[Federal Register Volume 75, Number 65 (Tuesday, April 6, 2010)]
[Proposed Rules]
[Pages 17349-17352]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2010-7761]


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FEDERAL COMMUNICATIONS COMMISSION

47 CFR Part 27

[WTB Docket No. 07-293; FCC 10-46]


Operations of Wireless Communications Services in the 2.3 GHz 
Band

AGENCY: Federal Communications Commission.

ACTION: Proposed rule.

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SUMMARY: The Federal Communications Commission (Commission) seeks 
comment on revising the performance requirements for the 2.3 GHz 
Wireless Communications Service (WCS) band. The Commission is seeking 
comment on possible revision of the performance requirements (also 
known as buildout or construction requirements) for the 2.3 GHz WCS 
band to ensure that that the spectrum is used intensively in the public 
interest.

DATES: Interested parties may file comments on or before April 21, 
2010, and reply comments on or before May 3, 2010. Written comments on 
the Paperwork Reduction Act proposed information collection 
requirements must be submitted by the public, Office of Management and 
Budget (OMB), and other interested parties on or before June 7, 2010.

ADDRESSES: You may submit comments, identified by WTB Docket No. 07-
293, by any of the following methods:
     Federal eRulemaking Portal: http://www.regulations.gov. 
Follow the instructions for submitting comments.
     Federal Communications Commission Web site: http://www.fcc.gov/cgb/ecfs. Follow the instructions for submitting comments.
     E-mail: [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.

[[Page 17350]]

Include the docket number(s) in the subject line of the message.
     Mail: Office of the Secretary, Federal Communications 
Commission, 445 12th Street, SW., Washington, DC 20554. Commercial 
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.
     Hand delivery/courier: Federal Communications Commission, 
Office of the Secretary, 445 12th Street, SW., Room TW-A325, 
Washington, DC 20554.
     People with Disabilities: Contact the FCC to request 
reasonable accommodations (accessible format documents, sign language 
interpreters, CART, etc.) by e-mail: [email protected] or phone: 202-418-
0530 or TTY: 202-418-0432. All submissions received must include the 
agency name and docket numbers for this rulemaking, WT Docket No. 07-
293. All comments received will be posted without change to http://www.fcc.gov/cgb/ecfs.
    For detailed instructions for submitting comments and additional 
information on the rulemaking process, see the SUPPLEMENTARY 
INFORMATION section of this document.

FOR FURTHER INFORMATION CONTACT: Richard Arsenault at (202) 418-0920, 
or e-mail at [email protected]. In addition to filing comments 
with the Secretary, a copy of any comments on the Paperwork Reduction 
Act information collection requirements contained herein should be 
submitted to the Federal Communications Commission via e-mail to 
[email protected] and to Nicholas A. Fraser, Office of Management and Budget, 
via e-mail to [email protected] or via fax at 202-395-
5167.

SUPPLEMENTARY INFORMATION: This is a summary of the Commission's Public 
Notice (Public Notice) in WT Docket No. 07-293, FCC 10-46, adopted on 
March 26, 2010, and released March 29, 2010. The full text of this 
document is available for inspection and copying during normal business 
hours in the FCC Reference Center, 445 12th Street, SW., Room CY-A257, 
Washington, DC 20554, or by downloading the text from the Commission's 
website at http://www.fcc.gov/. The complete text also may be purchased 
from the Commission's duplicating contractor, Best Copy and Printing, 
Inc., Portals II, 445 12th Street, Suite CY-B402, Washington, DC 20554. 
Alternative formats are available for people with disabilities 
(Braille, large print, electronic files, audio format), by sending an 
e-mail to [email protected] or calling the Consumer and Government Affairs 
Bureau at (202) 418-0530 (voice), (202) 418-0432 (TTY).

Paperwork Reduction Act of 1995 Analysis

    This document contains modified information collection 
requirements. The Commission, as part of its continuing effort to 
reduce paperwork burdens, invites the general public to comment on the 
information collection requirements contained in this Public Notice as 
required by the Paperwork Reduction Act of 1995, Public Law 104-13. 
Public and agency comments are due June 7, 2010. In addition, the 
Commission notes that pursuant to the Small Business Paperwork Relief 
Act of 2002, Public Law 107-198, see 44 U.S.C. 3506(c)(4), we 
previously sought specific comment on how the Commission might 
``further reduce the information collection burden for small business 
concerns with fewer than 25 employees.''
Synopsis of the Public Notice
    1. In December 2007, the Commission released a Notice of Proposed 
Rulemaking, 73 FR 2437 (January 15, 2008) (NPRM) seeking comment on the 
possible revision of certain WCS technical rules to facilitate the 
coexistence of operations in the WCS band (2305-2320 MHz, 2345-2360 
MHz) with operations in the adjacent Satellite Digital Audio Radio 
Service (SDARS) band (2320-2345 MHz). The Commission has sought to 
develop a record that would enable the provision of innovative 
broadband services in the 2.3 GHz WCS band and provide licensees 
increased spectrum rights. The Commission now seeks comment on the 
performance requirements that would accompany such rule changes.
    2. The current construction requirement for all spectrum blocks in 
the 2.3 GHz WCS band is a substantial service showing at the end of the 
license term. The Commission seeks comment on whether, if it alters the 
technical rules for this band, it should also revise the substantial 
service performance requirements. In order to aid the Commission's 
consideration of alternative performance requirements for the 2.3 GHz 
WCS band, the Commission requests that interested parties comment on 
the following requirements and possible alternatives to the following:
    For mobile and point-to-multipoint services, reliable signal 
coverage to:
     40% of a license area's population within 30 months; and
     75% of a license area's population within 60 months.
    For point-to-point services, construction and operation of point-
to-point links:
     15 per million persons in a license area within 30 months;
     30 per million persons in a license area within 60 months; 
and,
     A minimum payload capacity (megabits/second for a given 
bandwidth) to ensure that the spectrum is used intensively.
    3. The Commission also seeks comment on whether the Commission 
should require WCS licensees to fulfill performance requirements for an 
entire license area and for defined market areas therein. For Major 
Economic Area (MEA) licenses, the defined market areas would be 
Economic Areas (EAs), and for Regional Economic Area Grouping (REAG) 
licenses, the defined market areas would be MEAs. Under this approach, 
if a licensee fails to meet a performance requirement for an entire 
license area or for any defined market area, its entire license would 
terminate automatically. The Commission requests that interested 
parties comment on the following and possible alternatives to the 
following:
    For mobile and point-to-multipoint services, the license area 
coverage requirements of 40% and 75% as proposed above and reliable 
signal coverage to:
     25% of each defined market area's population within 30 
months; and
     50% of each defined market area's population within 60 
months.
    For point-to-point services, construction and operation of a 
minimum number of links as proposed above, and:
     A minimum number of links in defined market areas within 
30 and 60 months, respectively. The Commission seeks comment on the 
minimum number of links it should require for each EA within an MEA, 
and for each MEA within a REAG.
    4. Compliance Procedures. Consistent with Sec.  1.946(d) of the 
Commission's rules, the Commission proposes that licensees demonstrate 
compliance with any revised performance requirements by filing a 
construction notification within 15 days of the relevant benchmark 
certifying that they have met the applicable performance requirements. 
Each construction notification should include electronic coverage maps 
and supporting documentation, which must be truthful and accurate and 
must not omit material information that is necessary for the Commission 
to determine compliance with its performance requirements.
    5. Electronic coverage maps must clearly and accurately depict the

[[Page 17351]]

boundaries of each license area (REAG or MEA) in the licensee's service 
territory. Further, REAG maps must depict MEA boundaries, and MEA maps 
must depict EA boundaries. If the licensee's signal does not provide 
service to the entire license area, the map must clearly and accurately 
depict the boundaries of the area or areas within each license area not 
being served. Each licensee also must file supporting documentation 
certifying the type of service it is providing for each REAG or MEA 
within its license service territory and the type of technology it is 
utilizing to provide such service. Supporting documentation must 
provide the assumptions used to create the coverage maps, including the 
propagation model and the signal strength necessary to provide service 
with the licensee's technology.
    6. The Commission envisions that when a licensee files its 
construction notification package, the public will be afforded an 
opportunity to review and comment on the construction notification, 
including the licensee's coverage maps and the technical assumptions 
used to create the maps. If the Commission determines that a licensee 
has not met the applicable performance benchmarks for a license area, 
the license will be deemed to have terminated automatically as of the 
applicable performance benchmark deadline without further Commission 
action.

I. Procedural Matters

A. Paperwork Reduction Act Analysis

    7. The Public Notice contains modified information collection 
requirements subject to the Paperwork Reduction Act of 1995 (PRA), 
Public Law 104-13. Therefore, it contains a modified ``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).

B. Initial Regulatory Flexibility Analysis

    9. 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 requirements proposed in this Public Notice. 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 Public Notice. The Commission will send a copy of the 
Public Notice, including this IRFA, to the Chief Counsel for Advocacy 
of the Small Business Administration (SBA).
Need for, and Objectives of, the Proposed Rules
    10. The primary objective of the Public Notice is to consider 
changes to the rules governing performance requirements (also known as 
construction or buildout requirements) for the 2.3 GHz Wireless 
Communications Service (WCS), which may be necessary to promote the 
rapid deployment of new and innovative wireless services to the 
American public. Such rule changes are needed because the Commission 
may ease certain rules governing operations in the 2.3 GHz WCS band and 
thereby enable the deployment of new services in the band. Thus, 
appropriate performance rules for WCS are necessary to ensure that the 
spectrum is rapidly developed in the public interest. In sum, the 
Public Notice is intended to enhance the record on any necessary 
performance requirements that would ensure WCS licensees maximize 
spectrum use in the public interest.
Legal Basis for Proposed Rules
    11. The proposed action is authorized under Sections 4(i), 303(r), 
and 403 of the Communications Act of 1934, as amended, 47 U.S.C. 
154(i), 303(r), and 403.
Description and Estimate of the Number of Small Entities to Which the 
Proposed Rules Will Apply
    12. The RFA directs agencies to provide a description of and, where 
feasible, an estimate of the number of small entities that may be 
affected by the rules adopted. The RFA generally defines the term 
``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). A small organization is generally ``any not-for-
profit enterprise which is independently owned and operated and is not 
dominant in its field.'' Below, is a further description and estimate 
of the number of small entity licensees and regulatees that may be 
affected by the performance rule changes explored in the Public Notice.
    13. WCS Licensees. The Wireless Communication Service in the 2305-
2360 MHz (2.3 GHz) frequency band has flexible rules that permit 
licensees in this service to provide fixed, mobile, portable, and 
radiolocation services. Licensees are also permitted to provide 
satellite digital audio radio services. The SBA rules establish a size 
standard for ``Wireless Telecommunications Carriers,'' which 
encompasses business entities engaged in radiotelephone communications 
employing no more that 1,500 persons. There are currently 155 active 
WCS licenses held by 10 licensees. Of these, 7 licensees qualify as 
small entities and hold a total of 50 licenses.
Description of Projected Reporting, Recordkeeping, and Other Compliance 
Requirements for Small Entities
    14. The Public Notice seeks to evaluate whether changes to the 
existing performance requirements for 2.3 GHz WCS licenses may 
ultimately foster more effective use of the spectrum to better meet the 
needs of today's consumers. To the extent the Commission's past 
decisions no longer reflect the best approach regarding performance 
requirements the Public Notice seeks comment on the possibility of 
making appropriate adjustments that will serve the public interest.
    15. The Public Notice proposes that licensees demonstrate 
compliance with any revised performance requirements by filing a 
construction notification within 15 days of the relevant benchmark 
certifying that they have met the applicable performance requirements. 
It proposes that each construction notification should include 
electronic coverage maps and supporting documentation, which must be 
truthful and accurate and must not omit material information that is 
necessary for the Commission to determine compliance with its 
performance requirements.
    16. Further, under the Public Notice's proposed compliance 
procedures, electronic coverage maps must clearly and accurately depict 
the boundaries of each license area (REAG or MEA) in the licensee's 
service territory, with REAG maps depicting MEA boundaries, and MEA 
maps depicting EA boundaries. If the licensee's signal does not provide 
service to the entire license area, the Public Notice provides that the 
map must clearly and accurately depict the boundaries of the area or 
areas within each license area not being served. The proposed 
compliance procedures direct each licensee to file supporting

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documentation certifying the type of service it is providing for each 
REAG or MEA within its license service territory and the type of 
technology it is utilizing to provide such service. Further, the 
proposed compliance procedures would require the supporting 
documentation to provide the assumptions used to create the coverage 
maps, including the propagation model and the signal strength necessary 
to provide service with the licensee's technology.
Steps Taken To Minimize Significant Economic Impact on Small Entities, 
and Significant Alternatives Considered
    17. The RFA requires an agency to describe any significant 
alternatives that it has considered in reaching its proposed approach, 
which may include the following four alternatives: (1) The 
establishment of differing compliance or reporting requirements or 
timetables that take into account the resources available to small 
entities; (2) the clarification, consolidation, or simplification of 
compliance or reporting requirements under the rule for small entities; 
(3) the use of performance, rather than design standards; and (4) an 
exemption from coverage of the rule, or any part thereof, for small 
entities.
    18. The Public Notice specifically invites comments on a range of 
potential performance requirements and invites interested parties to 
suggest alternative proposals. At this time, the Commission has not 
excluded any alternative proposal concerning performance requirements 
from its consideration, but it would do so in this proceeding if the 
record indicates that a particular proposal would have a significant 
and unjustifiable adverse economic impact on small entities.
    19. In the Public Notice, the Commission discusses possible 
reporting requirements to ensure that spectrum is used intensively in 
the public interest. In particular, the Commission is considering a 
proposal to require licensees to provide additional reports 
demonstrating the level of service provided to the public. However, the 
Commission will not consider any alternative that would have a 
significant and unjustifiable adverse economic impact on small 
entities.
    20. The Commission solicits any alternative proposals that would 
not incur significant and unjustifiable adverse impact on small 
entities.
Federal Rules That May Duplicate, Overlap, or Conflict With the 
Proposed Rules
    21. None.

List of Subjects in 47 CFR Part 27

    Communications common carriers, Radio.


Federal Communications Commission.
Marlene H. Dortch,
Secretary.
[FR Doc. 2010-7761 Filed 4-5-10; 8:45 am]
BILLING CODE 6712-01-P