95-17302. Examination of Exclusivity and Frequency Assignment Policies of the Private Land Mobile Radio Services  

  • [Federal Register Volume 60, Number 138 (Wednesday, July 19, 1995)]
    [Proposed Rules]
    [Pages 37148-37151]
    From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
    [FR Doc No: 95-17302]
    
    
    
    
    [[Page 37147]]
    
    _______________________________________________________________________
    
    Part II
    
    
    
    
    
    Federal Communications Commission
    
    
    
    
    
    _______________________________________________________________________
    
    
    
    47 CFR Part 90
    
    
    
    Private Land Mobile Radio Services; Proposed and Final Rules
    
    Federal Register / Vol. 60, No. 138 / Wednesday, July 19, 1995 / 
    Proposed Rules 
    
    [[Page 37148]]
    
    
    FEDERAL COMMUNICATIONS COMMISSION
    
    47 CFR Part 90
    
    [PR Docket No. 92-235, FCC 95-255]
    
    
    Examination of Exclusivity and Frequency Assignment Policies of 
    the Private Land Mobile Radio Services
    
    AGENCY: Federal Communications Commission.
    
    ACTION: Proposed rule.
    
    -----------------------------------------------------------------------
    
    SUMMARY: The Commission has adopted a Further Notice of Proposed Rule 
    Making which seeks to introduce market forces into the Private Land 
    Mobile Radio (PLMR) bands. This Further Notice of Proposed Rule Making 
    proposes three options to introduce market forces into these bands: 
    exclusivity, user fees, and competitive bidding. The Commission seeks 
    comment on each of these options and believes that the information 
    gathered will assist in developing and implementing an overall strategy 
    on how to promote greater efficiency in these bands.
    
    DATES: Comments must be filed on or before September 15, 1995, and 
    reply comments must be filed on or before October 16, 1995.
    
    ADDRESSES: Federal Communications Commission, 1919 M Street NW., 
    Washington, DC 20554.
    
    FOR FURTHER INFORMATION CONTACT: Ira Keltz of the Wireless 
    Telecommunications Bureau at (202) 418-0680.
    
    SUPPLEMENTARY INFORMATION: This is a summary of the Commission's 
    Further Notice of Proposed Rule Making, PR Docket No. 92-235, FCC 95-
    255, adopted June 15, 1995, and released June 23, 1995. The full text 
    of this Further Notice of Proposed Rule Making is available for 
    inspection and copying during normal business hours in the FCC 
    Reference Center (Room 239), 1919 M Street NW., Washington, DC. The 
    complete text may be purchased from the Commission's copy contractor, 
    International Transcription Services, Inc., 2100 M Street NW., 
    Washington, DC 20037, telephone (202) 857-3800.
    
    Summary of Notice of Proposed Rule Making
    
        1. The Commission initiated the instant proceeding to explore 
    methods to promote more efficient and effective use of the PLMR bands 
    below 800 MHz. This action stems from the Commission's Notice of 
    Proposed Rule Making (56 FR 31097, July 9, 1991) and Notice of Inquiry 
    (57 FR 54034, November 16, 1992) in PR Docket 92-235 which sought 
    public comment regarding ways to promote more efficient use of the PLMR 
    bands below 800 MHz. The Commission does not believe that the current 
    shared regulatory environment contains the proper incentives to 
    encourage efficient spectrum usage. Introducing market-based incentives 
    into these bands will help to encourage more efficient spectrum use 
    while allowing users to make the equipment choices which best address 
    their needs by attaching an economic cost to inefficient use of the 
    spectrum and promoting the use of more efficient technologies. The user 
    community will ultimately benefit from more efficient use of spectrum 
    through the availability of more channels and better quality service.
        2. The spectrum in the PLMR bands historically has been available 
    on a shared use basis. The environment that has emerged is 
    characterized by unlimited sharing of the spectrum by over 500,000 
    licensees with over 12 million transmitters. Because of the significant 
    and varied spectrum use, the PLMR bands have become highly congested 
    and there is a substantial risk that service in these bands will 
    deteriorate to unacceptable levels. Unfortunately, in this shared use 
    environment, PLMR users generally have little incentive to economize on 
    spectrum use because users do not pay for their spectrum, cannot 
    realize the benefit of more efficient use, and generally share their 
    frequency assignments with a number of other users. Shared use of 
    spectrum also precludes the use of spectrum efficient technologies, 
    such as trunking and time division multiple access (TDMA) because they 
    generally require centralized channel control.
        3. This Further Notice of Proposed Rule Making proposes three 
    options to introduce market forces into these bands: exclusivity, user 
    fees, and competitive bidding. The Commission seeks comment on each of 
    these options and believes that the information gathered will assist in 
    developing and implementing an overall strategy on how to promote 
    greater efficiency in these bands.
        4. First, the Commission proposes the introduction of exclusivity 
    on channels in the PLMR bands, and to explicitly permit the leasing of 
    excess capacity on these exclusive channels. The Commission believes 
    that offering users the option of exclusivity with the right to resell 
    excess capacity if they agree to convert to narrowband technology by a 
    specified date will promote the use of more efficient technologies. In 
    addition, affording users the opportunity to obtain exclusivity will 
    enable them to benefit directly from the increased capacity which 
    results from their conversion to more efficient technologies, thus 
    encouraging more rapid transition to narrowband technology. In this 
    regard, users will be more likely to install trunked systems if they 
    are certain that additional users, who might interfere with their 
    trunked systems, would not be licensed on their channel. The 
    Commission's experience with the spectrum above 800 MHz supports this 
    theory. The introduction of exclusivity into the 800 MHz bands 
    facilitated and encouraged the use of more spectrum efficient 
    technologies and equipment. We seek here to provide users of the PLMR 
    bands with that same flexibility to use the most advanced and efficient 
    technology available.
        5. Regarding the lease of excess capacity, in order to promote more 
    flexible use of the spectrum, the Commission proposes to allow 
    licensees who choose the exclusivity option to lease excess capacity to 
    any party without restriction. The Commission seeks comment on whether 
    such leasing arrangements should be limited to PLMR eligibles in order 
    to ensure that sufficient spectrum is available to satisfy the needs of 
    the PLMR community. Additionally, the Commission seeks comment on 
    whether these proposals will affect whether traditional PLMR users, who 
    seek to lease excess capacity, are considered commercial mobile radio 
    service (CMRS) providers. The Commission tentatively concludes that 
    licensees who lease excess capacity will have the aspect of their 
    operations regulated as CMRS. The Commission seeks comment on this 
    tentative conclusion.
        6. Second, the Commission seeks comment on how a system of user 
    fees can be used in these bands to encourage licensees to make the most 
    efficient and effective use of the spectrum. Under this approach, users 
    would pay a fee based on the estimated value of the spectrum. The 
    spectrum fee would be calculated based on the area and population 
    covered, and the amount of spectrum used. This type of a user fee 
    structure would attach an economic cost to inefficient spectrum use, 
    thereby motivating users to increase their efficient use of the 
    spectrum. Although the Commission does not currently have statutory 
    authority to impose such a fee structure, this option may be the most 
    effective way to encourage efficiency in the PLMR bands while 
    recognizing the varying needs of the incumbent users. The Commission 
    believes that seeking further comment on the imposition of 
    
    [[Page 37149]]
    user fees at this time will enable the Commission to consider how such 
    fees can best be implemented in the PLMR bands, so that if fee 
    authority is granted, the Commission will be able to act quickly to 
    implement such authority.
        7. Third, the Commission seeks comment on introducing competitive 
    bidding into the PLMR bands as an alternative to user fees. 
    Specifically, the Commission seeks comment on a proposal to create 
    geographic overlay licenses and use competitive bidding as the 
    assignment mechanism for these overlay licenses. Competitive bidding of 
    overlay licenses could promote efficiency by allowing the marketplace 
    to determine the value of spectrum and by awarding licenses to those 
    who value them most highly, thus ensuring that spectrum will be put to 
    its highest value use. As with exclusivity, competitive bidding of 
    overlay licenses attaches a cost to inefficient spectrum use. The 
    Commission's current auction authority does not permit the use of 
    competitive bidding to assign private licenses because these licenses 
    are not mutually exclusive and the principal use of the spectrum does 
    not involve the provision of service to subscribers for a fee. However, 
    expanded auction authority which could include private wireless users 
    is proposed by the Administration and the U.S. Senate. Accordingly, the 
    Commission believes that it is appropriate at this time to seek comment 
    on how auctions could best be implemented for PLMR licenses, if such 
    authority is granted.
        8. Additionally, the Commission tentatively concludes that public 
    safety users should be exempt from market-based incentives. Public 
    safety users are charged with the protection of life and property, and 
    the Commission is committed to ensuring that such users have access to 
    spectrum to perform their critical function. We seek comment on 
    exempting public safety users from spectrum fees and competitive 
    bidding, or developing a reduced fee structure and a protected auction 
    environment for these users.
        9. The proposed rules are set forth at the end of this document.
        10. FURTHER INITIAL REGULATORY FLEXIBILITY ANALYSIS
    
    Reason for Action
    
        This rule making proceeding was initiated to secure comment on 
    proposals for establishing shared exclusive assignments arrangements in 
    the PLMR bands which will grant licensees flexibility to voluntarily 
    adopt new technology and thereby achieve more efficient use of 
    spectrum. We also propose to permit licensees who convert to narrowband 
    technology to sell or lease excess capacity to PMRS eligibles as a 
    means of enhancing the competitive potential of the PLMR services in 
    the marketplace. The proposals advanced in the Further Notice of 
    Proposed Rule Making are also designed to respond to the increasing 
    need for spectrum and considerable changes in the mobile communications 
    landscape.
    
    Objectives
    
        The Commission proposes changes to its rules for the PLMR services 
    for use of spectrum in a manner that yields the greatest potential 
    benefit to the public. Specifically, the exclusivity proposal will 
    promote more efficient use of spectrum by encouraging licensees 
    participating in exclusive sharing agreements to convert to innovative 
    narrowband technology in an expeditious manner. Further, the proposal 
    relating to the sale or lease of excess capacity will provide for the 
    enhancement of the PLMR services by allowing marketplace mechanisms to 
    intervene to give insight into the value of the PLMR bands to private 
    eligibles. These new proposals will result in improving the quality of 
    service, increasing the level of technology, and fostering economic 
    growth in the private land mobile environment.
    
    Legal Basis
    
        The legal basis for these rule changes if found in Section 4(i), 
    303(g), 303(r), 332(a), 332(c), and 332(d) of the Communications Act of 
    1934, as amended, 47 U.S.C. Secs. 303(g), 303(r), 332(a), 332(c), and 
    332(d), as amended.
    
    Reporting, Recordkeeping, and Other Compliance Requirements
    
        Under the proposal for shared exclusivity agreements in the Further 
    Notice of Proposed Rule Making, existing licensees will be required to 
    report information regarding its plans for implementation of narrowband 
    systems within 5 year guidelines after entering the exclusivity 
    arrangement. These reports will serve as a benchmark for the Commission 
    to measure the progress of licensees in fulfilling their plans to 
    determine whether a specific exclusivity agreement should be rescinded.
    Federal Rules Which Overlap, Duplicate or Conflict With These Rules
    
        None.
    
    Description, Potential Impact, and Number of Small Entities Involved
    
        The Further Notice of Proposed Rule Making potentially affects 
    numerous small entities, as the private land mobile services is 
    comprised of millions of small business entities operating in urban and 
    rural areas across the United States. The shared exclusivity and the 
    sale or lease of excess capacity proposals are options available for 
    small business licensees, as well as all other entities utilizing the 
    private land mobile service. Many small entities could be positively 
    affected by the proposals because they provide for new exclusive 
    communications assignments that will foster new technologies and 
    promote the competitive potential of the PLMR spectrum. The full extent 
    of the impact on small entities cannot be predicted until various 
    issues raised in the proceeding have been resolved. After evaluating 
    the comments filed in response to the Further Notice, the Commission 
    will examine further the impact of all final rules in this proceeding 
    on small entities and set forth its findings in the Final Regulatory 
    Flexibility Analysis.
    
    Any Significant Alternatives Minimizing the Impact on Small Entities 
    Consistent With the Stated Objectives
    
        This Further Notice of Proposed Rule Making solicits comments on a 
    variety of alternatives. Any additional significant alternatives 
    presented in the comments will also be considered.
    
    List of Subjects in 47 CFR Part 90
    
        Communications equipment, Radio.
    
    Federal Communications Commission.
    William F. Caton,
    Acting Secretary.
    
        Part 90 of Chapter I of Title 47 of the Code of Federal Regulations 
    is proposed to be amended as follows:
    
    PART 90--PRIVATE LAND MOBILE RADIO SERVICES
    
        1. The authority citation for Part 90 continues to read as follows:
    
        Authority: Sections 4, 302, 303, and 332, 48 Stat. 1066, 1082, 
    as amended; 47 U.S.C. 154, 302, 303, and 332, unless otherwise 
    noted.
    
        2. Section 90.175 is amended by revising paragraph (a) to read as 
    follows:
    
    
    Sec. 90.175  Frequency coordination requirements.
    
    * * * * *
        (a) For frequencies between 25 and 470 MHz: A statement from the 
    applicable frequency coordinator recommending the most appropriate 
    frequency. The coordinator's recommendation may include comments on 
    technical factors such as power, antenna height and gain, terrain and 
    other factors which may serve to 
    
    [[Page 37150]]
    minimize potential interference. Tables 1 and 2 in Sec. 90.193 must be 
    used by coordinators to determine co-channel station distance 
    separations between stations participating in a negotiated exclusivity 
    agreement and those stations that are not participating in a negotiated 
    exclusivity agreement. Frequencies in the 450-470 MHz band, when used 
    for secondary fixed operations, shall be assigned and coordinated 
    pursuant to Sec. 90.261.
    * * * * *
        3. Section 90.189 is added to read as follows:
    
    
    Sec. 90.189  Shared Exclusivity--150-170, 421-430, and 450-470 MHz 
    Bands.
    
        To promote spectrally efficient technologies (e.g. trunking, TDMA, 
    etc.) and to increase quality of service for licensees, assignments may 
    be limited on certain frequencies in a specific geographic area as set 
    out in Secs. 90.190-90.193.
        4. Section 90.190 is added to read as follows:
    
    
    Sec. 90.190  User agreements.
    
        Co-channel licensees, operating in the same geographical area can, 
    by mutual agreement, develop sharing arrangements on their currently 
    licensed frequency or frequencies that would facilitate their use of 
    advanced technology. The following guidelines will apply to the 
    development of these sharing agreements:
        (a) This agreement must be unanimous among all licensees on a given 
    frequency or frequencies within the composite service area, 
    irrespective of the radio service to which each user belongs. Any 
    license application forwarded from a frequency coordinator to the 
    Commission, prior to the date that the coordinator is notified, in 
    writing, of a licensee action to negotiate an agreement will be 
    considered, for the purposes of the agreement, an existing licensee and 
    must be included in the agreement.
        (b) All agreements must be finalized by August 31, 2000. Each 
    participant of the plan must agree to utilize equipment designed to 
    operate single mode with a maximum channel bandwidth of 6.25 kHz or 
    equipment designed to operate single mode with a channel bandwidth of 
    12.5 kHz provided that it meets the efficiency standard of one 
    communication channel per 6.25 kHz within 5 years after an agreement is 
    finalized.
        (c) A 90 day temporary freeze on the assignment of new licensees on 
    a given frequency or frequencies will be made when a licensee, who 
    desires to negotiate with other co-channel users to enter a sharing 
    agreement, notifies all frequency coordinators who have cognizance of 
    that frequency. This notification must be in writing and include:
        (1) The frequency or frequencies under consideration; and
        (2) A description of all co-channel licensees who must be a party 
    to the agreement. This description will include: a list of all affected 
    co-channel licensees, their base station locations (latitude and 
    longitude), their current service areas, and their exclusivity service 
    area. The exclusivity service area for each licensee will be defined as 
    a point radius centered on their base station. The maximum radius 
    defining the size of the exclusivity service area will consistant with 
    the specifications of Sec. 90.205.
        (d) During the temporary freeze on new licenses in the exclusivity 
    service area, no new licenses will be granted without the consent of 
    all existing users within this area. Co-channel licenses will be 
    granted outside of the exclusivity service area at minimum distances as 
    determined by the tables of Sec. 90.193. Existing licensees who are 
    located outside of the composite service area and closer than the 
    minimum distance to this area as specified by the tables of Sec. 90.193 
    may continue to operate on a co-primary basis with all licensees inside 
    the composite service area.
        (e) If at the completion of the 90 day period, a unanimous 
    agreement is not reached among all licensees, the freeze on new 
    authorizations on the frequency or frequencies within this area will be 
    lifted. No licensee who is located within the exclusivity service area 
    may file a new notification to temporarily freeze this frequency or 
    frequencies in this area for a minimum of one calendar year from the 
    date the temporary freeze expires. All parties are still free to 
    negotiate an agreement, but must include any new licensees who are 
    located within the composite service area.
        (f) If prior to or at the completion of the 90 day period, a 
    unanimous agreement is reached among all licensees, the freeze on new 
    authorizations on this frequency or frequencies in this composite 
    service area will be made permanent. No new licenses will be granted on 
    this frequency or frequencies in the exclusivity service area without 
    the consent of participants in the agreement, but systems subject to 
    the agreement can be modified, expanded, or renewed. Existing licensees 
    who are located outside of the exclusivity service area and closer than 
    the minimum distance to this area as specified by the tables of 
    Sec. 90.193 may continue to operate on a co-primary basis with all 
    licensees inside the exclusivity service area.
        (1) The final agreement will be filed with all cognizant frequency 
    coordinators. This agreement will include:
        (i) The frequency or frequencies which are covered under the 
    agreement;
        (ii) Signatures of all parties to the agreement;
        (iii) A description of all co-channel licensees who must be a party 
    to the agreement. This description will include: a list of all affected 
    co-channel licensees, their base station locations (latitude and 
    longitude), their current service areas, and their exclusivity service 
    area; and
        (iv) A plan for complying with the requirement to employ narrowband 
    technology within five (5) years from the agreement date.
        (2) The coordinator must make this agreement available to the 
    public upon request.
        (3) New co-channel licenses will not be granted closer to the 
    composite service area than the minimum distances determined by the 
    tables in Sec. 90.193.
        (4) If a licensee expands a system after an agreement is negotiated 
    and filed with the cognizant frequency coordinators, then any portion 
    of the expanded service area which falls outside of the composite 
    service area of the agreement, will not be afforded the protection of 
    the tables in Sec. 90.193 from co-channel licensees, unless a new 
    agreement which includes the expanded area is negotiated.
        5. Section 90.191 is added to read as follows:
    
    
    Sec. 90.191  Sell or lease of excess capacity.
    
        Licensees who participate in a sharing plan and have fully 
    converted their systems to narrowband or equivelent operation may lease 
    excess capacity of their systems.
        6. Section 90.193 is added to read as follows:
    
    
    Sec. 90.193  Shared exclusivity separation distances.
    
        The minimum distance between an existing base station that is 
    included in a negotiated exclusivity agreement and a proposed co-
    channel station not included in the agreement will be determined from 
    tables 1 and 2.
    
                                                                            
    
    [[Page 37151]]
          Table 1.--150-174 MHz--Minimum Distance (km) Between Existing Base Stations and Proposed Stations \1\     
    ----------------------------------------------------------------------------------------------------------------
                                                       Existing station service area radius (km) \2\                
       Proposed service area (km)    -------------------------------------------------------------------------------
                                         3       8      13      16      24      32      40    48 \3\  64 \3\  80 \3\
    ----------------------------------------------------------------------------------------------------------------
    3...............................      16      27      45      60      84      90     100     111     138     162
    8...............................      27      32      50      64      88      95     105     118     143     164
    13..............................      45      50      55      69      93     100     110     122     148     169
    16..............................      60      64      69      70      97     103     113     130     151     172
    24..............................      84      88      93      97     105     111     121     134     160     180
    32..............................      90      95     100     103     111     119     129     142     167     188
    40..............................     100     105     110     113     121     129     140     150     176     196
    48 \3\..........................     111     118     122     126     134     142     150     158     184     204
    64 \3\..........................     138     143     148     151     160     167     176     184     194     220
    80 \3\..........................     162     164     169     172     180     188     196     204     220    237 
    ----------------------------------------------------------------------------------------------------------------
    \1\ Distances are based upon 37 dBu desired and 19 dBu undesired signal strengths and are derived from FCC      
      Report R-6602, Figs. 19 and 20 (See Sec.  73.699 of this chapter, Figs. 10 and 10a)                           
    \2\ For those stations licensed before August 1, 1996, whose authorizations do not include a service area radius
      or area of operation, the service areas will be determined from table 1 using the station's authorized        
      transmitter power increased by 3 dB or its actual ERP when given, and the antenna height above sea level in   
      lieu of HAAT, or the HAAT if given.                                                                           
    \3\ Permitted only for base stations located 200 km (125 mi) or more from the center of markets 1-60 as listed  
      in Sec.  90.741. Applicants for such systems must demonstrate that the signal strength at the edge of their   
      service area does not exceed 37 dBu.                                                                          
    
    
    
        Table 2.--421-430, 450-470 MHz--Minimum Distance Between Existing Base Stations and Proposed Stations \1\   
    ----------------------------------------------------------------------------------------------------------------
                                                       Existing station service area radius (km) \2\                
       Proposed service area (km)    -------------------------------------------------------------------------------
                                         3       8      13      16      24      32      240     248     264     >64 
    ------------------------------------------------------------------------------------\3\-----\3\-----\3\-----\3\-
    3...............................      16      27      43      55      68      80      97     111     155     180
    8...............................      27      32      48      60      72      85     101     118     159     185
    13..............................      43      48      53      64      77      90     106     122     164     190
    16..............................      55      60      64      68      80      93     109     126     167     194
    24..............................      68      72      77      80      89     101     118     134     175     201
    32..............................      80      85      90      93     101     109     126     142     184     209
    40 \3\..........................      97     101     106     109     118     126     134     150     192     217
    48 \3\..........................     111     118     122     126     134     142     150     158     200     225
    64 \3\..........................     155     159     164     167     175     184     192     200     216     242
    >64 \3\.........................     180     185     190     193     201     209     217     225     241    253 
    ----------------------------------------------------------------------------------------------------------------
    \1\ Distances are based upon 37 dBu desired and 19 dBu undesired signal strengths and are derived from FCC      
      Report R-6602, Figs. 19 and 20 (See Sec.  73.699 of this chapter, Figs. 10 and 10a).                          
    \2\ For those stations licensed before August 1, 1996, whose authorizations do not include a service area radius
      or area of operation, the service areas will be determined from table 1 using the station's authorized        
      transmitter power increased by 3 dB or its actual ERP when given, and the antenna height above sea level in   
      lieu of HAAT, or the HAAT if given.                                                                           
    \3\ Permitted only for base stations located 200 km (125 mi) or more from the center of markets 1-60 as listed  
      in Sec.  90.741. Applicants for such systems must demonstrate that the signal strength at the edge of their   
      service area does not exceed 37 dBu.                                                                          
    
    [FR Doc. 95-17302 Filed 7-18-95; 8:45 am]
    BILLING CODE 6712-01-P
    
    

Document Information

Published:
07/19/1995
Department:
Federal Communications Commission
Entry Type:
Proposed Rule
Action:
Proposed rule.
Document Number:
95-17302
Dates:
Comments must be filed on or before September 15, 1995, and reply comments must be filed on or before October 16, 1995.
Pages:
37148-37151 (4 pages)
Docket Numbers:
PR Docket No. 92-235, FCC 95-255
PDF File:
95-17302.pdf
CFR: (5)
47 CFR 90.175
47 CFR 90.189
47 CFR 90.190
47 CFR 90.191
47 CFR 90.193