rule requires 
that each time a visiting team sets its away game telecast schedule, 
and communicates it to the home team or the league, the home team 
broadcast rights holder must send a notice to the satellite carrier to 
blackout the games. If, subsequent to the visiting team's decision to 
telecast, the home team decides to telecast the game in its home 
market, within 48 hours of that decision, notices countermanding the 
blackout request must be sent. The Sports Leagues surmise that this 
rule would require ``hundreds, if not thousands, of notices, an 
unbelievable burden on the Leagues and an administrative nightmare for 
the carriers as they attempted to monitor the constant flow of notices 
coming in.''
    21. The Sports Leagues urge the Commission to adopt the same 
standard of notice for satellite carriers as it has for cable 
operators. The Sports Leagues state that the cable rule, by allowing 
notice on the Monday of the week preceding the calendar week of the 
game, has enabled the Sports Leagues ``to compile national and local 
telecasting schedules and distribute all notices at one time, it also 
allows cable operators (even those with systems in dozens of major 
markets) to receive all notices at one time.'' The Sports Leagues 
indicate that this procedure has been used in the cable context for 
over twenty-five years. The Sports Leagues also state that in some 
circumstances, such as for the NFL, the league may know before the 
season begins that a team's scheduled games have been sold out and 
that, therefore, no blackouts will be necessary. The Sports Leagues 
explain that if the satellite rule followed the cable rule procedures 
for notification, in the ``vast number of circumstances'' the Leagues 
would be able to provide notices ``no less than six days before a 
blackout at the beginning of the season and, in most cases, six months 
before blackouts at the end of the regular season.'' The Sports Leagues 
also assert that satellite carriers need only a ``couple of days 
notice'' to perform blackouts necessitated by regular season and 
playoff schedule changes. The Sports Leagues also oppose EchoStar's 
request that the Commission eliminate the twenty-four hour notice 
provision for revisions to existing notifications and notifications of 
unscheduled events because that would preclude protection for post-
season or rescheduled games.
    22. In its opposition, EchoStar argues that the Sports Leagues have 
not offered any new evidence, study, or specific facts to support 
changing the rule. Rather, EchoStar suggests the burden of providing 
notices could be alleviated by better coordination between teams within 
the Sports Leagues.
    23. In response, the Sports Leagues propose a compromise 
resolution. The Sports Leagues agree to provide, along with a master 
list of zip codes, a master blackout notice covering every team in a 
league for all regular season games to be received by carriers no less 
than fifteen days before the start of a sports season. The Sports 
Leagues suggest that the use of a fifteen-day period in advance of the 
season would allow satellite carriers sufficient time to enter the 
necessary game and zip code information to accomplish the blackout 
requests.
    24. Discussion. On reconsideration, we agree that the requirement 
that rights holders notify carriers 48 hours from the time the telecast 
to be deleted is known (the ``48-hour rule'') will potentially create 
significantly more burdensome notice requirements for both rights 
holders and satellite carriers than intended. We therefore grant the 
Sports Leagues petition, in part, insofar as the Sports Leagues request 
modification of the rule. For the same reasons discussed in the Report 
and Order, we deny EchoStar's and DirecTV's petitions repeating their 
requests for sixty-day notice periods for scheduled events and 
elimination of blackout requirements for unscheduled events. As the 
Commission indicated in the Report and Order, the purpose of the 48-
hour rule was to give carriers sufficient time to enter blackout 
requests and line up substitute programming by ensuring that rights

[[Page 68949]]

holders notify satellite carriers as soon as the telecasts are 
scheduled. However, given that many teams set their telecast schedules 
at different times over the months leading to the start of a season, 
our rules can be interpreted to require each team to send out multiple 
notices to satellite carriers as they sporadically receive the telecast 
schedules of their opposing teams. Moreover, many of the notices must 
be subsequently rescinded when the complete telecast schedules of the 
home teams and visiting teams are reconciled. For example, if, 
subsequent to sending out blackout notices to satellite carriers of 
away team telecasts to be deleted, the home team determines that it 
will also telecast one or more of the same games, then blackout 
protection would be removed under Sec.  76.127(a), and notifications 
would need to be sent out under Sec.  76.127(c). This application of 
the 48-hour rule could indeed result in numerous notices being received 
by satellite carriers in a confusing and unnecessarily complex manner.
    25. We continue to recognize the unique technical challenges that 
satellite carriers face in implementing sports blackouts and arranging 
for substitute programming. However, in light of the potential volume 
of notices created by the rule as applied to the professional sports 
leagues, we reconsider and amend it to require that rights holders 
choose between providing notice within 48 hours of the time the 
telecast to be deleted is known, or fifteen days prior to the 
commencement of the season, as described below.
    26. As EchoStar suggested, some coordination among the teams in the 
league is necessary in connection with the notice requirement. This is 
what the Sports Leagues are requesting to do, and have done in 
connection with the cable rule for years. Therefore, we will permit 
rights holders for sports with a discernable season to submit blackout 
notifications for an entire season, but we establish a date certain by 
when those notifications must be received by satellite carriers. The 
Sports Leagues have proposed that they can coordinate their teams' 
telecast schedules and submit notices of blackout requirements for 
those schedules by fifteen days before the beginning of each league's 
season. This proposal is reasonable. In connection with the 
standardized zip code list the Sports Leagues will provide to the 
satellite carriers, we think that carriers will have enough time to 
schedule the blackouts and to arrange for substitute programming where 
needed. This approach is very similar to the implementation of the 
cable sports blackout rule, while also reflecting the satellite 
carriers' demonstrated need for additional advance notice. We also 
recognize that in some circumstances pre-season sporting events will 
use sports blackout protection similar to regular season games.
    27. We will maintain the 48-hour rule for situations where the 
fifteen-day pre-season notice is impracticable or unnecessary. If the 
participants in a sports league are able to organize the entire 
league's telecast schedule before the start of the season, or a pre-
season period, blackout notices for that season, or pre-season, may be 
submitted to satellite carriers all at once fifteen days prior to the 
start of the season or pre-season. However, should a team or league not 
be able to provide its entire telecast schedule in advance of a season, 
or pre-season, the rights holder may send the notices game by game, but 
must do so within 48 hours of the time the telecast to be deleted is 
known. For broadcasts of individual sporting events or for sports 
without a complex league structure or a defined season it will likely 
be more practical to send blackout notices of regularly scheduled 
sporting events within 48 hours of the time the telecast to be deleted 
is known.

Definition of ``Local'' for Purposes of the Application of the Sports 
Blackout Rules

    28. Background. Prior to amending the sports blackout rules in the 
Report and Order, the sports blackout provisions could be applied ``if 
the event is not available live on a television broadcast signal 
carried by the community unit meeting the criteria specified in 
Sec. Sec.  76.5(gg)(1) through 76.5(gg)(3) of this part.'' The 
Commission deleted Sec.  76.5(gg) in its 1993 Order rescinding rate 
regulation. In the Report and Order the Commission adopted language to 
replace the deleted provision. In adopting a new standard based on 
former Sec.  76.5(gg), the Commission shortened and consolidated the 
provisions of that section and included them in a new rule provision, 
Sec.  76.128, which was not intended to change the operation of the 
cable sports blackout rule.
    29. In their petition for reconsideration, the Sports Leagues 
assert that the application of the rule would likely have an unintended 
effect. The Sports Leagues point out that Sec.  76.128 now defines a 
``local'' station as, ``among other things, a station either within 35 
miles of the cable or sports event community or one placing a Grade B 
contour over the cable or sports event community.'' The Sports Leagues 
assert that under the 1972 must carry rules, Grade B contour stations 
had no must-carry rights and were subject to deletion under the cable 
sports blackout rule. The Sports Leagues explain that with respect to 
cable television systems, a broadcast station transmitting a Grade B 
signal of a particular game into the 35-mile sports blackout zone of a 
rights holder could prevent that rights holder from requiring the cable 
operator to black out a non-televised home game. The Sports Leagues ask 
us to re-establish the protections for sports blackouts that have 
existed for over twenty-five years, and to create the same type of 
protection for satellite importation. The Sports Leagues state that 
this can be achieved by ``specifically recognizing that coverage by a 
Grade B contour does not vitiate blackout protection.'' ALTV recognized 
the problem raised in Sports Leagues' petition, but states that there 
is insufficient evidence in the record to assess the impact of the 
request.
    30. EchoStar asserts that the Commission revised the definition of 
``local'' for purposes of the sports blackout rule in order to simplify 
the definition and reflect changes in the must carry rules. EchoStar 
states that the rule now says that the sports blackout will not be 
triggered when the sports event is available live on a station whose 
grade B contour covers the community in which the event occurs. 
EchoStar argues that the revision in the rule is consistent with the 
purpose of the sports blackout rule, which is to protect gate receipts 
when a game is not locally available over the air.
    31. Discussion. We agree that the revisions to the sports blackout 
rules may have an unintended effect in rare situations such as those 
described by the Sports Leagues. Contrary to EchoStar's assertions, it 
was not the Commission's intention to alter the operation or effect of 
this part of the rules for cable operators or satellite carriers. To 
address the points raised by the Sports Leagues, we amend Sec.  76.128 
so that it will more closely track the terms and effect of the former 
Sec.  76.5(gg) by reestablishing that the Grade B contour provision 
applies only in non-major markets.

Clarification of Non-Duplication Protection Notices

    32. Background. Emmis Television Broadcasting, L.P. d/b/a WCKF-TV, 
Orlando, Florida (``Emmis'') in an ex parte submission requested 
reconsideration and revision of Sec.  76.122 of our rules. Emmis 
asserts that Sec.  76.122(c)(2) is dissimilar to the notification 
requirements in the cable context insofar as Sec.  76.122(c)(2) 
requires the inclusion of specific program

[[Page 68950]]

information regardless of an affiliate's ability to furnish that 
information based on the content of its affiliation contract.
    33. Discussion. In the Report and Order, the Commission concluded 
that stations should notify satellite carriers of exclusivity rights in 
the same manner required under the cable rules. The Commission intended 
that the satellite rules would require that the notice asserting 
exclusivity rights contain the same identifying information about the 
programming to be deleted and the extent of the exclusivity as required 
in the cable rules.
    34. We take this opportunity to revise Sec.  76.122(c) so that the 
rule conforms to the cable rules in Sec.  76.94(a) and (b). We take 
this action partly sua sponte and partly in response to the informal 
request for clarification of our rules. Broadcasters requesting non-
duplication protection from satellite carriers are required to include 
the name of the program, series or specific episodes for which 
protection is sought if such information is identified in the station's 
network agreement.

Procedural Matters

    35. Paperwork Reduction Act of 1995 Analysis. This Order on 
Reconsideration contains new or modified information collections 
subject to the Paperwork Reduction Act of 1995 (PRA), Public Law 104-
13. It will be submitted to the Office of Management and Budget (OMB) 
for review under section 3507(d) of the PRA. A Notice of Public 
Information Collection(s) being Reviewed by the Federal Communications 
Commission is published elsewhere in this Federal Register.
    36. Supplemental Final Regulatory Flexibility Certification. The 
Regulatory Flexibility Act of 1980, as amended (RFA), see 5 U.S.C. 
605(b), requires that a regulatory flexibility analysis be prepared for 
rulemaking proceedings, unless the agency certifies that ``the rule 
will not have a significant economic impact on a substantial number of 
small entities.'' The RFA, see 5 U.S.C. 601 et. seq., has been amended 
by the Contract With America Advancement Act of 1996, Public Law 104-
121, 110 Stat. 847 (1996) (CWAAA). Title II of the CWAAA is the Small 
Business Regulatory Enforcement Fairness Act of 1996 (SBREFA). The RFA, 
see 5 U.S.C. 601(6), generally defines ``small entity'' as having the 
same meaning as the terms ``small business,'' ``small organization,'' 
and ``small governmental jurisdiction.'' In addition, the term ``small 
business'' has the same meaning as the term ``small business concern'' 
under 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 Small Business Administration (SBA).
    37. In the Report and Order adopting the rules, the Commission 
issued a Final Regulatory Flexibility Analysis. In this Order on 
Reconsideration, the Commission amends Sec.  76.122 of our rules so 
that it conforms to the cable rules in Sec.  76.94(a) and (b). The 
Commission intended that the satellite rules would require that the 
notice asserting exclusivity rights would contain the same information 
about the programming to be deleted and the extent of the exclusivity 
as is required in the cable rules. The correction to this rule requires 
notices to satellite carriers to contain specific information only when 
the information is readily available to the rights holder, as similarly 
required by the cable rules. Therefore, the rule change eases the 
notification process, and the economic impact on rights holders and 
satellite carriers will not be significant.
    38. The Commission also amends a notification requirement in Sec.  
76.127 enabling sports rights holders to submit blackout notices to 
satellite carriers on an individual basis, or to cover an entire sports 
season at the rights holder's election. This elective notification 
scheme potentially reduces the burdens on sports rights holders and 
satellite carriers in conforming to the satellite sports blackout rule. 
The modification to this requirement aligns the satellite rule more 
closely with the application of the cable rule, as intended by the 
Report and Order. The changes we make to the requirements should not 
increase or decrease the number of event broadcasts to be blacked out, 
but should allow for more efficient scheduling and implementation of 
blackouts, and hence the economic impact on rights holders and 
satellite carriers will not be significant.
    39. Finally, the Commission amends Sec.  76.128 of our rules so 
that it more closely tracks the former Sec.  76.5(gg) it was intended 
to replace. In particular, the revision clarifies the definition of 
local station for purposes of the application of the sport blackout 
rules. The Commission never intended to alter the operation or effect 
of this rule, and this aspect of the definition would have had effect 
only in very rare instances.
    40. For the above reasons, we certify that the requirements of this 
Order on Reconsideration will not have a significant economic impact on 
a substantial number of small entities. The Commission will send a copy 
of the Order on Reconsideration including a copy of this final 
certification, in a report to Congress pursuant to the Congressional 
Review Act, see 5 U.S.C. 801(a)(1)(A). In addition, the Order on 
Reconsideration (or a summary thereof) and this certification will be 
published in the Federal Register, see 5 U.S.C. 605(b), and will be 
sent to the Chief Counsel for Advocacy of the SBA.

Ordering Clauses

    41. It is ordered, pursuant to section 405(a) of the Communications 
Act of 1934, 47 U.S.C. 405(a), and Sec.  1.429 of the Commission's 
rules, 47 CFR 1.429, that EchoStar's and DirecTV's Petition for 
Reconsideration are denied.
    42. It is further ordered, pursuant to section 405(a) of the 
Communications Act of 1934, 47 U.S.C. 405(a), and Sec.  1.429 of the 
Commission's rules, 47 CFR 1.429, that the Sports Leagues' Petition for 
Reconsideration is denied in part and granted in part.
    43. It is further ordered, that, pursuant to authority found in 
Sections 4(i) 4(j), 303(r), and 339 of the Communications Act of 1934, 
as amended, 47 U.S.C. 154(i), 154(j), 303(r), and 339, the amendments 
to part 76 of the Commission's rules, 47 CFR part 76, as discussed in 
this Order on Reconsideration and set forth in Appendix B, and the 
clarifications of those rules discussed in this Order on 
Reconsideration, are adopted, and shall become effective December 16, 
2002 except that rules Sec.  76.122(c)(2) and Sec.  76.127(c) that 
contain information collection requirements under the PRA are not 
effective until approved by OMB. The FCC will publish a document in the 
Federal Register announcing the effective date for those sections.
    44. It is further ordered that the Commission's Consumer and 
Governmental Affairs Bureau, Reference Information Center, shall send a 
copy of this Order on Reconsideration, including the Supplemental Final 
Regulatory Flexibility Certification, to the Chief Counsel for Advocacy 
of the Small Business Administration.
    45. It is further ordered that this proceeding is terminated.

List of Subjects in 47 CFR Part 76

    Cable television, Satellite carriers, Television broadcast 
stations.

Federal Communications Commission.
Marlene H. Dortch,
Secretary.

Rule Changes

    For the reasons discussed in the preamble, the Federal 
Communications Commission amends 47 CFR part 76 as follows:

[[Page 68951]]

PART 76--MULTICHANNEL VIDEO AND CABLE TELEVISION SERVICE

    1. The authority citation for part 76 continues to read as follows:

    Authority: 47 U.S.C. 151, 152, 153, 154, 301, 302, 303, 303a, 
307, 308, 309, 312, 317, 325, 338, 339, 503, 521, 522, 531, 532, 
533, 534, 535, 536, 537, 543, 544, 544a, 545, 548, 549, 552, 554, 
556, 558, 560, 561, 571, 572, 573.

    2. Section 76.122 is amended by revising paragraph (c)(2) to read 
as follows:


Sec.  76.122  Satellite network non-duplication.

* * * * *
    (c) * * *
    (2) Where the agreement between network and affiliate so 
identifies, the name of the program or series (including specific 
episodes where necessary) for which protection is sought;
* * * * *

    3. Section 76.127 is amended by revising paragraph (c) to read as 
follows:


Sec.  76.127  Satellite sports blackout.

* * * * *
    (c)(1) With respect to regularly scheduled events, within forty-
eight (48) hours after the time of the telecast to be deleted is known; 
or, for events that comprise a season or pre-season period, fifteen 
(15) days prior to the first event of the season or pre-season, 
respectively; and no later than the Monday preceding the calendar week 
(Sunday-Saturday) during which the program deletion is to be made. (2) 
Notifications as to events not regularly scheduled and revisions of 
notices previously submitted, must be received within twenty-four (24) 
hours after the time of the telecast to be deleted is known, but in any 
event no later than twenty-four (24) hours from the time the subject 
telecast is to take place.
* * * * *

    4. Section 76.128 is amended by revising paragraph (b) to read as 
follows:


Sec.  76.128  Application of sports blackout rules.

* * * * *
    (b) For communities in television markets other than major markets 
as defined in Sec.  76.51, television broadcast stations within whose 
Grade B contours the community of the community unit or the community 
within which the sporting event is taking place is located, in whole or 
in part;
* * * * *

[FR Doc. 02-28894 Filed 11-13-02; 8:45 am]
BILLING CODE 6712-01-P