[Federal Register Volume 85, Number 65 (Friday, April 3, 2020)]
[Proposed Rules]
[Pages 18901-18912]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2020-06569]


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FEDERAL COMMUNICATIONS COMMISSION

47 CFR Part 15

[ET Docket No. 20-36; FCC 20-17; FRS 16585]


Unlicensed White Space Device Operations in the Television Bands

AGENCY: Federal Communications Commission.

ACTION: Proposed rule.

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SUMMARY: In this document, the Commission proposes to revise our rules 
to provide additional opportunities for unlicensed white space devices 
operating in the broadcast television bands (TV Bands) to deliver 
wireless broadband services in rural areas and applications associated 
with the Internet of Things (IOT). Therefore, the Commission offers 
several proposals to spur continued growth of the white space device 
ecosystem, especially for providing affordable broadband service to 
rural and underserved communities that can help close the digital 
divide.

DATES: Comments are due on or before May 4, 2020; reply comments are 
due on or before June 2, 2020.

ADDRESSES: You may submit comments, identified by ET Docket No. 20-36, 
by any of the following methods:
    [ssquf] Federal Communications Commission's Website: http://apps.fcc.gov/ecfs/. Follow the instructions for submitting comments.
    [ssquf] People with Disabilities: Contact the FCC to request 
reasonable accommodations (accessible format documents, sign language 
interpreters, CART, etc.) by email: [email protected] or phone: 202-418-
0530 or TTY: 202-418-0432.
    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: Hugh Van Tuyl, Office of Engineering 
and Technology, 202-418-7506, [email protected].

SUPPLEMENTARY INFORMATION: This is a summary of the Commission's Notice 
of Proposed Rulemaking, ET Docket No. 20-36, FCC 20-17, adopted on 
February 28, 2020, and released on March 2, 2020. The full text of this 
document is available for inspection and copying during normal business 
hours in the FCC Reference Center (Room CY-A257), 445 12th Street SW, 
Washington, DC 20554. The full text may also be downloaded at: https://transition.fcc.gov/Daily_Releases/Daily_Business/2018/db0223/FCC-18-18A1.pdf.
    People with Disabilities: To request materials in accessible 
formats for people with disabilities (braille, large print, electronic 
files, audio format), send an email to [email protected] or call the 
Consumer & Governmental Affairs Bureau at 202-418-0530 (voice), 202-
418-0432 (tty).

Synopsis

    1. Background. Unlicensed white space devices can be used to 
provide a variety of wireless services, including broadband data. Fixed 
white space devices are being deployed today by Wireless Internet 
Service Providers (WISPs) to provide internet connectivity in rural and 
underserved areas, including for schools and libraries. The 
Commission's Part 15 rules allow unlicensed white space devices to 
operate at locations where frequencies are not in use by licensed 
services.
    2. In 2008, the Commission first authorized unlicensed white space 
device operations, both fixed and personal/portable, in portions of the 
VHF and UHF broadcast television bands (TV bands) that were not being 
used by TV broadcasters and associated services. In 2010, 2012, and 
2015, the Commission took steps to promote additional opportunities for 
unlicensed white space devices to use spectrum in the TV bands. To 
prevent harmful interference to broadcast television reception and 
other protected users, white space devices obtain a list of available 
channels and operating power levels that may be used at their 
particular location from databases administered by private entities 
approved by the Commission. Fixed white space devices must incorporate 
a geo-location capability and a means to access a database. Portable 
white space devices can either acquire a list of available channels via 
another device (Mode I), or themselves include geo-location and 
database access capabilities (Mode II).
    3. In the 2015 White Spaces Order, the Commission took additional 
action to promote white space device usage in the repacked TV bands 
following the broadcast TV spectrum incentive auction, and it also 
authorized white space device operations in the 600 MHz duplex gap, in 
unused spectrum in the 600 MHz service band (at locations where 600 MHz 
service licensees had not commenced operations), and unused portions of 
television channel 37 (in areas that would not interfere with Radio 
Astronomy Service and Wireless Medical Telemetry Service incumbents).
    4. In an effort to promote more flexibility for white space device 
operators in rural areas, the Commission permitted fixed white space 
devices, which under then-existing rules were limited to no more than 4 
watts EIRP, to operate at higher power levels of up to 10 watts EIRP in 
``less congested'' areas, which are defined as those areas where at 
least half the television channels are unused for broadcast services 
and available for white space use. In that order, the Commission 
retained the existing requirement that fixed devices operate on 
antennas that are no more than 30 meters above

[[Page 18902]]

ground and no more than 250 meters height above average terrain (HAAT). 
Most recently, in March 2019, the Commission adopted the White Spaces 
Report and Order and Order on Reconsideration, in which it provided 
additional flexibility for fixed white space devices to operate at up 
to 100 meters above ground in ``less congested'' areas, but retained 
the 250 meter HAAT limitation based on the record before it.
    5. On May 3, 2019, Microsoft Corporation filed a petition for 
rulemaking requesting that the Commission provide additional 
flexibility for white space device operations in the TV bands. 
Specifically, Microsoft requests that the Commission: (1) Permit fixed 
devices in ``less congested'' areas to operate at higher radiated 
power, up to 16 watts EIRP, to support expansion of broadband in rural 
America, (2) permit fixed devices to operate with higher HAAT, up to 
500 meters, to improve rural coverage, (3) examine the possibility of 
authorizing higher-power operations on first-adjacent channels to TV 
operations, with appropriate safeguards to prevent harmful 
interference, (4) permit higher power mobile operations within geo-
fenced areas, and (5) adjust the rules to support narrowband IoT white 
space devices.
    6. The Commission sought comment on the petition, and 21 parties 
filed comments and 16 parties filed reply comments. These commenters 
include several proponents of white space device operations generally 
supporting Microsoft's proposals, the National Association of 
Broadcasters (NAB), commenters concerned about protecting Wireless 
Medical Telemetry Service operations on Channel 37, and commenters 
concerned about the potential effect of Microsoft's proposals on 
wireless microphone users that also operate on TV broadcast spectrum 
not being used by other authorized services.
    7. Discussion. The Commission proposes targeted changes to the 
white space device rules in the TV bands to provide improved broadband 
coverage that will benefit American consumers in rural and underserved 
areas. Specifically, the Commission proposes to permit higher transmit 
power and higher antenna HAAT for fixed white space devices in ``less 
congested'' geographic areas. In addition, the Commission proposes to 
permit higher power mobile operation within ``geo-fenced'' areas. The 
Commission also proposes rule revisions designed to facilitate the 
development of new and innovative narrowband IoT services. The 
Commission also seeks comment on methods that could be used to allow 
higher power operation by white space devices when operating within the 
service contour of an adjacent channel TV station. The Commission do 
not propose any rule revisions for white space device operations above 
TV channel 35, including in the 600 MHz duplex gap or 600 MHz service 
band.
    8. Fixed white space devices in rural areas in the TV Bands. The 
Commission proposes rule changes for fixed white space devices that 
operate in the TV bands in order to enable improved broadband service 
in rural areas and underserved areas, defined as ``less congested'' 
areas in our rules. Specifically, the Commission proposes to increase 
the maximum permissible radiated power from 10 to 16 watts EIRP in 
these areas, and to increase the maximum permissible antenna HAAT from 
250 meters to 500 meters. Because the maximum transmission range of a 
white space device is a function of both the power and antenna HAAT, 
these changes will enable white space devices to provide broadband 
service over larger areas. Given these proposed revisions, the 
Commission also proposes to protect other users of the TV bands by 
increasing the minimum required separation distances from protected TV 
service contours and other protected services for white space devices 
operating at the proposed higher power and antenna height limits, and 
continue to protect Wireless Medical Telemetry Service and Radio 
Astronomy Service operations by maintaining the current power and HAAT 
limits on Channel 36. The Commission seeks comment on the benefits or 
costs of these proposed changes with respect to white space device 
users and to authorized users.
    9. High power limits. The rules currently permit fixed white space 
devices in the TV bands to operate with a maximum of four watts EIRP in 
any area, provided the device meets minimum separation distances from 
co-channel and adjacent channel users in the band. In addition, a fixed 
white space device may operate with a higher power of up to 10 watts 
EIRP in the TV bands (except Channel 36) in ``less congested'' areas, 
defined as those areas where at least half the television channels in 
the band of operation (i.e., low VHF, high VHF or UHF) are not in use, 
and the fixed device complies with increased separation distances from 
other users in the band. Fixed white space devices are limited to one-
watt maximum conducted transmitter power requiring radiated power 
levels above one-watt EIRP to use an antenna with directional gain, 
e.g., 6 dBi to produce four watts EIRP, and 10 dBi to produce 10 watts 
EIRP.
    10. In its petition, Microsoft requests that the Commission 
increase the radiated limit to permit fixed device operation with a 
maximum of 16 watts EIRP in ``less congested'' areas. Advocates of 
white space device operations support this request. NAB, commenting on 
behalf of potentially affected broadcasters, indicates that it does not 
oppose this proposal provided appropriate separation distances are 
established to protect broadcasters. Similarly, Sennheiser does not 
oppose revision provided the separation distances are revised to 
protect microphone operations. Commenters supporting Wireless Medical 
Telemetry Service (WMTS) operations on Channel 37 oppose any revision 
that would change the existing power limits for white space device 
operations either on Channel 37 or on adjacent Channels 36 and 38.
    11. The Commission proposes to permit fixed devices to operate in 
the TV bands, up to Channel 35, with a maximum 16 watts EIRP (12 dBW) 
in ``less congested'' areas. This change will permit fixed devices used 
in less congested, including rural, areas to reach users at greater 
distances, thus enabling improved broadband coverage at less cost in 
these hard-to-reach areas. Higher power will also enable signals to 
better penetrate foliage, buildings, and other obstacles, thus 
providing improved coverage at locations where there is not a direct 
line-of-sight to the transmitter.
    12. Specifically, the Commission proposes to maintain the one-watt 
transmitter conducted power limit for fixed devices and require that 
the higher power be achieved by using higher gain antennas, i.e., 12 
dBi to produce 16 watts EIRP with one-watt transmitter power. Because 
higher gain antennas are more highly directional, this proposed 
requirement will improve spectrum efficiency by ensuring that less 
white space device energy is directed outside the main antenna beam 
than would be the case if the Commission permitted higher transmitter 
power using lower gain, less directional antennas. The Commission also 
proposes that in cases where an antenna with a gain higher than 12 dB 
is used, the transmitter power must be reduced below one-watt by the 
amount in dB that the antenna gain exceeds 12 dBi. This requirement 
will ensure that the EIRP from a fixed device does not exceed the 
proposed 16-watt limit if a very high gain antenna is used. To maintain 
protection for Wireless Medical Telemetry Service and radio astronomy 
operations on Channel

[[Page 18903]]

37, the Commission do not propose to revise our current rules to permit 
higher power operations in Channel 36 or higher at this time.
    13. The Commission seeks comment on our proposal for permitting 
higher power operations in the TV bands (Channels 2-35). Should we 
allow the maximum radiated power level to increase from 10 watts EIRP 
to 16 watts EIRP in less congested areas? Would a different maximum 
from that proposed be more appropriate to enable service to rural 
areas? Should we allow even higher power levels under certain 
circumstances, and if so, what power levels and under what 
circumstances? How does the proposed antenna gain requirement affect 
the ability to serve rural areas? Should that requirement be relaxed or 
tightened? What are the trade-offs, both technically and economically, 
regarding the potential for causing interference versus the ability to 
serve more areas?
    14. Higher antenna height above average terrain limits. The rules 
currently permit fixed white space devices to operate with a maximum 
250-meter antenna HAAT. If a fixed white space device antenna HAAT 
exceeds 250 meters, the white space database will not provide a list of 
available channels to the device and the device is not permitted to 
operate. This requirement was adopted to limit the distance at which 
interference to other users of the TV bands could occur. However, an 
antenna HAAT limit also precludes white space devices from operating at 
certain locations, e.g., those where the ground HAAT already exceeds 
250 meters. In the White Spaces Order on Reconsideration, the 
Commission upheld its previous decision to maintain a 250-meter antenna 
HAAT limit but stated that it might consider increasing the limit in 
the future if there were a more complete record addressing this issue.
    15. The Commission now revisits the issue based on a more complete 
record. Microsoft argues that a higher HAAT limit subject to certain 
coordination conditions would reduce the likelihood of harmful 
interference. NAB expresses support for such a change provided that the 
Commission adopts a special coordination requirement for all fixed 
white space device operations above 250 meters HAAT and also adjusts 
the separation distances to protect broadcasters. Sennheiser does not 
oppose this revision provided the separation distances are revised to 
protect microphone operations. WMTS interests do not oppose an HAAT 
limit provided it does not apply on Channel 37 or adjacent Channels 36 
and 38.
    16. The Commission proposes to increase the maximum permissible 
antenna HAAT for fixed white space devices operating on channels 2-35 
from 250 meters to 500 meters and seek comment on appropriate 
procedures that may be necessary to ensure that broadcaster operations 
and other entities in the TV bands are protected. As commenters note, 
increasing permissible antenna HAAT will improve broadband coverage in 
rural areas by enabling signals to reach greater distances and will 
enable fixed white space devices to operate at locations where they are 
not currently permitted due to the 250-meter HAAT limit, such as 
existing towers located at higher elevations. We also note that 
Microsoft, NAB and wireless interests agree that 500 meters is an 
appropriate maximum HAAT for fixed white space devices. In addition, 
operation from a higher antenna site can help increase coverage by 
permitting devices to operate above the tree line to avoid signal 
losses through leaves and to avoid clutter such as buildings. To 
protect Wireless Medical Telemetry Service and radio astronomy 
operations on Channel 37, the Commission do not propose to revise our 
rules to permit operation with a higher HAAT in Channel 36 or higher.
    17. The Commission seeks comment on this proposal. What are the 
benefits of a higher HAAT limit in terms of improved rural coverage and 
increased transmitter site availability in high elevation areas? Will 
the increased fixed white space device transmission range associated 
with higher HAATs limit opportunities for spectrum sharing with other 
white space devices? Would an upper HAAT limit other than 500 meters be 
more appropriate? Should white space device operations at HAATs greater 
than 250 meters be limited to less congested areas?
    18. The Commission also seeks comment on whether, as suggested by 
Microsoft, it should require a coordination procedure between white 
space devices and broadcast licensees when white space devices operate 
with HAATs exceeding 250 meters. Microsoft's proposed coordination 
procedures comprise several steps including notifying a white space 
administrators, notifying broadcast licensees, operating on a test 
basis on a 30 days trial authorization, as well as a process to submit 
claims of harmful interference, investigate such claims, and upon 
satisfactorily addressing any such claims, permit authorization on a 
permanent basis. While the Commission recognizes that this proposed 
procedure is designed to address NAB's concerns that white space 
devices operating at higher power and antenna heights could cause 
harmful interference to TV service, the Commission are concerned about 
the procedure's complexity and whether such procedures are even 
warranted given the existing obligations of unlicensed devices to 
protect authorized radio services.
    19. The Commission believes that a simpler alternative to 
Microsoft's suggested coordination procedure could be used to achieve 
the same results. Specifically, an alternative procedure could require 
a party wishing to operate a fixed white space device at HAATs greater 
than 250 meters to notify potentially affected protected entities of 
their intended operation at least 48 hours in advance. The notification 
would include the prospective white space device operator's contact 
information, geographic coordinates of the antenna, antenna height 
above ground and average terrain, EIRP and channel(s) of operation. 
While entities would be expected to acknowledge receipt of the 
notification, if a response is not received within 48 hours, the party 
installing the fixed white space device would be permitted to commence 
operation. Operators of fixed white space devices with HAATs greater 
than 250 meters would be required to provide information upon request 
to a potentially affected protected entity on the white space devices' 
operational hours to help licensees determine whether a white space 
device was causing harmful interference. For notification purposes, the 
Commission would define a potentially affected station consistent with 
Microsoft's proposal--i.e., a station would receive notification that 
its broadcast contour was within the separation distance corresponding 
to an assumed HAAT 50 meters higher than the actual deployment. To 
accommodate actual deployments exceeding 450 meters where Microsoft did 
not provide a separation distance, the Commission would add an 
additional row to the table of separation distances with relevant 
values.
    20. The Commission seeks comment on this procedure. As a threshold, 
is such a procedure even necessary? If so, would the proposed procedure 
strike the proper balance between ensuring interference protection for 
protected entities and providing white space device operators with the 
ability to deploy devices with high HAATs in a timely manner? Are there 
other alternatives that would satisfy the same requirements? Should 
protected entities be defined as described above or is there a better 
definition? What method of

[[Page 18904]]

communication should a white space device operator use to contact 
licensees, e.g., email or other electronic messaging, written mail, 
fax, telephone, etc.? How would any of these coordination/notification 
procedures affect the white space database operation? Could they be 
implemented quickly? What costs would be involved?
    21. Under any coordination and/or notification procedure, 
previously coordinated devices would require new coordination/
notification if a fixed white space device is moved more than 100 
meters, or when an increase is made to the EIRP or HAAT that increases 
the minimum required separation distance from the contours of co-
channel or adjacent channel TV stations. These proposed requirements 
are for the purpose of determining when a white space device operator 
must notify potentially affected stations of changes in the operating 
parameters of a device with an HAAT above 250 meters; the Commission 
are not proposing to alter the current requirement that a fixed white 
space device must notify the database of changes in location of greater 
than 50 meters or in the antenna height above ground. The fixed white 
space device would need to obtain a new list of available channels when 
moved more than 100 meters. The Commission recognizes that Microsoft 
proposed to base new coordination requirements on a 50 meter distance 
(consistent with existing rules), but because Microsoft's proposed 
distances in the tables of required separations from TV station 
contours are rounded to the nearest 0.1 kilometer (100 meters), the 
Commissions see no reason to require a new coordination for changes 
less than this amount. The Commission also notes that the HAAT levels 
in the proposed table of separation distances is defined in 50-meter 
steps for HAAT's above 250 meters. Thus, there would be no need to 
require new coordination/notification for small HAAT increases within a 
50-meter step. The Commission seeks comment on this proposal.
    22. The Commission is not proposing that white space devices 
operate during a specific test or trial period as suggested by 
Microsoft. White space devices, like all other unlicensed devices, must 
not cause harmful interference to authorized services and must cease 
interference if harmful interference occurs. Additionally, licensees 
can bring claims of harmful interference to the Commission or the party 
operating unlicensed devices at any time, so the Commission do not 
believe that a 30-day trial period is necessary. The Commission seeks 
comment on this view.
    23. Antenna height above ground. In a related matter, the 
Commission seeks comment on whether the Commission should increase or 
remove the limit on antenna height above ground level. The Commission 
previously increased the maximum permissible antenna height above 
ground from 30 meters to 100 meters in ``less congested'' areas in the 
White Spaces Order on Reconsideration. The Commission took this action 
to improve wireless broadband service to persons in rural and other 
underserved areas, noting that a 100-meter antenna height above ground 
limit will benefit wireless broadband providers and users by permitting 
antennas to be mounted on towers or other structures at heights 
sufficient to clear intervening obstacles such as trees and hills that 
would attenuate the transmitted signal, thereby increasing the range at 
which the signal can be received. The Commission made no changes to the 
rule limiting maximum antenna HAAT to 250 meters at that time.
    24. In light of our proposal to increase the maximum antenna HAAT 
to 500 meters in this NPRM, the Commission believes it is appropriate 
to re-examine the antenna height above ground limit. Antenna heights 
above ground and average terrain are directly related, in that any 
change to a station's antenna height above ground changes its HAAT by 
the same amount, e.g., a 30-meter increase in height above ground 
increases the HAAT by 30 meters. However, the Commission notes that 
limiting the antenna height above ground may also limit the maximum 
achievable HAAT in areas where the terrain is flat since in those areas 
the HAAT will be approximately the same as, or not significantly higher 
than, the antenna height above ground. Therefore, the antenna height 
above ground limit (30 or 100 meters) may preclude white space device 
operators from taking advantage of the higher HAAT limit we are 
proposing, or even the current 250-meter limit. Moreover, the 
Commission notes that the distance separation rules to protect TV 
reception are based on HAAT, not antenna height above ground level.
    25. Accordingly, the Commission seeks comment on whether they 
should make any changes to the antenna height above ground limit. Does 
the current antenna above ground limit restrict flexibility to design 
and deploy white space networks? Should the Commission increase the 
antenna height above ground limit, and if so, by how much? Should the 
Commission remove the height above ground level limit completely and 
rely only on HAAT? Given that the separation distances are based only 
on HAAT and not the antenna height above ground, what effect, if any, 
would such a change have on the potential of causing harmful 
interference to a protected service? If the Commission modifies or 
remove the antenna height above ground limit, should the modified rules 
apply across the entire U.S. or only in certain areas (e.g., ``less 
congested areas'')
    26. Separation distance. Because white space device operations must 
protect other authorized services from harmful interference, with our 
proposed increases in fixed white space device maximum permissible 
radiated power and antenna HAAT in the TV bands, we also propose 
increases in the minimum required separation distances between white 
space devices operating at higher power/HAAT in order to protect these 
other authorized services from harmful interference.
    27. The Commission seeks comment on these proposals. Do the 
proposed separation distances for the higher power and antenna HAAT 
levels provide adequate protection to co-channel and adjacent channel 
TV service? Are any other changes necessary to protect TV service in 
light of the proposed power and HAAT levels?
    28. Protection of other operations in the TV bands. In addition to 
the broadcast television service, white space devices must protect 
certain other operations in the TV bands. These include TV translator 
receive sites, Low Power TV (including Class A) receive sites, Multi-
channel Video Programming Distributor (MVPD) receive sites, fixed 
Broadcast Auxiliary Service (BAS) links, the private land mobile radio 
and commercial mobile radio services (PLMRS/CMRS), and Low Power 
Auxiliary Station services (referenced herein as licensed wireless 
microphones). When the Commission increased the maximum power for fixed 
white space devices operating in less congested areas from 4 watts EIRP 
to 10 watts EIRP in the White Spaces Order in 2015, it also slightly 
increased the minimum required separation distances from TV translator 
receive sites, PLMRS/CMRS, and temporary BAS links. Because we are now 
proposing to increase the maximum fixed white space device EIRP from 10 
watts to 16 watts, and the maximum HAAT from 250 meters to 500 meters, 
we are proposing to make additional changes to the protection criteria 
for operations in the TV bands other than broadcasting.
    29. The Commission proposes changes to the keyhole shaped exclusion 
zone that is specified to protect the receive sites of TV

[[Page 18905]]

translators, low power TV stations, Class A TV stations, MVPDs, and BAS 
facilities from white space devices. Under the current rules, white 
space devices are prohibited from operating co-channel and adjacent 
channel to the TV channel(s) being received by these facilities over an 
arc of 30 degrees from a line between the receive site and 
each associated transmitter. The protection zone extends to a maximum 
distance of 80 kilometers from the protected receiver toward its 
associated transmitter for co-channel operations and to 20 kilometers 
for adjacent channel operation. In addition, to prevent interference 
from white space device signals outside the main beam of the protected 
receive antenna, white space devices are prohibited from operating 
within a circular area of 10.2 kilometers co-channel and 2.5 kilometers 
adjacent channel from the receive sites in all directions off the 
30 degree arc when a white space device operates at an EIRP 
between four and ten watts. The Commission believes the 80-kilometer 
co-channel and 20-kilometer adjacent channel protection distances are 
large enough to sufficiently protect these protected receive sites from 
interference from fixed devices operating at 16 watts EIRP. However, to 
protect these sites from white space devices that are located outside 
the main beam, the Commission believes a modest increase in distance is 
necessary. The Commission are therefore proposing to adjust those 
distances to prohibit fixed devices operating with EIRPs greater than 
10 watts from operating within 16.6 kilometers co-channel and 3.5 
kilometers adjacent channel outside the 30 degree arc of 
the protected received site. The Commission seeks comment on this 
proposal. Is an increase in separation distances necessary within the 
main beam of the antenna, and if so, what are the appropriate distances 
and how should they be calculated? Are increased separation distances 
necessary to protect receive sites outside the main beam of the receive 
antenna, and are the proposed separation distances appropriate?
    30. The Commission also proposes changes to the protection criteria 
for the private land mobile radio services and commercial mobile radio 
services (PLMRS/CMRS). These services operate on TV channels 14-20 in 
11 major markets and in some additional areas under rule waivers. 
PLMRS/CMRS operations are protected from interference from white space 
devices through a circular exclusion zone extending from the center of 
each market, or from specific geographic coordinates for operations 
under a waiver. These exclusion zones are based on the Commission's 
methodology described in the White Spaces Second Report and Order. 
Using the same methodology the Commission previously used to determine 
the protection zones, the Commission proposes that fixed white space 
devices operating at more than 10 watts EIRP in less congested areas 
may not operate within a circular exclusion zone of 139.2 kilometers 
co-channel and 132.2 kilometers adjacent channel of the 11 major 
markets where PLMRS/CMRS stations are permitted to operate and within 
59.2 kilometers co-channel and 52.2 kilometers adjacent channel of 
PLMRS/CMRS base stations operating outside the 11 major markets under a 
waiver. The Commission seeks comment on these proposals. Are the 
proposed separation distances appropriate to protect PLMRS/CMRS 
operations? Should we define three sets of exclusion zones based on 
power levels, e.g., up to four watts, between four and ten watts, and 
greater than ten watts, or should we combine two or more tiers for 
simplicity as there is not a large difference between them? What effect 
might these proposals have on implementing the statutory directive for 
the Commission to transition public safety operations out of T-Band and 
auction the spectrum for use by other services?
    31. With regard to licensed wireless microphones, the Commission 
proposes to increase the minimum required separation distance from 
fixed white space devices operating at power levels greater than 10 
watts from one kilometer to 1.3 kilometers. This proposed change is 
intended to provide the same protection level to licensed wireless 
microphones as the current rules. The Commission calculated this 
increased distance using the conservative assumption of free space 
propagation. The Commission seeks comment on this proposal. Is it 
necessary to increase the minimum required separation distance from 
licensed wireless microphones, and is our proposed distance 
appropriate?
    32. The Commission seeks comment on whether any changes are 
necessary to the definition of ``less congested'' area given the 
revised rules that the Commission are proposing in this NPRM. Is the 
current definition appropriate, i.e., that half the channels in the 
band of operation be vacant? If not, what is an appropriate metric for 
defining ``less congested'' area? Because the number of vacant channels 
at a location can vary based on the EIRP and HAAT of a white space 
device, should we define vacant channels at a particular antenna height 
and power level? Nominet expressed concern that because the required 
separation distances from TV station contours vary according to white 
space device HAAT, it can be difficult to determine the precise number 
of channels that may be vacant in any given area. Nominet proposes that 
the Commission revise the definition to one based on population 
density, which would make it easier to determine where devices that 
operate with higher power or antenna height can be deployed to serve 
more rural areas. Should the Commission instead base the definition of 
``less congested'' on the population density of an area where the white 
space device is located as suggested by Nominet? If the Commission were 
to adopt a definition of ``less congested'' based on population 
density, what is the appropriate population density and how would the 
white space database determine whether a location meets the definition? 
How would such changes affect the availability of ``less congested'' 
areas compared to those available today? Would such areas be more 
pervasive? Or less? Are there other technical requirements the 
Commission could adopt in conjunction with a change to the definition 
of ``less congested'' areas to reduce the potential of causing harmful 
interference when higher EIRP and HAATs are used? Finally, the 
Commission requests comment on the benefits or costs of any changes to 
the Commission's current definition.
    33. Higher power mobile operation within ``geo-fenced'' areas. The 
white space rules permit two general classes of devices, fixed devices 
and personal/portable devices. As noted above, under the current rules 
fixed white space devices may operate with up to four watts EIRP 
generally, and up to 10 watts in ``less congested'' areas. Personal/
portable devices may operate with a maximum EIRP of 100 milliwatts, may 
load channel availability information for multiple locations from the 
white space database and use that information to define a geographic 
area within which it can operate on a mobile basis on the same 
available channels at all locations, and they must contact the database 
again if they move beyond the boundary of the area where the channel 
availability data is valid.
    34. In its petition, Microsoft requests that the Commission permit 
the use of fixed devices on mobile platforms, such as school buses or 
agricultural equipment, within ``geo-fenced'' areas, i.e., defined 
geographic areas over which a mobile device is permitted to

[[Page 18906]]

operate. This proposal is analogous in many respects to the rules for 
personal/portable devices that are permitted to operate within a 
defined geographic area. Microsoft, however, proposes to permit mobile 
white space devices to operate at higher power levels than the rules 
currently permit for personal/portable devices (i.e., at the same power 
level as is permitted for fixed white space devices), and proposes 
specific additional restrictions to prevent harmful interference to 
users of the TV bands. Advocates of white space device operations 
generally support Microsoft's proposal.
    35. The Commission proposes to allow white space devices to operate 
on TV Channels 2-35 on mobile platforms within geo-fenced areas at 
higher power levels than the rules currently permit for portable 
devices, and proposes to limit such operations to ``less congested'' 
areas to limit their potential for causing harmful interference. 
Microsoft suggests that the Commission permits fixed devices to operate 
on mobile platforms. However, because fixed stations, by definition, 
are stations that communicate between fixed points (i.e., stations that 
do not move), the Commission are instead proposing to allow mobile Mode 
II personal/portable white space devices to operate at higher power 
levels commensurate with that allowed for fixed devices within ``less 
congested'' areas and limited to pre-cleared geo-fenced areas. These 
types of geo-fenced operations could benefit persons in rural areas by 
enabling improved communications on moving vehicles such as school 
buses and agricultural equipment, and for applications such as 
monitoring roaming livestock. The Commission seeks comment on the 
benefits or costs of this proposal with respect to white space device 
users or other authorized users of the TV band spectrum.
    36. The Commission proposes to permit a higher power Mode II white 
space device installed on a movable platform to load channel 
availability information for multiple locations in the vicinity of its 
current location and to use that information to define a geo-fenced 
area within which it can operate on the same available channels at all 
locations. Consistent with the requirements for Mode II personal/
portable devices, The Commission proposes to require that the white 
space device's location be checked at least once every 60 seconds while 
in operation, except while in sleep mode, i.e., in a mode in which the 
device is inactive but is not powered-down. The Commission recognizes, 
however, that checks every 60 seconds may be insufficient to protect 
services in locations where coverage contours and usage of wireless 
microphones varies rapidly from one location to the next. To limit the 
potential of movable devices to cause harmful interference, we propose 
that a device may not use channel availability information for multiple 
locations if/when it moves closer than 1.6 kilometers to the boundary 
of the geo-fenced area in which the device operates, or at any point 
outside that boundary. This proposed limitation is designed to ensure 
that a device moving at 60 miles per hour (1.6 kilometers per minute) 
does not cross outside the boundary between device re-checks of its 
location. We further propose, as recommended by NAB, to prohibit 
operation on board aircraft or satellites to limit the range at which 
interference could occur.
    37. The Commission seeks comment on these proposals. Should the 
Commission allow Mode II portable devices to operate at higher power in 
``less congested'' areas, and how would such operations benefit persons 
in those areas? Should the Commission instead permit devices operating 
under the fixed device rules to operate on mobile platforms as 
suggested by Microsoft and others? What effect would either approach 
have on the equipment approval process for white space devices? For 
example, could portable Mode II devices be approved at the higher power 
level for general usage because the database would limit the amount of 
power that they could use for operations in any specific area? What 
antenna requirements should apply to higher power mobile devices? The 
Commission notes that under the current rules, fixed devices may use 
detachable antennas with high gain, whereas portable devices must use 
permanently attached antennas, which can have the effect of limiting 
antenna size and gain. Should the Commission allow higher power mobile 
devices to use detachable, higher gain antennas as we permit for fixed 
devices? Can technologies such as electronically steerable beams allow 
mobile devices to operate with higher gain, and therefore more highly 
directional, antennas? If the Commission permits use of detachable 
antennas for higher power mobile white space devices, should the 
Commission create a new class of white space devices, such as mobile 
white space devices, to distinguish such devices from personal/portable 
white space devices? Are there other rules that need to be modified or 
limitations that should be imposed for such use?
    38. The Commission also seeks comment on other requirements for 
higher power mobile white space devices. Are the proposed operational 
limitations sufficient to protect other users of the TV bands, 
including television, cable headends, translator receive sites and 
wireless microphone users? Do the Commission need to place limitations 
on the size of the area over which a higher power mobile device could 
operate? Is four watts an appropriate maximum power to permit for such 
operations or should a different maximum power level be permitted 
(e.g., 10 watts or 16 watts EIRP)? Would mobile devices operating at 
higher power levels be able to comply with the Commission's RF safety 
requirements? Do the Commission need to specify how information on an 
area will be provided to the white space database? Are any other 
safeguards needed to ensure that higher power mobile devices do not 
cause harmful interference to protected operations, especially 
operations that are close to, but outside, the edge of a pre-cleared 
geo-fenced area? Are there concerns about coexistence between higher 
power mobile white space devices and other mobile or fixed white space 
devices? Is there a need to prohibit operation on board aircraft and 
satellites or any other mobile platforms such as trains and boats? 
Should the Commission limit operation of higher power mobile devices to 
less congested areas as we propose and as suggested by some commenters? 
Are any changes to the white space databases needed to permit the 
proposed operation?
    39. Narrowband IoT operations. Fixed white space devices operating 
with four watts or greater EIRP must comply with a power spectral 
density (PSD) limit of 12.6 dBm per 100 kilohertz, which limits total 
conducted power within any 6-megahertz television channel to 30 dBm. 
The PSD limit is proportionally lower for devices operating at lower 
EIRP levels. The Commission established PSD limits to prevent multiple 
white space devices from operating at the maximum allowable power with 
transmit bandwidths less than six megahertz within a single television 
channel, which would result in a total transmitted power within that 
channel significantly greater than the limit. These PSD limits were 
calculated based upon a single white space device spreading its energy 
uniformly across a 6-megahertz television channel bandwidth. The limits 
serve to limit the maximum power of white space devices with bandwidths 
of less than 6-megahertz, e.g., a white space device that operates with 
a bandwidth of half a television channel would be limited to

[[Page 18907]]

half the power of a device that operates across a full channel.
    40. The Commission proposes to modify the white space rules to 
facilitate the deployment of narrowband IoT devices. TV band 
frequencies are better able to penetrate foliage and other obstacles 
than higher frequencies, thus providing improved transmission range for 
IoT devices. Specifically, we propose to define a ``narrowband white 
space device'' as a type of fixed or personal/portable white space 
device operating in a bandwidth of no greater than 100 kHz. We also 
propose that narrowband white space devices be client devices that 
communicate with a fixed or Mode II master device that contacts the 
white space database to obtain a list of available channels and 
operating powers at its location.
    41. The Commission proposes to permit narrowband white space 
devices to operate with a conducted PSD of up to 12.6 dBm/100 kHz, 
which is the same level permitted for fixed devices that operate with 
the maximum permissible one-watt conducted power in a six megahertz 
channel, and to require narrowband devices to comply with the same 
maximum antenna gain requirements as fixed devices. The Commission 
further proposes to require narrowband white space devices to comply 
with an emission limit of -42.8 dBm into adjacent channels, i.e., 
outside of the six-megahertz channel in which they operate. These 
proposed requirements will clarify that a white space device can 
operate with a single or several narrowband carriers rather than having 
to spread all of its energy across a six megahertz channel and will 
ensure that narrowband white space devices have no greater interference 
potential than wider bandwidth devices operating under the current 
rules. To ensure that the total energy in a single TV channels does not 
cause harmful interference, the Commission proposes to limit each 
transmitter to a total operation of ten seconds per hour. The 
Commission believes that this proposal will prevent narrowband IoT 
devices from being used for data intensive applications, including 
continuous transmissions, transmissions of audio and video or remote 
control of toys.
    42. The Commission proposes to require narrowband devices to use a 
channel plan that limits total transmitted power in a six-megahertz 
channel to no higher than the existing limits for a four-watt EIRP 
broadband white space device. Specifically, we propose to require 
narrowband white space devices to operate at least 250 kilohertz from 
the edge of a six-megahertz TV channel, unless the adjacent channel is 
also vacant, and to permit narrowband white space devices to operate 
only on channels centered at integral multiples of 100 kHz between the 
250 kHz guard bands. The net effect of these proposed requirements is 
that narrowband devices could operate within 55 possible 100-kilohertz 
channels in the center 5.5 megahertz of each six-megahertz channel. 
Even in the event that all 55 narrowband channels within a six-
megahertz channel were occupied simultaneously by devices operating at 
maximum power, the maximum conducted and radiated power within that 
six-megahertz channel would be no greater than for a fixed device 
operating with one-watt conducted power and four watts EIRP.
    43. The Commission seeks comment on these proposals. Is the 
proposed definition of narrowband white space device appropriate for 
the intended IoT applications? Should narrowband personal/portable 
devices be subject to lower emission limits than those proposed since 
the proposed limits are based on four-watt EIRP fixed devices? Is it 
necessary for the Commission to require a listen-before-talk spectrum 
access mechanism to prevent harmful interference to protected services 
in the TV bands? If the Commission were to require such a mechanism, 
what parameters would it need to specify, e.g., monitoring threshold, 
monitoring time, receiver bandwidth, receive antenna specifications? If 
we require narrowband devices to operate as clients to a fixed device 
that contacts the white space database, is there a need to increase the 
minimum separation distances from co-channel and adjacent channel TV 
station contours as we require for personal/portable devices operating 
as clients? Are the proposed maximum PSD, out-of-band emission and 
antenna gain limits appropriate for narrowband devices? Is the proposed 
data transmission limit of ten seconds per hour necessary to prevent 
data intensive operations? Is a channelization plan necessary, and if 
so, is the proposed plan appropriate? Are any other revisions to the 
proposed rules appropriate to protect licensed wireless microphone 
operations given that such operations would be protected when 
registered in the white spaces database? Finally, are there any other 
revisions to the rules for narrowband operations that should be adopted 
to protect any other authorized service that operate in the TV bands 
from harmful interference by narrowband white space devices?
    44. Higher power on adjacent channels. Among the requirements for 
white space device operations are that operations above 40 milliwatts 
EIRP must generally operate outside the protected contours of adjacent 
channel TV stations. That's because a strong signal on an adjacent 
channel can cause interference to the reception of a channel being 
viewed. The general requirement that all fixed white space devices 
avoid operation within adjacent channel protected contours means that, 
as a practical matter, a white space device may operate only at 
locations where there are three contiguous vacant channels, i.e., the 
channel used by the white space device plus both adjacent channels. The 
Commission's rules do, however, provide an exception for operation of 
low power white space devices on adjacent channels because of the 
shorter distances at which interference to the adjacent channel TV 
station could occur. Specifically, fixed white space devices may 
operate within the protected contour of adjacent channel TV stations 
with a power level of 100 milliwatts EIRP when the white space device 
operates in a six-megahertz band centered on the boundary of two 
contiguous vacant channels, i.e., 50 milliwatts within a three-
megahertz band in each channel.
    45. The Commission seeks comment on the ideas suggested by 
Microsoft and others to develop a record on this issue. Could more 
sophisticated computer models, such as Longley-Rice, be used to permit 
higher power unlicensed operations on adjacent channels? If so, how? 
Are they sufficiently precise to identify areas where the desired TV 
signal strength is sufficiently high that interference from adjacent 
channel white space devices is unlikely? What specific technical 
parameters would need to be considered or specified in such 
calculations, e.g., desired TV signal strength, appropriate grid size 
for determining where interference could occur, desired-to-undesired 
signal ratios, white space device power and antenna height? Is there 
any information available on adjacent channel selectivity and 
interference rejection capabilities of next generation TV receivers, 
such as manufacturers' specifications or actual measurement results? Is 
there any indication that next generation TV receivers will in fact 
have better adjacent channel interference rejection than current 
receivers? The Commission notes that while some parties advocated for 
tighter out-of-band emission limits for white space devices, others 
believe that the current limits are already too stringent. Would 
tighter out-of-band emission limits for white space devices result in 
any reduction in the potential for interference to adjacent channel TV

[[Page 18908]]

reception? Are there other factors we can consider or steps that users 
or white space databases can take to provide for more widespread use of 
white space devices near or within the contour of first adjacent 
television channels? Commenters should provide technical detail and 
analysis supporting their position on this issue.

Procedural Matters

    46. Paperwork Reduction Act Analysis. This document contains 
proposed new or modified information collection requirements. The 
Commission, as part of its continuing effort to reduce paperwork 
burdens, invites the general public and the Office of Management and 
Budget (OMB) to comment on the information collection requirements 
contained in this document, as required by the Paperwork Reduction Act 
of 1995, Public Law 104-13. In addition, pursuant to the Small Business 
Paperwork Relief Act of 2002, Public Law 107-198, see 44 U.S.C. 
3506(c)(4), we seek specific comment on how we might further reduce the 
information collection burden for small business concerns with fewer 
than 25 employees.
    47. Initial Regulatory Flexibility Analysis. As required by the 
Regulatory Flexibility Act, the Commission has prepared an Initial 
Regulatory Flexibility Analysis (IRFA) of the possible significant 
economic impact on a substantial number of small entities of the 
proposals addressed in this Notice. The Full IRFA is found in Appendix 
C at https://docs.fcc.gov/public/attachments/FCC-20-17A1.pdf. The 
Commission requests written public comment on the IRFA. Comments must 
be filed in accordance with the same filing deadlines as comments filed 
in response to the NPRM and must have a separate and distinct heading 
designating them as responses to the IRFA. The Commission's Consumer 
and Governmental Affairs Bureau, Reference Information Center, will 
send a copy of this Notice, including the IRFA, to the Chief Counsel 
for Advocacy of the Small Business Administration, in accordance with 
the Regulatory Flexibility Act.
    48. Filing Requirements. Pursuant to Sec. Sec.  1.415 and 1.419 of 
the Commission's rules, 47 CFR 1.415, 1.419, interested parties may 
file comments and reply comments on or before the dates indicated on 
the first page of this document. Comments may be filed using the 
Commission's Electronic Comment Filing System (ECFS). See Electronic 
Filing of Documents in Rulemaking Proceedings, 63 FR 24121 (1998).
    [ssquf] Electronic Filers: Comments may be filed electronically 
using the internet by accessing the ECFS: http://www.fcc.gov/ecfs/.
    [ssquf] Paper Filers: Parties who choose to file by paper must file 
an original and one copy of each filing. If more than one docket or 
rulemaking number appears in the caption of this proceeding, filers 
must submit two additional copies for each additional docket or 
rulemaking number.
    Filings can be sent by hand or messenger delivery, by commercial 
overnight courier, or by first-class or overnight U.S. Postal Service 
mail. All filings must be addressed to the Commission's Secretary, 
Office of the Secretary, Federal Communications Commission.
    [ssquf] All hand-delivered or messenger-delivered paper filings for 
the Commission's Secretary must be delivered to FCC Headquarters at 445 
12th St. SW, Room TW-A325, Washington, DC 20554. The filing hours are 
8:00 a.m. to 7:00 p.m. All hand deliveries must be held together with 
rubber bands or fasteners. Any envelopes and boxes must be disposed of 
before entering the building.
    [ssquf] Commercial overnight mail (other than U.S. Postal Service 
Express Mail and Priority Mail) must be sent to 9050 Junction Drive, 
Annapolis Junction, MD 20701.
    [ssquf] U.S. Postal Service first-class, Express, and Priority mail 
must be addressed to 445 12th Street SW, Washington, DC 20554.
    49. People with Disabilities. To request materials in accessible 
formats for people with disabilities (braille, large print, electronic 
files, audio format), send an email to [email protected] or call the 
Consumer & Governmental Affairs Bureau at 202-418-0530 (voice), 202-
418-0432 (tty).
    50. Additional Information. For additional information on this 
proceeding, contact Hugh L. Van Tuyl, [email protected], (202) 418-
7506.

Ordering Clauses

    51. It is ordered, pursuant to the authority found in sections 
4(i), 201, 302, and 303 of the Communications Act of 1934, as amended, 
47 U.S.C. 154(i), 201, 302a, 303, and Sec. Sec.  1.407 and 1.411 of the 
Commission's Rules, 47 CFR 1.407 and 1.411, that this Notice of 
Proposed Rulemaking is hereby adopted. The petition for rulemaking of 
Microsoft Corporation, ET Docket No. 14-165 and RM-11840, is hereby 
granted to the extent discussed herein, and shall be consolidated into 
ET Docket No. 20-36.
    52. It is further ordered that notice is hereby given of the 
proposed regulatory changes described in this Notice of Proposed 
Rulemaking, and that comment is sought on these proposals.
    53. It is further ordered that the Commission's Consumer and 
Governmental Affairs Bureau, Reference Information Center, shall send a 
copy of this Notice of Proposed Rulemaking, including the Initial 
Regulatory Flexibility Analysis, to the Chief Counsel for Advocacy of 
the Small Business Administration.

List of Subjects in 47 CFR Part 15

    Communications equipment and Reporting recordkeeping requirements.

Federal Communications Commission.
Cecilia Sigmund,
Federal Register Liaison Officer, Office of the Secretary.

Proposed Rules

    For the reasons discussed in the preamble, the Federal 
Communications Commission proposes to amend 47 CFR part 15 as follows:

    Part 15 of Title 47 of the Code of Federal Regulations is proposed 
to be amended as follows:

PART 15--RADIO FREQUENCY DEVICES

    The authority citation for part 15 continues to read as follows:

    Authority: 47 U.S.C. 154, 302a, 303, 304, 307, 336, 544a, and 
549.


0
1. Amend Sec.  15.703 by removing the paragraph designations and adding 
a new definition in alphabetical order to read as follows:


Sec.  15.703   Definitions.

* * * * *
    Narrowband white space device. A fixed or personal/portable white 
space device operating in a bandwidth of no greater than 100 kHz.
* * * * *
0
2. Amend Sec.  15.707 by adding paragraph (c) to read as follows:


Sec.  15.707   Permissible channels of operation.

* * * * *
    (c) Narrowband white space devices may only operate on frequencies 
below 608 MHz.
0
3. Amend Sec.  15.709 by:
0
a. Revising paragraphs (a)(2), (b)(1)(ii) and (iii),
0
b. Adding paragraph (b)(4) and
0
c. Revising paragraphs (c)(2) and (g)(1)(ii).
    The additions and revisions read as follows:

[[Page 18909]]

Sec.  15.709   General technical requirements.

    (a) * * *
    (2) TV bands and 600 MHz service band. (i) (A) Fixed devices in the 
TV bands below 602 MHz: Up to 4 W (36 dBm) EIRP, and up to 16 W (42 
dBm) EIRP in less congested areas. Fixed devices in the 602-608 MHz 
band may operate with up to 4 W (36 dBm) EIRP.
    (B) Fixed devices in the 600 MHz service bands above 620 MHz: Up to 
4 W (36 dBm) EIRP, and up to 10 W (40 dBm) EIRP in less congested 
areas. Fixed devices that operate in any portion of the 614-620 MHz 
band may operate with up to 4 W (36 dBm) EIRP.
* * * * *
    (b) * * *
    (1) * * *
    (ii) For operation at EIRP levels of 36 dBm (4,000 mW) or less, 
fixed white space devices may operate at EIRP levels between the values 
shown in the table in paragraph (b)(1)(iii) of this section provided 
that the conducted power and the conducted power spectral density (PSD) 
limits are linearly interpolated between the values shown and the 
adjacent channel emission limit of the higher value shown in the table 
is met. Operation at EIRP levels above 36 dBm (4000 mW) but not greater 
than 40 dBm (10,000 mW) shall follow the requirements for 40 dBm 
(10,000 mW). Operation at EIRP levels above 40 dBm (10,000 mW) shall 
follow the requirements for 42 dBm (16,000 mW). (iii) The conducted 
power spectral density from a fixed white space device shall not be 
greater than the values shown in the table in this paragraph 
(b)(1)(iii) when measured in any 100 kHz band during any time interval 
of continuous transmission.

                                        Table 1 to Paragraph (b)(1)(iii)
----------------------------------------------------------------------------------------------------------------
                                                                                            Conducted adjacent
            EIRP (6 MHz)               Conducted power limit (6     Conducted PSD limit   channel emission limit
                                                 MHz)                  \1\ (100 kHz)             (100 kHz)
----------------------------------------------------------------------------------------------------------------
16 dBm (40 mW).....................  10 dBm (10 mW).............  -7.4 dBm..............  -62.8 dBm.
20 dBm (100 mW)....................  14 dBm (25 mW).............  -3.4 dBm..............  -58.8 dBm.
24 dBm (250 mW)....................  18 dBm (63 mW).............  0.6 dBm...............  -54.8 dBm.
28 dBm (625 mW)....................  22 dBm (158 mW)............  4.6 dBm...............  -50.8 dBm.
32 dBm (1600 mW)...................  26 dBm (400 mW)............  8.6 dBm...............  -46.8 dBm.
36 dBm (4000 mW)...................  30 dBm (1000 mW)...........  12.6 dBm..............  -42.8 dBm.
40 dBm (10000 mW)..................  30 dBm (1000 mW)...........  12.6 dBm..............  -42.8 dBm.
42 dBm (16000 mW)..................  30 dBm (1000 mW)...........  12.6 dBm..............  -42.8 dBm.
----------------------------------------------------------------------------------------------------------------

* * * * *
    (4) Narrowband white space devices.
    (i) Narrowband white space devices shall operate on channel sizes 
that are no more than 100 kHz. The edge of a narrowband channel shall 
be offset from the upper and lower edge of the 6 MHz channel in which 
it operates by at least 250 kHz, except in the case where bonded 6 MHz 
channels share a common band edge. Narrowband channels of operation 
shall be at integral multiples of 100 kHz beginning at a 250 kHz offset 
from a 6 MHz channel's edge, or with no offset at the common band edge 
of two bonded 6 MHz channels.
    (ii) The conducted power limit is 12.6 dBm in a 100 kHz segment. 
The EIRP limit is 18.6 dBm in a 100 kHz segment. The conducted power 
spectral density limit is 12.6 dBm in any 100 kHz band during any time 
interval of continuous transmission.
    (iii) Conducted adjacent channel emissions shall be limited to -
42.8 dBm in 100 kHz in a first adjacent 6 MHz channel, starting at the 
edge of the 6 MHz channel within which the narrowband device is 
operating. This limit shall not apply between the edge of the 
narrowband channel and the edge of the 6 MHz channel that contains it.
    (iv) If transmitting antennas of directional gain greater than 6 
dBi are used, the maximum conducted power output shall be reduced by 
the amount in dB that the directional gain of the antenna exceeds 6 
dBi.
    (v) Total channel occupancy shall be limited to 10 seconds per 
hour.
    (c) * * *
    (2) The conducted power, PSD and adjacent channel limits for fixed 
white space devices operating at greater than 36 dBm (4000 milliwatts) 
EIRP shown in the table in paragraph (b)(1) of this section are based 
on a maximum transmitting antenna gain of 12 dBi. If transmitting 
antennas of directional gain greater than 12 dBi are used, the maximum 
conducted output power shall be reduced by the amount in dB that the 
directional gain of the antenna exceeds 12 dBi.
* * * * *
    (g) * * *
    (1) * * *
    (ii) Height above average terrain (HAAT). For operation in the 602-
608 MHz band and the 600 MHz service bands, the transmit antenna shall 
not be located where its height above average terrain exceeds 250 
meters. For operation in the TV bands below 602 MHz, the transmit 
antenna shall not be located where its height above average terrain 
exceeds 250 meters generally, or 500 meters in less congested areas. 
The HAAT is to be calculated by the white space database using the 
methodology in Sec.  73.684(d) of this chapter. For HAAT greater than 
250 meters the following coordination procedures are required:
    (A) The installing party must contact a white space database and 
identify all TV broadcast station contours that would be potentially 
affected by operation at the planned HAAT and EIRP. A potentially 
affected TV station is one where the protected service contour would be 
within the applicable separation distance if the white space device was 
operating at a HAAT of 50 meters above the planned height at the 
proposed power level.
    (B) The installing party must notify each of these licensees and 
provide the geographic coordinates of the white space device, relevant 
technical parameters of the proposed deployment, and contact 
information.
    (C) No earlier than 48 hours after this notification, the 
installing party may commence operations.
    (D) Upon request, the installing party must provide each 
potentially affected licensee with information on the time periods of 
operations.
    (E) If the installing party seeks to modify its operations by 
increasing its power level, by moving more than 100 meters horizontally 
from its location, or by making an increase in the HAAT or EIRP of the 
white space device that results in an increase in the minimum required 
separation distances from co-channel or adjacent channel TV station 
contours, it must conduct a new coordination.
* * * * *
0
4. Amend Sec.  15.711 by adding paragraph (c)(3) to read as follows:

[[Page 18910]]

Sec.  15.711  Interference avoidance methods.

* * * * *
    (c) * * *
    (3) A Mode II device installed on a movable platform in less 
congested areas may load channel availability information for multiple 
locations in the vicinity of its current location. It may use that 
information to define a geographic area within which it can operate on 
the same available channels at all locations. A device may not use 
channel availability information for multiple locations if/when it 
moves within 1.6 km of the boundary of the area where the channel 
availability data is valid, or outside that boundary. The location must 
be checked at least once every 60 seconds while the white space device 
is in operation except while in sleep mode, i.e., in a mode in which 
the device is inactive but is not powered-down. Operation on board 
aircraft or satellites is prohibited.
* * * * *
0
5. Amend Sec.  15.712 by:
0
a. Revising the introductory text and paragraphs (a)(2), (b)(3)(ii) and 
(iii),
0
b. Adding new paragraphs (b)(3)(iv);
0
c. Revising paragraph (c)(2)(ii);
0
d. Adding paragraph (c)(2)(iii) and
0
e. Revising paragraphs (d), (f), and (i)(1)
    The additions and revisions read as follows:


Sec.  15.712  Interference protection requirements.

    The separation distances in this section apply to fixed and 
personal/portable white space devices with a location accuracy of 
50 meters. These distances must be increased by the amount 
that the location uncertainty of a white space device exceeds 50 meters. Narrowband white space devices shall comply with the 
separation distances applicable to a fixed white space device operating 
with 30 dBm conducted power and 36 dBm EIRP across a 6 MHz channel.
    (a) * * *
    (2) Required separation distance. White space devices must be 
located outside the contours indicated in paragraph (a)(1) of this 
section of co-channel and adjacent channel stations by at least the 
minimum distances specified in the tables in paragraph (a)(2)(v).
    (i) If a device operates between two defined power levels, it must 
comply with the separation distances for the higher power level.
    (ii) White space devices operating at 40 mW EIRP or less are not 
required to meet the adjacent channel separation distances.
    (iii) Fixed white space devices operating at 100 mW EIRP or less 
per 6 megahertz across multiple contiguous TV channels with at least 3-
megahertz separation between the frequency band occupied by the white 
space device and adjacent TV channels are not required to meet the 
adjacent channel separation distances.
    (iv) Fixed white space devices may only operate above 4 W EIRP in 
less congested areas as defined in Sec.  15.703.
    (v) The following are the tables of minimum required separation 
distances outside the contours of co-channel and adjacent channel 
stations that white space devices must meet.

                   Table 2 to Section 15.712(a)(2)(v)
------------------------------------------------------------------------
              Mode II personal/portable white space devices
-------------------------------------------------------------------------
                                              Required separation in
                                            kilometers from co-channel
                                            digital or analog TV  (full
                                               service or low power)
                                                 protected contour
                                         -------------------------------
                                                            20 dBm (100
                                          16 dBm (40 mW)        mW)
------------------------------------------------------------------------
Communicating with Mode II or Fixed                  1.3             1.7
 device.................................
Communicating with Mode I device........             2.6             3.4
------------------------------------------------------------------------


                                                           Table 3 to Section 15.712(a)(2)(v)
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                Fixed white space devices
---------------------------------------------------------------------------------------------------------------------------------------------------------
                                                    Required separation in kilometers from co-channel digital or analog TV (full service or low power)
                                                                                            protected contour *
     Antenna height above average terrain of     -------------------------------------------------------------------------------------------------------
           unlicensed devices (meters)             16 dBm (40  20 dBm (100  24 dBm (250  28 dBm (625     32 dBm     36 dBm (4    40 dBm (10   42 dBm (16
                                                      mW)          mW)          mW)          mW)       (1600 mW)        W)           W)           W)
--------------------------------------------------------------------------------------------------------------------------------------------------------
Less than 3.....................................          1.3          1.7          2.1          2.7          3.3          4.0          4.5          5.0
3-10............................................          2.4          3.1          3.8          4.8          6.1          7.3          8.5          9.4
10-30...........................................          4.2          5.1          6.0          7.1          8.9         11.1         13.9         15.3
30-50...........................................          5.4          6.5          7.7          9.2         11.5         14.3         19.1         20.9
50-75...........................................          6.6          7.9          9.4         11.1         13.9         18.0         23.8         26.2
75-100..........................................          7.7          9.2         10.9         12.8         17.2         21.1         27.2         30.1
100-150.........................................          9.4         11.1         13.2         16.5         21.4         25.3         32.3         35.5
150-200.........................................         10.9         12.7         15.8         19.5         24.7         28.5         36.4         39.5
200-250.........................................         12.1         14.3         18.2         22.0         27.3         31.2         39.5         42.5
250-300.........................................         13.9         16.4         20.0         23.9         29.4         35.4         42.1         45.9
300-350.........................................         15.3         17.9         21.7         25.7         31.4         37.6         44.5         48.4
350-400.........................................         16.6         19.3         23.2         27.3         33.3         39.7         46.9         51.0
400-450.........................................         17.6         20.4         24.4         28.7         35.1         41.9         49.4         53.8
450-500.........................................         18.3         21.4         25.5         30.1         36.7         43.7         51.4         55.9
--------------------------------------------------------------------------------------------------------------------------------------------------------
* When communicating with Mode I personal/portable white space devices, the required separation distances must be increased beyond the specified
  distances by 1.3 kilometers if the Mode I device operates at power levels no more than 40 mW EIRP or 1.7 kilometers if the Mode I device operates at
  power levels above 40 mW EIRP.


[[Page 18911]]


                   Table 4 to Section 15.712(a)(2)(v)
------------------------------------------------------------------------
                  Personal/portable white space devices
-------------------------------------------------------------------------
                                                  Required separation in
                                                     kilometers from
                                                     adjacent channel
                                                   digital or analog TV
                                                   (full service or low
                                                     power) protected
                                                         contour
                                                ------------------------
                                                     20 dBm (100 mW)
------------------------------------------------------------------------
Communicating with Mode II or Fixed device.....                      0.1
Communicating with Mode I device...............                      0.2
------------------------------------------------------------------------


                                                           Table 5 to Section 15.712(a)(2)(v)
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                Fixed white space devices
---------------------------------------------------------------------------------------------------------------------------------------------------------
                                             Required separation in kilometers from adjacent channel digital or analog TV (full service or low power)
                                                                                        protected contour *
 Antenna height above average terrain of ---------------------------------------------------------------------------------------------------------------
       unlicensed devices (meters)          20 dBm (100     24 dBm (250     28 dBm (625    32 dBm (1600
                                                mW)             mW)             mW)             mW)        36 dBm (4 W)    40 dBm (10 W)   42 dBm (16 W)
--------------------------------------------------------------------------------------------------------------------------------------------------------
Less than 3.............................             0.1             0.1             0.1             0.1             0.2             0.2             0.3
3-10....................................             0.1             0.2             0.2             0.2             0.3             0.4             0.5
10-30...................................             0.2             0.3             0.3             0.4             0.5             0.6             0.7
30-50...................................             0.3             0.3             0.4             0.5             0.7             0.8             1.0
50-75...................................             0.3             0.4             0.5             0.7             0.8             0.9             1.0
75-100..................................             0.4             0.5             0.6             0.8             1.0             1.1             1.3
100-150.................................             0.5             0.6             0.8             0.9             1.2             1.3             1.5
150-200.................................             0.5             0.7             0.9             1.1             1.4             1.5             1.7
200-250.................................             0.6             0.8             1.0             1.2             1.5             1.7             1.9
250-300.................................             0.7             0.8             1.0             1.3             1.6             2.1             2.3
300-350.................................             0.7             0.9             1.1             1.4             1.8             2.2             2.4
350-400.................................             0.8             1.0             1.2             1.5             1.9             2.4             2.7
400-450.................................             0.8             1.0             1.3             1.6             2.1             2.6             2.9
450-500.................................             0.8             1.1             1.4             1.7             2.1             2.7             2.9
--------------------------------------------------------------------------------------------------------------------------------------------------------
* When communicating with a Mode I personal/portable white space device that operates at power levels above 40 mW EIRP, the required separation
  distances must be increased beyond the specified distances by 0.1 kilometers.

    (3) Fixed white space device antenna height. Fixed white space 
devices must comply with the requirements of Sec.  15.709(g) of this 
part.
* * * * *
    (b) * * *
    (3) * * *
    (ii) White space devices operating with more than 4 watts EIRP and 
up to 10 watts EIRP may not operate within 10.2 kilometers from the 
receive site for co-channel operation and 2.5 kilometers from the 
receive site for adjacent channel operation.
    (iii) White space devices operating with more than 10 watts EIRP 
may not operate within 16.6 kilometers from the receive site for co-
channel operation and 3.5 kilometers from the receive site for adjacent 
channel operation.
    (iv) For purposes of this section, a TV station being received may 
include a full power TV station, TV translator station or low power TV/
Class A TV station.
    (c) * * *
    (2) * * *
    (ii) White space devices operating with more than 4 watts EIRP and 
up to 10 watts EIRP may not operate within 10.2 km from the receive 
site for co-channel operation and 2.5 km from the receive site for 
adjacent channel operation.
    (iii) White space devices operating with more than 10 watts EIRP 
may not operate within 16.6 kilometers from the receive site for co-
channel operation and 3.5 kilometers from the receive site for adjacent 
channel operation.
    (d) PLMRS/CMRS operations. (1) White space devices may not operate 
at distances less than those specified in the table below from the 
coordinates of the metropolitan areas and on the channels listed in 
Sec.  90.303(a) of this chapter.

                     Table 6 to Section 15.712(d)(1)
------------------------------------------------------------------------
                                              Required separation in
                                               kilometers from areas
                                           specified in Sec.   90.303(a)
                                                  of this chapter
  White space device transmitter power   -------------------------------
                                                             Adjacent
                                            Co-channel        channel
                                             operation       operation
------------------------------------------------------------------------
4 watts EIRP or less....................             134             131
Greater than 4 watts and less than 10                136           131.5
 watts EIRP.............................

[[Page 18912]]

 
Greater than 10 watts EIRP..............           139.2           132.2
------------------------------------------------------------------------

    (2) White space devices may not operate at distances less than 
those specified in the table below from PLMRS/CMRS operations 
authorized by waiver outside of the metropolitan areas listed in Sec.  
90.303(a) of this chapter.

                     Table 7 to Section 15.712(d)(2)
------------------------------------------------------------------------
                                              Required separation in
                                               kilometers from areas
                                           specified in Sec.   90.303(a)
                                                  of this chapter
  White space device transmitter power   -------------------------------
                                                             Adjacent
                                            Co-channel        channel
                                             operation       operation
------------------------------------------------------------------------
4 watts EIRP or less....................              54              51
Greater than 4 watts and less than 10                 56            51.5
 watts EIRP.............................
Greater than 10 watts EIRP..............            59.2            52.2
------------------------------------------------------------------------

* * * * *
    (f) Low power auxiliary services, including wireless microphones. 
White space devices are not permitted to operate within the following 
distances of the coordinates of registered low power auxiliary station 
sites on the registered channels during the designated times they are 
used by low power auxiliary stations.

    (1) Fixed white space devices with 10 watts EIRP or less: 1 
kilometer
    (2) Fixed white space devices with greater than 10 watts EIRP: 1.3 
kilometers
    (3) Personal/portable white space devices: 400 meters

* * * * *
    (i) * * *
    (1) Fixed white space devices may only operate above 4 W EIRP in 
less congested areas as defined in Sec.  15.703.
* * * * *
[FR Doc. 2020-06569 Filed 4-2-20; 8:45 am]
BILLING CODE 6712-01-P