[Federal Register Volume 74, Number 8 (Tuesday, January 13, 2009)]
[Proposed Rules]
[Pages 1654-1661]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: E8-31446]
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FEDERAL COMMUNICATIONS COMMISSION
47 CFR Part 79
[CG Docket No. 05-231; FCC 08-255]
Closed Captioning of Video Programming
AGENCY: Federal Communications Commission.
ACTION: Proposed rule.
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SUMMARY: In this document, the Commission seeks comment on the
application of the closed captioning rules to digital broadcasting,
specifically to broadcasters that choose to use their digital allotment
to multicast several streams of programming. The Commission's rules
exempt video programming channels that produced annual gross revenues
of less than $3 million during the previous calendar year from the
Commission's closed captioning obligations. The Commission did not
determine what constitutes a ``channel'' for purposes of satisfying
this self-implementing exemption. The Commission therefore seeks
comment on issues related to, for purposes of this exemption, whether
each programming stream on a multicast signal constitutes a separate
channel, or whether the broadcaster's entire operations attributable to
its digital allotment should be considered one channel.
DATES: Comments are due on or before February 12, 2009. Reply comments
are due on or before February 27, 2009.
ADDRESSES: Interested parties may submit comments identified by CG
Docket No. 05-231, by any of the following methods:
Electronic Filers: Comments may be filed electronically
using the Internet by accessing the Commission's Electronic Comment
Filing System (ECFS), through the Commission's Web site: http://www.fcc.gov/cgb/ecfs/, or the Federal eRulemaking Portal: http://www.regulations.gov. Filers should follow the instructions provided on
the Web site for submitting comments. For ECFS filers, in completing
the transmittal screen, filers should include their full name, U.S.
Postal Service mailing address, and CG Docket No. 05-231. Parties also
may submit an electronic comment by Internet e-mail. To get filing
instructions, filers should send an e-mail to [email protected], and include
the following words in the body of the message, ``get form .'' A sample form and directions will be sent in response.
Paper filers: Parties who choose to file by paper must
file an original and four copies of each filing. Filings can be sent by
hand or messenger delivery, by commercial overnight courier, or by
first-class or overnight U.S. Postal Service mail (although the
Commission continues to experience delays in receiving U.S. Postal
Service mail). All filings must be addressed to the Commission's
Secretary, Office of the Secretary, Federal Communications Commission.
The Commission's contractor will receive hand-delivered or
messenger-delivered paper filings for the Commission's Secretary at 236
Massachusetts Avenue, NE., Suite 110, Washington, DC 20002. The filing
hours at this location are 8 a.m. to 7 p.m. All hand deliveries must be
held together with rubber bands or fasteners. Any envelopes must be
disposed of before entering the building.
Commercial Mail sent by overnight mail (other than U.S.
Postal Service Express Mail and Priority Mail) must be sent to 9300
East Hampton Drive, Capitol Heights, MD 20743.
U.S. Postal Service first-class, Express, and Priority
mail should be addressed to 445 12th Street, SW., Washington, DC 20554.
People with Disabilities: To request materials in
accessible formats for people with disabilities (Braille, large print,
electronic files, audio format), send an e-mail to [email protected] or
call the Consumer and Governmental Affairs Bureau at (202) 418-0530
(voice), (202) 418-0432 (TTY).
For detailed instructions for submitting comments and additional
[[Page 1655]]
information on the rulemaking process, see the SUPPLEMENTARY
INFORMATION section of this document.
FOR FURTHER INFORMATION CONTACT: Amelia Brown, Consumer and
Governmental Affairs Bureau, Disability Rights Office at (202) 418-2799
or e-mail at [email protected].
SUPPLEMENTARY INFORMATION: This is a summary of the Commission's Closed
Captioning of Video Programming; Closed Captioning Requirements for
Digital Television Receivers, Notice of Proposed Rulemaking (2008
Digital Closed Captioning NPRM), document FCC 08-255, adopted November
3, 2008, and released November 7, 2008, in CG Docket No. 05-231,
seeking comment on matters concerning Sec. 79.1(d)(12) of the
Commission's rules and digital multicast channels. The full text of FCC
08-255 and copies of any subsequently filed documents in this matter
will be available for public inspection and copying during regular
business hours at the FCC Reference Information Center, Portals II, 445
12th Street, SW., Room CY-A257, Washington, DC 20554. FCC 08-255 and
copies of subsequently filed documents in this matter may also be
purchased from the Commission's duplicating contractor at Portals II,
445 12th Street, SW., Room CY-B402, Washington, DC 20554. Customers may
contact the Commission's duplicating contractor at its Web site, http://www.bcpiweb.com, or by calling 1-800-378-3160. FCC 08-255 can also be
downloaded in Word or Portable Document Format (PDF) at: http://www.fcc.gov/cgb/dro/caption.html. Parties who choose to file by paper
should also submit their comments on compact disc. The compact disc
should be submitted, along with three paper copies, to: Traci Randolph,
Consumer and Governmental Affairs Bureau, Disability Rights Office, 445
12th Street, SW., Room 3-C425, Washington, DC 20554. Such submission
should be on a compact disc formatted in an IBM compatible format using
Word 2003 or a compatible software. The compact disc should be
accompanied by a cover letter and should be submitted in ``read only''
mode. The compact disc should be clearly labeled with the commenter's
name, proceeding (CG Docket No. 05-231), type of pleading (comment or
reply comment), date of submission, and the name of the electronic file
on the compact disc. The label also should include the following
phrase: ``CD-Rom Copy--Not an Original.'' Each compact disc should
contain only one party's pleadings, preferably in a single electronic
file. In addition, commenters filing by paper must send a compact disc
copy to the Commission's duplicating contractor at Portals II, 445 12th
Street, SW., Room CY-B402, Washington, DC 20554.
Initial Paperwork Reduction Act of 1995 Analysis
This document does not contain proposed information collection
requirements subject to the Paperwork Reduction Act of 1995, Public Law
104-13. In addition, therefore, it does not contain any proposed
information collection burden ``for small business concerns with fewer
than 25 employees,'' pursuant to the Small Business Paperwork Relief
Act of 2002, Public Law 107-198, see 44 U.S.C. 3506(c)(4).
Synopsis
1. As the nation transitions from analog to digital broadcasting,
the video programming and broadcasting landscape will change
substantially. With analog broadcasting, broadcasters use their
spectrum allocation to provide programming on a single channel. With
digital broadcasting, broadcasters may use their digital allotment to
multicast several streams of programming, known as ``multicasting.''
Section 79.1(d)(12) of the Commission's rules exempts video programming
channels that produced annual gross revenues of less than $3 million
during the previous calendar year from the Commission's closed
captioning obligations. The Commission seeks comment on the application
of Sec. 79.1(d)(12) of the Commission's rules to digital broadcasting.
2. In 1997, when the Commission adopted the exemption for channels
producing less than $3 million in revenues, it specified that
``[a]nnual gross revenues shall be calculated for each channel
individually based on revenues received in the preceding calendar year
from all sources related to the programming on that channel.'' The
Commission did not determine, however, what constitutes a ``channel''
for purposes of satisfying this self-implementing exemption. The
Commission seeks comment on whether, for purposes of Sec. 79.1(d)(12)
of the Commission's rules, each programming stream on a multicast
signal constitutes a separate channel, or whether the broadcaster's
entire operations attributable to its digital allotment should be
considered one channel.
3. Under the Commission's rules, programming that is already
captioned and delivered to a broadcaster for airing must be aired with
the captions intact, regardless of the multicast stream on which the
programming airs, pursuant to the pass through rule. Given the pass
through rule, it is likely that much of the programming delivered to
broadcasters for airing on multicast streams will already be captioned,
especially if it is programming provided by a network programmer, even
if Sec. 79.1(d)(12) of the Commission's rules applies to each
multicast channel. The Commission seeks comment on what percentage of
programming that airs on multicast streams, other than the main stream,
is network programming, and how much of that programming is already
captioned.
4. The Commission seeks comment on whether individual programming
streams should not be considered separate channels for purposes of
calculating revenues for purposes of Sec. 79.1(d)(12) of the
Commission's rules. In such circumstances, digital broadcasters would
be exempt from the Commission's requirements under Sec. 79.1(d)(12) of
the Commission's rules only if their overall operations, taking into
account all activities on all ``streams,'' received less than $3
million in revenues. The Commission seeks comment on the relative
merits of this approach and its practical effects, including how this
determination might affect program diversity, the airing of locally-
originated programming, or the airing of other kinds of programming
that may afford little or no economic return. The Commission also seeks
comment on whether this approach may result in an increase in the
number of petitions for exemption from the closed captioning
requirements under the ``undue burden'' standard set forth in Sec.
79.1(f) of the Commission's rules.
5. The Commission seeks comment on whether the $3 million revenue
amount is a reasonable threshold for determining if secondary multicast
streams should be exempt from the closed captioning requirements, or
whether a smaller figure is appropriate and, if so, what that amount
should be.
6. The Commission seeks comment on whether it is appropriate to
adopt something other than a fixed revenue threshold for determining
whether secondary multicast streams must be captioned. For example,
comment is sought on whether the captioning requirements should be tied
to a formula that considers the number of programming streams being
offered (or some other variable), such as that used for determining a
multicasting broadcaster's children's television programming
requirements. Finally, the Commission seeks comment on similar
alternatives for applying captioning
[[Page 1656]]
requirements to multicast program streams.
Initial Regulatory Flexibility Certification
7. As required by the Regulatory Flexibility Act of 1980, as
amended (RFA), the Commission has prepared this present Initial
Regulatory Flexibility Analysis (IRFA) of the possible significant
economic impact on a substantial number of small entities by the
policies and rules proposed in this 2008 Digital Closed Captioning
NPRM. See 5 U.S.C. 603. Written public comments are requested on this
IRFA. Comments must be identified as responses to the IRFA and must be
filed by the deadlines for comments on the 2008 Digital Closed
Captioning NPRM provided in paragraph 43 of the Item. The Commission
will send a copy of the 2008 Digital Closed Captioning NPRM, including
this IRFA, to the Chief Counsel for Advocacy of the Small Business
Administration (SBA). See 5 U.S.C. 603(a).
Need for, and Objectives of, the Proposed Rules
8. The Commission initiates this review relating to closed
captioning in anticipation of the transition to digital television
(DTV) by full power broadcasters, which will occur on February 18,
2009. This rulemaking proceeding proposes several options for the
appropriate treatment of digital broadcasters that choose to use their
digital allotment to multicast several streams of programming (known as
``multicasting''). In light of this new broadcasting environment, the
2008 Digital Closed Captioning NPRM proposes several options for
determining the closed captioning obligations for multicasting
broadcasters. The 2008 Digital Closed Captioning NPRM seeks comment on
Sec. 79.1(d)(12) of the Commission's rules, which exempts from the
closed captioning obligations video programming channels that produced
annual gross revenues of less than $3 million during the previous
calendar year. 47 CFR 79.1(d)(12). In order to determine whether each
stream of a digital broadcaster's multicast operation must be
captioned, the Commission proposes several possible alternatives and
the possible outcomes to each alternative.
9. The proposals set forth in the 2008 Digital Closed Captioning
NPRM, for which comment is sought, contemplate as possible outcomes the
following: Treat each multicast stream as a separate channel and
calculate their revenues separately; treat each multicast stream as a
separate channel and calculate their revenues separately, but decrease
the revenue threshold for determining whether the non-main programming
streams must close caption; treat individual programming streams as one
channel, in which case the revenues would be aggregated for purposes of
determining if the exemption in Sec. 79.1(d)(12) of the Commission's
rules applies; or, impose a new non-revenue approach for deciding how
much programming must be captioned on multicast streams.
Legal Basis
10. The authority for this proposed rulemaking is contained in
sections 4(i), 303(r) and 713 of the Communications Act of 1934, as
amended, 47 U.S.C. 154(i), 303(r) and 613.
Description and Estimate of the Number of Small Entities Impacted
11. The RFA directs the Commission to provide a description of and,
where feasible, an estimate of the number of small entities that will
be affected by the rules. 5 U.S.C. 604(a)(3). The RFA generally 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. 5 U.S.C. 601(6).
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 SBA. 5 U.S.C. 632.
12. Nationwide, there are a total of approximately 22.4 million
small businesses, according to SBA data. See SBA, Programs and
Services, SBA Pamphlet No. CO-0028, at page 40 (July 2002). A ``small
organization'' is generally ``any not-for-profit enterprise which is
independently owned and operated and is not dominant in its field.'' 5
U.S.C. 601(4). Nationwide, as of 2002, there were approximately 1.6
million small organizations. ``Independent Sector, The New Nonprofit
Almanac & Desk Reference'' (2002). The term ``small governmental
jurisdiction'' is defined generally as ``governments of cities, towns,
townships, villages, school districts, or special districts, with a
population of less than fifty thousand.'' 5 U.S.C. 601(5). Census
Bureau data for 2002 indicate that there were 87,525 local governmental
jurisdictions in the United States. U.S. Census Bureau, ``Statistical
Abstract of the United States: 2006,'' section 8, page 272, Table 415.
The Commission estimates that, of this total, 84,377 entities were
``small governmental jurisdictions.'' The Commission assumes that the
villages, school districts, and special districts are small, and total
48,558. For 2002, Census Bureau data indicate that the total number of
county, municipal, and township governments nationwide was 38,967, of
which 35,819 were small. See U.S. Census Bureau, Statistical Abstract
of the United States: 2006, section 8, page 273, Table 417. Thus, the
Commission estimates that most governmental jurisdictions are small.
13. Wired Telecommunications Carriers. The Census Bureau defines
this category as follows: ``This industry comprises establishments
primarily engaged as third-party distribution systems for broadcast
programming. The establishments of this industry deliver visual, aural,
or textual programming received from cable networks, local television
stations, or radio networks to consumers via cable or direct-to-home
satellite systems on a subscription or fee basis. These establishments
do not generally originate programming material.'' U.S. Census Bureau,
2002 NAICS Definitions, ``517110 Wired Telecommunications Carriers.''
The SBA has developed a small business size standard for wireline firms
within the broad economic census category, ``Wired Telecommunications
Carriers.'' 13 CFR 121.201, NAICS code 517110. Under this category, the
SBA deems a wireline business to be small if it has 1,500 or fewer
employees. Census Bureau data for 2002 show that there were 2,432 firms
in this category that operated for the entire year. U.S. Census Bureau,
2002 Economic Census, Subject Series: Information, ``Establishment and
Firm Size: 2002 (Including Legal Form of Organization),'' Table 5,
NAICS code 517110 (issued Nov. 2005). Of this total, 2,395 firms had
employment of 999 or fewer employees, and 37 firms had employment of
1,000 employees or more. U.S. Census Bureau, 2002 Economic Census,
Subject Series: Information, ``Establishment and Firm Size: 2002
(Including Legal Form of Organization),'' Table 5, NAICS code 517110
(issued Nov. 2005). Thus, under this category and associated small
business size standard, the majority of firms can be considered small.
14. Cable Television Distribution Services. Since 2007, these
services have been defined within the broad economic census category of
Wired Telecommunications Carriers; that category is defined as follows:
``This industry comprises establishments primarily engaged in operating
and/or providing access to transmission facilities and infrastructure
that they own and/or lease for the transmission of
[[Page 1657]]
voice, data, text, sound, and video using wired telecommunications
networks. Transmission facilities may be based on a single technology
or a combination of technologies.'' U.S. Census Bureau, 2007 NAICS
Definitions, ``517110 Wired Telecommunications Carriers'' (partial
definition. The SBA has developed a small business size standard for
this category, which is: all such firms having 1,500 or fewer
employees. The NAICS Code associated with this size standard is 517110.
To gauge small business prevalence for these cable services we must,
however, use current census data that are based on the previous
category of Cable and Other Program Distribution and its associated
size standard; that size standard was: all such firms having $13.5
million or less in annual receipts. 13 CFR 121.201, NAICS code 517110.
According to Census Bureau data for 2002, there were a total of 1,191
firms in this previous category that operated for the entire year. U.S.
Census Bureau, 2002 Economic Census, Subject Series: Information, Table
4, Receipts Size of Firms for the United States: 2002, NAICS code
517510 (issued November 2005). Of this total, 1,087 firms had annual
receipts of under $10 million, and 43 firms had receipts of $10 million
or more but less than $25 million. Thus, the majority of these firms
can be considered small.
15. Cable Companies and Systems. The Commission has also developed
its own small business size standards, for the purpose of cable rate
regulation. Under the Commission's rules, a ``small cable company'' is
one serving 400,000 or fewer subscribers, nationwide. 47 CFR 76.901(e)
of the Commission's rules. The Commission determined that this size
standard equates approximately to a size standard of $100 million or
less in annual revenues. Implementation of Sections of the 1992 Cable
Act: Rate Regulation, Sixth Report and Order and Eleventh Order on
Reconsideration, 10 FCC Rcd 7393, 7408 (1995), published at 60 FR
35854, July 12, 1995. Industry data indicate that, of 1,076 cable
operators nationwide, all but eleven are small under this size
standard. These data are derived from: R.R. Bowker, Broadcasting &
Cable Yearbook 2006, ``Top 25 Cable/Satellite Operators,'' pages A-8 &
C-2 (data current as of June 30, 2005); Warren Communications News,
Television & Cable Factbook 2006, ``Ownership of Cable Systems in the
United States,'' pages D-1805 to D-1857. In addition, under the
Commission's rules, a ``small system'' is a cable system serving 15,000
or fewer subscribers. 47 CFR 76.901(c) of the Commission's rules.
Industry data indicate that, of 7,208 systems nationwide, 6,139 systems
have under 10,000 subscribers, and an additional 379 systems have
10,000-19,999 subscribers. Warren Communications News, Television &
Cable Factbook 2006, ``U.S. Cable Systems by Subscriber Size,'' page F-
2 (data current as of Oct. 2005). The data do not include 718 systems
for which classifying data were not available. Thus, under this second
size standard, most cable systems are small. Wired Telecommunications
Carriers with fewer than 1,500 employees are considered to be small.
See 13 CFR 121.201, NAICS code 517110.
16. Cable System Operators. The Communications Act of 1934, as
amended, also contains a size standard for small cable system
operators, which is ``a cable operator that, directly or through an
affiliate, serves in the aggregate fewer than 1 percent of all
subscribers in the United States and is not affiliated with any entity
or entities whose gross annual revenues in the aggregate exceed
$250,000,000.'' 47 U.S.C. 543(m)(2); see 47 CFR 6.901(f) of the
Commission's rules and notes 1-3. The Commission has determined that an
operator serving fewer than 677,000 subscribers shall be deemed a small
operator, if its annual revenues, when combined with the total annual
revenues of all its affiliates, do not exceed $250 million in the
aggregate. 47 CFR 76.901(f) of the Commission's rules; see Public
Notice, FCC Announces New Subscriber Count for the Definition of Small
Cable Operator, DA 01-158 (Cable Services Bureau, January 24, 2001).
Industry data indicate that, of 1,076 cable operators nationwide, all
but ten are small under this size standard. These data are derived
from: R.R. Bowker, Broadcasting & Cable Yearbook 2006, ``Top 25 Cable/
Satellite Operators,'' pages A-8 & C-2 (data current as of June 30,
2005); Warren Communications News, Television & Cable Factbook 2006,
``Ownership of Cable Systems in the United States,'' pages D-1805 to D-
1857. The Commission notes that the Commission neither requests nor
collects information on whether cable system operators are affiliated
with entities whose gross annual revenues exceed $250 million, and
therefore the Commission is unable to estimate more accurately the
number of cable system operators that would qualify as small under this
size standard. The Commission does receive such information on a case-
by-case basis if a cable operator appeals a local franchise authority's
finding that the operator does not qualify as a small cable operator
pursuant to section 76.901(f) of the Commission's rules. See 47 CFR
76.909(b) of the Commission's rules.
17. Cable Television Relay Service. This service includes
transmitters generally used to relay cable programming within cable
television system distribution systems. As noted, Wired
Telecommunications Carriers with fewer than 1,500 employees are
considered to be small, under the currently applicable SBA
classification. NAICS Code 517110. The data presented were acquired
when the applicable SBA small business size standard was called Cable
and Other Program Distribution, and which referred to all such firms
having $13.5 million or less in annual receipts. 13 CFR 121.201, NAICS
code 517110. According to Census Bureau data for 2002, there were a
total of 1,191 firms in this category that operated for the entire
year. U.S. Census Bureau, 2002 Economic Census, Subject Series:
Information, Table 4, Receipts Size of Firms for the United States:
2002, NAICS code 517510 (issued November 2005). Of this total, 1,087
firms had annual receipts of under $10 million, and 43 firms had
receipts of $10 million or more but less than $25 million. U.S. Census
Bureau, 2002 Economic Census, Subject Series: Information, Table 4,
Receipts Size of Firms for the United States: 2002, NAICS code 517510
(issued November 2005). Thus, under this size standard, the majority of
firms can be considered small.
18. Direct Broadcast Satellite (DBS) Service. DBS service is a
nationally distributed subscription service that delivers video and
audio programming via satellite to a small parabolic ``dish'' antenna
at the subscriber's location. DBS falls under the SBA definition of
``Wireless Telecommunications Carriers (except satellite)'', which
establishes as a small DBS company any DBS company which has less than
1,500 employees. 13 CFR 121.201, NAICS Code 517210. The data presented
were acquired when the applicable SBA small business size standard was
called Cable and Other Program Distribution, and which referred to all
such firms having $13.5 million or less in annual receipts. 13 CFR
121.201, NAICS code 517110. According to Census Bureau data for 2002,
there were a total of 1,191 firms in this category that operated for
the entire year. U.S. Census Bureau, 2002 Economic Census, Subject
Series: Information, Table 4, Receipts Size of Firms for the United
States: 2002, NAICS code 517510 (issued November 2005). Of this total,
1,087 firms had annual receipts of under $10 million,
[[Page 1658]]
and 43 firms had receipts of $10 million or more but less than $25
million. Currently, only four operators hold licenses to provide DBS
service, which requires a great investment of capital for operation.
All four currently offer subscription services. Two of these four DBS
operators, DirecTV and EchoStar Communications Corporation (EchoStar),
report annual revenues that are in excess of the threshold for a small
business. DirecTV is the largest DBS operator and the second largest
MVPD, serving an estimated 13.04 million subscribers nationwide. See
Annual Assessment of Status of Competition in the Market for the
Delivery of Video Programming, Eleventh Annual Report, FCC 05-13,
paragraph 55 (released February 4, 2005) (2005 Cable Competition
Report). EchoStar, which provides service under the brand name Dish
Network, is the second largest DBS operator and the fourth largest
MVPD, serving an estimated 10.12 million subscribers nationwide. See
2005 Cable Competition Report, paragraph 55. A third operator, Rainbow
DBS, is a subsidiary of Cablevision's Rainbow Network, which also
reports annual revenues in excess of $13.5 million, and thus does not
qualify as a small business. Rainbow DBS, which provides service under
the brand name VOOM, reported an estimated 25,000 subscribers. See 2005
Cable Competition Report, paragraph 55. The fourth DBS operator,
Dominion Video Satellite, Inc. (Dominion), offers religious (Christian)
programming and does not report its annual receipts. Dominion, which
provides service under the brand name Sky Angel, does not publicly
disclose its subscribership numbers on an annualized basis. See 2005
Cable Competition Report, paragraph 55. The Commission does not know of
any source which provides this information and, thus, the Commission
has no way of confirming whether Dominion qualifies as a small
business. Because DBS service requires significant capital, the
Commission believes it is unlikely that a small entity as defined by
the SBA would have the financial wherewithal to become a DBS licensee.
Nevertheless, given the absence of specific data on this point, the
Commission acknowledges the possibility that there are entrants in this
field that may not yet have generated $13.5 million in annual receipts,
and therefore may be categorized as a small business, if independently
owned and operated.
19. Television Broadcasting. This Economic Census category
``comprises establishments primarily engaged in broadcasting images
together with sound. These establishments operate television
broadcasting studios and facilities for the programming and
transmission of programs to the public.'' U.S. Census Bureau, 2007
NAICS Definitions, ``515120 Television Broadcasting'' (partial
definition). The SBA has created the following small business size
standard for Television Broadcasting firms: those having $14 million or
less in annual receipts. 13 CFR 121.201, NAICS code 515120 (updated for
inflation in 2008). The Commission has estimated the number of licensed
commercial television stations to be 1,379. See FCC News Release,
``Broadcast Station Totals as of December 31, 2007,'' dated March 18,
2008. In addition, according to Commission staff review of the BIA
Publications, Inc., Master Access Television Analyzer Database (BIA) on
March 30, 2007, about 986 of an estimated 1,374 commercial television
stations (or approximately 72 percent) had revenues of $13 million or
less. The Commission recognizes that BIA's estimate differs slightly
from the FCC total. The Commission therefore estimates that the
majority of commercial television broadcasters are small entities.
20. The Commission notes, however, that in assessing whether a
business concern qualifies as small under the above definition,
business (control) affiliations must be included. 13 CFR 21.103(a)(1).
The Commission's estimate, therefore, likely overstates the number of
small entities that might be affected by our action, because the
revenue figure on which it is based does not include or aggregate
revenues from affiliated companies. In addition, an element of the
definition of ``small business'' is that the entity not be dominant in
its field of operation. The Commission is unable at this time to define
or quantify the criteria that would establish whether a specific
television station is dominant in its field of operation. Accordingly,
the estimate of small businesses to which rules may apply does not
exclude any television station from the definition of a small business
on this basis and is therefore possibly over-inclusive to that extent.
21. In addition, the Commission has estimated the number of
licensed noncommercial educational (NCE) television stations to be 380.
See FCC News Release, ``Broadcast Station Totals as of December 31,
2007,'' dated March 18, 2008. These stations are non-profit, and
therefore considered to be small entities. See generally 5 U.S.C.
601(4), (6). In addition, there are also 2,295 low power television
stations (LPTV). See FCC News Release, ``Broadcast Station Totals as of
December 31, 2007,'' dated March 18, 2008. Given the nature of this
service, we will presume that all LPTV licensees qualify as small
entities under the above SBA small business size standard.
22. Local Multipoint Distribution Service. Local Multipoint
Distribution Service (LMDS) is a fixed broadband point-to-multipoint
microwave service that provides for two-way video telecommunications.
See Rulemaking to Amend Parts 1, 2, 21, 25, of the Commission's Rules
to Redesignate the 27.5-29.5 GHz Frequency Band, Reallocate the 29.5-
30.5 Frequency Band, to Establish Rules and Policies for Local
Multipoint Distribution Service and for Fixed Satellite Services,
Second Report and Order, Order on Reconsideration, and Fifth Notice of
Proposed Rule Making, 12 FCC Rcd 12545, 12689-90, paragraph 348 (1997),
published at 62 FR 16514, April 7, 1997. The auction of the 986 Local
Multipoint Distribution Service (LMDS) licenses began on February 18,
1998 and closed on March 25, 1998. The Commission established a small
business size standard for LMDS licenses as an entity that has average
gross revenues of less than $40 million in the three previous calendar
years. See Rulemaking to Amend Parts 1, 2, 21, 25, of the Commission's
Rules to Redesignate the 27.5-29.5 GHz Frequency Band, Reallocate the
29.5-30.5 Frequency Band, to Establish Rules and Policies for Local
Multipoint Distribution Service and for Fixed Satellite Services, 12
FCC Rcd 12545, 12689-90, paragraph 348. An additional small business
size standard for ``very small business'' was added as an entity that,
together with its affiliates, has average gross revenues of not more
than $15 million for the preceding three calendar years. See Rulemaking
to Amend Parts 1, 2, 21, 25, of the Commission's Rules to Redesignate
the 27.5-29.5 GHz Frequency Band, Reallocate the 29.5-30.5 Frequency
Band, to Establish Rules and Policies for Local Multipoint Distribution
Service and for Fixed Satellite Services, 12 FCC Rcd 12545, 12689-90,
paragraph 348. The SBA has approved these small business size standards
in the context of LMDS auctions. See Letter to Dan Phythyon, Chief,
Wireless Telecommunications Bureau, FCC, from Aida Alvarez,
Administrator, SBA (January 6, 1998). There were 93 winning bidders
that qualified as small entities in the LMDS auctions. A total of 93
small and very small business bidders won approximately 277 A Block
licenses and
[[Page 1659]]
387 B Block licenses. On March 27, 1999, the Commission re-auctioned
161 licenses; there were 32 small and very small businesses winning
that won 119 licenses. Because some LMDS services may not have been
auctioned, the SBA standard which applies to such services is Wireless
Telecommunications Carriers (except satellite), pursuant to which a
service is small if it has fewer than 1500 employees. The NAICS Code
for this SBA classification is 51711.
23. Wireless Telecommunications Carriers (except satellite). NAICS
code 517210. Wireless Telecommunications Carriers, except satellite, is
a NAICS standard which has a size standard of fewer than 1500
employees. NAICS Code 517210. Wireless cable systems use 2 GHz band
frequencies of the Broadband Radio Service (BRS), formerly Multipoint
Distribution Service (MDS), and the Educational Broadband Service
(EBS), formerly Instructional Television Fixed Service (ITFS), to
transmit video programming and provide broadband services to
residential subscribers. These services were originally designed for
the delivery of multichannel video programming, similar to that of
traditional cable systems, but over the past several years licensees
have focused their operations instead on providing two-way high-speed
Internet access services. The Commission estimates that the number of
wireless cable subscribers is approximately 100,000, as of March 2005.
As noted, within the category of Wireless Telecommunications Carriers,
except satellite, such firms with fewer than 1500 employees are
considered to be small. 13 CFR 121.201, NAICS Code 517210. The data
presented were acquired when the applicable SBA small business size
standard was called Cable and Other Program Distribution, and which
referred to all such firms having $13.5 million or less in annual
receipts. 13 CFR 121.201, NAICS Code 517110. According to Census Bureau
data for 2002, there were a total of 1,191 firms in this category that
operated for the entire year. U.S. Census Bureau, 2002 Economic Census,
Subject Series: Information, Table 4, Receipts Size of Firms for the
United States: 2002, NAICS code 517510 (issued November 2005). Of this
total, 1,087 firms had annual receipts of under $10 million, and 43
firms had receipts of $10 million or more but less than $25 million.
U.S. Census Bureau, 2002 Economic Census, Subject Series: Information,
Table 4, Receipts Size of Firms for the United States: 2002, NAICS code
517510 (issued November 2005). The SBA small business size standard for
the broad census category of Wireless Telecommunications Carriers,
which consists of such entities with fewer than 1,500 employees,
appears applicable to MDS and ITFS. Other standards also apply, as
described.
24. The Commission has defined small MDS (now BRS) entities in the
context of Commission license auctions. In the 1996 MDS auction, the
Commission defined a small business as an entity that had annual
average gross revenues of less than $40 million in the previous three
calendar years. This definition of a small entity in the context of MDS
auctions has been approved by the SBA. In the MDS auction, 67 bidders
won 493 licenses. Of the 67 auction winners, 61 claimed status as a
small business. At this time, the Commission estimates that of the 61
small business MDS auction winners, 48 remain small business licensees.
In addition to the 48 small businesses that hold BTA authorizations,
there are approximately 392 incumbent MDS licensees that have gross
revenues that are not more than $40 million and are thus considered
small entities. MDS licensees and wireless cable operators that did not
receive their licenses as a result of the MDS auction fall under the
SBA small business size standard for Wireless Telecommunications
Carriers (except satellite). 13 CFR 121.201, NAICS Code 517210. As
noted, within the category of Wireless Telecommunications Carriers,
such firms with fewer than 1500 employees are considered to be small.
13 CFR 121.201, NAICS Code 517210. The data presented were acquired
when the applicable SBA small business size standard was called Cable
and Other Program Distribution, and which referred to all such firms
having $13.5 million or less in annual receipts. 13 CFR 121.201, NAICS
Code 517110. According to Census Bureau data for 2002, there were a
total of 1,191 firms in this category that operated for the entire
year. U.S. Census Bureau, 2002 Economic Census, Subject Series:
Information, Table 4, Receipts Size of Firms for the United States:
2002, NAICS code 517510 (issued November 2005). Of this total, 1,087
firms had annual receipts of under $10 million, and 43 firms had
receipts of $10 million or more but less than $25 million. U.S. Census
Bureau, 2002 Economic Census, Subject Series: Information, Table 4,
Receipts Size of Firms for the United States: 2002, NAICS code 517510
(issued November 2005). Information available to the Commission
indicates that there are approximately 850 of these licensees and
operators that do not generate revenue in excess of $13.5 million
annually. Therefore, the Commission estimates that there are
approximately 850 small entity MDS (or BRS) providers, as defined by
the SBA and the Commission's auction rules.
25. Educational institutions are included in this analysis as small
entities; however, the Commission has not created a specific small
business size standard for ITFS (now EBS). The Commission estimates
that there are currently 2,032 ITFS (or EBS) licensees, and all but 100
of the licenses are held by educational institutions. Thus, the
Commission estimates that at least 1,932 ITFS licensees are small
entities.
26. Open Video Services. Open Video Service (OVS) systems provide
subscription services. See 47 U.S.C. 573. The data presented were
acquired when the applicable SBA small business size standard was
called Cable and Other Program Distribution, and which referred to all
such firms having $13.5 million or less in annual receipts. 13 CFR
121.201, NAICS Code 517110. According to Census Bureau data for 2002,
there were a total of 1,191 firms in this category that operated for
the entire year. U.S. Census Bureau, 2002 Economic Census, Subject
Series: Information, Table 4, Receipts Size of Firms for the United
States: 2002, NAICS code 517510 (issued November 2005). Of this total,
1,087 firms had annual receipts of under $10 million, and 43 firms had
receipts of $10 million or more but less than $25 million. U.S. Census
Bureau, 2002 Economic Census, Subject Series: Information, Table 4,
Receipts Size of Firms for the United States: 2002, NAICS code 517510
(issued November 2005). This standard has been replaced by the Wireless
Telecommunications Carriers (except satellite) standard, which
considers firms with fewer than 1,500 employees to be small. NAICS Code
517210. The Commission has certified approximately 100 OVS operators to
serve 75 areas, and some of these are currently providing service. See
http://www.fcc.gov/csb/ovs/csovscer.html (current as of June 2004).
These data were collected when ``Cable and Other Program Distribution''
was the operative distribution technology. Affiliates of Residential
Communications Network, Inc. (RCN) received approval to operate OVS
systems in New York City, Boston, Washington, DC, and other areas. RCN
has sufficient revenues to assure that they do not qualify as a small
business entity. Little financial information is available for the
other entities that are authorized to provide OVS and are not yet
operational. Given that some entities authorized to provide OVS service
have
[[Page 1660]]
not yet begun to generate revenues, the Commission concludes that those
OVS operators remaining might qualify as small businesses that may be
affected by the rules and policies adopted herein.
27. In addition, an element of the definition of ``small business''
is that the entity not be dominant in its field of operation. The
Commission is unable at this time to define or quantify the criteria
that would establish whether a specific television station is dominant
in its field of operation. Accordingly, the estimate of small
businesses to which rules may apply does not exclude any television
station from the definition of a small business on this basis and is
therefore over-inclusive to that extent. Also as noted, an additional
element of the definition of ``small business'' is that the entity must
be independently owned and operated. The Commission notes that it is
difficult at times to assess these criteria in the context of media
entities and our estimates of small businesses to which they apply may
be over-inclusive to this extent.
28. Telephone Companies. Neither the Commission nor the SBA has
developed a small business size standard specifically for incumbent
local exchange services. The appropriate size standard under SBA rules
is for the category Wired Telecommunications Carriers. Under that size
standard, such a business is small if it has 1,500 or fewer employees.
13 CFR 121.201, NAICS code 517110. According to Commission data, 1,307
carriers have reported that they are engaged in the provision of
incumbent local exchange services. FCC, Wireline Competition Bureau,
Industry Analysis and Technology Division, ``Trends in Telephone
Service'' at Table 5.3, Page 5-5 (February 2007). This source uses data
that are current as of October 20, 2005. Of these 1,307 carriers, an
estimated 1,019 have 1,500 or fewer employees and 288 have more than
1,500 employees. Consequently, the Commission estimates that most
providers of incumbent local exchange service are small businesses that
may be affected by our action. The Commission estimates that ten LECs
currently provide video programming, and several smaller telephone
companies provide the service.
29. Incumbent Local Exchange Carriers (LECs). Neither the
Commission nor the SBA has developed a small business size standard
specifically for incumbent local exchange services. The appropriate
size standard under NCAIS rules is for the category Wired
Telecommunications Carriers. Under that size standard, such a business
is small if it has 1,500 or fewer employees. 13 CFR 121.201, NAICS code
517110. According to Commission data, 1,307 carriers have reported that
they are engaged in the provision of incumbent local exchange services.
FCC, Wireline Competition Bureau, Industry Analysis and Technology
Division, ``Trends in Telephone Service'' at Table 5.3, Page 5-5
(February 2007). This source uses data that are current as of October
20, 2005. Of these 1,307 carriers, an estimated 1,019 have 1,500 or
fewer employees and 288 have more than 1,500 employees. Consequently,
the Commission estimates that most providers of incumbent local
exchange service are small businesses that may be affected by our
action. The Commission estimates that ten LECs currently provide video
programming, and several smaller telephone companies provide the
service.
30. Closed Captioning Services. These entities are indirectly
affected by the Commission's action. The SBA has developed two small
business size standards that may be used for closed captioning
services. The two size standards track the economic census categories,
``Teleproduction and Other Postproduction Services'' and ``Court
Reporting and Stenotype Services.''
31. The first category of Teleproduction and Other Postproduction
Services ``comprises establishments primarily engaged in providing
specialized motion picture or video postproduction services, such as
editing, film/tape transfers, subtitling, credits, closed captioning,
and animation and special effects.'' The relevant size standard for
small businesses in these services is an annual revenue of less than
$29.5 million. U.S. Census Bureau, 2002 NAICS Definitions, ``512191
Teleproduction and Other Postproduction Services.'' The size standard
is $29.5 million. For this category, Census Bureau data for 2002 show
that there were 1,316 firms that operated for the entire year. U.S.
Census Bureau, 2002 Economic Census, Subject Series: Information,
``Establishment and Firm Size (Including Legal Form of Organization),''
Table 4, NAICS code 512191 (issued November 2005). Of this total, 1,301
firms had annual receipts of under $25 million, and 10 firms had
receipts of $25 million to $49,999,999. U.S. Census Bureau, 2002
Economic Census, Subject Series: Information, ``Establishment and Firm
Size (Including Legal Form of Organization),'' Table 4, NAICS code
512191 (issued Nov. 2005). An additional 5 firms had annual receipts of
$50 million or more. Consequently, the Commission estimates that the
majority of Teleproduction and Other Postproduction Services firms are
small entities that might be affected by our action.
32. The second category of Court Reporting and Stenotype Services
``comprises establishments primarily engaged in providing verbatim
reporting and stenotype recording of live legal proceedings and
transcribing subsequent recorded materials.'' The size standard for
small businesses in these services is an annual revenue of less than $7
million. U.S. Census Bureau, 2002 NAICS Definitions, ``561492 Court
Reporting and Stenotype Services.'' The size standard is $7 million.
For this category, Census Bureau data for 2002 show that there were
2,487 firms that operated for the entire year. U.S. Census Bureau, 2002
Economic Census, Subject Series: Administrative and Support and Waste
Management and Remediation Services, ``Establishment and Firm Size
(Including Legal Form of Organization),'' Table 4, NAICS code 561492
(issued Nov. 2005). Of this total, 2,461 firms had annual receipts of
under $5 million, and 16 firms had receipts of $5 million to
$9,999,999. U.S. Census Bureau, 2002 Economic Census, Subject Series:
Administrative and Support and Waste Management and Remediation
Services, ``Establishment and Firm Size (Including Legal Form of
Organization),'' Table 4, NAICS code 561492 (issued Nov. 2005). An
additional 10 firms had annual receipts of $10 million or more.
Consequently, the Commission estimates that the majority of Court
Reporting and Stenotype Services firms are small entities that might be
affected by our action.
Description of Projected Reporting, Recordkeeping and Other Compliance
Requirements
33. The Commission does not anticipate that the proposals contained
in the 2008 Digital Closed Captioning NPRM will impose additional
reporting, recordkeeping or compliance requirements.
Steps Taken To Minimize Significant Impact on Small Entities, and
Significant Alternatives Considered
34. 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 (among others): (1)
The establishment of differing compliance or reporting requirements or
timetables that take into account the resources available to small
[[Page 1661]]
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. 5 U.S.C. 603(b).
35. How the Commission resolves the question of how to treat
digital multicast streams for purposes of the closed captioning rules
is important, for purposes of Sec. 79.1(d)(12) of the Commission's
rules, which exempts from the closed captioning obligations video
programming channels that produced annual gross revenues of less than
$3 million during the previous calendar year. By its very nature,
current Sec. 79.1(d)(12) of the Commission's rules decreases the
closed captioning burden on entities whose annual gross revenues for
the previous year were less than $3 million. With regard to the
proposal to treat each of the multicast streams individually, the 2008
Digital Closed Captioning NPRM suggests that this likely will result in
less captioned programming being available, and seeks comment on this
assumption. Although this decision may decrease burdens on small
businesses, it may mean that individuals who rely on closed captioning
are burdened. At the same time, however, if the majority of programming
aired on secondary multicast streams is already captioned, it is
possible that the percentage of available captioning will not be
greatly affected, given that programming that is already captioned and
delivered to a broadcaster for airing must be aired with the captions
intact, pursuant to the existing pass through rule, which is unaffected
by the 2008 Digital Closed Captioning NPRM. The Commission notes that,
under the Commission's rules, programming that is already captioned and
delivered to a broadcaster for airing must be aired with the captions
intact, regardless of the multicast stream on which the programming
airs. See 47 CFR 79.1(c) of the Commission's rules. Another alternative
being considered by the Commission would retain the concept that each
stream of multicast programming is separate, but the revenue threshold
for determining whether one of the non-main programming streams is
exempt would be less than $3 million. Given the general nature of the
programming on such channels, the Commission seeks comment on whether a
smaller figure may be appropriate.
36. In the alternative, if the Commission adopts the proposal to
aggregate the revenues of all multicast streams, digital broadcasters
would be exempt from the Commission's captioning requirements under
Sec. 79.1(d)(12) of the Commission's rules only if their overall
operations, taking into account all activities on all ``streams,''
received less than $3 million in revenues. However, the 2008 Digital
Closed Captioning NPRM notes that this conclusion might affect program
diversity, the airing of locally-originated programming, or the airing
of other kinds of programming that may afford little or no economic
return. The Commission further seeks comment on whether it also may
result in an increase in the number of petitions for exemption from the
closed captioning requirements based on the undue burden standard in
the Commission's current rules. See 47 CFR 79.1(f) of the Commission's
rules.
37. The last alternative the 2008 Digital Closed Captioning NPRM
considers is the establishment of a captioning requirement that is not
dependant on revenues but relies on some other criteria, such as a
formula that considers the number of programming streams being offered
(or some other variable) in order to determine captioning obligations.
Federal Rules Which Duplicate, Overlap, or Conflict With, the
Commission's Proposals
38. None.
Ordering Clauses
Pursuant to sections 4(i), 303(r) and 713 of the Communications Act
of 1934, as amended, 47 U.S.C. 154(i), 303(r) and 613, the Notice of
Proposed Rulemaking is adopted.
The Commission's Consumer and Governmental Affairs Bureau,
Reference Information Center, shall send a copy of the Notice of
Proposed Rulemaking, including the Initial Regulatory Flexibility
Certification, to the Chief Counsel for Advocacy of the Small Business
Administration.
Federal Communications Commission.
William F. Caton,
Deputy Secretary.
[FR Doc. E8-31446 Filed 1-12-09; 8:45 am]
BILLING CODE 6712-01-P