[Federal Register Volume 85, Number 129 (Monday, July 6, 2020)]
[Proposed Rules]
[Pages 40168-40181]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2020-14064]


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FEDERAL COMMUNICATIONS COMMISSION

47 CFR Parts 1, 2, and 101

[WT Docket Nos. 20-133, 10-153, 15-244; RM-11824, RM-11825; FCC 20-76; 
FRS 16882]


Modernizing and Expanding Access to the 70/80/90 GHz Bands

AGENCY: Federal Communications Commission.

ACTION: Proposed rule.

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SUMMARY: In this document, the Commission seeks comment to explore 
innovative new uses of the 71-76 GHz, 81-86 GHz, 92-94 GHz, and 94.1-95 
GHz bands (collectively, the ``70/80/90 GHz bands''). In particular, 
the Commission seeks comment on potential rule changes for non-Federal 
users to facilitate the provision of wireless backhaul for 5G, as well 
as the deployment of broadband services to aircraft and ships, while 
protecting incumbent operations in the 70/80/90 GHz bands. The 
Commission seeks to

[[Page 40169]]

promote expanded use of this co-primary millimeter-wave spectrum for a 
myriad of innovative services by commercial industry, and in 
particular, the Commission seeks to take advantage of the highly 
directional signal characteristics of these bands, which may permit the 
co-existence of multiple types of deployments. The Commission also 
denies two requests for partial waiver of the antenna standards for the 
71-76 and 81-86 GHz bands. Because this is co-primary spectrum for 
Federal and non-Federal users, the Commission will coordinate any 
proposed rule changes with the affected agencies and the National 
Telecommunications and Information Administration (NTIA). This is 
consistent with established practice, in that, when evaluating any band 
that includes a shared allocation for Federal use, the FCC will work 
with NTIA to evaluate potential impacts associated with any new or 
expanded non-Federal use of shared allocations.

DATES: Comments are due on or before August 5, 2020. Reply comments on 
or before September 4, 2020.

ADDRESSES: You may submit comments, identified by WT Docket Nos. 20-133 
and 10-153, by any of the following methods:
     Electronic Filers: Comments may be filed electronically 
using the internet by accessing the ECFS: http://apps.fcc.gov/ecfs/.
     Paper Filers: Parties who choose to file by paper must 
file an original and one copy of each filing.
     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.
     U.S. Postal Service first-class, Express, and Priority 
mail must be addressed to 445 12th Street SW, Washington, DC 20554.
     Effective March 19, 2020, and until further notice, the 
Commission no longer accepts any hand or messenger delivered filings. 
This is a temporary measure taken to help protect the health and safety 
of individuals, and to mitigate the transmission of COVID-19. See FCC 
Announces Closure of FCC Headquarters Open Window and Change in Hand-
Delivery Policy, Public Notice, DA 20-304 (March 19, 2020). https://www.fcc.gov/document/fcc-closes-headquarters-open-window-and-changes-hand-delivery-policy.
     During the time the Commission's building is closed to the 
general public and until further notice, if more than one docket or 
rulemaking number appears in the caption of a proceeding, paper filers 
need not submit two additional copies for each additional docket or 
rulemaking number; an original and one copy are sufficient.

FOR FURTHER INFORMATON CONTACT: Anthony Patrone, Broadband Division, 
Wireless Telecommunications Bureau, (202) 418-2428, 
[email protected] or Jeffrey Tignor, Broadband Division, Wireless 
Telecommunication Bureau, (202) 418 0774 [email protected].

SUPPLEMENTARY INFORMATION: This is a summary of the Commission's Notice 
of Proposed Rulemaking (NPRM), WT Docket Nos. 20-133; 10-153, 15-244; 
FCC 20-76; RMs-11824, 11825, adopted June 9, 2020, and released June 
10, 2020. The full text may also be downloaded https://docs.fcc.gov/public/attachments/FCC-20-76A1.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--70/80/90 GHz Bands. In the United States, the 70/80/
90 GHz bands are allocated on a co-primary basis for Federal and non-
Federal use, as follows.

------------------------------------------------------------------------
              Band                  Non-Federal Use       Federal Use
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71-74 GHz.......................  Fixed, Fixed        Fixed, Fixed
                                   Satellite,          Satellite,
                                   Mobile, and         Mobile, and
                                   Mobile Satellite..  Mobile Satellite.
74-76 GHz.......................  Fixed, Fixed        Fixed, Fixed
                                   Satellite,          Satellite, and
                                   Mobile,             Mobile.
                                   Broadcasting, and
                                   Broadcasting
                                   Satellite..
81-84 GHz.......................  Fixed, Fixed        Fixed, Fixed
                                   Satellite,          Satellite,
                                   Mobile, Mobile      Mobile, Mobile
                                   Satellite, and      Satellite, and
                                   Radio Astronomy..   Radio Astronomy.
84-86 GHz.......................  Fixed, Fixed        Fixed, Fixed
                                   Satellite,          Satellite,
                                   Mobile, and Radio   Mobile, and Radio
                                   Astronomy..         Astronomy.
92-94 GHz, 94.1-95 GHz..........  Fixed, Mobile,      Fixed, Mobile,
                                   Radio Astronomy,    Radio Astronomy,
                                   and                 and
                                   Radiolocation..     Radiolocation.
------------------------------------------------------------------------

    2. In addition, the 94-94.1 GHz segment of the band is allocated 
for Federal use for Earth Exploration Satellite, Radiolocation, and 
Space Research and for non-Federal use for Radiolocation. In the 71-76 
GHz band (the ``70 GHz band'') and 81-86 GHz band (the ``80 GHz 
band''), Fixed, Mobile, and Broadcasting services must not cause 
harmful interference to, nor claim protection from, Federal Fixed-
Satellite Service operations located at 28 military installations. In 
addition, in the 80 GHz band, and in the 92-94 GHz and 94.1-95 GHz 
bands (collectively, the ``90 GHz band''), licensees proposing to 
register links located near 18 radio astronomy observatories must 
coordinate their proposed links with those observatories. Finally, the 
adjacent 86-92 GHz band is allocated for Earth Exploration-Satellite 
(passive), Space Research (passive), and Radio Astronomy services. 
Given that the allocations for these bands include Federal and non-
Federal use, the Commission will follow established practices in 
coordinating with NTIA prior to adopting any new or revised rules in 
this proceeding that would affect Federal users.\1\ In 2003, the 
Commission established service rules for non-Federal use of the 70/80/
90 GHz bands through a two-pronged, non-exclusive licensing regime.\2\ 
Under the first prong, an entity may apply for a nationwide, non-
exclusive license for

[[Page 40170]]

the entire 12.9 gigahertz of the 70/80/90 GHz bands, which serves as a 
prerequisite to satisfying the second prong. Under the second prong, a 
licensee may operate links after completing coordination with Federal 
operations through NTIA's database \3\ and after providing an 
interference analysis to one of the third-party database managers. 
Licensees are afforded first-in-time priority for successfully 
registered links relative to subsequently registered links. Non-Federal 
licensees may use the 70/80/90 GHz bands for any point-to-point, non-
broadcast service.
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    \1\ The Communications Act charges the Commission with the 
licensing and regulation of commercial and private spectrum use, 47 
U.S.C. 151, 301, while NTIA has been delegated authority over radio 
stations ``belonging to and operated by the United States.'' 47 
U.S.C. 305(a); 47 U.S.C. 902(b)(2)(A) (delegating authority to 
regulate government radio stations to NTIA). The Commission and NTIA 
coordinate their respective spectrum management responsibilities 
pursuant to a Memorandum of Understanding, with the goal of 
promoting the efficient use of the radio spectrum in the public 
interest. Memorandum of Understanding Between the Federal 
Communications Commission and the National Telecommunications and 
Information Administration, at 1 (Jan. 31, 2003), https://docs.fcc.gov/public/attachments/DOC-230835A2.pdf.
    \2\ Allocations and Service Rules for 71-76 GHz and 92-95 GHz 
Bands, WT Docket No. 02-146, Report and Order, 18 FCC Rcd 23318, 
23322, para. 5 (2003) (70/80/90 GHz Report and Order).
    \3\ If a proposed link does not interfere with existing Federal 
operations then it is given a ``green light;'' if it may interfere 
with existing Federal operations, then it is given a ``yellow 
light,'' indicating that further coordination is necessary. 47 CFR 
101.1523; 70/80/90 GHz Report and Order, 18 FCC Rcd at 23342-43, 
para. 54; Wireless Telecommunications Bureau Announces Licensing and 
Interim Link Registration Process, Including Start Date for Filing 
Applications for Non-Exclusive Nationwide Licenses in the 71-76 GHz, 
81-86 GHz, and 92-95 GHz Bands, WT Docket No. 02-146, Public Notice, 
19 FCC Rcd 9439, 9447 (WTB 2003). The ``green light''/``yellow 
light'' system protects the sensitive nature of the locations of 
military installations.
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    3. The Commission periodically has reviewed the service rules 
governing the 70/80/90 GHz bands. For example, in 2005, the Commission 
modified several of its technical rules, including interference 
protection criteria, antenna characteristics, band segmentation, and 
power spectral density.\4\ In 2012, the Commission sought input on 
whether modifications of the Commission's antenna standards applicable 
to a number of microwave bands (including the 70/80/90 GHz bands) would 
promote wireless backhaul use. In the 2016 Spectrum Frontiers 
proceeding, the Commission sought comment on whether to authorize 
flexible-use services, including mobile, in the 70/80/90 GHz bands, but 
it ultimately declined to do so.\5\
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    \4\ Allocations and Service Rules for the 71-76 GHz, 81-86 GHz, 
and 92-95 GHz Bands, WT Docket No. 02-146, Memorandum Opinion and 
Order, 20 FCC Rcd 4889, 4905, para. 34 (2005) (70/80/90 GHz 
Reconsideration Order). The current service rules governing the 70/
80/90 GHz bands are in 47 CFR 101.1501-101.1527, in addition to 
other operative subparts of part 101. Unlicensed devices operating 
in the 92-95 GHz band are governed by part 15 of the Commission's 
rules. This Notice of Proposed Rulemaking does not contemplate 
changes to the part 15 rules. See 47 CFR 15.257.
    \5\ Use of Spectrum Bands Above 24 GHz for Mobile Radio 
Services, Second Report and Order, Second Further Notice of Proposed 
Rulemaking, order on Reconsideration, and memorandum Opinion and 
Order, 32 FCC Rcd 10988, 11054, para.200 (2017) (2017 Spectrum 
Frontiers Second Report and Order). The Commission reserved the 
right to reconsider mobile use in the 70/80/90 GHz bands as the 
technology develops. 2017 Spectrum Frontiers Second Report and 
Order, 32 FCC Rcd at 11054, para. 201.
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    4. Use of spectrum in the 70/80/90 GHz bands is primarily 
concentrated along a few routes, with minimal use in large parts of the 
United States. As of March 23, 2020, there were 658 active non-
exclusive nationwide licensees in the 70/80/90 bands. Based upon 
information available from the third-party database managers 
responsible for registering links in those bands, as of March 23, 2020, 
there were 18,770 registered fixed links \6\ in the 70 GHz and 80 GHz 
bands.
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    \6\ A link in this context is defined as a communication path 
between one location and another in a single direction. Multiple 
channels registered between the same transmit and receive location 
are considered separate links. Bi-directional communications are 
also counted as separate links.
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    5. Rule Modifications Proposed by Parties. Several parties 
supporting expanded use of the 70/80/90 GHz bands propose changes to 
the rules governing the bands. The Fixed Wireless Communications 
Coalition (FWCC) proposes several changes to the Commission's part 101 
rules governing the 70 GHz and 80 GHz bands. In particular, FWCC asks 
for the following rule modifications: (1) Allow smaller antennas for 
fixed point-to-point operations; (2) permit alternate polarization for 
antennas; (3) prevent the accumulation of never-built links in the 
registration database and allow certain amendments to registrations; 
and (4) adopt a channel plan for the bands. In particular, FWCC 
contends that the use of smaller antennas will support the provision of 
backhaul for emerging 5G services using higher frequency bands. Because 
of short-distance propagation in these bands, FWCC asserts that 
backhaul facilities will be deployed in neighborhoods and communities, 
and must be smaller, lower-cost, and more aesthetically pleasing than 
the antennas permitted under the current rules. T-Mobile, Nokia, and 5G 
Americas have supported FWCC's proposals for smaller antenna sizes in 
the 70 GHz and 80 GHz bands. Several parties support the accommodation 
of smaller antennas for 5G backhaul. Additionally, the 5G Wireless 
Backhaul Advocates support changes to the link registration system to 
prevent the accumulation of never-constructed links in the system. FWCC 
and the 5G Backhaul Advocates note that Canada and other countries have 
rules that permit smaller antennas in the 70 GHz and 80 GHz bands.
    6. In 2019, Aeronet Global Communications, Inc. (Aeronet) filed 
petitions for rulemaking that sought to permit the use of ``Scheduled 
Dynamic Datalinks'' (SDDLs) to provide broadband service to aircraft or 
ships in motion in the 70/80/90 GHz bands. Aeronet indicates that its 
technology would configure and maintain, in real time, multiple 
networks involving a variety of point-to-point links between nodes, 
including ground stations, relay nodes, ships, and aircraft. Aeronet 
asserts that it would use ground or shore stations to transmit narrow 
beams towards known flight paths or ship routes without causing 
interference to existing point-to-point links authorized in the bands. 
The initial connected aircraft or ship also could serve as a conduit 
through which broadband service could reach other aircraft or ships 
within a specified area through a sub-mesh network. As Comsearch notes, 
Aeronet's links for aviation would operate between ground stations and 
aircraft, and between aircraft; Aeronet's links for maritime would 
operate between shore stations and ships, between shore stations and 
aerostats, between aerostats and ships, and between ships. In its 2019 
petitions for rulemaking, Aeronet contends that its operations could 
``further mitigate any risk of interference'' to not only mobile and 
terrestrial users of the spectrum for 5G backhaul but also to ``Federal 
FSS operations located at the 28 military bases'' and the 18 Federal 
radio astronomy observatories. Aeronet requests that the Commission 
modify its part 101 rules to authorize SDDLs as a ``fixed service'' 
that can operate in the 70/80/90 GHz bands and to increase the 
transmitter power limits that would apply to these operations.
    7. In response to the Commission's Public Notice seeking comment on 
Aeronet's petitions,\7\ several parties expressed general support for 
changes to the rules applicable to the 70/80/90 GHz bands provided that 
any changes do not foreclose other future uses of the bands. Other 
commenters opposed Aeronet's proposal or argued that the Commission 
should consider all proposed changes in the 70/80/90 GHz bands in a 
comprehensive proceeding. Several parties raised concerns about the 
potential co-existence of multiple services specifically in the 90 GHz 
band. Nearly all commenters indicated a need for more information about 
how

[[Page 40171]]

Aeronet's proposed system would work, and Aeronet subsequently placed 
additional information in the record. In developing the record on the 
Aeronet petitions, several commenters suggested alternative uses for 
the 70/80/90 GHz bands.
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    \7\ Aeronet Global Communications Inc.'s Petition for Rulemaking 
to Amend the Commission's Allocation and Service Rules for the 71-76 
GHz, 81-86 GHz, and 92-95 GHz Bands to Authorize Aviation Scheduled 
Dynamic Datalinks, Public Notice, Report No. 3112, CG RM-11824 
(2019); Aeronet Global Communications Inc.'s Petition for Rulemaking 
to Amend the Commission's Allocation and Service Rules for the 71-76 
GHz, 81-86 GHz, and 92-95 GHz Bands to Authorize Maritime Scheduled 
Dynamic Datalinks, Public Notice, Report No. 3113, CG RM-11825 
(2019).
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Discussion

    8. The Commission proposes targeted changes to its rules to promote 
additional wireless backhaul for 5G, in furtherance of the Commission's 
goals of expanding access to broadband and fostering the efficient use 
of millimeter-wave spectrum in the public interest. Specifically, the 
Commission proposes changes to the antenna standards applicable to the 
70 GHz and 80 GHz bands and seeks comment on whether similar changes 
are necessary in the 90 GHz band. The Commission seeks comment on 
whether the Commission should make changes to its current link 
registration rules for the 70/80/90 GHz bands to eliminate never-
constructed links from the database. The Commission also proposes to 
authorize point-to-point links to endpoints in motion in the 70 GHz and 
80 GHz bands and to classify those links as a ``mobile'' service. The 
Commission seeks comment on any technical and operational rules that 
would be needed to allow these new service offerings in the 70 GHz and 
80 GHz bands and to mitigate interference to incumbents and other 
proposed users of these bands and in adjacent bands. Finally, the 
Commission seeks comment on whether the Commission should adopt a 
channelization plan in the 70 GHz and 80 GHz bands.
    9. 5G Backhaul--Antenna Rules. The Commission proposes a number of 
changes to the antenna standards for the 70 GHz and 80 GHz bands to 
provide greater flexibility in deploying 5G wireless backhaul. The 
Commission observed that smaller, lighter antennas are less susceptible 
to sway and less visually obtrusive than larger antennas, which would 
make them ideal for 5G network densification. The Commission seeks to 
leverage these characteristics of smaller antennas to promote 5G 
deployment, while protecting incumbent uses of these bands and 
providing opportunities for other innovative uses of these bands.
    10. The Commission's rules currently apply a single category of 
antenna standards to the 70 GHz band and the 80 GHz band. The 
Commission proposes to increase the maximum beamwidth by 3 dB points, 
from 1.2 degrees to 2.2 degrees. Additionally, the Commission proposes 
to reduce minimum antenna gain from 43 dBi to 38 dBi and to retain the 
proportional EIRP reduction requirement. The Commission seeks comment 
on these proposals. Both FWCC and the 5G Wireless Backhaul Advocates 
argue that these proposed changes are critical to deploying nationwide 
5G wireless backhaul and fostering network densification. The 
Commission notes that adoption of these changes would harmonize its 
rules with Canada's rules, which could facilitate economies of scale in 
equipment deployment in North America.
    11. The Commission also proposes reducing the co-polar and cross-
polar discrimination requirement applicable to 70 GHz and 80 GHz 
antennas.\8\ Co-polar and cross-polar discrimination requirements were 
established to facilitate coordination of multiple links that share the 
same frequency path. FWCC contends that some of the smaller, lighter 
antennas its members contemplate using cannot meet the existing 
requirement. Recognizing that small cell backhaul applications will not 
involve shared high-capacity paths, the Commission seeks comment on 
whether its current stricter co-polar and cross-polar discrimination 
requirements are now unnecessary. Do commenters agree that operators 
needing relatively short-distance links for small-cell backhaul will 
not require high-capacity shared paths? The Commission notes that the 
5G Wireless Backhaul Advocates suggest eliminating the co-polar 
discrimination requirement entirely.\9\ The Commission seeks comment on 
this suggestion.
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    \8\ See FWCC April 4th Ex Parte at 2 as amended by FWCC March 
24th Ex Parte at 1-2. Currently, at angles between 1.2 and 5 degrees 
from the centerline of the main beam, co-polar discrimination must 
be G-28, where G is the antenna gain in dBi; and at angles of less 
than 5 degrees from the centerline of main beam, cross-polar 
discrimination must be at least 25 dB. See 47 CFR 101.115(b)(2) 
n.15. FWCC proposes that magnitude of co-polar discrimination 
requirement be reduced from G-28 dB to G-33 dB and only apply 
between 2.5 and 5 degrees from the centerline of the main beam and 
that the cross-polar discrimination requirement be reduced from 25 
dB to 21 dB. FWCC April 4th Ex Parte at 2 as amended by FWCC March 
24th Ex Parte at 1-2.
    \9\ 5G Wireless Backhaul Advocates Ex Parte at 2 (noting that 
``FWCC has suggested a modification to the specification below 5 
[degrees] to accommodate 38 dBi antennas, seeking to achieve a 
similar affect, rather than our proposal to remove the requirement 
altogether'').
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    12. In addition, the Commission seeks comment on FWCC's 
recommendation that it allows +/- 45 degree polarization (also known as 
slant polarization) in the 70 GHz and 80 GHz bands. Section 101.117 of 
the Commission's rules generally limits licensees to horizontal or 
vertical polarization. The Commission seeks comment on FWCC's 
contention that flat plate antennas generally have cleaner azimuth/
elevation radiation pattern envelopes when used in slanted 
polarization. Would slant polarization aid coordination at congested 
points in the 70 GHz and 80 GHz bands? Should the Commission consider 
slant polarization in the 90 GHz band? The Commission seeks comment on 
any disadvantages of allowing slant polarization. The Commission asks 
commenters to provide data on the benefits and costs of any proposed 
changes.
    13. Some commenters have suggested that adopting a second category 
of antenna standards would promote flexibility in the 70 GHz and 80 GHz 
bands. The Commission's rules for many other services regulated under 
part 101 allow for two categories of antennas, Category A and Category 
B; Category A performance standards are more stringent than Category B. 
The Commission seeks comment on whether to adopt an additional antenna 
standard--Category B--applicable to the 70 GHz and 80 GHz bands, which 
could permit less restrictive use under certain circumstances than the 
Commission's proposed modified antenna standards (which would be the 
accompanying Category A standards). The Commission seeks comment on the 
advantages and disadvantages of adopting Category A and Category B 
standards in the 70 GHz and 80 GHz bands. Should the new Category B 
standards permit use of even smaller, wider beamwidth antennas, or 
other less restrictive uses? \10\ Under what circumstances should use 
of such antennas be permitted? Would such changes promote investment in 
these bands? In other bands, if a station using a Category B antenna 
causes interference that cannot be eliminated by lowering EIRP, the 
station must upgrade to a Category A antenna to eliminate the 
interference. Should the Commission adopt similar rules or other 
conditions of use here? What impact, if any, should changing from one 
antenna standard to the other have on a registrant's first-in-time 
status? Commenters proposing alternative standards should provide a 
detailed justification for those standards.
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    \10\ For example, FWCC proposes that Category B antennas would 
have the same maximum beamwidth and minimum antenna gain as Category 
A antennas but would have a lower minimum radiation suppression 
requirement. See FWCC Ex Parte at Appx. i.
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    14. With respect to the Commission's proposed modifications to the 
antenna standards for the 70 GHz and 80 GHz bands, or any alternate 
proposals by commenters, the Commission seeks

[[Page 40172]]

detailed, quantitative data on the relative likely benefits and costs. 
Such data should include information on cost savings that could result 
from the changes, as well as increased costs that would result from an 
increase in interference.
    15. The Commission notes that the Commission's antenna standards 
for the 90 GHz band are considerably different from those that apply to 
the 70 GHz and 80 GHz bands.\11\ While advocates for changes to the 
Commission's antenna standards for the 70 GHz and 80 GHz bands does not 
propose changes to the standards for the 90 GHz band, the Commission 
seeks comment on whether any of the changes discussed in this NPRM or 
other changes should apply to the 90 GHz band.
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    \11\ For example. the standards for the 90 GHz band do not 
distinguish between co-polar and cross-polar standards. The 90 GHz 
standards also set a narrower maximum beamwidth and lower minimum 
antenna gain. 47 CFR 101.115(b)(2).
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    16. Finally, the Commission seeks comment on how the proposed 
changes to the antenna standards for the 70 GHz and 80 GHz bands, as 
well as any changes to the antenna standards for the 90 GHz band, would 
affect existing Federal operations in these shared bands, including the 
Radiolocation service. The Commission also seeks comment on how changes 
to the antenna standards would impact the system for coordination 
between Federal and non-Federal users. In addition, the Commission 
seeks comment on how changing the antenna standards may affect future 
uses of these bands, including for Fixed-Satellite Service.
    17. Link Registration Processes. The Commission seeks comment on 
whether the Commission should make changes to the current link 
registration rules in the 70/80/90 GHz bands. The 5G Wireless Backhaul 
Advocates and FWCC propose requiring licensees to certify that their 
registered links are constructed as required. When the Commission 
adopted service rules for the 70/80/90 GHz bands, it shortened the 
construction requirement generally applicable to other part 101 
services. Licensees in the 70/80/90 GHz bands must complete 
construction and bring into regular use registered links within 12 
months of the date on which a third-party database manager registers 
the link. Currently, the Commission relies on licensees to notify 
database managers to withdraw unconstructed links from the database. 
FWCC alleges that the current registration process encourages licensees 
to submit multiple registrations at various locations and heights for a 
single transmit site, ``seeking priority protection while not yet 
knowing precisely where their equipment will be deployed.'' The 5G 
Wireless Backhaul Alliance contends that requiring licensees to certify 
that their links have been constructed at the end of the 12th month 
construction period, or when they seek to renew their license, would 
improve ``database hygiene.''
    18. Do commenters agree that certain licensees submit multiple 
registrations at various locations and heights for a single transmit 
site? If so, does the Commission need to adopt rule revisions to 
require that each registration satisfies the interference-protection 
requirements of section 101.1523(b)(2)--including as to the licensee's 
other current or pending registrations? Do commenters agree that there 
are registrations in the database that are not operational and likely 
never will be? If so, how common are such inaccurate registrations? The 
Commission note that failure to begin operations in a timely manner 
pursuant to a part 101 authorization results in the automatic 
cancelation of the authorization. Nevertheless, because the Commission 
currently does not require licensees to file a construction 
certification, such cancellations are not automatically reflected in 
ULS or the third-party database, and the Commission therefore does not 
have a ready mechanism for accurately tracking them.\12\ Should the 
Commission require 70 GHz and 80 GHz band registrants to file a 
certification of construction when a link has been placed in operation? 
If so, when should the Commission require registrants to file the 
certifications? Should certifications be filed when the links become 
operational, at any time prior to the expiration of the construction 
deadline, or whenever a licensee seeks to renew its license? Should 
different rules apply for registrants in the 90 GHz band? What changes, 
if any, should the Commission make to its rules to ensure that 
registrations accurately reflect actual use of the 70/80/90 GHz bands? 
Should the Commission adopt rules to promote competition and prevent 
licensees from filing multiple, duplicative registrations that dilute 
the accuracy of the database and potentially foreclose use of the band 
from competitors or additional, future uses? If so, how should those 
rules be structured?
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    \12\ FWCC Ex Parte at 5 (citing 47 CFR 101.63(c)). Micronet's 
database provides information about links that have been registered 
and not constructed, but there is no requirement that Micronet 
provide this information and there is no requirement that licensees 
inform Micronet when links are built. Therefore, links that appear 
in Micronet's database as unconstructed may be constructed. See 
Micronet Database, http://www.micronetcommunications.com/LinkRegistration/.
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    19. If the Commission does adopt a construction certification 
requirement, how should the Commission manage the certification 
process? The Commission seeks comment on FWCC's suggestion that 
certificates be managed through ULS or by a third party. Should the 
Commission accept construction certifications through one of its 
systems (e.g., ULS) and pass the certification on to the third-party 
database administrators? Or should registrants file certifications with 
the third-party database administrators directly? Should 
certifications, whether filed in ULS or with database managers, be 
based on FCC Form 601 Schedule K (Schedule for Required Notifications 
for Wireless Services) or would a checkmark certification--under 
penalty of perjury--suffice? Would a directive to the database managers 
to remove registrations from the database if no certification is filed 
within 12 months be appropriate? Should the Commission require 
licensees to list registrations that are beyond the construction 
deadline as part of their renewal applications, and--for each 
registration--either certify the link's construction and operation or 
identify the link for removal from third-party databases? What 
penalties, if any, should the Commission impose for failure to comply 
with a certification requirement if the Commission adopt one? Should 
failure to timely begin operations result in license forfeitures or 
other penalties? What are the costs and benefits resulting from a 
construction certification requirement, including potential one-time 
costs for existing licensees to certify links that have been 
constructed prior to the certification requirement and projected costs 
from links that would need to be certified in the future?
    20. FWCC also proposes that the Commission allow registrants to 
amend their registrations under certain circumstances without losing 
their first-in-time priority rights. The Commission seeks comment on 
whether licensees should be allowed to amend their registered links 
without losing first-in-time status. What amendments, if any, should be 
allowed without losing first-in-time status?
    21. Communications to Ships and Aircraft--Authorization and 
Framework. The Commission proposes to authorize point-to-point links to 
endpoints in motion in the 70 GHz and 80 GHz bands under its part 101 
rules. The Commission agrees with Aeronet that authorizing these links 
in the 70 GHz and 80 GHz bands can benefit

[[Page 40173]]

consumers by meeting an increasing demand for broadband services that 
can be accessed on aircraft and ships, and that using highly 
directional signals in these bands has the potential to avoid 
interference to other point-to-point links.
    22. Provision of Broadband to Ships and Planes. The aviation and 
maritime markets are currently underserved by broadband providers. 
According to one study by the London School of Economics,\13\ 
approximately 3.8 billion passengers fly annually across the globe, 
with only around 25% of planes offering some form of on-board 
broadband--often of variable quality, coverage, speed, or capacity. 
According to another study, aviation-based internet access service has 
an adoption (or take) rate of 10% or less, due to a combination of 
factors, such as high prices, intermittent coverage, poor performance, 
and difficult payment mechanisms.\14\ Similarly, broadband connectivity 
on-board passenger ships has been characterized as ``notoriously 
difficult,'' because broadband internet access service provided at sea 
``has been patchy, slow, expensive, and [ ] mainly a luxury associated 
with premium packages.'' \15\
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    \13\ Alexander Grous, London School of Economics and Political 
Science, Sky High Economics Chapter One: Quantifying the Commercial 
Opportunities of Passenger Connectivity for the Global Airline 
Industry 3 (2017), http://www.lse.ac.uk/business-and-consultancy/consulting/assets/documents/sky-high-economics-chapter-one.pdf (last 
visited Mar. 18, 2020).
    \14\ Peter Lemme, Seamless Air Alliance, The Profitable 
Economics of Inflight Connectivity 7 (Mar. 2019), https://www.seamlessalliance.com/wp-content/uploads/Seamless-Whitepaper-07.pdf (last visited Mar. 18, 2020).
    \15\ Eva Grey, The Race for Faster WiFi on Board Cruise Ships, 
Ship Technology (May 15, 2018), https://www.ship-technology.com/features/race-faster-wifi-board-cruise-ships/ (last visited Mar. 18, 
2020).
---------------------------------------------------------------------------

    23. Different systems or services operating at different altitudes 
or unique locations could create opportunities for expanded use (or 
reuse) of spectrum frequencies as between traditional terrestrial 
locations and unique altitudes and locations. Stated another way, 
``3D'' spectrum management techniques could allow for the deployment of 
new broadband products and services while helping to alleviate growing 
demands for spectrum resources. Innovative products and services are 
being developed specifically to improve broadband access on-board 
airplanes, ships, and other methods of transport. A 3D model of 
spectrum management, however, presents not only potential opportunities 
but also potential challenges, as managing potential harmful 
interference between systems becomes more complicated.
    24. The 70/80/90 GHz bands could provide a unique spectrum resource 
for the provisioning of broadband services to airplanes, ships, and 
other antennas in motion. In general, atmospheric attenuation tends to 
increase the higher the signal goes in the radio spectrum frequency 
range, limiting the potential length of transmission paths. The 70/80/
90 GHz bands, however, experience less attenuation than frequencies 
lower down in the 50-60 GHz range.\16\
---------------------------------------------------------------------------

    \16\ See Lou Frenzel, Millimeter Waves Will Expand The Wireless 
Future, ElectronicDesign (Mar. 6, 2013), https://www.electronicdesign.com/communications/millimeter-waves-will-expand-wireless-future (last visited Sept. 11, 2019).
---------------------------------------------------------------------------

    25. The Commission notes that, in response to Aeronet's petitions, 
several commenters have raised concerns specific to proposed systems 
that would operate in the 90 GHz band. Sierra Nevada, for example, 
opposes use of the 90 GHz band for the types of operations proposed by 
Aeronet. Sierra Nevada believes these systems will interfere with the 
Enhanced Flight Visions Systems (EFVS) for which Sierra Nevada seeks to 
establish rules in this segment of the band. In addition, the 
Commission proposed to permit use of the 92-95.5 GHz band for EFVS, 
including amending the Table of Allocations to add a Radionavigation 
Service allocation in this segment of the band. Moog opposes Aeronet's 
use of the 90 GHz band because it may interfere with Moog's proposed 
Foreign Object Debris (FOD) Detection System. The Commission note that 
the 92-100 GHz band is also recognized worldwide for FOD radar use. 
Aeronet has acknowledged that the 90 GHz band may pose unique 
coordination problems for the services it intends to deploy. Because 
the deployment of links to endpoints in motion in the 90 GHz band may 
present some unique coordination problems--particularly to EFVS systems 
that the Commission has already proposed to allow in the 92-95.5 GHz 
band--the Commission propose to authorize these links to or from (or 
between) endpoints in motion only in the 70 GHz and 80 GHz bands. The 
Commission seeks comment on this proposal.
    26. The Commission seeks to develop a record on the balance of 
benefits and costs of permitting new uses of the 70 GHz and 80 GHz 
bands for communications to points in motion. The Commission seeks 
comment on the types of benefits to consumers of the services to 
aircraft and ships proposed by Aeronet. For example, the Commission 
seeks comment on the value of enhanced competition in the aeronautical 
and maritime broadband markets that could result from authorizing 
Aeronet's operations and similar types of services in the 70 GHz and 80 
GHz bands. Should the Commission adopt rules to promote competition and 
prevent licensees from filing multiple registrations that result in a 
bevy of first-in-time registrations that potentially foreclose use of 
the band from competitors?
    27. How would the introduction of these new types of services in 
the 70 GHz and 80 GHz bands affect existing point-to-point microwave 
services or the potential for deployment of other non-Federal and 
Federal services in the bands? Would aeronautical or maritime 
deployments, such as the ones proposed by Aeronet and other parties in 
this proceeding be compatible with more robust use of the band for 
small cell backhaul, as proposed by FWCC, Ericsson, Nokia, and others? 
If particular non-Federal use cases are not compatible, then how should 
the Commission weigh the various public interest considerations in 
allowing, prohibiting, or prioritizing among such uses? Would 
aeronautical or maritime deployments in these bands inhibit use of this 
spectrum by Fixed-Satellite Service systems?
    28. The Commission also notes that there are both Federal and non-
Federal space-service frequency allocations in the bands discussed 
here; fixed satellite, mobile satellite, broadcasting satellite, Earth 
Exploration-Satellite (passive) and radio astronomy. In addition, there 
are primary Federal allocations in adjacent bands for earth 
exploration-satellite (passive), space research (passive), and radio 
astronomy services in the 86-92 GHz band. The Commission seeks comment 
on any possible impact that the proposals discussed in this NPRM may 
have on Federal use of the 70/80/90 GHz bands by these services.
    29. Classification of Service. The Commission proposes to classify 
links to endpoints in motion as a ``mobile'' service under the existing 
mobile allocation for the 70 GHz and 80 GHz bands. Aeronet asserts that 
its systems would be ``almost fixed'' because they are ``a forecasted 
series of fixed point-to-point broadband links'' and ``[t]he location 
of any given node at any given moment would be knowable in advance and 
known in real time.'' Aeronet further asserts that links to endpoints 
in motion could be authorized as fixed services by adding: (1) 
Definitions in the part 101 rules for ``Scheduled Dynamic Datalink,'' 
``Maritime Scheduled Dynamic Datalink,'' ``Aviation Scheduled Dynamic 
Datalink,'' and

[[Page 40174]]

``Scheduled Dynamic Datalink Relay;'' and (2) a note to the relevant 
frequency assignments specified in Sec.  101.147 of the Commission's 
rules. The Commission tentatively conclude, however, that the 
appropriate service classification for Aeronet's proposed services, if 
the Commission decide to authorize air- and sea-based links or links 
between antennas in motion in the 70 GHz and 80 GHz bands, should be 
``mobile.'' The Commission seeks comment on this tentative conclusion.
    30. Aeronet's proposed service classification appears to be 
inconsistent with the language of the Communications Act and the 
Commission's rules. While the Communications Act does not define 
``fixed stations'' or ``fixed service,'' the Commission rules provide 
that ``fixed stations'' are stations in the fixed service, which is 
defined in its rules as a ``radiocommunication service between 
specified fixed points.'' Aircraft and ships must be in motion to serve 
their intended purposes, and the Commission tentatively concludes that 
transmission of signals to endpoints on aircraft and ships does not 
become communication to fixed points simply because, as Aeronet 
suggests, the expected locations of the aircraft or ships may be known 
or specified before movement begins. In contrast, the Communications 
Act defines the term ``mobile station'' to mean ``a radio-communication 
station capable of being moved and which ordinarily does move.'' The 
Commission's rules include a similar definition of mobile stations. 
Moreover, the Commission's rules define ``aeronautical mobile service'' 
as a ``mobile service between aeronautical stations and aircraft 
stations, or between aircraft stations . . .'' The Commission rules 
similarly define ``maritime mobile service'' as a ``mobile service 
between coast stations and ship stations, or between ship stations . . 
.''
    31. The Commission tentatively conclude that the definitions of 
``mobile station'' in the Communications Act and its rules and of 
``aeronautical mobile service'' and ``maritime mobile station'' in its 
rules are consistent with Aeronet's descriptions of its service. 
Aeronet's antennas on-board aircraft appear to fit most closely within 
the definition of aircraft stations operating in the aeronautical 
mobile service, while the ground stations in its system appear to fit 
the definition of aeronautical stations. Antennas operating on ships 
appear to fit the description of ship stations operating in the 
maritime mobile service, while the ground stations and aerostats meet 
the definition of coast stations. The Commission seek comment on these 
tentative conclusions.
    32. The Commission notes that it's revisiting the Commission's 
decision in the 2017 Spectrum Frontiers Order (83 FR 37, 52-53 (Jan. 2, 
2018)) not to allow mobile service in the 70/80/90 GHz bands, given the 
evolution in technology. In the 2017 Spectrum Frontiers Order, the 
Commission acknowledged that companies, including Aeronet, Google, and 
The Elefante Group, proposed different uses of the 70/80/90 GHz bands 
``which neither fit the traditional mobile broadband nor fixed link 
models,'' but it determined that the Commission should consider these 
proposals and possible future uses in its Wireless Backhaul proceeding. 
The Commission did, however, reserve the right to revisit this issue as 
mobile deployments increased in other millimeter-wave bands, as 
technology developed, and as frameworks for mobile and fixed services 
to coexist in the bands came to light. Nearly two years later, in 
February 2019, Aeronet filed its petitions for rulemaking, and in May 
2019 Comsearch submitted its compatibility study. Based on this 
additional information now before the Commission, the Commission 
consider Aeronet's proposal in conjunction with the targeted rule 
changes set forth in this NPRM to allow for expanded wireless backhaul.
    33. The Commission additionally seeks comment on whether any 
changes to Aeronet's proposed definitions would be necessary to 
accommodate a classification of these services as mobile, and whether 
any changes would be necessary to create a provider- and technology-
neutral framework for the provision of air- and sea-based links or 
links between antennas in motion.
    34. Coordination, Licensing, and Registration. The Commission seeks 
comment on what changes to the 70/80/90 GHz coordination, licensing, 
and registration framework would be necessary to permit the operation 
of links to endpoints in motion under part 101. Currently, non-
exclusive nationwide licensees in the 70/80/90 GHz bands coordinate 
point-to-point links with Federal and other non-Federal users on a 
first-in-time basis using a coordination mechanism managed by NTIA and 
shared databases managed by several third-party managers. As an initial 
matter, the Commission proposes to continue licensing use of the 70 GHz 
and 80 GHz bands on a non-exclusive, nationwide basis, to the extent 
the Commission authorize links to endpoints in motion in these bands. 
This type of flexible licensing approach could facilitate multiple 
types of uses in these bands, provided that an appropriate Federal 
coordination and non-Federal registration framework is in place. The 
Commission seeks comment on this proposal.
    35. In that regard, the Commission proposes to require coordination 
and registration of all air- and sea-based links/links between antennas 
in motion, and the Commission seeks comment on this proposal. Aeronet 
asserts that its links involving ground or shore stations can be 
registered using the existing coordination framework for the 70/80/90 
GHz bands, with minor modifications to the registration databases to 
represent multi-dimensional polygons and polyhedrons, as well as narrow 
beam-width antennas that operate within a wider-beamwidth cone. Aeronet 
further represents that links that do not involve a ground or shore 
station--links between aircraft, links between ships, and links between 
relay nodes and ships--do not need to be registered at all if Aeronet 
adopts reasonable limitations on its operations to manage exposures to 
Fixed Service receivers. The Commission tentatively concludes that 
coordination and registration should include not only links involving 
ground or shore stations, but also links between aircraft, links 
between ships, and links between relay nodes and ships. Requiring 
appropriate coordination and registration of all links would facilitate 
protection of Federal and non-Federal operations under the coprimary 
allocation and allow for future coordination among similar deployments, 
if additional entrants seek to offer competing services in the 70/80/90 
GHz bands. Further, appropriate coordination and registration 
requirements would potentially allow NTIA and the Commission to track 
and evaluate the construction and use of all links in the event of 
interference issues, to the extent the Commission adopts the 
construction certification requirements proposed in this NPRM. The 
Commission seeks comment on this tentative conclusion.
    36. The Commission seeks comment on how these links could be 
coordinated and registered to represent multi-dimensional areas or 
polyhedrons, which would involve a significant transformation of NTIA's 
and the Commission's current systems that coordinate and register two-
dimensional point-to-point links. For example, should the coordination 
and registration requirements for aircraft-to-aircraft links differ 
depending on the altitude of one or both of the respective aircrafts? 
How wide should the beams be represented

[[Page 40175]]

to account for the potential for aircraft or ships to vary their 
routes? Will there be any effects from allowing parties to coordinate 
and register links for wider beams than they potentially may use? 
Should the databases distinguish between registration of ``phantom'' 
widebeam antennas such as Aeronet proposes to use to represent the 
multi-dimensional coverage of ground or shore stations, and wider 
beamwidth antennas actually used to provide service, as contemplated in 
this NPRM? How should the construction requirements in Sec.  101.63(b) 
of the Commission's rules, which govern Fixed Service links on a link-
by-link basis, apply to the various elements of Aeronet's system that 
are registered or not registered? Are different construction 
requirements necessary? The Commission seeks comment on how to address 
any other technical challenges related to updating the current 
information technology systems that coordinate and register two-
dimensional links to a system that can coordinate and register three-
dimensional polyhedrons.
    37. Even if aircraft-to-aircraft or ship-to-ship links do not 
require an interference analysis of traditional Fixed Service links, 
how would coordination and registration work in the event the 70/80/90 
GHz bands are used by multiple air-based or ship-based systems? Should 
first-in-time priority be afforded to multidimensional areas, and if 
so, what effect would that have on competing uses of the bands? Is the 
existing, static third-party database system sufficient to accommodate 
links to endpoints in motion, or would a more robust coordination and 
registration mechanism be needed to accommodate services like those 
Aeronet seeks to deploy? How would coordination and registration 
mechanisms accommodate Aeronet's proposed operations, which would 
involve the transmission of signals towards known flight paths or ship 
routes according to a specified schedule? What are the additional costs 
and benefits of modifying the coordination and registration framework 
and associated systems as necessary in light of Aeronet's proposal?
    38. In light of the importance of a modified coordination and 
registration framework to the successful expansion of use of the 70 GHz 
and 80 GHz bands, the Commission proposes to require FCC review and 
approval of third-party database managers with the capability of 
accepting coordination data for air- and sea-based links/links between 
antennas in motion as a condition precedent to deployment. Currently, 
two companies (Comsearch and Micronet Communications) serve as third-
party database administrators for registering 70/80/90 GHz band links. 
When the Commission designated database administrators in 2004, it 
required administrators to monitor and implement FCC rules and policies 
(including any changes) pertaining to the 70/80/90 GHz bands. Would the 
undertakings included in the Designation Order require the current 
administrators to make any changes necessary to accommodate air- and 
sea-based links or links between antennas in motion?
    39. Further, the Commission seeks comment on how to continue to 
protect co-primary and adjacent Federal operations if the Commission 
authorize links to endpoints in motion. What changes would be needed to 
NTIA's ``green light''/``yellow light'' coordination system to 
accommodate deployment of air- or sea-based links, or links between 
antennas in motion? How would the system effectively manage 
coordination of commercial aircraft-to-aircraft and aircraft-to-ground 
links with Federal operations, including the Earth Exploration-
Satellite (passive), Space Research (passive), and Radio Astronomy 
Services?
    40. In addition, the Commission notes that certain commenters, 
while expressing support for Aeronet's proposal, assert that changes to 
the part 101 rules should be flexible enough to permit other new uses 
of the 70/80/90 GHz bands. The Commission seeks comment on whether 
changes to its 70/80/90 GHz rules, including any new definitions, 
should encompass a broader array of new services. The Commission also 
seek comment on whether any alternate licensing frameworks would be 
more effective in facilitating expanded use of these bands.
    41. Technical and Operational Rules. To facilitate provision of its 
proposed service, Aeronet requests a change in the maximum allowable 
mobile Equivalent Isotropically Radiated Power (EIRP) for 71-76 GHz and 
81-86 GHz from +55 dBW to +57 dBW. Aeronet also requests that, for 
purposes of SDDL operation, the Commission increase the maximum 
transmitter power from 3 watts (5 dBW) to 5 watts (7 dBW) and the 
maximum transmitter power spectral density from 150 mW per 100 MHz to 
500 mW per 100 MHz. Aeronet claims that its proposed services otherwise 
fit within the current rules for use of the 70/80/90 GHz bands. The 
Commission seeks comment on whether to increase the maximum allowable 
EIRP, the maximum transmit power, and the maximum power spectral 
density applicable to the 70/80/90 GHz bands. What are the potential 
costs and benefits of increasing the power limits in the 70/80/90 GHz 
bands, including to existing licensees in those bands or in adjacent 
bands? The Commission note that vehicular radars operate in the 
adjacent 76-81 GHz band and the Commission seek comment on whether 
Aeronet's proposed uses and technical rules would increase the 
potential for harmful interference to these vehicular radars. Earth 
Exploration-Satellite (passive) and Space Research (passive) services 
operate in the adjacent 86-92 GHz band. The Commission seeks comment on 
whether Aeronet's proposed uses and technical rules would increase the 
potential for harmful interference to these adjacent band vehicular 
radars and passive services, and if there is a potential for 
interference, what technical or operational mechanisms should be 
considered to mitigate it? The Commission seeks comment on whether 
changes to other technical or operational rules would be warranted to 
accommodate the deployment of links to endpoints in motion in the 70/
80/90 GHz bands. For example, would rule changes be needed to promote 
the security of communications to and from aircraft and ships in 
motion?
    42. In addition, the Commission seeks comment on whether the 
interference mitigation measures proposed by Aeronet and Comsearch 
would be sufficient to protect co-primary Federal services and, if so, 
whether they should be required by its part 101 rules. For Aeronet's 
proposed aviation system, Aeronet would employ ground stations located 
``away from urban and suburban areas where part 101 fixed service use 
of the 70/80/90 GHz bands is concentrated'' and would use a minimum 
elevation angle of five degrees at the ground stations. Comsearch 
indicates that Aeronet's ground stations may require coordination zones 
of up to 35 kilometers. Aeronet also would use aircraft-to-aircraft 
links that, according to the Comsearch Report, would pose little 
interference risk to fixed links when operating near horizontally 
because they can only intersect the main-beam of FS receivers ``at very 
low or negative elevation angles and at large distances.''
    43. For Aeronet's maritime system, the Comsearch Report proposes a 
coordination zone for ship-to-shore communications of up to 30 
kilometers to alleviate the risk of interference, and it recommends 
frequency planning to avoid ``co-channel operation.'' The Comsearch 
Report indicates that there is little risk of interference to fixed 
links from links from shore station-to-

[[Page 40176]]

aerostat, aerostat-to-shore station, aerostat-to-ship, and ship-to-ship 
links because these links would be located at least 20 kilometers out 
to sea and the antenna beamwidth for links to ships would be directed 
away from land. Comsearch asserts that shore station-to-aerostat and 
aerostat-to-shore station links could be registered as ordinary fixed 
point-to-point links because the aerostats would be tethered and move 
within +/- 135 meters laterally and -11 meters vertically. For ship-to-
ship links and aerostat-to-ship links, the Comsearch Report proposes 
mitigation measures such as a minimum offshore distance or a minimum 
off-axis angle towards land.
    44. The Commission seeks comment on whether the mitigation measures 
Comsearch advocates would be necessary or sufficient to protect fixed 
point-to-point users. The Commission also seeks comment on what 
additional interference mitigation measures, if any, would be necessary 
to protect other operations, including vehicular radars, passive 
services, and the Radio Astronomy Service. Should the Commission amend 
its part 101 rules to require such measures if SDDLs or other links to 
endpoints in motion are deployed in these bands? What restrictions or 
unique operating parameters, if any, should the Commission adopt to 
mitigate the risk of harmful interference? How far away from 
traditional fixed stations would ground stations need to be located to 
avoid interference? What degree of elevation angle would be sufficient 
to prevent interference? What mitigation measures would be effective to 
address the risk of harmful interference potentially caused by 
aircraft-to-aircraft links between aircraft operating at significantly 
different altitudes? Would other entities be able to operate similar 
systems without receiving interference from or causing interference to 
Aeronet's system? In considering these issues, the Commission seeks 
comment on what assumptions should be made about the number of airports 
and seaports where SDDLs or similar services would be deployed.
    45. Channelization Plan. The Commission seeks comment on FWCC's 
request that the Commission develops a channel plan for the 70 GHz and 
80 GHz bands. Supporters of adopting a channelization plan should 
provide a specific description of changes since the Commission 
eliminated the 1.25 gigahertz segments in 2005 that necessitate 
development of a channel plan. Is existing equipment, which has been 
deployed or is being sold, compatible with FWCC's proposal to adopt a 
channel plan? Can existing equipment be reprogrammed to conform to a 
channel plan or would major modifications or replacement be necessary? 
Would establishing a channel plan restrict the development of 
innovative equipment for the bands, as the Commission feared in 2005? 
Alternatively, does the increasing use of these bands justify FWCC's 
concerns about potential interference that may result due to the 
absence of a channel plan, particularly in light of FWCC's proposal to 
loosen antenna standards? Should the Commission, in light of these 
factors, also consider a channel plan in the 90 GHz band?
    46. Commenters should also address whether authorizing links to 
endpoints in motion requires the Commission to adopt a formal channel 
plan for the 70/80/90 GHz bands. For example, should the Commission 
limit SDDL operations to receive (uplink) operations in the 80 GHz band 
to protect Radio Astronomy Service systems?\17\ The Table of Frequency 
Allocations notes that, in the 76-86 GHz band, emissions from airborne 
stations can be particularly serious sources of interference to the 
Radio Astronomy Service. In the event the Commission adopts a 
channelization plan, should the Commission continue to apply the 
standard emission limit rules in Sec.  101.1011 (which use a formula 
for limiting OOBE at the edge of the bandwidth in use, as opposed to 
subchannels), or does the Commission need to adopt additional or 
different rules to accommodate a formal channel plan for the 70/80/90 
GHz bands or the rule changes requested by Aeronet, FWCC, and others?
---------------------------------------------------------------------------

    \17\ In the context of SDDL service, ``uplink'' means ground-to-
air, shore-to-ship, and shore-to-aerostat. Aeronet Aviation Petition 
at 28; Aeronet Maritime Petition at 26.
---------------------------------------------------------------------------

    47. If the Commission was to adopt a channel plan, then what 
channel plan should it use? Should the Commission allow for multiple 
operators to transmit or receive signals in opposite directions (i.e., 
air-to-ground versus ground-to-air) in the same spectrum? Parties 
advocating for a formal channel plan or specific designations should 
explain why a particular band (e.g., 70 GHz or 80 GHz) is more suitable 
for uplink versus downlink for the advocated-for designations. If the 
Commission adopts a channel plan, how should it take into account the 
various new uses of the bands proposed in this NPRM? Should the 
Commission revise Sec.  101.109(c) of its rules to specify a maximum 
bandwidth less than 5,000 megahertz for the 70 GHz and 80 GHz bands? 
Should the Commission increase the minimum bit rate of 0.125 bits per 
second per Hertz to, for example, 1 bit per second per Hertz? Would any 
specific channel plan and direction of service be particularly 
conducive to protecting the other co-primary services from 
interference? Should the Commission adopt a minimum loading requirement 
before a licensee will be assigned an additional channel? What other 
changes would be necessary or appropriate to accommodate a 
channelization plan? Lastly, what are the costs and benefits of 
adopting channel plans?
    48. Other Considerations. The Commission seeks comment on whether 
changes to any other part 101 service rules would be needed to 
accommodate the various service offerings and potential rule changes 
examined in this Notice of Proposed Rulemaking. For example, could 
existing microwave links, new small cell backhaul applications, and 
links to endpoints in motion coexist in the 70 GHz and 80 GHz bands? 
Would increasing maximum allowable EIRP and increasing maximum output 
power, as proposed by Aeronet, affect the ability to deploy smaller 
antennas in the 70 GHz and 80 GHz bands? Would relaxing the antenna 
standards for the 70 GHz and 80 GHz bands affect the viability of new 
and innovative proposed uses in these bands?
    49. In addition, the Commission notes that Sec.  101.1(b) describes 
the purpose of the rules in part 101 as ``prescrib[ing] the manner in 
which portions of the radio spectrum may be made available for private 
operational, common carrier, 24 GHz Service and Local Multipoint 
Distribution Service fixed, microwave operations that require 
transmitting facilities on land or in specified offshore coastal areas 
within the continental shelf.'' Similarly, Sec.  101.215 of the 
Commission's rules requires that, except for remote stations using 
certain frequencies, ``[e]ach licensee shall post at the station the 
name, address and telephone number of the custodian of the station 
license or other authorization if such license or authorization is not 
maintained at the station.'' Are revisions to these rules (or others) 
necessary or advisable to accommodate the services contemplated in this 
Notice of Proposed Rulemaking? If the Commission authorize links to 
endpoints in motion as a mobile service, what other rule changes would 
be necessary to accommodate that change?
    50. Are any other rule changes necessary to accommodate other 
potential uses of the 70/80/90 GHz bands? For example, Loon is 
developing a High-Altitude Platform Station (HAPS) service that may use 
the 70/80/90 GHz

[[Page 40177]]

bands to provide ``balloon-powered internet access to unserved and 
underserved communities.'' Similarly, Elefante seeks to use the 70 GHz 
and 80 GHz bands to provide 5G and internet-of-Things backhaul. Could 
these uses co-exist with existing co-primary uses of the band as well 
as the new uses discussed in this NPRM? Would any other rule changes 
help to promote innovative use of the 70/80/90 GHz bands?
    51. In addition, the Commission proposes that any mobile operations 
be authorized on a non-interference basis to fixed operations in Canada 
and Mexico and subject to future international agreements. The 
Commission seeks comment on the international coordination implications 
of the services proposed in this Notice of Proposed Rulemaking. Would 
the separation/coordination zones defined in the rules for terrestrial 
Fixed Service, which are based on certain characteristics for 
terrestrial operations (such as EIRP and antenna height), be sufficient 
to prevent interference to services in neighboring countries from an 
aeronautical or maritime service operating with different parameters? 
What mechanisms should be in place with regard to operation in or over 
quiet zones and/or near international borders with Canada and Mexico?
    52. The Commission notes that any systems for the provision of 
broadband that it authorize in this proceeding must not create hazards 
to air navigation, whether near airports, over water, or in any other 
area. The Commission seeks comment on any necessary rule changes to 
promote public safety. For example, should any Commission rules, such 
as those on tower lighting, apply to relay stations, including 
aerostats or drones?
    53. Wavier Petitions. Aviat Networks and CBF Networks, Inc. 
Petitions. Aviat Networks, Inc. (Aviat) and CBF Networks, Inc., d/b/a 
Fastback Networks (Fastback), each filed a request for partial waiver 
of the antenna standards for the 71-76 and 81-86 GHz bands 
(collectively, the Waiver Requests). The relief requested is consistent 
with FWCC's previously proposed changes to the Commission's antenna 
rules, and the Waiver Requests acknowledge that any relief granted 
would be subject to the outcome of any ``rulemaking proceeding 
affecting 71-76/81-86 GHz antenna standards.'' On October 13, 2015, the 
Wireless Telecommunications Bureau consolidated the Waiver Requests and 
sought comment on them. Several commenters support approval of the 
waiver petitions, while others oppose them or seek to expand their 
applicability.
    54. Generally, the Commission may waive any rule for good cause 
shown. Waiver is appropriate if special circumstances warrant a 
deviation from the general rule, such deviation will serve the public 
interest, and the waiver does not undermine validity of the general 
rule. More specifically, Sec.  1.925(b)(3) of the Commission's rules 
requires parties seeking a waiver of wireless radio services licensing 
rules to demonstrate that: (i) The underlying purpose of the rule(s) 
would not be served or would be frustrated by application to the 
instant case, and that a grant of the requested waiver would be in the 
public interest; or (ii) in view of unique or unusual factual 
circumstances of the instant case, application of the rule(s) would be 
inequitable, unduly burdensome or contrary to the public interest, or 
the applicant has no reasonable alternative.
    55. Aviat and Fastback have not met the first prong of Sec.  
1.925(b)(3) because they have not shown that the requested waivers 
would be in the public interest. Specifically, as discussed in this 
NPRM, there are multiple and complex issues to be explored before 
allowing antennas that do not satisfy the current requirements of Sec.  
101.115. The Commission, therefore, also decline suggestions to grant 
an industry-wide waiver. Moreover, Aviat and Fastback do not meet the 
second prong of Sec.  1.925(b)(3) because the record does not establish 
that waivers are justified based on special circumstances. In short, 
while the Commission agrees that FWCC's proposed changes to the antenna 
rules merit full consideration, Aviat and Fastback have not justified 
the need for individual waivers prior to the Commission developing a 
full record on the proposed rule changes. The Commission concludes that 
the public interest is best served through a thorough and deliberate 
examination of the possibility of revising antenna and other rules in 
the 70/80/90 bands through the rulemaking process rather than on an 
individual basis.

Procedural Matters

    56. Ex Parte Presentations--Permit-but-disclose. The proceedings 
shall be treated as a ``permit-but-disclose'' proceeding in accordance 
with the Commission's ex parte rules. Persons making ex parte 
presentations must file a copy of any written presentation or a 
memorandum summarizing any oral presentation within two business days 
after the presentation (unless a different deadline applicable to the 
Sunshine period applies). Persons making oral ex parte presentations 
are reminded that memoranda summarizing the presentation must (1) list 
all persons attending or otherwise participating in the meeting at 
which the ex parte presentation was made, and (2) summarize all data 
presented and arguments made during the presentation. If the 
presentation consisted in whole or in part of the presentation of data 
or arguments already reflected in the presenter's written comments, 
memoranda or other filings in the proceeding, the presenter may provide 
citations to such data or arguments in his or her prior comments, 
memoranda, or other filings (specifying the relevant page and/or 
paragraph numbers where such data or arguments can be found) in lieu of 
summarizing them in the memorandum. Documents shown or given to 
Commission staff during ex parte meetings are deemed to be written ex 
parte presentations and must be filed consistent with rule 1.1206(b). 
In proceedings governed by rule 1.49(f) or for which the Commission has 
made available a method of electronic filing, written ex parte 
presentations and memoranda summarizing oral ex parte presentations, 
and all s thereto, must be filed through the electronic comment filing 
system available for that proceeding, and must be filed in their native 
format (e.g., .doc, .xml, .ppt, searchable .pdf). Participants in this 
proceeding should familiarize themselves with the Commission's ex parte 
rules.

Initial Regulatory Flexibility Analysis

    57. As required by the Regulatory Flexibility Act of 1980, as 
amended (RFA), the Commission has prepared this Initial Regulatory 
Flexibility Analysis (IRFA) of the possible significant economic impact 
on a substantial number of small entities by the policies and rules 
proposed in the Notice of Proposed Rulemaking (NPRM). 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 
as specified in the Notice of Proposed Rulemaking. The Commission will 
send a copy of the NPRM, including this IRFA, to the Chief Counsel for 
Advocacy of the Small Business Administration (SBA). In addition, the 
NPRM and IRFA (or summaries thereof) will be published in the Federal 
Register.
    58. Need for, and Objectives of, the Proposed Rules. In the NPRM, 
the Commission explores various proposals seeking to change its part 
101 rules to permit innovative uses of the 71-76 GHz, 81-86 GHz, 92-94 
GHz, and 94.1-95 GHz bands, collectively referred to as

[[Page 40178]]

the ``70/80/90 GHz bands.'' The potential rule changes seek to 
facilitate the provision of wireless backhaul for 5G, as well as the 
deployment of broadband services to aircraft and ships, while 
protecting incumbent operations in the 70/80/90 GHz bands. Further, in 
promoting the expanded use of this millimeter-wave spectrum for a 
myriad of innovative services, the Commission seeks to take advantage 
of the highly directional signal characteristics of these bands which 
may permit the co-existence of multiple types of deployments.
    59. The 70/80/90 GHz bands are high millimeter-wave bands allocated 
for co-primary Federal and non-Federal uses in the FS, FSS (70/80 GHz 
only), Mobile (70/80/90 GHz), Radio Astronomy (80/90 GHz only) and 
Radiolocation (90 GHz only) services under part 101 of the Commission's 
Rules. Spectrum use in the 70/80/90 GHz bands is primarily concentrated 
along a few popular routes, with minimal use in large parts of the 
United States. These bands are presently used primarily for fixed 
point-to-point and satellite services via non-exclusive registered 
links in a third-party registration database. As of March 23, 2020, 
there were 658 active non-exclusive nationwide licensees in the 70/80/
90 bands. Based upon information available from the third-party 
database managers responsible for registering links in those bands, as 
of March 23, 2020, there were 18,770 registered fixed links in the 70 
GHz and 80 GHz bands. To further the Commission's goals of expanding 
access to broadband and fostering the efficient use of millimeter wave 
spectrum, the Commission proposes targeted changes to its rules to 
facilitate the provision of wireless backhaul for 5G and seek comment. 
Included in the Commission's discussion of potential rule changes and 
requests for comments in NPRM are proposed changes to its rules in the 
70/80/90 GHz bands by the Fixed Wireless Communications Coalition 
(FWCC), the 5G Wireless Backhaul Advocates and Aeronet Global 
Communications, Inc. (Aeronet).
    60. Specifically, the Commission proposes changes to the antenna 
standards applicable to the 70 GHz and 80 GHz bands and seeks comment 
on whether similar changes are necessary in the 90 GHz band. The 
Commission also proposes to continue licensing use of the 70 GHz and 80 
GHz bands on a non-exclusive, nationwide basis, to the extent the 
Commission authorizes links to endpoints in motion in these bands and 
seek comment on this proposal. The Commission further proposes to 
require registration of all air and sea-based links/links between 
antennas in motion, and the Commission seeks comment on this proposal. 
In addition, the Commission seeks comment on whether the Commission 
should make changes to its current link registration rules for the 70/
80/90 GHz bands to prevent the registration of never-constructed links. 
The Commission also proposes to authorize point-to-point links to 
endpoints in motion in the 70 GHz and 80 GHz bands and to classify 
those links as a ``mobile'' service. The Commission seeks comment on 
technical and operational rules necessary to facilitate these new 
service offerings in the 70 GHz and 80 GHz bands and mitigate 
interference to incumbents and other proposed users of these bands. 
Finally, the Commission seeks comment on whether the Commission should 
adopt a channelization plan in the 70 GHz and 80 GHz bands.
    61. By modifying the Commission's rules and implementing policies 
designed to provide for more flexible use of new technologies in the 
70/80/90 GHz band, the Commission hopes to ensure that this spectrum is 
efficiently utilized and will foster the development of new and 
innovative technologies and services, as well as encourage the growth 
and development of a wide variety of services, ultimately leading to 
greater benefits to consumers.
    62. Legal Basis. The proposed action is authorized pursuant to 
Sec. Sec.  4, 303, and 307 of the Communications Act of 1934, as 
amended, 47 U.S.C. 154, 303, 307.
    63. Description and Estimate of the Number of Small Entities to 
Which the Proposed Rules Will Apply. The RFA directs agencies to 
provide a description of and, where feasible, an estimate of the number 
of small entities that may be affected by the proposed rules, if 
adopted. The 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 SBA.
    64. Small Businesses, Small Organizations, Small Governmental 
Jurisdictions. The Commission's actions, over time, may affect small 
entities that are not easily categorized at present. The Commission 
therefore describe here, at the outset, three broad groups of small 
entities that could be directly affected herein. First, while there are 
industry specific size standards for small businesses that are used in 
the regulatory flexibility analysis, according to data from the SBA's 
Office of Advocacy, in general a small business is an independent 
business having fewer than 500 employees. These types of small 
businesses represent 99.9% of all businesses in the United States which 
translates to 30.7 million businesses.
    65. Next, the type of small entity described as a ``small 
organization'' is generally ``any not-for-profit enterprise which is 
independently owned and operated and is not dominant in its field.'' 
The Internal Revenue Service (IRS) uses a revenue benchmark of $50,000 
or less to delineate its annual electronic filing requirements for 
small exempt organizations. Nationwide, for tax year 2018, there were 
approximately 571,709 small exempt organizations in the U.S. reporting 
revenues of $50,000 or less according to the registration and tax data 
for exempt organizations available from the IRS.
    66. Finally, the small entity described as a ``small governmental 
jurisdiction'' is defined generally as ``governments of cities, 
counties, towns, townships, villages, school districts, or special 
districts, with a population of less than fifty thousand.'' U.S. Census 
Bureau data from the 2017 Census of Governments indicate that there 
were 90,056 local governmental jurisdictions consisting of general-
purpose governments and special purpose governments in the United 
States. Of this number there were 36,931 general purpose governments 
(county, municipal and town or township) with populations of less than 
50,000 and 12,040 special purpose governments--independent school 
districts with enrollment populations of less than 50,000. Accordingly, 
based on the 2017 U.S. Census of Governments data, the Commission 
estimate that at least 48,971 entities fall into the category of 
``small governmental jurisdictions.''
    67. Wireless Telecommunications Carriers (except Satellite). This 
industry comprises establishments engaged in operating and maintaining 
switching and transmission facilities to provide communications via the 
airwaves. Establishments in this industry have spectrum licenses and 
provide services using that spectrum, such as cellular services, paging 
services, wireless internet access, and wireless video services. The 
appropriate size standard under SBA rules is that such a business is 
small if it has 1,500 or fewer employees. For this industry, U.S. 
Census Bureau data for 2012 show that there were 967 firms that 
operated for the entire year. Of this total, 955 firms

[[Page 40179]]

had employment of 999 or fewer employees and 12 had employment of 1,000 
employees or more. Thus under this category and the associated size 
standard, the Commission estimates that the majority of wireless 
telecommunications carriers (except satellite) are small entities.
    68. Fixed Microwave Services. Microwave services include common 
carrier, private-operational fixed, and broadcast auxiliary radio 
services. They also include the Upper Microwave Flexible Use Service, 
the Millimeter Wave Service, Local Multipoint Distribution Service 
(LMDS), the Digital Electronic Message Service (DEMS), and the 24 GHz 
Service, where licensees can choose between common carrier and non-
common carrier status. There are approximately 66,680 common carrier 
fixed licensees, 69,360 private and public safety operational-fixed 
licensees, 20,150 broadcast auxiliary radio licensees, 411 LMDS 
licenses, 33 24 GHz DEMS licenses, 777 39 GHz licenses, and five 24 GHz 
licensees, and 467 Millimeter Wave licenses in the microwave services. 
The Commission has not yet defined a small business with respect to 
microwave services. The closest applicable SBA category is Wireless 
Telecommunications Carriers (except Satellite). The appropriate size 
standard for this category under SBA rules is that such a business is 
small if it has 1,500 or fewer employees. For this industry, U.S. 
Census Bureau data for 2012 show that there were 967 firms that 
operated for the entire year. Of this total, 955 had employment of 999 
or fewer, and 12 firms had employment of 1,000 employees or more. Thus 
under this SBA category and the associated standard, the Commission 
estimates that the majority of fixed microwave service licensees can be 
considered small.
    69. The Commission does not have data specifying the number of 
these licensees that have more than 1,500 employees, and thus is unable 
at this time to estimate with greater precision the number of fixed 
microwave service licensees that would qualify as small business 
concerns under the SBA's small business size standard. Consequently, 
the Commission estimates that there are up to 36,708 common carrier 
fixed licensees and up to 59,291 private operational-fixed licensees 
and broadcast auxiliary radio licensees in the microwave services that 
may be small and may be affected by the rules and policies adopted 
herein. The Commission note, however, that the microwave fixed licensee 
category includes some large entities.
    70. Satellite Telecommunications. This category comprises firms 
``primarily engaged in providing telecommunications services to other 
establishments in the telecommunications and broadcasting industries by 
forwarding and receiving communications signals via a system of 
satellites or reselling satellite telecommunications.'' Satellite 
telecommunications service providers include satellite and earth 
station operators. The category has a small business size standard of 
$35 million or less in average annual receipts, under SBA rules. For 
this category, U.S. Census Bureau data for 2012 show that there was a 
total of 333 firms that operated for the entire year. Of this total, 
299 firms had annual receipts of less than $25 million. Consequently, 
the Commission estimate that the majority of satellite 
telecommunications providers are small entities.
    71. All Other Telecommunications. The ``All Other 
Telecommunications'' category is comprised of establishments primarily 
engaged in providing specialized telecommunications services, such as 
satellite tracking, communications telemetry, and radar station 
operation. This industry also includes establishments primarily engaged 
in providing satellite terminal stations and associated facilities 
connected with one or more terrestrial systems and capable of 
transmitting telecommunications to, and receiving telecommunications 
from, satellite systems. Establishments providing internet services or 
voice over internet protocol (VoIP) services via client-supplied 
telecommunications connections are also included in this industry.'' 
The SBA has developed a small business size standard for ``All Other 
Telecommunications,'' which consists of all such firms with gross 
annual receipts of $35 million or less. For this category, U.S. Census 
Bureau data for 2012 show that there was a total of 1,442 firms that 
operated for the entire year. Of these firms, a total of 1400 firms had 
gross annual receipts of under $25 million and 42 firms had gross 
annual receipts of $25 million to $49, 999,999. Thus, the Commission 
estimates that a majority of ``All Other Telecommunications'' firms 
potentially affected by its actions can be considered small.
    71. Radio and Television Broadcasting and Wireless Communications 
Equipment Manufacturing. This industry comprises establishments 
primarily engaged in manufacturing radio and television broadcast and 
wireless communications equipment. Examples of products made by these 
establishments are: Transmitting and receiving antennas, cable 
television equipment, GPS equipment, pagers, cellular phones, mobile 
communications equipment, and radio and television studio and 
broadcasting equipment.'' The SBA has established a size standard for 
this industry of 1,250 employees or less. U.S. Census Bureau data for 
2012 show that 841 establishments operated in this industry in that 
year. Of that number, 828 establishments operated with fewer than 1,000 
employees, 7 establishments operated with between 1,000 and 2,499 
employees and 6 establishments operated with 2,500 or more employees. 
Based on this data, the Commission conclude that a majority of 
manufacturers in this industry is small.
    72. Description of Projected Reporting, Recordkeeping, and Other 
Compliance Requirements. The Commission expect the rule proposals in 
the NPRM may impose new or additional reporting or recordkeeping and/or 
other compliance obligations on small entities as well as on other 
licensees and applicants if adopted. In particular, proposed 
requirements involving licensing, registration, and construction 
certification could increase recordkeeping and reporting obligations 
for small entities and for other licensees and applicants. There may 
also be new compliance obligations created by antenna standard changes, 
and changes to part 101 technical and/or operational rules in order to 
accommodate proposed new service offerings and other potential uses of 
the 70/80/90 GHz bands. The Commission believes at this time that 
applying the rules equally to all entities would promote fairness.
    73. In the NPRM, the Commission is considering adopting rules with 
the goal of preventing one party from filing a bevy of coordination 
requests, choking-off the band from competitors. The Commission propose 
requiring registrants in the 70/80/90 GHz bands to file such 
certificates of construction, through either ULS or a third party, when 
a link has been placed into operation. As it currently stands, failure 
to timely begin operations pursuant to part 101 authorization results 
in the authorization cancelling automatically, however, the Commission 
has no way of knowing whether operation has begun without a requirement 
to file a construction certificate. The NPRM seeks comment on whether 
the Commission should also require licensees to list registrations 
under their licenses that are beyond their construction deadlines as 
part of their renewal applications, and--for each registration--either 
certify the link's construction and use or to identify the link for 
removal from the third-party

[[Page 40180]]

databases. While filing such construction certificates or requiring the 
listing of registrations with missed construction deadlines with third-
party database administrators may appear to increase the paperwork 
burden on all affected entities, strict construction requirements may 
actually reduce the overall number of filings to only those that 
entities would actually build.
    74. The record in this proceeding contains assertions that the 
innovative aeronautical and maritime services proposed by Aeronet have 
lower interference potential and therefore could avoid the need to 
engage in the proposed registration process described above. If this 
becomes the Commission's approach, it would lower the recordkeeping 
burden on small entities and other licensees. However, to the extent 
such links would also be coordinated though the current registration 
system, the recordkeeping burden associated with such new services 
would presumably remain the same as the burden on legacy systems in the 
70/80/90 GHz bands. There are various methods of interference 
mitigation that could be applicable to the newly proposed services, 
such as the use of coordination zones or frequency planning which may 
also place a greater recordkeeping burden on licensees operating these 
services. However, if new services are able to operate without causing 
interference to competitors' systems, and existing mitigation 
techniques remain effective, then related compliance costs may not 
increase. In the NPRM, the Commission seeks comment on the various 
proposals and considerations.
    75. When the Commission first reduced the minimum antenna standard, 
the Commission did so as a matter of public policy to expand potential 
use in the bands to more business locations. In the past, the cost of 
the 70 GHz and 80 GHz antennas were specifically noted as major factors 
limiting deployment in the 70/80/90 GHz band. As mentioned in the NPRM, 
the antennas mandated in the 70/80/90 GHz bands can cost up to eight 
times as much as smaller antennas. The FWCC's proposal to permit even 
smaller antenna designs, could result in more small entities using the 
band. To the extent such new antenna standards would increase 
interference between antennas, it is also possible that higher levels 
of coordination and hence recordkeeping would be essential. However, 
the Commission does not believe that the costs and/or administrative 
burdens associated with these rules would unduly burden small entities 
or other licensees. In the NPRM, the Commission seeks comment on these 
proposals and considerations.
    76. The NPRM notes that certain part 101 rules need modification, 
such as the requirement ``[e]ach licensee shall post at the station the 
name, address and telephone number of the custodian of the station 
license or other authorization if such license or authorization is not 
maintained at the station.'' The Commission asks commenters how to 
apply this rule (if at all), to stations on-board aircraft or ships or 
HAPS. In the absence of any modifications, this rule would create a 
recordkeeping obligation for operators of newly proposed services.
    77. At this time, Commission is not currently in a position to 
determine whether, if adopted, the proposed rules and associated 
requirements raised in the NPRM would require small entities to hire 
attorneys, engineers, consultants, or other professionals and cannot 
quantify the cost of compliance with the potential rule changes and 
compliance obligations raised herein. In the Commission's discussion of 
these proposals in the NPRM, the Commission have sought comments from 
the parties in the proceeding, and requested cost and benefit analyses, 
which may help the Commission identify and evaluate relevant matters 
for small entities, including any compliance costs and burdens that may 
result in the proceeding.
    78. Steps Taken to Minimize the Significant Economic Impact on 
Small Entities, and Significant Alternatives Considered. The RFA 
requires an agency to describe any significant, specifically small 
business, alternatives for small businesses that it has considered in 
reaching its proposed approach, which may include the following four 
alternatives (among others): (1) The establishment of differing 
compliance or reporting requirements or timetables that take into 
account the resources available to small entities; (2) the 
clarification, consolidation, or simplification of compliance and 
reporting requirements under the rule for such 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 such small 
entities.
    79. To assist with the Commission's evaluation of the economic 
impact on small entities, and to better evaluate options and 
alternatives should there be a significant economic impact on small 
entities as a result of the proposals in this NPRM, the Commission has 
sought comment from the parties. The proposals in this proceeding for 
expanded use in the 70/80/90 bands are predicted on Aeronet's petitions 
for rulemaking to permit the use of SDDLs to enable the provision of 
broadband service to aircraft or ships in motion. However, alternative 
uses for the band were raised by commenters on the Aeronet petitions. 
Sierra Nevada seeks to use the 90 GHz band for Enhanced Flight Vision 
Systems to allow aircraft to land in low-visibility conditions. 
Elefante seeks to use the 70 GHz and 80 GHz bands for feeder links in 
its proposed Stratospheric-Based Communications Service. Loon intends 
to use a network of balloons at heights of about 20 kilometers to 
provide internet access unserved and underserved communities. Moog 
intends to use spectrum in the 90 GHz band for its proposed Foreign 
Object Debris Detection System to help airplanes avoid hazards on 
runways. Additionally, as mentioned above, FWCC proposes several 
changes to the Commission's part 101 rules governing the 71-76 GHz and 
81-86 GHz bands. To facilitate further consideration of the various use 
proposals, in the NPRM the Commission seeks comments on how to weigh 
public interest considerations associated with allowing, prohibiting 
and prioritization of uses and on the costs and benefits of allowing 
new uses of the 70/80/90 GHz bands for communications to points in 
motion. The Commission also seeks comment on whether changes to the 70/
80/90 GHz licensing framework would be necessary to accommodate the 
operation of links to endpoints in motion under part 101.
    80. In light of FWCC's proposed changes to the 70 GHz and 80 GHz 
antenna standards, the Commission seeks comments and alternatives for 
changing the antenna standards in 70/80/90 GHz bands. The Commission 
believe that reducing the minimum antenna size will facilitate access 
to spectrum by a wide variety of small entities at a cost that is 
substantially less than the antennas currently mandated for the 70/80/
90 GHz bands. The Commission seeks detailed quantitative data on the 
benefits and costs of relaxing antenna standards for the 70/80 GHz 
bands which may allow the Commission to analyze the impact on small 
entities. This includes any cost savings from the changes and any cost 
increases that may result from increased interference. In the NPRM, 
Commission queries whether to require 70 GHz and 80 GHz band 
registrants to file a certification of construction when a link has 
been placed into operation in response to FWCC's proposed changes to 
the Commission's rules for link registration in the 70/80 GHz bands and

[[Page 40181]]

seeks comments on these matters. The Commission also queries what 
penalties should be imposed for failure to comply with a certification 
requirement, if adopted, and whether license forfeitures or other 
penalties should be imposed for failure to timely begin operations and 
seeks comments.
    81. The Commission expects to more fully consider the economic 
impact and alternatives for small entities following the review of 
comments and costs and benefits analyses filed in response to the NPRM. 
The Commission's evaluation of this information will shape the final 
alternatives it considers, the final conclusions it reaches, and any 
final actions it ultimately takes in this proceeding to minimize any 
significant economic impact that may occur on small entities.
    82. Federal Rules that May Duplicate, Overlap, or Conflict with the 
Proposed Rules. None.
    83. Initial Paperwork Reduction Act of 1995 Analysis. This Notice 
of Proposed Rulemaking may contain new or modified information 
collection(s) subject to the Paperwork Reduction Act of 1995. If the 
Commission adopts any new or modified information collection 
requirements, it will be submitted to the Office of Management and 
Budget (OMB) for review under section 3507(d) of the PRA. OMB, the 
general public, and other federal agencies are invited to comment on 
the new or modified information collection requirements contained in 
this proceeding. In addition, pursuant to the Small Business Paperwork 
Relief Act of 2002, the Commission seeks specific comments on how the 
Commission might ``further reduce the information collection burden for 
small business concerns with fewer than 25 employees.''

Ordering Clauses

    84. Accordingly, it is ordered that, pursuant to sections 4(i) and 
(j), 303, and 307 of the Communications Act of 1934, as amended, 47 
U.S.C. 154(i), (j), 303, 307, and 47 CFR 1.407, the petitions for 
rulemaking filed by Aeronet, RM-11824 and RM-11825, are granted as 
discussed herein, and this Notice of Proposed Rulemaking in WT Docket 
No. 20-133 is adopted.
    85. It is further ordered that the Commission's Consumer and 
Governmental Affairs Bureau, Reference Information Center, shall send a 
copy of the Notice of Proposed Rulemaking, including the Initial 
Regulatory Flexibility Analysis, to the Chief Counsel for Advocacy of 
the Small Business Administration (SBA).
    86. It is further ordered, pursuant to sections 4(i) -(j) of the 
Communications Act of 1934, 47 U.S.C. 154(i), (j), and Sec.  1.925 of 
the Commission's rules, that the Request for Waiver of Aviat Networks, 
Inc. filed on April 5, 2013, as amended on March 24, 2014; and on 
November 10, 2014 (to add Radio Frequency Systems as a party), and the 
Request for Waiver of CBF Networks, Inc. d/b/a Fastback Networks, filed 
on June 19, 2015, are denied. If no petitions for reconsideration are 
timely filed, WT Docket No. 15-244 is terminated, and its docket shall 
be closed.

Federal Communications Commission.
Marlene Dortch,
Secretary.
[FR Doc. 2020-14064 Filed 7-2-20; 8:45 am]
BILLING CODE 6712-01-P