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COMMISSION  Z- Washington, D.C. 20554 o\  PC  TP  S-Ԋ#f\  PC &P#  S- ]#` #&J\  P6Q/&P# ]#` In the Matter of hh@h)  Su - hh@h)  SM -Amendment of the Commission's hh@h) ET Docket No. 95183  S% -Rules Regarding the 37.038.6 GHz and@h) RM8553  S -38.640.0 GHz Bands hh@h) x` `  hh@h)  S -x` `  hh@h)pp  S-Implementation of Section 309(j) of the@h) PP Docket No. 93253  S]-Communications Act Competitive hh@h)  S5-Bidding, 37.038.6 GHz and 38.640.0 GHz@h)pp   T  S- =REPORT AND ORDER AND  Sm-p SECOND NOTICE OF PROPOSED RULE MAKINGà  SE-T  S- x` ` Adopted: October 24, 1997; @Released: November 3, 1997 By the Commission:  SU-  TABLE OF CONTENTS ă  S--`> (#(Paragraphă  S- I.xINTRODUCTIONp"(#R11׃  S-II.xEXECUTIVE SUMMARYp"(#O23׃  Se-III.xBACKGROUNDp"(#R34׃  S!-IV. xDECISION SERVICE RULES  S"-x` ` A. Service Areaspp"(#LSVCAREA12׃  Su$-x` ` B. Permissible Operations in the 39 GHz Bandpp"(#L AA18 ׃ x  S%&-x` `  1.PointtoMultipoint Operationspp"(#L 720 ׃  S&-x` `  2.Mobile Operationspp"(#L 821 ׃  S'-x` `  3.The Balanced Budget Act Requirements for Flexible Usepp"(#LBUDGET26׃ "(0*0*0*]*"Ԍ S-x` ` C. Channeling Planpp"(#L 1127 ׃  S-x` ` D. Licensing Rules  S-x` `  1.Eligibilitypp"(#L 1429 ׃  S`-x` `  2.License Term p3"(#I  1536 ׃  S8-x` `  3.Performance Requirements: Renewal and Buildoutpp"(#LPERFREQ38׃  S-x` `  4.Spectrum Aggregation Limitpp"(#L 1651 ׃  S-x` `  5.Technical Rules  S-x` `  a.hhFrequency Tolerance and Efficiency Standardp3"(#I  1958 ׃  S-x` `  b.hhAntenna Requirementspp"(#L 2064 ׃  Sp-x` `  c.hhFrequency Coordination and Power Flux Density  SH -x` `  hhLimitpp"(#L 2166 ׃  S -x` `  6. Partitioning and Disaggregationpp"(#L P&D70 ׃  S -x` `  7.Regulatory Statuspp"(#LREGSTAT75׃  S -x` ` E. Treatment of Incumbent 39 GHz Licenseespp"(#LINCUMB77׃  S -x` `  1.Reconciling Service Areas of 39 GHz Incumbents with BTA  SX-x` `  Service Areas of New Licenseespp"(#LRECONC78׃  S0-x` `  2.Repackingpp"(#LREPACK81׃  S-x` `  3.Disposition of Pending 39 GHz Band Applications  S-x` `  a. hhBackgroundpp"(#L PENDG83 ׃  S-x` `  b.hhProcessing of Pending Applicationspp"(#L PROC87 ׃  S-x` `  hhi.@Pending Mutually Exclusive 39 GHz  Sh-x` `  hh@Applicationspp"(#L MX88 ׃  S@-x` `  hhii.@Applications Within the 60day Public Notice(#  S-x` `  hh@Period on November 13, 1995pp"(#L 60DAY92 ׃  S-x` `  hhiii.@Modification Applicationspp"(#L MODS94 ׃  S-x` `  hhiv.@Applications That Are Partially Mutually  S-x` `  hh@Exclusive . . . . . . . . . . . . . . . . . . . . . . `(#. . . . . . . . . . . . . . . . . . PARTIAL97׃  SP-V. xDECISION COMPETITIVE BIDDING ISSUES  S-x` ` A. Auctionability of the 39 GHz Bandpp"(#LAUCBLTY98׃ x  S-x` ` B.  Competitive Bidding Design and Procedures  S-x` `  1.Competitive Bidding Designp!(#C COMPDES105׃  S`-x` `  2.Applicability of Part 1, Standardized Auction Rulesp!(#C PART1108׃ x  S -x` ` C.  Bidding Issues  S!-x` `  1.Grouping of Licensesp!(#C GROUP109׃  S"-x` `  2.Reserve Price or Minimum Opening Bidsp"(#F MINS111 ׃  Sp#-x` `  3.Bid Incrementsp"(#FINCREMS112׃  SH$-x` `  4.Stopping Rulesp"(#FSTOPP114׃  S %-x` `  5.Activity Rulesp"(#FACTIVITY117׃  S%-x` `  6.Duration of Bidding Roundsp"(#FROUNDS121׃ x` `   S'-x` ` D. Procedural and Payment Issues"'0*((O)"Ԍ S-x` `  1.Short Form Applicationsp"(#FSHORTS123׃  S-x` `  2.Amendments and Modificationsp"(#FAMMODS127׃  S-x` `  3.Upfront Paymentsp"(#FUPFRONT129׃  S-x` `  4.Down Payment and Full Paymentp"(#FDOWNPAY132׃  S`-x` `  5.Bid Withdrawal, Default, and Disqualificationp"(#FDEFAULT136׃  S8-x` `  6.LongForm Applications and Petitions to Denyp"(#FLONGFORM139׃ x  S-x` ` E.  Regulatory Safeguards  S-x` `  1.Transfer Disclosure Requirementsp"(#FDISCLOSE141׃  S-x` `  2.AntiCollusion Rulesp"(#FCOLLUDE143׃  SH -x` ` F. Treatment of Designated Entities  S -x` `  1.Overview and Objectivesp"(#FDEVIEW145׃  S -x` `  2.Eligibility for Bidding Creditsp"(#FCREDITS148׃  S -x` `  a.hhSmall Business Definitionp"(#FSMALLDEF149׃  S -x` `  b.hhBidding Creditsp"(#FBIDCREDIT152׃  S -x` `  c.hhInstallment Paymentsp"(#FINSTALPAY155׃  SX-x` `  3.Transfer Restrictions and Unjust Enrichment Provisionsp"(#FUNJUST160׃  S0-x` `  4.Entrepreneurs' Blockp"(#FENTREPREN163׃  S-VI.xSECOND NOTICE OF PROPOSED RULE MAKING  S-x` ` A. Backgroundp"(#FNPRMA165׃  S@-x` ` B. Partitioning and Disaggregation For Small Business Licenseesp"(#FNPRMB166׃  S-VII.xPROCEDURAL MATTERS x  S-x` ` A. Regulatory Flexibility Actp"(#FREGFLEX171׃  SP-x` ` B. Ex Parte RulesNonRestricted Proceedingp"(#FEXPARTE173׃  S-x` ` C. Comment Datesp"(#FCOMMENTS174׃ x  S-x` ` D. Initial Paperwork Reduction Act of 1995 Analysisp"(#F PRA176 ׃  Sb-x` ` E. Ordering Clausesp"(#FORDERS177׃  S -x` ` F. Further Informationp"(#F INFO179 ׃ APPENDIX A PARTIES FILING COMMENTS AND REPLY COMMENTS APPENDIX B REGULATORY FLEXIBILITY ACT APPENDIX C FINAL RULES "'0*((O)"Ԍ S- I. INTRODUCTION ă  S-  x1. 11In the Notice of Proposed Rule Making and Order in the abovecaptioned proceeding, we  xproposed to amend the rules for fixed, pointtopoint microwave service in the 38.640.0 GHz ("39 GHz")  xband, and to adopt a conforming set of new rules for the virtually unused 37.038.6 GHz ("37 GHz") band  S8- xin order to allow for the expansion of 39 GHztype service.c8 mJ o\  PC  I. A. 1. a.(1)(a) i) a) I. A. 1. a.(1)(a) i) a) ]\  PC эxNotice of Proposed Rule Making and Order, 11 FCC Rcd 4930 (1995) ("NPRM and Order"). At present, there are no rules for the 37 GHz band that allow licensing of nongovernment, fixed terrestrial service, and there are no nongovernment operations of any kind in that band. There is, however, some limited Federal Government use of the 37 GHz band. Specifically, a total of nine fixed links at two government installations operate in this band, authorized by the National  mJTelecommunications and Information Administration ("NTIA"). Id. at 4933.c Since the time we made these proposals,  xtechnological developments have sparked additional applications for the frequencies in the 3651 GHz  S- xband that had not been proposed when we issued the NPRM and Order. For example, some entities have  xsubmitted proposals for nonterrestrial systems such as Sky Station International's proposed use of  S- xplatforms located in the stratosphere to build a global stratospheric telecommunications system,B| kJ o\  PC  I. A. 1. a.(1)(a) i) a) I. A. 1. a.(1)(a) i) a) ]\  PC эxSky Station Application for Global Stratospheric Telecommunications System, File No. 96SATP/LA96 (filed March 20, 1996). Motorola  Sr- xSatellite Systems' proposed 72satellite NGSO/FSS MStar system,Br kJ` o\  PC  I. A. 1. a.(1)(a) i) a) I. A. 1. a.(1)(a) i) a) ]\  PC эxMotorola Satellite Systems, Inc., Application to Construct, Launch, and Operate the M-Star System, File No. 157-SAT-P/LA-96(72) (filed September 4, 1996). and Hughes Communications, Inc.'s  SJ - xproposed satellite GSO/FSS Expressay system.BJ X  kJ o\  PC  I. A. 1. a.(1)(a) i) a) I. A. 1. a.(1)(a) i) a) ]\  PC эxHughes Communications, Inc., Application to Construct, Launch, and Operate the Expressway System, File No. 90SATP/LA97 (filed July 14, 1997). While we seek to create a regulatory environment that  x[will permit the construction of these projects, we also are interested in providing sufficient flexibility for  xterrestrialbased licensees to provide the public with innovative services. We believe that the public interest would be served by permitting the market to decide which entrepreneurial efforts will succeed.  S -  2x2.ؠ In this Report and Order, we amend Parts 1, 2, and 101 of the Commission's Rules  kJL o\  PC  I. A. 1. a.(1)(a) i) a) I. A. 1. a.(1)(a) i) a) ]\  PC эxWe note that, effective August 1, 1996, the service rules for fixed microwave operations in Parts 21 and 94 were  mJconsolidated into a new Part 101. See Reorganization and Revision of Parts 1, 2, 21, and 94 of the Rules to Establish a New Part 101 Governing Terrestrial Microwave Fixed Radio Services, Amendment of Part 21 of the Commission's Rules for the Domestic Public Fixed Radio Services, McCaw Cellular Communications, Inc. Petition for Rule Making, WT Docket No. 94 mJ148, CC Docket No. 932, RM7861, Report and Order, FCC 9651 (released Feb. 29, 1996) ("Part 101 Report and Order"). to  xfacilitate more effective use of the 39 GHz band, by implementing a number of improvements such as  xlicensing by Basic Trading Areas (BTAs) and employing competitive bidding procedures as a means for  xchoosing among mutually exclusive license applicants. In addition, we conclude that our regulatory  xframework should be expanded to include service rules for mobile operations in the 39 GHz band. By  xfacilitating implementation of mobile services, 39 GHz licensees will be able to modify their service  xofferings quickly and efficiently to provide the services that consumers demand and that technology makes  x/possible. Thus, 39 GHz service providers will be better positioned to respond to the dictates of the  xzmarketplace. Moreover, such flexibility will promote competition by increasing both the diversity of  xpotential service offerings and the number of providers that can offer any service. Finally, we address  S- xthose 39 GHz applications held in abeyance pursuant to the processing freeze imposed in the NPRM and"0*((%"  S- xOrder, as modified in our subsequent Memorandum Opinion and Order.] kJh o\  PC  I. A. 1. a.(1)(a) i) a) I. A. 1. a.(1)(a) i) a) ]\  PC эxAmendment of the Commission's Rules Regarding the 37.038.6 GHz and 38.640.0 GHz Bands, Implementation of Section 309(j) of the Communications Act Competitive Bidding, 37.038.6 GHz and 38.640.0 GHz Bands, ET Docket No.  mJ95183, RM8553, PP Docket No. 93253, Memorandum Opinion and Order, FCC 96486 (released Jan. 17, 1997), petitions  mHfor reconsideration, pending. In this Second Notice of  S- x[Proposed Rule Making, we seek additional comments regarding the use of partitioning and disaggregation  xby parties utilizing bidding credits under our competitive bidding licensing rules. By these actions, we  xwill foster the continued development of a variety of microwave operations in the 39 GHz band, which  Sd- xwill facilitate provision of, inter alia, communications infrastructure for commercial and private mobile radio operations and competitive wireless local telephone service.  S-+ II. EXECUTIVE SUMMARY ă  Sv-  x3. 2 In our decision today, we take a number of steps to simplify and streamline the licensing process for the 39 GHz band. What follows is a synopsis of the major aspects of our decision.  S -x A.` ` Licensing Rules  S -  S - 4}X` hp x (#%'0*,.8135@8:services, such as: (1) wireless local loops, (2) call termination or origination services to long distance  xycompanies, (3) connection of the customers of a competitive access provider ("CAP") or a local exchange  xcarrier ("LEC") to its fiber rings, (4) connection and interconnection services to private networks operated  xby business and government as well as other institutions, (5) Internet access, and (6) cable headend  S:-applications.:Y g mJX4` hp x (#%'0*,.8135@8:band segmentation plan proposed in the 3651 GHz proceeding, should future events (e.g., WRC97 decisions) require a different result.  S -  x8.ؠ Moreover, we note there is wide support for the premise that the types of fixed and satellite  xservices likely to be offered in spectrum above 36 GHz will not be able to share the same spectrum  xblocks. There have been numerous presentations by various terrestrial fixed service entities supporting  x?this notion, and this conclusion has been reiterated in the records of both this and the 3651 GHz  S- xyproceeding.Eg mJX4` hp x (#%'0*,.8135@8:Given the likelihood of interservice interference and the rapid implementation of service by 39 GHz  xjlicensees, the satellite industry's request for delayed action in this proceeding and a spectrum designation  xchange is not persuasive. Again, should future events dictate that a different course of action with respect  x0to the 39 GHz band is warranted, nothing that we have done here will prevent us from taking the appropriate action at that time.  S- IV. DECISION SERVICE RULES ă  SP-x A. Service Areas  S-  x 12. SVCAREA נ Background. The current licensing process in the 39 GHz band allows each licensee to define  S- xits own service area. In the NPRM and Order, we proposed to license prospectively all channel blocks  S- xin the 39 GHz band 13using BTAs.*g mJ"X4` hp x (#%'0*,.8135@8:for use of the copyrighted material may not rely on the grant of a BTAbased authorization from the  xLCommission as a defense to any claim of copyright infringement brought by Rand McNally against such  xgrantee. The MTA/BTA Listings, the MTA/BTA Map and the license agreements noted above are  xavailable for public inspection at the Wireless Telecommunications Bureau, Reference Room, Room 5322, 2025 M Street, N.W., Washington, D.C., 20554.  S- xB.44Permissible Operations in the 39 GHz Band  S-  "x18. AA Background. In the NPRM and Order, we raised questions about expanding the array of  S- x/services provided in the 39 GHz band to include pointtomultipoint and mobile operations.)cc mJX4` hp x (#%'0*,.8135@8: (O mJX` hp x (#%'0*,.8135@8:C  I. A. 1. a.(1)(a) i) a) I. A. 1. a.(1)(a) i) a) ]\  P?C эxId. at 5. Further, Pacific argues that the "Competitive Checklist" is associated with  x[the ability of a LEC to offer interLATA services and has no relevance to eligibility for 39 GHz licenses.  xPacific also states that a safeguard against the warehousing of spectrum by a LEC is to apply the same  S-construction requirement on a LEC that applies to other 39 GHz licensees. IO kJ%X` hp x (#%'0*,.8135@8:use(s) of 39 GHz spectrum and the existing LEC services when offered in the same service area. For  xexample, LECs might be able to achieve savings not available to new entrants by taking advantage of their  xcurrent infrastructure, and imposition of restrictions would prevent realization of such savings.  x[Restrictions might also prevent incumbent LECs from experimenting with certain technology and market  S:-combinations, and preclude or delay desirable entry by incumbents into new markets.  R -x` ` 2. License Term  S"-  x#36. DEH1 נ Background. 15 Under our previous rules, all common carrier 39 GHz licensees who were  St#- xlicensed before August 1, 1996 (i.e., those licensed previously under Part 21 of our Rules) were subject"t#*P0*((%"  S- xto a fixed license term ending February 1, 2001, regardless of the grant date of their individual licenses.QO kJhX` hp x (#%'0*,.8135@8:have to build an operation that could provide the same level of service as a licensee of a metropolitan  x=BTA. Such an approach would result in either an overly burdensome requirement for the licensee of the  xsmaller market or a very lenient and almost meaningless requirement for the licensee of the metropolitan  x=BTA. Moreover, since market size is a reasonable proxy for gauging the appropriate comparative levels  x of spectrum use, we agree with the consensus of the commenters that any buildout standard should  S - xtherefore be based on market population or population density.reC O mJX` hp x (#%'0*,.8135@8:installations based on the market's population.gX O mJdX` hp x (#%'0*,.8135@8:would it appear to be consistent with the objectives of Section 309(j) of the Communications Act. mO kJX` hp x (#%'0*,.8135@8:supporting CMRS communications infrastructure but generally tend to be local private line and local  x0bypass services. Since this arena is already being served by multiple providers using a variety of  xltechnologies, it is clear that disaggregated ownership of 39 GHz spectrum is not necessary for the competitive provision of those services.  S-  |x554. We also note that even the current users of the 39 GHz band are still in the early stages of  xdeveloping their services, and that the particular uses of this spectrum are still being defined by the  xlmarketplace. As indicated above, 39 GHz spectrum can be used for almost any fixed, shortrange  xcommunication the internal parts of almost any communications system (mobile or fixed) or the "last  xmile" of any fixed system, whether for voice, data, video, or more than one of the foregoing. At this  xtime, we believe that it would be inappropriate for us to view the output of 39 GHz spectrum as falling  xinto any one of these categories or to find that some limit on spectrum aggregation in order to foster  xcompetition in that category is necessary. Accordingly, we do not believe that it is appropriate to restrict the amount of 39 GHz spectrum that may be licensed to any one service or entity.  S-  x655. Moreover, we conclude that there may be benefits to the public in terms of efficiencies and  xltypes of services provided if we permit aggregation of 39 GHz spectrum. For example, spectrum  xaggregation would allow a licensee to expand its operation and thereby lower the per unit cost of  xequipment and its per capita cost of providing service to subscribers. Furthermore, a 39 GHz licensee  xwith substantial spectrum can better compete with established service providers who have large  xtransmission capacity. In addition, we conclude that it is not likely that aggregation of 39 GHz spectrum  xby a single entity would lead to undue market power. We note that other service providers, such as LECs" "u0*((!"  xand CAPs, have some significant competitive advantages over a competitor using only 39 GHz spectrum,  x.such as an established customer base and transmission facilities that carry much more traffic than would  xbe possible by a 39 GHzbased facility using only, for example, 700 MHz of spectrum. In addition, other  xservice providers are not precluded from adding fiber or radio transmission facilities to their existing  S`- xnetworks.v`O mJX` hp x (#%'0*,.8135@8:Therefore, we believe that even if a single licensee controls a significant part of the 39 GHz band in a  xMsingle BTA, it could not control service prices or limit competition, given the number of providers of similar or substitutable services and the variety of transmission media at their disposal.  SH -  #x756. We also observe that 39 GHz licensees would be unable to overcome the competitive  xdisadvantages of operating under a spectrum aggregation limit simply by improving engineering efficiency.  xWhile an entity with limited technical capacity may strive to use its facilities in the most efficient manner  xLpossible, those same engineering techniques and procedures may be utilized by other parties to similarly  xincrease their efficiencies. For example, one of the most discussed means of increasing transmission  x.capacity is the use of digital compression technology. For the most part, this technology is transferable  xfrom one transmission medium to another. Therefore, while a 39 GHz service provider might be able to  xNgain a significant increase in engineering efficiency by employing such technology, this increase in  xefficiency will not give it any competitive advantage, because its competitors will have the same opportunities to deploy this technology.  S-  "x857. We also do not believe that a spectrum aggregation limit is warranted to ensure that there  xis adequate support spectrum available for broadband PCS, cellular radio, and other commercial and  xMprivate mobile radio operations. While the use of the 39 GHz band may help meet these needs, such  xbackhaul and backbone support can also be provided by using wirebased technologies and overtheair  S- xspectrum outside the 39 GHz band (e.g., at 6, 11, 18 and 23 GHz). Given this availability of substitutable  xspectrum for backhaul and backbone support, coupled with the aforementioned competition that exists to  x39 GHz providers of alternative types of services, we find that imposing a spectrum aggregation limit for the 39 GHz band would be contrary to the public interest.  S*-x` ` 5. Technical Rules x` `  S-x` `  a. Frequency Tolerance and Efficiency Standard " x0*(("Ԍ S-  x958.ؠ Background. 19 In the NPRM and Order, we tentatively concluded that only those technical  x>rules required to minimize interference between channel blocks and between service areas are needed.  x0Thus, as a mitigating interference factor, we proposed to adopt a 0.001% frequency tolerance for  xequipment operating in the 39 GHz band, instead of the 0.03% tolerance standard currently required by  xLSection 101.107 of the Rules. In order to promote more efficient use of the spectrum, we also requested  xycomment on adding an efficiency standard to our Part 101 rules, of 1 bit per second per hertz ("bps/Hz")  S-for new assignments in this band.ByO mJzX` hp x (#%'0*,.8135@8:select between future mutually exclusive applications for 39 GHz spectrum should ensure that these  xlicensees are subject to full marketplace incentives to operate efficiently. Consequently, the use of"R 0*(("  x[competitive bidding procedures provides additional support for our finding that an efficiency standard is unnecessary.  S-  #x>63. As noted in paragraph 59, we have determined that a frequency tolerance standard is  xunnecessary. Our basis for this view stems from our desire to provide 39 GHz licensees flexibility in the  x.operation of their facilities and to avoid imposing unnecessary regulations. In addition, we believe such  xa standard could inhibit technological advances, for equipment performance is likely to be influenced by  xLcustomer demand. For those that might be concerned that elimination of this standard may lead to inter xsystem interference, we point to our existing out of band emission requirements (emission mask) contained  S- xin Sections 101.111 of the Rules.O mJ X` hp x (#%'0*,.8135@8:to employ only Category A antennas is too restrictive because parties are contemplating a variety of"> ~0*(( "  S- xsystem configurations that would require different types of antennas, e.g., sectorized or wide beam units,  S- xzcharacteristics of which would be incompatible with the standards of a Category A antenna.RO mJBX` hp x (#%'0*,.8135@8:GHz service and expedite the delivery of service to the public, particularly in rural areas. Moreover,  xypartitioning and disaggregation will help to eliminate market entry barriers pursuant to Section 257 of the  xLCommunications Act by creating smaller, less capital intensive service areas that may be more accessible  x>to small entities. We consider partitioning and disaggregation effectively to be types of assignments,  x!which will, therefore, require prior approval by the Commission. In authorizing partitioning and"$0*(("  S- xdisaggregation, we will follow existing assignment procedures.O mJhX` hp x (#%'0*,.8135@8:microwave rules in 47 C.F.R. Part 101, or its predecessors, Parts 21 (for common carriers) or 94 (for  x]private carriers). Their service areas are selfdefined and generally are restricted to pointtopoint  x\operations. Many of these licensees have participated as commenters in this proceeding, and include WinStar, ART, BizTel, Columbia, and a number of PCS licensees.  R- p@ x` ` 1. Reconciling Service Areas of 39 GHz Incumbents with BTA Service Areas of  R-New Licensees(#  Sp-  SH -  1xM78.ؠ RECONC  26While we have decided that BTAs are appropriate for the new licensing system in the 39  xGHz band, we recognize that many of the newlylicensed BTA service areas will be encumbered by  xLincumbent 39 GHz band licensees. These incumbents are authorized in various locations throughout the  S - xcountry, and their rectangular service areas will occupy portions of BTAs or cross BTA boundaries.B O kJ8X` hp x (#%'0*,.8135@8: