Hearing Aid Compatibility Standards, 80722-80737 [2015-31368]

Agencies

• FEDERAL COMMUNICATIONS COMMISSION

[Federal Register Volume 80, Number 248 (Monday, December 28, 2015)]
[Proposed Rules]
[Pages 80722-80737]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2015-31368]


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FEDERAL COMMUNICATIONS COMMISSION

47 CFR Parts 20 and 68

[CG Docket Nos. 12-32 and 13-46 and WT Docket Nos. 07-250 and 10-254; 
FCC 15-144]


Hearing Aid Compatibility Standards

AGENCY: Federal Communications Commission.

ACTION: Proposed rule.

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SUMMARY: In this document, the Commission proposes to amend its hearing 
aid compatibility (HAC) rules to enhance equal access to the national

[[Page 80723]]

telecommunications network by people with hearing loss and implement 
the Twenty-First Century Communications and Video Accessibility. The 
proposed changes would expand the scope of the wireline HAC rules, add 
a volume control requirement for wireless handsets, address recently 
revised technical standards, and streamline the process for enabling 
industry to use new or revised technical standards for assessing HAC 
compliance.

DATES: Comments are due February 26, 2016 and Reply Comments are due 
March 28, 2016.

ADDRESSES: You may submit comments, identified by CG Docket Nos. 12-32 
and 13-46 and WT Docket Nos. 07-250 and 10-254, by any of the following 
methods:
     Electronic Filers: Comments may be filed electronically 
using the Internet by accessing the Commission's Electronic Comment 
Filing System (ECFS), through the Commission's Web site https://fjallfoss.fcc.gov/ecfs2/. Filers should follow the instructions 
provided on the Web site for submitting comments. For ECFS filers, in 
completing the transmittal screen, filers should include their full 
name, U.S. Postal service mailing address, and CG Docket Nos. 12-32 and 
13-46 and WT Docket Nos. 07-250 and 10-254.
     Paper Filers: Parties who choose to file by paper must 
file an original and one copy of each filing. Filings can be sent by 
hand or messenger delivery, by commercial overnight courier, or by 
first-class or overnight U.S. Postal Service mail (although the 
Commission continues to experience delays in receiving U.S. Postal 
Service mail). All filings must be addressed to the Commission's 
Secretary, Office of the Secretary, Federal Communications Commission.

For detailed instructions for submitting comments and additional 
information on the rulemaking process, see the SUPPLEMENTARY 
INFORMATION section of this document.

FOR FURTHER INFORMATION CONTACT: Robert Aldrich, Consumer and 
Governmental Affairs Bureau, Disability Rights Office, at 202-418-0996 
or email Robert.Aldrich@fcc.gov.

SUPPLEMENTARY INFORMATION: Pursuant to 47 CFR 1.415, 1.419, interested 
parties may file comments and reply comments on or before the dates 
indicated on the first page of this document. Comments may be filed 
using the Commission's Electronic Comment Filing System (ECFS). See 
Electronic Filing of Documents in Rulemaking Proceedings, 63 FR 24121 
(1998).
     All hand-delivered or messenger-delivered paper filings 
for the Commission's Secretary must be delivered to FCC Headquarters at 
445 12th Street SW., Room TW-A325, Washington, DC 20554. All hand 
deliveries must be held together with rubber bands or fasteners. Any 
envelopes must be disposed of before entering the building.
     Commercial Mail sent by overnight mail (other than U.S. 
Postal Service Express Mail and Priority Mail) must be sent to 9300 
East Hampton Drive, Capitol Heights, MD 20743.
     U.S. Postal Service first-class, Express, and Priority 
mail should be addressed to 445 12th Street SW., Washington, DC 20554.

This is a summary of the Commission's document FCC 15-144, Access to 
Telecommunications Equipment and Services by Persons with Disabilities; 
Petition for Rulemaking Filed by the Telecommunications Industry 
Association Regarding Hearing Aid Compatibility Volume Control 
Requirements; Amendment of the Commission's Rules Governing Hearing 
Aid-Compatible Mobile Handsets; and Comment Sought on 2010 Review of 
Hearing Aid Compatibility Regulations, Notice of Proposed Rulemaking, 
adopted October 23, 2015, and released October 30, 2015, in CG Docket 
Nos. 12-32 and 13-46 and WT Docket Nos. 07-250 and 10-254. The full 
text of document FCC 15-144 will be available for public inspection and 
copying via ECFS, and during regular business hours at the FCC 
Reference Information Center, Portals II, 445 12th Street SW., Room CY-
A257, Washington, DC 20554. Document FCC 15-144 can also be downloaded 
in Word or Portable Document Format (PDF) at: https://www.fcc.gov/encyclopedia/disability-rights-office-headlines. This proceeding shall 
be treated as a ``permit-but-disclose'' proceeding in accordance with 
the Commission's ex parte rules. 47 CFR 1.1200 et seq. 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 47 CFR 1.1206(b). 
In proceedings governed by 47 CFR 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 attachments 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.
    To request materials in accessible formats for people with 
disabilities (Braille, large print, electronic files, audio format), 
send an email to fcc504@fcc.gov or call the Consumer and Governmental 
Affairs Bureau at 202-418-0530 (voice), 202-418-0432 (TTY).

Initial Paperwork Reduction Act of 1995 Analysis

    Document FCC 15-144 seeks comment on proposed rule amendments that 
may result in modified information collection requirements. If the 
Commission adopts any modified information collection requirements, the 
Commission will publish another notice in the Federal Register inviting 
the public to comment on the requirements, as required by the Paperwork 
Reduction Act. Public Law 104-13; 44 U.S.C. 3501-3520. In addition, 
pursuant to the Small Business Paperwork Relief Act of 2002, the 
Commission seeks comment on how it might further reduce the information 
collection burden for small business concerns with fewer than 25 
employees. Public Law 107-198; 44 U.S.C. 3506(c)(4).

Synopsis

Revised Wireline Volume Control Standard

    1. Pursuant to section 710 of the Communications Act of 1934, as 
amended (Act), all wireline telephones manufactured or imported for use 
in the

[[Page 80724]]

United States must provide an ``internal means for effective use with 
hearing aids that are designed to be compatible with telephones which 
meet established technical standards for hearing aid compatibility.'' 
47 U.S.C. 610(b), (b)(1)(B). In 1996, the Commission amended its 
regulations to require that wireline telephones also be equipped with 
volume control to allow improved acoustic coupling, finding that doing 
so would make telephones more accessible for those wearing hearing aids 
and others with hearing loss. The volume control rules adopted by the 
Commission (47 CFR 68.317) incorporate by reference two technical 
standards: ANSI/EIA-470-A-1987 (Telephone Instruments with Loop 
Signaling) for analog phones; and ANSI/EIA/TIA-579-1991 (Acoustic-To-
Digital and Digital-To-Acoustic Transmission Requirements for ISDN 
Terminals) for digital phones. In 2012 a revised technical standard for 
volume control, ANSI/TIA-4965-2012 (2012 ANSI Wireline Volume Control 
Standard), was approved by the American National Standards Institute 
(ANSI). The Telecommunications Industry Association (TIA) filed a 
petition requesting that the Commission revise Sec.  68.317 of its 
rules to incorporate the revised standard by reference, and the 
Commission sought comment on TIA's petition for rulemaking.
    2. TIA notes that the 2012 ANSI Wireline Volume Control Standard 
modifies in two ways the manner in which amplification is measured for 
wireline phones. First, the standard discontinues the use of an IEC-318 
coupler, which must form a seal with the telephone handset, as the 
physical set-up for measuring the amplification of wireline phones. 
Instead, the standard specifies the Head and Torso Simulator (HATS) 
method, which uses a mannequin that includes a human pinna (outer ear) 
simulator and which TIA states is appropriate for all types of 
handsets. Second, the 2012 ANSI Wireline Volume Control Standard 
replaces the Receive Objective Loudness Rating (ROLR) method of 
calibrating amplification, used in previous standards, with a new 
method called Conversational Gain. Under the ROLR method, gain is 
determined relative to the normal unamplified, or nominal, sound level 
for the particular equipment that is being measured, which can vary 
depending upon the equipment being used. By contrast, TIA explains, 
under the Conversational Gain method, the starting point--0 decibels 
(dB) Conversational Gain--is an absolute, not a relative, value, 
equivalent to 64 dB sound pressure level in each ear, which is the 
volume of a face-to-face conversation where participants are 1 meter 
apart.
    3. The Commission proposes to amend 47 CFR 68.317 to incorporate 
the 2012 ANSI Wireline Volume Control Standard and believes that doing 
so will make its rules more effective in ensuring that people with 
hearing loss have ``equal access to the national telecommunications 
network'' (Pub. L. 100-394, sec. 2 (1)) and that telephones provide 
``an internal means for effective use with hearing aids'' (47 U.S.C. 
610(b)). To ensure that its rules incorporate the most recent 
Congressional statement of purpose regarding HAC, the Commission also 
proposes to amend the statement of purpose in 47 CFR 68.1 to replace 
the previous statement of purpose, which was derived from the language 
of the 1982 amendment to the Communications Act, with the more recent 
language of Public Law 100-394.
    4. Based on the TIA petition and the comments filed in response, 
the Commission's proposal to incorporate the 2012 ANSI Wireline Volume 
Control Standard into its rules is likely to make ordinary telephones 
more usable for consumers who need telephone amplification. As noted by 
the American Speech-Language Hearing Association (ASHA) and TIA, the 
new standard's HATS method for testing equipment appears to be ``more 
representative of the user experience'' because it reflects the actual 
manner in which phones are held to the ear, and the new measurement 
criterion, Conversational Gain, appears to provide ``a more realistic 
metric for measuring speech through a phone'' and has the potential to 
close a ``loophole'' in the current rule that appears to have resulted 
in a less than consistent means of measuring speech amplification 
across manufacturers. The Commission seeks comment on these assumptions 
and generally on the extent to which the new approaches embodied in the 
standard will improve the usability of telephones by consumers with 
hearing loss. In addition, the Commission seeks comment on whether 
incorporating the 2012 ANSI Wireline Volume Control Standard into its 
rules will improve the ability of the segment of the population that 
has hearing loss to communicate effectively with emergency services.
    5. TIA research confirms that some vendors of high amplification 
phones have made claims about the amount of amplification offered that 
could not be verified when tested against the industry standard. The 
new ANSI/TIA standard's Conversational Gain method seems to address 
this problem because, according to ASHA, it will ``allow consumers with 
hearing loss (and audiologists assisting them) to readily compare the 
sound levels of various digital and hardwire phones to determine which 
devices best meet their amplification needs.'' The Commission notes 
that in addition to the 2012 ANSI Wireline Volume Control Standard, TIA 
has developed another voluntary standard employing Conversational Gain, 
ANSI/TIA-4953, which specifies measurement procedures and performance 
requirements for specialty high gain telephones. ANSI/TIA-4953 also 
addresses tone control, acoustic ringer level and tone, noise, 
distortion, stability, transmit levels, send quality, and volume for 
such high gain equipment and provides standardized labels to designate 
an amplified telephone as suitable for consumers with specified levels 
of hearing loss (HL), as follows: ``Mild'' (20 dB to 40 dB HL); 
``Moderate'' (40 dB to 70 dB HL); and ``Severe'' (70 dB to 90 dB HL). 
The Commission seeks comment on the experience of industry and 
consumers with implementation of the HATS method and the Conversational 
Gain method for this purpose and others, and whether Commission 
incorporation of the new ANSI/TIA wireline volume control standard in 
its rules will lead to further improvement of a consumer's ability to 
find devices that meet his or her communication needs, and in 
particular, a consumer's ability to determine the need for high 
amplification telephones. The Commission also seeks information 
concerning the findings of any consumer tests or trials that may have 
been conducted to determine whether devices having the same 
conversational gain rating demonstrate comparable amplification as 
perceived by device users.
    6. In addition, the Commission seeks comment on whether the 
standard promotes both market certainty and a level playing field for 
companies that manufacture terminal equipment and whether compliance 
with the standard poses any impediments for equipment that is marketed 
internationally. Pursuant to 47 U.S.C. 610(e), the Commission also 
seeks comment on the costs and benefits of the proposed rule amendment 
to persons with and without hearing loss. In particular, the Commission 
seeks comment on the likely impact of implementing the new standard on 
the cost of a telephone and whether incorporation of the new standard 
will encourage the use of currently available technology and will

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not discourage or impair the development of improved technology.
    7. The Commission proposes to require a minimum of 18 dB in 
amplification gain because, according to TIA, under the 2012 ANSI 
Wireline Volume Control Standard, 18 dB of Conversational Gain would be 
equivalent to the current measurement of 12 dB above the normal 
unamplified level of a traditional telephone. Similarly, because under 
the new standard 24 dB of gain is the equivalent of a current 
measurement of 18 dB of gain, TIA recommends revising 47 CFR part 68 to 
require an automatic reset if Conversational Gain is greater than 24 
dB, rather than the gain of 18 dB that currently triggers a reset 
requirement. The Commission seeks comment on these proposed rule 
changes and specifically, whether these proposed rules will provide an 
appropriate degree of assurance that people with hearing loss can make 
effective use of telephones and that consumers generally will be 
protected from accidental injury due to increased volume settings. The 
Commission seeks comment generally on what other changes to the 
Commission's rules may be necessary or appropriate if the Commission 
incorporates the 2012 ANSI Wireline Volume Control Standard into Sec.  
68.317 of its rules.
    8. The Commission proposes to allow a transition period of two 
years after the effective date of the rules for manufacturers to come 
into compliance. The Commission seeks comment on this proposal and on 
whether two years is necessary to allow sufficient time for the design, 
engineering, and marketing needs of manufacturers that will be subject 
to the new standard. The Commission also proposes to amend 47 CFR 
68.112 to allow the existing inventory and installed base of telephones 
that comply with the current version of Sec.  68.317 of its rules to 
remain in place until retired and to clarify that such phones need not 
be replaced in the future as a result of minor changes to 47 CFR 68.316 
or 68.317, and seeks comment on these proposals.
    9. Consistent with the intent of the CVAA to involve consumer 
representatives more directly in the standards development process, the 
Commission proposes to adopt a requirement that wireline telephone 
manufacturers engage in consultation with such consumers and their 
representative organizations for the purpose of assessing the 
effectiveness of the revised standard. The Commission proposes that an 
initial consultation should occur one year after the effective date of 
the revised standard, with follow-up every three years thereafter to 
assess the impact of technological changes. The Commission seeks 
comment on this proposal and whether the Commission should define in 
more detail the specifics of the required consultation. For example, 
should this consultation be subject to the same parameters that the 
Commission proposes pursuant to 47 U.S.C. 610(c) regarding consultation 
with designated consumer representatives? The Commission also seeks 
comment on whether, as an alternative, the Commission should consult 
with the consumer stakeholder(s) to be designated pursuant to 47 U.S.C. 
610(c) regarding the effectiveness of the revised standard.
    10. The Commission proposes that manufacturers subject to the 
volume control rule be required to test a sample of products claiming 
to be compliant with the revised standard, to assess whether these 
products are providing a uniform and appropriate range of volume to 
meet the telephone needs of people with hearing loss. The Commission 
seeks comment on whether these or other steps could provide useful data 
to ensure effective communication by this population and on the costs 
of such testing. The Commission agrees with consumer commenters that, 
to the extent that measurements are referred to in marketing materials 
and user manuals, it would be helpful to consumers for the materials to 
explain, for example, that ``1 meter apart'' is equivalent to 
``approximately 1 yard'' in describing how the standard utilizes a 
conversation between individuals as a benchmark. The Commission seeks 
comment on whether manufacturers currently reference such measurements 
in marketing and informational materials, and if so, whether the 
Commission has the authority to require conversion to non-metric 
equivalents and whether the Commission should do so. What are the costs 
and benefits associated with such a requirement?

Application of Inductive Coupling and Volume Control Requirements to 
Wireline VoIP Telephones

    11. The CVAA amended section 710(b) of the Act to provide that the 
requirement for ``customer premises equipment'' to ``provide internal 
means for effective use with hearing aids'' applies not only to 
``telephones'' used over the public switched telephone network (PSTN) 
but also to ``[a]ll customer premises equipment used with advanced 
communications services that is designed to provide 2-way voice 
communication via a built-in speaker intended to be held to the ear in 
a manner functionally equivalent to a telephone, subject to the 
regulations prescribed by the Commission under subsection (e).'' 47 
U.S.C. 610(b)(1)(C). The Act, as amended by the CVAA, defines 
``advanced communications services'' (ACS) as including interconnected 
and non-interconnected Voice over Internet Protocol (VoIP) service. 47 
U.S.C. 153(1). According to recent market research, the United States 
has almost 35.3 million fixed VoIP subscribers, and the number of 
subscribers is expected to grow at an annual rate of 11.6 percent. The 
CVAA mandates that people with hearing loss have access to this 
expanding market of VoIP phones. Public Law 111-260, sec. 716(a).
    12. Accordingly, the Commission proposes to amend 47 CFR part 68 so 
that customer premises equipment (CPE) used with interconnected and/or 
non-interconnected VoIP services (other than secure telephones and 
mobile handsets used with such services) would be covered by 47 U.S.C. 
610(b)(1)(C) if the CPE ``is designed to provide 2-way voice 
communication via a built-in speaker intended to be held to the ear in 
a manner functionally equivalent to a telephone.'' The Commission 
further proposes that CPE covered by 47 U.S.C. 610(b)(1)(C) be subject 
to the existing inductive coupling and volume control requirements. 47 
CFR 68.4, 68.6. The Commission also proposes that complaint procedures, 
labeling, and certification requirements shall be applicable to such 
equipment with respect to HAC compliance, in accordance with the 
relevant part 68 rules regarding complaint handling, labeling, 
certifications, and suppliers' declarations of conformity. See, e.g., 
47 CFR 68.160-62, 68.201, 68.218-24, 68.300, 68.320-54, 68.414-23. The 
Commission believes that applying these procedures and requirements to 
CPE used with VoIP service will promote accountability and compliance 
with the HAC requirements and thus better serve people with hearing 
loss.
    13. The Commission seeks comment on this proposal, including the 
costs and benefits and technical impacts of covering customer premises 
equipment used with a VoIP service under the inductive coupling and 
volume control requirements of 47 CFR part 68. In particular, the 
Commission seeks comment on:
     The appropriate timetables or benchmarks that may be 
necessary for ensuring that such equipment is hearing aid compatible 
and provides volume control in accordance with part 68

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standards in order to take account of technical feasibility or to 
ensure the marketability or availability of new technologies to users 
(see 47 U.S.C. 610(e));
     Whether volume control parameters for such equipment can 
be effectively measured under the 2012 ANSI Wireline Volume Control 
Standard, and if not, how such standard should be modified to permit 
effective measurement;
     whether inductive coupling compliance for such telephones 
can be effectively measured under the currently applicable inductive 
coupling standard (47 CFR 68.316), and if not, how such standard should 
be modified to permit effective measurement;
     whether any different treatment of VoIP CPE is appropriate 
under the part 68 rules addressing complaint handling, labeling, 
certifications, and suppliers' declarations of conformity; and
     whether it would be appropriate to require registration of 
VoIP CPE in a public database, such as the database of terminal 
equipment that the Administrative Council for Terminal Attachments 
(ACTA) administers (see 47 CFR 68.610).

Volume Control and Other Acoustic Coupling Issues for Wireless Handsets

    14. While the Commission's HAC requirements for wireless handsets 
(47 CFR 20.19) currently address inductive coupling capability and the 
prevention of radio frequency (RF) interference with hearing aids, they 
do not require the provision of volume control in wireless handsets. 
The Commission adopted volume control requirements for wireline 
telephones in 1996, but to date it has not adopted such requirements 
for wireless handsets. The Commission proposes to adopt a rule 
requiring wireless handsets to have a specified level of volume 
control. The Commission further proposes that the volume control rule 
have the same scope of application as our radio frequency interference 
reduction and inductive coupling rules for wireless handsets. 47 CFR 
20.19(c), (d). The Commission also seeks comment on whether a volume 
control rule should apply to all wireless handsets or to just a subset 
of such handsets.
    15. In addition, the Commission seeks further comment on volume 
control and acoustic coupling issues on which the Wireless 
Telecommunications Bureau (WTB) sought comment in 2010 and 2012, 
including (1) whether volume control rules and standards are necessary 
to ensure that wireless phones will operate at appropriate volumes to 
achieve acoustic coupling compatibility, (2) whether there is a need 
for Commission action to ensure adequate information is available to 
consumers and hearing aid manufacturers regarding wireless phones' 
volume settings and sound quality, (3) whether the Commission should 
take action to ensure that the magnetic fields emitted by wireless 
handsets are of sufficient strength to activate special acoustic 
coupling modes in hearing aids that are designed for telephone use, and 
(4) the relevance and benefits of TIA's new and revised standards 
relating to volume control for wireline phones (including digital 
cordless phones) in the wireless context. See Comment Sought on 2010 
Review of Hearing Aid Compatibility Regulations, published at 76 FR 
2625, 2629-30, January 14, 2011; Updated Information and Comment Sought 
on Review of Hearing Aid Compatibility Regulations, published at 77 FR 
70407, 70408, November 26, 2012. The Commission notes that the original 
reason given by the Commission in 2010 for deferring action on volume 
control and acoustic coupling issues--i.e., that an Alliance for 
Telecommunications Industry Solutions working group was studying this 
issue--is no longer applicable, given that this group is no longer 
actively working on this issue.
    16. Surveys conducted by the Hearing Loss Association of America 
(HLAA) indicate that the available volume controls for wireless 
handsets do not consistently allow sufficient amplification to enable 
effective acoustic coupling between the handset and a user's hearing 
aid or cochlear implant. The Commission invites additional comment on 
the experiences that consumers with hearing loss are having when they 
attempt to locate wireless handsets with sufficient amplification 
capability to use with their hearing aids or cochlear implants. In 
general, the Commission invites parties to update the record of these 
proceedings with respect to the need for volume control requirements 
for wireless handsets, including information on facts or circumstances 
that have changed since the Commission last addressed this issue. What 
are the costs and benefits of adopting a volume control requirement for 
wireless handsets--for manufacturers, service providers, and consumers? 
If there are specific burdens associated with requiring handsets to 
achieve a specified amplification level for manufacturers and service 
providers, what are they? If a volume control requirement is adopted, 
should it apply to all wireless handsets or to a subset of total 
handset sales or models, as with the current HAC rule? Would such a 
fragmented implementation approach cause confusion for consumers?
    17. Are there currently any plans for ANSI ASC C63[supreg]-EMC to 
initiate or explore development of such a standard, and if so, what is 
the likely timeline for the completion of such a standard? Further, in 
light of the suggestions that hearing aid manufacturers need to 
participate more fully in addressing HAC issues, would ANSI ASC 
C63[supreg]-EMC be the appropriate forum for the development of a 
volume control standard, or should all stakeholders form a new working 
group to address this issue? The Commission invites additional comment 
on other relevant standards development activities that may be useful 
in establishing volume control requirements for wireless handsets. 
Given the absence of a readily available ANSI standard for volume 
control in wireless handsets, the Commission invites parties to submit 
other studies and information that may be relevant to the adoption of 
appropriate standards for volume control in these devices. The 
Commission seeks comment on the time needed for development and 
adoption of a volume control standard for wireless handsets. Would 18 
months be sufficient for development and adoption of such a standard? 
If no standards development body begins work on a wireless handset 
volume control standard, or if no specific time frame for development 
and adoption of such a standard is specified, the Commission also seeks 
comment on whether the Commission should adopt a volume control 
standard for wireless handsets based on the best currently available 
information, subject to modification based on subsequent development of 
an ANSI standard, in order to ensure equal telephone access for people 
with hearing loss. The Commission invites additional comment on the 
extent to which the 2012 ANSI Wireline Volume Control Standard is 
adaptable to wireless and the nature of any differences between 
wireline and wireless handsets that affect the applicability of TIA's 
new methods and/or its standard. The Commission invites comment on the 
potential relevance and benefits of the new TIA procedures and metrics 
in the wireless context, despite such differences.
    18. The Commission also invites comment on the types of information 
consumers need regarding amplification levels and acoustic coupling 
capabilities in order to make informed purchasing decisions. For 
example, the voluntary performance standard for wireline telephones 
with enhanced

[[Page 80727]]

amplification, ANSI/TIA-4953, provides for specific, easily understood 
labels for amplified telephones that are suitable for consumers with 
mild, moderate, and severe hearing loss, respectively. Would such 
labels be useful in the wireless context as well? Should the Commission 
encourage or require the use of such labels for wireless handsets, and 
by what means? The Commission also seeks comment on whether to address, 
via standards or through other means, factors other than amplification 
that affect the ability of consumers with hearing loss to hear and 
understand speech received over wireless handsets, including but not 
limited to acoustic coupling issues such as frequency response and 
distortion and magnetic field strength issues.

Testing and Rating Wireless Handsets Exclusively Under the 2011 ANSI 
Wireless HAC Standard

    19. For testing and rating the HAC performance of wireless 
handsets, the Commission's rules currently reference the 2007 and 2011 
revisions of ANSI technical standard ANSI C63.19 (the 2007 ANSI 
Wireless HAC Standard and the 2011 ANSI Wireless HAC Standard), 
developed by ANSI ASC C63[supreg]-EMC. 47 CFR 20.19(b)(1), (2). A 
handset is considered hearing aid compatible for preventing RF 
interference with hearing aids and cochlear implants if it meets a 
rating of at least M3 under the 2007 ANSI Wireless HAC Standard or 2011 
ANSI Wireless HAC Standard. A handset is considered hearing aid 
compatible for inductive coupling with hearing aids and cochlear 
implants if it meets a rating of at least T3. The 2011 Wireless HAC 
Standard, added to the rule in 2012, expanded the range of frequencies 
over which HAC can be tested to frequencies between 698 MHz and 6 GHz 
and established a direct method for measuring the RF interference level 
of wireless devices to hearing aids, thereby enabling testing 
procedures to be applied to operations over any RF air interface or 
protocol.
    20. The Commission proposes to require manufacturers to use the 
2011 ANSI Wireless HAC Standard, subject to modifications, exclusively 
to certify future handsets as compliant with the RF interference 
reduction and inductive coupling rules. The 2011 ANSI Wireless HAC 
Standard is the most recent of the ANSI standards for testing and 
rating wireless handsets' HAC and provides the most accurate available 
RF interference reduction and inductive coupling ratings for such 
handsets. The Commission believes there will be relatively little 
burden in requiring manufacturers and service providers to use the 2011 
ANSI Wireless HAC Standard exclusively, and the Commission notes that 
since July 2013, manufacturers appear to have been using the 2011 ANSI 
Wireless HAC Standard to test the vast majority of their new handsets. 
The Commission seeks comment on this approach. The Commission asks 
commenters to include data or other specific information demonstrating 
whether and how the 2011 ANSI Wireless HAC Standard imposes lesser or 
greater burdens than the 2007 ANSI Wireless HAC Standard, as well as 
the advantages or disadvantages of using the 2011 ANSI Wireless HAC 
Standard exclusively for testing and rating wireless handsets' 
compliance with the RF interference reduction and inductive coupling 
rules.
    21. The Commission further proposes to transition manufacturers and 
service providers, over a period of six months, to using the 2011 ANSI 
Wireless HAC Standard on an exclusive basis. The Commission seeks 
comment on whether sufficient time has passed since Commission adoption 
of this standard to enable it to be used on an exclusive basis, or 
whether additional transition time is necessary to avoid disruption. If 
more time is needed, what would be the appropriate timeframe to adopt 
the 2011 ANSI Wireless HAC Standard exclusively? In connection with 
this implementation timeline, the Commission proposes that handsets 
already certified under the 2007 ANSI Wireless HAC Standard or any 
previous standard would be grandfathered, and thus, there would be no 
need to retest or recertify this equipment. The Commission seeks 
comment on this proposal, its costs and benefits, and its advantages or 
disadvantages.

Power-Down Exception for GSM Operations at 1900 MHz

    22. The wireless HAC rule provides an exception to the general 
requirement that, for purposes of determining HAC, handsets must be 
tested using their maximum output power. 47 CFR 20.19(e)(1)(ii). This 
limited power-down exception applies solely to manufacturers and 
service providers that offer only one or two Global System for Mobile 
Communications (GSM) handset models, but are required, because they 
employ a certain number of individuals, to meet the HAC standards for 
one model. The Commission proposes to eliminate the power-down 
exception for handsets certified on or after the date that the 2011 
ANSI Wireless HAC Standard becomes the exclusive standard. The 
Commission requires handsets to be tested at full power to ensure that 
Americans with hearing loss have equal access to all of the service 
quality and performance that a given wireless handset provides. 47 CFR 
20.19(e)(1)(iii). The Commission believes that eliminating the power-
down exception will advance this purpose and will ensure that consumers 
do not experience the drop-off in function that can otherwise occur 
with handsets certified under the power-down option. The Commission 
further proposes to grandfather GSM handsets that operate in the 1900 
MHz band and that were previously certified under the exception. Even 
if the Commission eliminates the exception going forward, the 
Commission tentatively concludes that there will be no need to 
recertify these handsets and that the Commission should continue to 
treat them as certified hearing aid compatible handsets. The Commission 
seeks comment on this tentative conclusion. When addressing our 
proposal to eliminate the power-down exception, commenters should 
discuss the advantages or disadvantages and quantify the costs and 
benefits of eliminating the exception and of any proposed alternative 
approaches they recommend.

Use of Future ANSI Technical Standards

    23. Section 710(c) of the Act requires the Commission ``to 
establish or approve such technical standards as are required to 
enforce [the HAC provisions].'' 47 U.S.C. 610(c). The CVAA retained the 
mandate for the Commission to establish or approve such technical 
standards but amended section 710(c) of the Act to provide a mechanism 
for HAC technical standards to become effective without a Commission 
rulemaking, subject to Commission approval or rejection of such 
standards. As amended by the CVAA, section 710(c) of the Act reads as 
follows:

    The Commission shall establish or approve such technical 
standards as are required to enforce this section. A telephone or 
other customer premises equipment that is compliant with relevant 
technical standards developed through a public participation process 
and in consultation with interested consumer stakeholders 
(designated by the Commission for the purposes of this section) will 
be considered hearing aid compatible for purposes of this section, 
until such time as the Commission may determine otherwise. The 
Commission shall consult with the public, including people with 
hearing loss, in establishing or approving such technical standards. 
The Commission may delegate this authority to an employee pursuant 
to section 155(c) of this title. The Commission

[[Page 80728]]

shall remain the final arbiter as to whether the standards meet the 
requirements of this section.

    24. The Commission proposes to adopt rules implementing each of the 
provisions of section 710(c) of the Act added by the CVAA. In 
particular, the Commission proposes to adopt a streamlined procedure 
whereby a wireline telephone or other customer premises equipment or a 
wireless handset may be considered hearing aid compatible if it ``is 
compliant with relevant technical standards developed through a public 
participation process and in consultation with interested consumer 
stakeholders . . . until such time as the Commission may determine 
otherwise.'' The Commission further proposes changes to our rules to 
ensure consultation ``with the public, including people with hearing 
loss, in establishing or approving such technical standards,'' and that 
the Commission ``remain[s] the final arbiter as to whether the 
standards meet the requirements of this section.'' The Commission 
invites comment generally on whether our proposals below are consistent 
with section 710 of the Act and whether they will effectively advance 
the Congressional objective to ensure that ``to the fullest extent made 
possible by technology and medical science, [people who are deaf and 
hard of hearing] should have equal access to the national 
telecommunications network.'' Public Law 100-394, sec. 2(1).
    25. To implement section 710(c) of the Act, the Commission proposes 
that for compliance purposes, companies be permitted to rely on a HAC 
standard prior to that standard being adopted through a formal 
rulemaking process so long as it is developed through a voluntary and 
consensus-driven public participation process reflecting consultation 
with interested consumer stakeholders. The Commission notes, however, 
that it may also, in its discretion, establish or approve HAC standards 
through traditional rulemaking procedures, including, where 
appropriate, standards for mobile handsets through existing delegations 
of rulemaking authority under 47 CFR 20.19(k), independently of the 
alternative process added by the CVAA. More specifically, the 
Commission proposes that the standards development process must (1) be 
open to participation by all relevant stakeholders who have legitimate 
and meaningful interests in the process, (2) allow all interested 
parties, including consumers and groups representing them, to comment 
on a proposed standard prior to adoption and to have their comments 
considered by the working groups that develop the standards, and (3) 
provide an appeal mechanism that allows interested parties to seek 
review of standards-setting decisions.
    26. The Commission believes that the current ANSI process meets 
such criteria. Accordingly, the Commission proposes that a wireline 
telephone or other CPE or a wireless handset will be considered hearing 
aid compatible for purposes of section 710 of the Act, if it complies 
with a relevant technical standard adopted by ANSI using a process 
compliant with the requirements of section 710(c) of the Act, and 
further proposes that this include standards that cover equipment, 
services, or frequency bands not presently covered by the existing ANSI 
standards. The Commission seeks comment on whether it would be in the 
public interest for parties to be permitted to rely on technical 
standards developed under the ANSI process for purposes of assessing 
their equipment's compliance with our HAC rules. The Commission also 
seeks comment on whether and how the ANSI standards development process 
can achieve Congress's objective to ensure that the views of the 
public, including people with hearing loss, are considered in the 
establishment and approval of HAC technical standards. The Commission 
seeks comment on the extent to which this process is appropriate for 
consumer groups representing the interests of people with hearing loss 
to provide input into the development of HAC standards. Before a new 
standard is adopted, according to ANSI documents, all interested 
parties have a chance to comment on the revision and to have their 
comments considered by the working group. Will this process afford such 
individuals the opportunity to comment on proposed new or revised 
standards prior to their adoption even if such individuals are not ANSI 
members? Have consumer groups or individuals representing hearing loss 
interests participated in such standards-setting efforts in the past, 
and if so, what has been their experience with this process? What would 
be the most effective role for consumer groups and individual consumers 
in the process of setting standards for HAC that are based on complex 
engineering issues? The process also includes an appeal mechanism. Does 
ANSI's appeal mechanism adequately protect consumer interests? To what 
extent do interested parties believe that the ANSI process will be 
capable of ensuring that revisions to HAC technical standards will meet 
the needs of all interested stakeholders? The Commission also invites 
comment on whether there are other relevant standards development 
organizations following processes that could meet the requirements of 
section 710(c) of the Act. Commenters who recommend that the Commission 
recognize a particular alternative standards development organization 
or process should explain why such an organization or process qualifies 
as a ``public participation process'' for purposes of section 710(c) of 
the Act and why it is an appropriate process for development of a 
standard for assessing HAC compliance.
    27. Section 710(c) of the Act further requires that standards be 
developed in consultation with ``interested consumer stakeholders'' who 
are ``designated by the Commission.'' The Commission proposes to direct 
the Commission's newly formed Disability Advisory Committee (DAC) to 
provide recommendations on who should be designated as ``interested 
consumer stakeholders'' for purposes of section 710(c) of the Act and 
further proposes that the Consumer and Governmental Affairs Bureau 
(CGB) consider such recommendations in making these final designations. 
Additionally, the Commission proposes that the DAC be directed to 
consult with nationally recognized consumer organizations, both 
appointed to and outside of the DAC, that have expertise on HAC and 
related telecommunications issues. Further, the Commission proposes 
that, to qualify for designation as ``interested consumer 
stakeholders,'' individuals or organizations should have technical 
expertise in the field of hearing loss and a high level of knowledge 
about the communication needs of people who are deaf and hard of 
hearing. The Commission seeks comment on these proposed criteria and 
any other applicable criteria for designation of consumer stakeholders. 
Finally, the Commission proposes that each consumer representative or 
organization receiving a designation as an ``interested consumer 
stakeholder'' maintain such designation for a period of two years, with 
the process described above being repeated at the end of each two-year 
period. The Commission believes that taking this approach will provide 
the expertise and stability needed for effective participation in the 
standards-setting process. The Commission seeks comment on these 
proposals, as well as how many consumer stakeholders to designate.
    28. The Commission proposes to define ``in consultation with 
interested consumer stakeholders'' as signifying a

[[Page 80729]]

process in which consumer stakeholders designated by the Commission are 
allowed to participate from the start and throughout the standards 
development process. The Commission further proposes that when there is 
adherence to this process, the resulting standards may become effective 
for compliance purposes in an accelerated manner pursuant to section 
710(c) of the Act as amended by the CVAA. The Commission seeks comment 
on this proposal, and whether designated consumer stakeholders should 
also be invited to serve as voting members of relevant standards 
development committees such as TIA's TR-41 committee and ANSI ASC 
C63[supreg]-EMC. Would such voting membership be consistent with 
existing committee procedures, or would changes in committee procedures 
or by-laws be needed to accommodate it? Further, regarding possible 
steps to secure effective participation, the Commission seeks comment 
on whether, in order to qualify as a consumer consultation process 
under section 710(c) of the Act, organization membership fees that may 
ordinarily be required for participation in the ANSI standards setting 
process should be waived for Commission-designated consumer 
stakeholders operating under a tax-exempt, non-profit status, and 
whether reasonable accommodations, such as sign language interpreters 
and communication access real-time translation (CART), should be 
provided for the attendance and participation of such designees during 
committee deliberations, at no cost to individuals needing such 
accommodations. The Commission seeks comment on these proposals, their 
costs and benefits, and their advantages or disadvantages in advancing 
the purposes of section 710 of the Act. Commenters who believe that 
other types of processes would be more appropriate and sufficient to 
ensure effective public participation and ``consultation with 
interested consumer stakeholders'' as required by section 710(c) of the 
Act are asked to provide detailed proposals for how such alternatives 
would achieve the desired objectives.
    29. The Commission emphasizes that section 710(c) of the Act, as 
amended, does not mandate that any standards-setting organization 
change its procedures to provide for consultation with interested 
consumer stakeholders designated by the Commission. In the event that a 
standards-setting organization were to conclude that consultation with 
consumer stakeholders, as defined by the rules adopted in this 
proceeding, is not practicable or is inconsistent with the needs of the 
organization, the only legal consequence would be that, as is currently 
the case, standards developed by that organization would need to be 
formally adopted in a Commission rulemaking before they could be relied 
upon for hearing aid compatibility compliance purposes. Alternatively, 
a standard could be developed by another organization through a process 
that complies with section 710(c) of the Act and the Commission's 
implementing rules. The Commission invites comment on whether, in the 
event that ANSI chooses not to incorporate a consumer consultation 
process into its standards-setting procedures, the Commission should 
recognize another organization for purposes of section 710(c) of the 
Act, and invites commenters supporting recognition of another 
standards-setting body to propose other bodies for consideration.
    30. In order to fully implement section 710(c) of the Act, as 
amended, it appears necessary to provide for Commission review of HAC 
standards after they have been developed, while allowing industry to 
rely on such standards for HAC compliance purposes ``until such time as 
the Commission may determine otherwise.'' The Commission proposes that, 
upon publication by ANSI of a new or revised HAC standard, the relevant 
Bureaus and Offices shall issue a public notice describing such 
standard, specifying the effective date set by ANSI and the equipment 
and services to which the standard applies, and indicating where the 
standard and related information can be obtained. The Commission 
proposes that in such public notice, the relevant Bureaus and Offices 
shall initiate a review of the standard by seeking public comment on 
(1) whether the public participation and consumer consultation 
processes specified by section 710(c) of the Act and by the rules 
adopted in this proceeding were followed in developing the new or 
revised standard, and (2) whether the use of the standard to determine 
whether wireline telephones, other customer premises equipment, or 
wireless handsets are hearing aid compatible meets the substantive 
requirements of section 710 of the Act. The Commission seeks comment on 
this proposal generally, its costs and benefits, and the following 
matters in particular.
    31. The Commission invites comment on whether ANSI should be 
permitted to seek Commission review of a draft standard that has been 
approved by a subcommittee before it is formally approved by the parent 
committee, or before it is adopted through a public review process. 
Would the benefit of earlier Commission approval that could be gained 
by initiating review at an intermediate stage justify the potential for 
administrative waste if a draft standard is subsequently revised prior 
to its final adoption by the standards-setting organization? What other 
advantages or disadvantages are there for allowing such intermediate 
review?
    32. The Commission proposes that the Commission's review be 
conducted by the relevant Bureau--CGB in the case of wireline standards 
and WTB in the case of wireless standards--in conjunction with the 
Office of Engineering and Technology (OET), and that such review be 
completed, and a determination issued by the relevant bureau approving 
or disapproving such standards, no later than 180 days after the review 
period begins. The Commission seeks comment on whether this timetable 
will be sufficient to ensure that the Commission addresses its 
responsibilities under section 710(c) of the Act. The Commission also 
seeks comment on what consequences should ensue in the event that the 
timetable is not met. Should the standard be deemed approved? Or should 
the proceeding remain open, so that a decision approving or 
disapproving the standard could still be made based on the record 
compiled, despite the expiration of the timetable? The Commission 
invites commenters to suggest alternative processes, such as, for 
Commercial Mobile Radio Service (CMRS) handsets, modification of the 
existing delegations of authority under Sec.  20.19(k) of its rules, 
that they believe will more effectively or appropriately address the 
Commission's section 710(c) of the Act responsibilities.
    33. The Commission seeks comment on the necessity of, and the 
appropriate procedure for, amending the Commission's rules to reflect 
Commission approval of a standard developed by ANSI in accordance with 
the manner described above. The Commission proposes that, where a 
technical standard has been approved for HAC compliance purposes 
pursuant to the Commission review process described above, such 
approval shall be codified in the Commission's rules. The Commission 
seeks comment on this proposal. The Commission also seeks comment on 
the appropriate procedure for phasing out reliance on a standard when 
it has been superseded by a revised version, i.e., whether and how to 
terminate industry's ability to rely on a superseded standard.

[[Page 80730]]

    34. The Commission seeks comment on whether the various processes 
set forth above for implementation of section 710(c) of the Act are 
consistent with section 559 of the Administrative Procedure Act (APA), 
which states that a ``[s]ubsequent statute may not be held to supersede 
or modify [the APA] . . . except to the extent that it does so 
expressly.'' 5 U.S.C. 559. The District of Columbia Circuit has held 
that a statute may be found to authorize an administrative agency to 
adopt rules outside of an APA procedure if ``Congress has established 
procedures so clearly different from those required by the APA that it 
must have intended to displace the norm.'' Asiana Airlines v. FAA, 134 
F.3d 393, 397 (D.C. Cir. 1998). Specifically, the Commission seeks 
comment on the extent to which commenters believe that any components 
of the above processes differ from processes required by the APA, and 
whether Sec.  710(c) of the Act nevertheless authorizes the Commission 
to implement such processes.

Incorporation by Reference

    35. The Office of Federal Register (OFR) recently revised the 
regulations to require that agencies must discuss in the preamble of a 
proposed rule ways that the materials the agency proposes to 
incorporate by reference are reasonably available to interested parties 
or how it worked to make those materials reasonably available to 
interested parties. In addition, the preamble of the proposed rule must 
summarize the material. 1 CFR 51.5(a). In accordance with OFR's 
requirements, the discussion in this section summarizes the 2012 ANSI 
Wireline Volume Control Standard. The following document is available 
from the American National Standards Institute (ANSI), Sales 
Department, 11 West 42nd Street, 13th Floor, New York, NY 10036, (212) 
642-4900, or at https://global.ihs.com/search_res.cfm?RID=TIA&INPUT_DOC_NUMBER=ANSI/TIA-4965: ``ANSI/TIA-4965-
2012, Receive Volume Control Requirements for Digital and Analog 
Wireline Terminals.'' This standard modifies in two ways the manner in 
which amplification is measured for wireline phones. First, the 
standard discontinues the use of an IEC-318 coupler and specifies 
instead the Head and Torso Simulator (HATS) method. Second, the 
standard replaces the Receive Objective Loudness Rating (ROLR) method 
of calibrating amplification with a new method called Conversational 
Gain.

Initial Regulatory Flexibility Act Analysis

    36. As required by the Regulatory Flexibility Act, 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 document FCC 15-144. 
Written public comments are requested on this IRFA. Comments must be 
identified as responses to the IRFA and must be filed by the applicable 
deadline for comments as indicated in the DATES section. The Commission 
will send a copy of document FCC 15-144, including this IRFA, to the 
Chief Counsel for Advocacy of the Small Business Administration (SBA). 
See 5 U.S.C. 603(a).

Need For, and Objectives of, the Proposed Rules

    37. The Commission proposes to amend the HAC rules with the goal of 
ensuring that Americans with hearing loss are able to access wireline 
and wireless communications services through a wide array of phones, 
including VoIP telephones.
    38. Regarding wireline equipment, the Commission seeks comment on a 
Commission proposal to incorporate into the rules a revised industry 
volume control standard--ANSI/TIA-4965-2012 (2012 ANSI Wireline Volume 
Control Standard)--that appears likely to improve the ability of people 
with hearing loss to select wireline telephones with sufficient volume 
control to meet their communication needs and provide greater 
regulatory certainty for the industry. The revised standard modifies 
the physical set-up for measuring amplification for wireline phones, by 
discontinuing the use of an IEC-318 coupler, which must form a seal 
with the telephone handset, and specifying instead the HATS method, 
which uses a mannequin with a human pinna (outer ear) simulator. In 
addition, the new standard replaces the ROLR method of calibrating 
amplification with a new method called Conversational Gain. According 
to TIA, the new standard will provide a more consistent experience of 
amplified gain level, enabling consumers with hearing loss to better 
assess and compare the merits of various models of terminal equipment. 
The Commission believes that incorporating the 2012 ANSI Wireline 
Volume Control Standard into the wireline volume control rule will make 
the rule more effective in ensuring that people with hearing loss have 
``equal access to the national telecommunications network'' (Public Law 
100-394, sec. 2(1)) and that telephones provide ``an internal means for 
effective use with hearing aids'' (47 U.S.C. 610(b)).
    39. The Commission also proposes to apply the Commission's wireline 
telephone volume control and other HAC requirements to handsets used 
with VoIP services. See 47 CFR 68.4, 68.6. This proposal implements the 
CVAA (Public Law 111-260; Public Law 111-265), which provides that the 
HAC requirements of the Act apply to all customer premises equipment 
used with advanced communications services, including VoIP services. 
The Commission seeks comment on the costs, benefits, and technical 
impacts of applying the rules to VoIP equipment, whether volume control 
and inductive coupling parameters for such equipment can be effectively 
measured under the 2012 ANSI Wireline Volume Control Standard and the 
currently applicable inductive coupling standard (47 CFR 68.316, 
68.317), the appropriate timetables or benchmarks that may be necessary 
to take account of technical feasibility or to ensure the marketability 
or availability of new technologies to users, whether any different 
treatment of VoIP CPE is appropriate under the part 68 rules addressing 
complaint handling, labeling, certifications, and suppliers' 
declarations of conformity, and whether it would be appropriate to 
require registration of VoIP CPE in a public database, such as the 
database of terminal equipment that ACTA administers.
    40. Regarding wireless equipment, the Commission seeks comment on a 
Commission proposal to adopt a volume control rule and standard for 
wireless handsets. In light of the greatly expanded role of wireless 
voice communications in our society, the Commission believes that 
adopting a specific volume control requirement for wireless handsets is 
necessary to achieve effective acoustic coupling and improve 
communication for people with hearing loss. The Commission seeks 
comment on the costs and benefits of adopting a volume control 
requirement for wireless handsets, what specific burdens, if any, are 
associated with requiring handsets to achieve a specified amplification 
level, and whether a volume control requirement should apply to all 
wireless handsets or to a subset of total handset sales or models, as 
with the current HAC rule. Finally, the Commission seeks comment on the 
appropriate standard for volume control in wireless phones and on 
whether to address, via standards or through other means, factors other 
than

[[Page 80731]]

amplification that affect the ability of consumers with hearing loss to 
hear and understand speech received over wireless handsets, such as 
frequency response and distortion and magnetic field strength issues.
    41. In addition, the Commission seeks comment on its proposals to 
require manufacturers to use exclusively the 2011 ANSI Wireless HAC 
Standard for certifying future handsets as hearing aid compatible and 
to eliminate the power-down exception to the existing wireless HAC 
rule. 47 CFR 20.19(e)(1)(iii). Since July 2013, manufacturers appear to 
have been using the 2011 ANSI Wireless HAC Standard to test the vast 
majority of their new handsets. In order to facilitate meeting the 2007 
version of the standard, certain handsets were allowed to be tested 
using less than maximum output power, but that exception appears to be 
unnecessary for purposes of meeting the 2011 standard.
    42. Regarding all equipment subject to HAC requirements, the 
Commission seeks comment on a proposed streamlined process for allowing 
manufacturers and service providers to rely on a new or revised 
technical standard as sufficient for assessing compliance with relevant 
HAC requirements, without a prior Commission rulemaking, if the 
standard is developed by an ANSI-accredited standards development 
organization in accordance with an appropriate public participation 
process and in consultation with consumer stakeholders designated by 
the Commission, as required by the CVAA. Public Law 111-260, sec. 
102(b); 47 U.S.C. 610(c). In particular, the Commission seeks comment 
on its proposals to recognize the ANSI process as a ``public 
participation process'' for purposes of 47 U.S.C. 610(c), to require 
that for a standard to qualify for accelerated incorporation into the 
HAC rule, consumer stakeholders designated by the Commission must be 
allowed to participate throughout the standards development process, 
and to provide for streamlined Commission post-effectiveness review of 
standards to ensure consistency with statutory requirements.
Legal Basis
    43. The authority for this proposed rulemaking is contained in 
sections 4(i) and 710 of the Act. 47 U.S.C. 154(i), 610.

Description and Estimate of the Number of Small Entities Impacted

    44. 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 and policies, 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. Pursuant to 5 U.S.C. 601(3), the statutory 
definition of a small business applies ``unless an agency, after 
consultation with the Office of Advocacy of the Small Business 
Administration and after opportunity for public comment, establishes 
one or more definitions of such term which are appropriate to the 
activities of the agency and publishes such definition(s) in the 
Federal Register.'' A ``small business concern'' is one that: (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.
    45. Small Entities. The Commission's actions, over time, may affect 
small entities that are not easily categorized at present. The 
Commission therefore describes here, at the outset, three comprehensive 
small entity size standards that encompass entities that could be 
directly affected by the proposals under consideration. As of 2009, 
small businesses represented 99.9% of the 27.5 million businesses in 
the United States, according to the SBA. Additionally, a ``small 
organization'' is generally any not-for-profit enterprise which is 
independently owned and operated and is not dominant in its field. 
Nationwide, as of 2007, there were approximately 1,621,215 small 
organizations. Independent Sector, ``The New Nonprofit Almanac and Desk 
Reference'' (2010). Finally, the term ``small governmental 
jurisdiction'' is defined generally as ``governments of cities, towns, 
townships, villages, school districts, or special districts, with a 
population of less than fifty thousand.'' Census Bureau data for 2011 
indicate that there were 90,056 local governmental jurisdictions in the 
United States. The Commission estimates that, of this total, as many as 
89,327 entities may qualify as ``small governmental jurisdictions.'' 
Thus, the Commission estimates that most local governmental 
jurisdictions are small.
    46. 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 phone services, 
paging services, wireless Internet access, and wireless video services. 
The appropriate size standard under SBA rules is for the category 
Wireless Telecommunications Carriers (except satellite). For that 
category a business is small if it has 1,500 or fewer employees. For 
this category, census data for 2007 show that there were 1,383 firms 
that operated for the entire year. Of this total, 1,368 firms had 
employment of fewer than 1,000 employees. Thus, under this category and 
the associated small business size standard, the Commission estimates 
that the majority of wireless telecommunications carrier (except 
satellite) firms are small.
    47. Satellite Telecommunications. According to the U.S. Census 
Bureau, the category of ``Satellite Telecommunications'' 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.'' The 
category has a small business size standard of $32.5 million or less in 
average annual receipts, under SBA rules. For this category, Census 
Bureau data for 2007 show that there were a total of 512 firms that 
operated for the entire year. Of this total, 482 firms had annual 
receipts of less than $25 million. Consequently, the Commission 
estimates that the majority of satellite telecommunications providers 
are small entities that might be affected by its action.
    48. All Other Telecommunications. ``All Other Telecommunications'' 
is defined by the U.S. Census Bureau as follows: ``This U.S. industry 
comprises 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 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 $32.5 million or less. For this

[[Page 80732]]

category, census data for 2007 show that there were 2,383 firms that 
operated for the entire year. Of those firms, a total of 2,346 had 
gross annual receipts of less than $25 million. Thus, a majority of All 
Other Telecommunications firms potentially affected by the proposed 
rule can be considered small.
    49. Telephone Apparatus Manufacturing. The Census Bureau defines 
this category to comprise ``establishments primarily engaged in 
manufacturing wire telephone and data communications equipment.'' The 
Census Bureau further states: ``These products may be stand alone or 
board-level components of a larger system. Examples of products made by 
these establishments are central office switching equipment, cordless 
telephones (except cellular), PBX equipment, telephones, telephone 
answering machines, LAN modems, multi-user modems, and other data 
communications equipment, such as bridges, routers, and gateways.'' In 
this category the SBA deems a telephone apparatus manufacturing 
business to be small if it has 1,000 or fewer employees. For this 
category of manufacturers, census data for 2007 showed that there were 
398 such establishments that operated that year. Of those 398 
establishments, 393 had fewer than 1,000 employees. Thus, under this 
size standard, the majority of establishments in this industry can be 
considered small.
    50. Radio and Television Broadcasting and Wireless Communications 
Equipment Manufacturing. The Census Bureau defines this industry as 
comprising ``establishments primarily engaged in manufacturing radio 
and television broadcast and wireless communications equipment. 
Examples of products made by the 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 that classifies any business in this 
industry as small if it has 750 or fewer employees. Census Bureau data 
for 2007 indicate that in that year 939 such businesses operated. Of 
that number, 912 businesses operated with less than 500 employees. 
Based on this data, the Commission concludes that a majority of 
businesses in this industry are small by the SBA standard.
    51. Electronic Computer Manufacturing. According to the U.S. Census 
Bureau, this category ``comprises establishments primarily engaged in 
manufacturing and/or assembling electronic computers, such as 
mainframes, personal computers, workstations, laptops, and computer 
servers. Computers can be analog, digital, or hybrid. Digital 
computers, the most common type, are devices that do all of the 
following: (1) Store the processing program or programs and the data 
immediately necessary for the execution of the program; (2) can be 
freely programmed in accordance with the requirements of the user; (3) 
perform arithmetical computations specified by the user; and (4) 
execute, without human intervention, a processing program that requires 
the computer to modify its execution by logical decision during the 
processing run. Analog computers are capable of simulating mathematical 
models and contain at least analog, control, and programming elements. 
The manufacture of computers includes the assembly or integration of 
processors, coprocessors, memory, storage, and input/output devices 
into a user-programmable final product.'' The SBA has developed a small 
business size standard for this category of manufacturing; that size 
standard is 1,000 or fewer employees. According to Census Bureau data 
for 2007, there were 425 establishments in this category that operated 
that year. Of these, 419 had less 1,000 employees. Consequently, the 
Commission estimates that the majority of these establishments are 
small entities that may be affected by its action.
    52. Computer Terminal Manufacturing. According to the U.S. Census 
Bureau, this category ``comprises establishments primarily engaged in 
manufacturing computer terminals. Computer terminals are input/output 
devices that connect with a central computer for processing.'' As of 
December 2, 2014, the category ``Computer Terminal Manufacturing,'' 
North American Industry Classification System (NAICS) Code 334113, was 
superseded by a new NAICS Code classification, ``Computer Terminal and 
Other Computer Peripheral Manufacturing,'' NAICS Code 334118. However, 
since this rule making concerns only computer terminal manufacturing, 
only national data from the 2007 Census has been used to provide 
information about that industry. The SBA size standard, defining a firm 
within that industry as small if it has 1,000 or less employees, 
remained unchanged when NAICS Code 334113 was changed to NAICS Code 
334118. The SBA has developed a small business size standard for this 
category of manufacturing; that size standard is 1,000 or fewer 
employees. According to Census Bureau data for 2007, there were 43 
establishments in this category that operated that year. Of this total, 
all 43 had less than 500 employees. Consequently, the Commission 
estimates that the majority of these establishments are small entities 
that may be affected by its action.
    53. Software Publishers. According to the U.S. Census Bureau, this 
category ``comprises establishments primarily engaged in computer 
software publishing or publishing and reproduction. This industry 
comprises establishments primarily engaged in computer software 
publishing or publishing and reproduction. Establishments in this 
industry carry out operations necessary for producing and distributing 
computer software, such as designing, providing documentation, 
assisting in installation, and providing support services to software 
purchasers. These establishments may design, develop, and publish, or 
publish only.'' The SBA has developed a small business size standard 
for software publishers, which consists of all such firms with gross 
annual receipts of $38.5 million or less. For this category, census 
data for 2007 show that there were 5,313 firms that operated for the 
entire year. Of those firms, a total of 4,956 had gross annual receipts 
less than $25 million. Thus, a majority of software publishers 
potentially affected by the proposed rule can be considered small.
Description of Projected Reporting, Recordkeeping and Other Compliance 
Requirements
    54. Certain rule changes proposed, if adopted by the Commission, 
would modify rules or add requirements governing reporting, 
recordkeeping, and other compliance obligations.
    55. If the Commission were to incorporate the 2012 ANSI Wireline 
Volume Control Standard into the wireline volume control rules and 
eliminate the currently applicable standard after a transition period, 
such action would alter the compliance obligations of wireline 
telephone apparatus manufacturers, including small entities, by 
requiring them to use a different method for testing and evaluating 
compliance with the volume control requirement.
    56. If the Commission were to explicitly apply some or all of the 
Commission's wireline telephone volume control and other HAC rules, 
which include related labeling, certification, complaint processing, 
and registration requirements, to handsets used with VoIP services, 
such action

[[Page 80733]]

would impose new compliance obligations and reporting and recordkeeping 
obligations on some wireline telephone apparatus manufacturers, 
electronic computer manufacturers, computer terminal manufacturers, and 
software publishers, including small entities.
    57. If the Commission were to adopt a rule and standard for 
wireless handsets to address volume control and other acoustic coupling 
issues, such action would impose new compliance obligations and may 
impose additional reporting and recordkeeping obligations on wireless 
telecommunications carriers, satellite telecommunications providers, 
and wireless communications equipment manufacturers, including small 
entities.
    58. If the Commission were to modify the 2011 ANSI Wireless HAC 
Standard to achieve more effective coupling between handsets and 
hearing aids or cochlear implants, such action would alter the 
compliance obligations of wireless telecommunications carriers, 
satellite telecommunications providers, and wireless communications 
equipment manufacturers, including small entities. However, such 
changes would not result in new regulatory burdens.
    59. If the Commission were to require manufacturers to use 
exclusively the 2011 ANSI Wireless HAC Standard (with any modifications 
adopted in this rulemaking) to certify future handsets as hearing aid 
compatible and eliminate the power-down exception to the existing 
wireless HAC rule, such action would alter the compliance obligations 
of wireless telecommunications carriers, satellite telecommunications 
providers, and wireless communications equipment manufacturers, 
including small entities. However, such changes would not result in new 
regulatory burdens.
    60. If the Commission were to adopt a rule providing that, pursuant 
to section 710(c) of the Act, equipment may be considered to be in 
compliance with HAC rules if it complies with relevant ANSI technical 
standards, such action could affect the compliance obligations of 
wireless telecommunications carriers, satellite telecommunications 
providers, and wireless communications equipment manufacturers, 
including small entities.

Steps Taken To Minimize Significant Impact on Small Entities, and 
Significant Alternatives Considered

    61. The RFA requires an agency to describe any significant 
alternatives that it has considered in reaching its proposed approach, 
which may include the following four alternatives (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 or reporting requirements under the rule for small entities; 
(3) the use of performance, rather than design, standards; and (4) an 
exemption from coverage of the rule, or any part thereof, for small 
entities. 5 U.S.C. 603(b).
    62. Regarding the Commission's proposal to incorporate the 2012 
ANSI Wireline Volume Control Standard into the wireline volume control 
rules, the Commission notes that 2012 ANSI Wireline Volume Control 
Standard is a performance standard, not a design standard, and 
therefore implements alternative (3) above. Further, to minimize the 
difficulty of adjusting to the revised standard, the Commission 
proposes to allow a phase-in period during which manufacturers may 
comply with either the existing standard or the 2012 ANSI Wireline 
Volume Control Standard. Finally, to limit any potential burdens 
regarding the impact of the proposed rule change and future rule 
changes on previously manufactured telephones, the Commission proposes 
to amend its rules to allow the existing inventory and installed base 
of telephones that comply with the existing volume control standard to 
remain in place until retired and to clarify that future minor changes 
to the HAC and volume control standards will not result in a 
requirement to modify existing inventories or installed telephones. 
Each of these possible approaches, if adopted, could help minimize the 
impact of the revised standard on small entities. Further, if this 
revised standard more accurately measures the amplification achievable 
by wireline telephone products, incorporation of this standard could 
lighten regulatory burdens by increasing market certainty, promoting a 
level playing field, and reducing the number of complaints made to 
manufacturers by consumers of their products.
    63. Regarding the Commission's proposal to amend 47 CFR part 68 to 
explicitly provide that customer premises equipment used with a VoIP 
service is subject to the wireline HAC and volume control requirements, 
the Commission notes that the standards provided in the rules are 
performance standards, not design standards. Further, the proposed rule 
amendment could increase regulatory certainty and market fairness 
regarding the application of the wireline HAC rules. In addition, the 
Commission seeks comment on the appropriate timetables or benchmarks 
that may be necessary in order to take account of technical feasibility 
or to ensure the marketability or availability of new technologies to 
users. Such timetables or benchmarks could help minimize the impact of 
the revised standard on small entities.
    64. Regarding the Commission's proposals (1) to adopt a rule and 
standard for wireless handsets to address volume control, (2) to 
require manufacturers to use the 2011 ANSI Wireless HAC Standard 
exclusively and (3) to eliminate the power-down exception to the 
existing wireless HAC rule, the Commission notes that the 2011 ANSI 
Wireless HAC Standard is a performance standard, not a design standard. 
In addition, the existing HAC rule limits the number of models that 
must comply with the rule, especially for smaller carriers and 
manufacturers, and the Commission seeks comment on whether a volume 
control requirement, if adopted, should utilize the same approach, 
which could help minimize the impact on small entities.
    65. Regarding the Commission's proposal to permit industry to rely 
on HAC standards developed pursuant to section 710(c) of the Act, in 
advance of a Commission rulemaking, such action would not result in new 
or increased regulatory burdens and may decrease regulatory burdens on 
small entities.

Federal Rules Which Duplicate, Overlap, or Conflict With, the 
Commission's Proposals

    66. None.

List of Subjects in 47 CFR Parts 20 and 68

    Incorporation by reference, Individuals with disabilities, 
Telecommunications, Telephones.

Federal Communications Commission.
Gloria J. Miles,
Federal Register Liaison Officer, Office of the Secretary.
    For the reasons discussed in the preamble, the Federal 
Communications Commission proposes to amend title 47 of the Code 
Federal Regulations as follows:

PART 20--COMMERCIAL MOBILE SERVICES

0
1. The authority citation for part 20 continues to read as follows:

    Authority:  47 U.S.C. 151, 152(a), 154(i), 157, 160, 201, 214, 
222, 251(e), 301, 302, 303, 303(b), 303(r), 307, 307(a), 309, 
309(j)(3), 316, 316(a), 332, 615, 615a, 615b, 615c.

0
2. Amend Sec.  20.19 by:

[[Page 80734]]

0
a. Revising paragraphs (b)(1) and (2) and (l) introductory text;
0
b. Removing the word ``and'' at the end of paragraph (e)(1)(ii)(B) and 
removing the period at the end of paragraph (e)(1)(ii)(C) and adding 
``; and'' in its place; and
0
c. Adding paragraphs (e)(1)(iii)(D) and (k)(3).
    The revisions and additions read as follows:


Sec.  20.19  Hearing aid-compatible mobile handsets.

* * * * *
    (b) Hearing aid compatibility; technical standards--(1) For radio 
frequency interference and other aspects of acoustic coupling--(i) 
Radio frequency interference. A wireless handset submitted for 
equipment certification or for a permissive change relating to hearing 
aid compatibility must either comply with a standard meeting the 
requirements of paragraph (k)(3) of this section or meet, at a minimum, 
the M3 rating associated with the technical standard set forth in the 
standard document ``American National Standard Methods of Measurement 
of Compatibility Between Wireless Communication Devices and Hearing 
Aids,'' ANSI C63.19-2011. Any grants of certification issued before 
[SIX MONTHS AFTER THE EFFECTIVE DATE OF THE FINAL RULE], under previous 
versions of ANSI C63.19 remain valid for hearing aid compatibility 
purposes.
    (ii) Volume control. A wireless handset submitted for equipment 
certification or for a permissive change relating to hearing aid 
compatibility must include volume control that is compliant with a 
relevant technical standard established or approved by the Commission 
pursuant to 47 U.S.C. 710(c).
    (2) For inductive coupling. A wireless handset submitted for 
equipment certification or for a permissive change relating to hearing 
aid compatibility must either comply with a standard meeting the 
requirements of paragraph (k)(3) of this section or meet, at a minimum, 
the T3 rating associated with the technical standard set forth in the 
standard document ``American National Standard Methods of Measurement 
of Compatibility Between Wireless Communication Devices and Hearing 
Aids,'' ANSI C63.19-2011. Any grants of certification issued before 
[SIX MONTHS AFTER THE EFFECTIVE DATE OF THE FINAL RULE], under previous 
versions of ANSI C63.19 remain valid for hearing aid compatibility 
purposes.
* * * * *
    (e) * * *
    (1) * * *
    (iii) * * *
    (D) The handset was certified as meeting the requirements of 
paragraph (b)(1) of this section with the power reduction prior to [SIX 
MONTHS AFTER THE EFFECTIVE DATE OF THE FINAL RULE].
* * * * *
    (k) * * *
    (3) Reliance on standards developed through a public participation 
and consumer consultation process--(i) General. Wireless handsets that 
are compliant with a new or revised technical standard developed in 
accordance with this paragraph (k)(3) shall be considered hearing aid 
compatible for purposes of each relevant requirement of this section 
until such time as the Commission may determine otherwise.
    (ii) Qualifying public participation standards development process. 
For a handset to be considered hearing aid compatible under this 
paragraph (k)(3), the handset must comply with a standard that was 
developed through a voluntary and consensus-driven process under the 
aegis of a standards-setting body that is recognized by the Commission 
for purposes of this paragraph (k)(3). Such process must:
    (A) Be open to participation by all relevant stakeholders who have 
legitimate and meaningful interests in the process;
    (B) Allow all interested parties, including consumers and groups 
representing them, to comment on a proposed standard prior to adoption 
and to have their comments considered by the working groups that 
develop the standards; and
    (C) Provide an appeal mechanism that allows interested parties to 
seek review of standards-setting decisions.
    (iii) Consultation with consumer stakeholders. For a handset to be 
considered hearing aid compatible under this paragraph (k)(3), the 
handset must comply with a standard that was developed in consultation 
with interested consumer stakeholders as described in this paragraph 
(k)(3)(iii). Consumer stakeholders designated by the Consumer and 
Governmental Affairs Bureau shall be given the option to participate at 
the start of and throughout the standards development process and shall 
be invited to participate in relevant subcommittees and working groups. 
Any organization membership fees that may ordinarily be required for 
participation in the standards-setting process shall be waived for 
consumer organizations operating under a tax-exempt, non-profit status, 
and reasonable accommodations, such as sign language interpreters and 
communication access real-time translation (CART), shall be provided, 
as needed, for the attendance and participation of such designees 
during committee deliberations, at no cost to individuals needing such 
accommodations.
    (l) The standards listed in this section are incorporated by 
reference into this section with the approval of the Director of the 
Federal Register under 5 U.S.C. 552(a) and 1 CFR part 51. All material 
associated with the standards listed in this paragraph (l) is available 
for inspection at the Federal Communications Commission (FCC), 445 12th 
St. SW., Reference Information Center, Room CY-A257, Washington, DC 
20554 and is available from the sources indicated below. It is also 
available for inspection at the National Archives and Records 
Administration (NARA). For information on the availability of this 
material at NARA, call 202-741-6030 or go to https://www.archives.gov/federal_register/code_of_federal_regulations/ibr_locations.htm.
    These standards may also be viewed on the ``ANSI Incorporated by 
Reference (IBR) Portal'' at https://ibr/ansi.org/.
* * * * *

PART 68--CONNECTION OF TERMINAL EQUIPMENT TO THE TELEPHONE NETWORK

0
3. The authority citation for part 68 continues to read as follows:

    Authority:  47 U.S.C. 154, 303.
0
4. Revise Sec.  68.1 to read as follows:


Sec.  68.1  Purpose.

    The purpose of the rules and regulations in this part is to provide 
for uniform standards for the protection of the telephone network from 
harms caused by the connection of terminal equipment and associated 
wiring thereto, for the compatibility of hearing aids and telephones, 
and the compatibility of hearing aids and customer premises equipment 
used to access advanced communications services, so as to ensure that, 
to the fullest extent made possible by technology and medical science, 
people who are deaf and hard of hearing have equal access to the 
national telecommunications network.
0
5. Amend Sec.  68.2 by revising paragraph (a) to read as follows:


Sec.  68.2  Scope.

    (a) Except as provided in paragraphs (b) and (c) of this section, 
the rules and

[[Page 80735]]

regulations apply to direct connection of all terminal equipment to the 
public switched telephone network for use in conjunction with all 
services other than party line services. Sections 68.4, 68.5, 68.6, 
68.112, 68.160, 68.162, 68.201, 68.211 (except paragraph (a)(2)), 
68.218, 68.224, and subparts D (except Sec. Sec.  68.318, 68.324(e)(1) 
and (2), and 68.354) and E of this part also apply to ``ACS telephonic 
CPE'' as defined in Sec.  68.3, for the purpose of achieving compliance 
with hearing aid compatibility and volume control requirements.
* * * * *
0
6. Revise Sec.  68.3 to read as follows:


Sec.  68.3  Definitions.

    ACS Telephonic CPE. Customer premises equipment used with advanced 
communications services that is designed to provide 2-way voice 
communication via a built-in speaker intended to be held to the ear in 
a manner functionally equivalent to a telephone, except for mobile 
handsets.
    Advanced communications services. Interconnected VoIP service, non-
interconnected VoIP service, electronic messaging service, and 
interoperable video conferencing service.
    Demarcation point (also point of interconnection). As used in this 
part, the point of demarcation and/or interconnection between the 
communications facilities of a provider of wireline telecommunications, 
and terminal equipment, protective apparatus or wiring at a 
subscriber's premises.
    Essential telephones. Only coin-operated telephones, telephones 
provided for emergency use, and other telephones frequently needed for 
use by persons using such hearing aids.
    Harm. Electrical hazards to the personnel of providers of wireline 
telecommunications, damage to the equipment of providers of wireline 
telecommunications, malfunction of the billing equipment of providers 
of wireline telecommunications, and degradation of service to persons 
other than the user of the subject terminal equipment, his calling or 
called party.
    Hearing aid compatible. Except as used at Sec. Sec.  68.4(a)(3), 
68.315, and 68.414, the terms ``hearing aid compatible'' or ``hearing 
aid compatibility'' shall have the meaning defined in Sec.  68.316, 
unless it is specifically stated that hearing aid compatibility volume 
control, as defined in Sec.  68.317, is intended or is included in the 
definition.
    Inside wiring or premises wiring. Customer-owned or controlled wire 
on the subscriber's side of the demarcation point.
    Premises. As used herein, generally a dwelling unit, other building 
or a legal unit of real property such as a lot on which a dwelling unit 
is located, as determined by the provider of telecommunications 
service's reasonable and nondiscriminatory standard operating 
practices.
    Private radio services. Private land mobile radio services and 
other communications services characterized by the Commission in its 
rules as private radio services.
    Public mobile services. Air-to-ground radiotelephone services, 
cellular radio telecommunications services, offshore radio, rural radio 
service, public land mobile telephone service, and other common carrier 
radio communications services covered by part 22 of title 47 of the 
Code of Federal Regulations.
    Responsible party. The party or parties responsible for the 
compliance of terminal equipment or protective circuitry that is 
intended for connection directly to the public switched telephone 
network or for use with advanced communications services with the 
applicable rules and regulations in this part and with any applicable 
technical criteria published by the Administrative Council for Terminal 
Attachments (see Sec. Sec.  68.604 and 68.608). If a Telecommunications 
Certification Body certifies the terminal equipment, the responsible 
party is the holder of the certificate for that equipment. If the 
terminal equipment is the subject of a Supplier's Declaration of 
Conformity, the responsible party shall be: the manufacturer of the 
equipment, or the manufacturer of protective circuitry that is marketed 
for use with terminal equipment that is not to be connected directly to 
the network, or if the equipment is imported, the importer, or if the 
equipment is assembled from individual component parts, the assembler. 
If the equipment is modified by any party not working under the 
authority of the responsible party, the party performing the 
modifications, if located within the U.S., or the importer, if the 
equipment is imported subsequent to the modifications, becomes the new 
responsible party. Retailers or original equipment manufacturers may 
enter into an agreement with the assembler or importer to assume the 
responsibilities to ensure compliance of the terminal equipment and to 
become the responsible party.
    Secure telephones. Telephones that are approved by the United 
States Government for the transmission of classified or sensitive voice 
communications.
    Terminal equipment. As used in this part, communications equipment 
located on customer premises at the end of a communications link, used 
to permit the stations involved to accomplish the provision of 
telecommunications or information services. ``Terminal equipment'' 
includes ACS telephonic CPE.
0
7. Revise Sec.  68.201 to read as follows:


Sec.  68.201  Connection to the public switched telephone network.

    Terminal equipment may not be connected to the public switched 
network unless it has either been certified by a Telecommunications 
Certification Body or the responsible party has followed all the 
procedures in this subpart for Supplier's Declaration of Conformity. 
ACS telephonic equipment must be certified by a Telecommunications 
Certification Body or the responsible party has followed all the 
procedures in this subpart for Supplier's Declaration of Conformity.
0
8. Amend Sec.  68.211 by revising paragraph (d) to read as follows:


Sec.  68.211  Terminal equipment approval revocation procedures.

* * * * *
    (d) Reauthorization. A product that has had its approval revoked 
may not be re-authorized for a period of six months from the date of 
revocation of the approval.
* * * * *
0
9. Revise Sec.  68.218 to read as follows:


Sec.  68.218  Responsibility of the party acquiring equipment 
authorization.

    (a) In acquiring approval for terminal equipment to be connected to 
the public switched telephone network or for ACS telephonic equipment, 
the responsible party warrants that each unit of equipment marketed 
under such authorization will comply with all applicable rules and 
regulations of this part and with any applicable technical criteria of 
the Administrative Council for Terminal Attachments (see Sec. Sec.  
68.604 and 68.608).
    (b) In the case of terminal equipment that is directly connected to 
the public switched telephone network, the responsible party or its 
agent shall provide the user of the approved terminal equipment the 
following:
    (1) Consumer instructions required to be included with approved 
terminal equipment by the Administrative Council for Terminal 
Attachments (see Sec.  68.610);
    (2) For a telephone that is not hearing aid-compatible, as defined 
in Sec.  68.316 of these rules:
    (i) Notice that FCC rules prohibit the use of that handset in 
certain locations; and

[[Page 80736]]

    (ii) A list of such locations (see Sec.  68.112).
    (c) When approval is revoked for any item of equipment, the 
responsible party must take all reasonable steps to ensure that 
purchasers and users of such equipment are notified to discontinue use 
of such equipment.
0
10. Amend Sec.  68.300 by revising paragraph (a) to read as follows:


Sec.  68.300  Labeling requirements.

    (a) Terminal equipment approved as set out in this part must be 
labeled in accordance with any applicable requirements published by the 
Administrative Council for Terminal Attachments (see Sec. Sec.  68.604 
and 68.608) and with requirements of this part for hearing aid 
compatibility and volume control.
* * * * *
0
11. Add Sec.  68.315 to subpart D to read as follows:


Sec.  68.315  Hearing aid compatibility; reliance on standards 
developed through a public participation and consumer consultation 
process.

    (a) General. Telephones that are compliant with a new or revised 
technical standard developed in accordance with this section shall be 
considered hearing aid compatible for purposes of Sec. Sec.  68.4 and 
68.6 until such time as the Commission may determine otherwise.
    (b) Qualifying public participation standards development process. 
For a telephone to be considered hearing aid compatible under this 
section, the telephone and telephone handset must comply with a 
standard that was developed through a voluntary and consensus-driven 
process, under the aegis of a standards-setting body that is recognized 
by the Commission for purposes of this section. Such process must:
    (1) Be open to participation by all relevant stakeholders who have 
legitimate and meaningful interests in the process;
    (2) Allow all interested parties, including consumers and groups 
representing them, to comment on a proposed standard prior to adoption 
and to have their comments considered by the working groups that 
develop the standards; and
    (3) Provide an appeal mechanism that allows interested parties to 
seek review of standards-setting decisions.
    (c) Consultation with consumer stakeholders. For a telephone to be 
considered hearing aid compatible under this section, the telephone and 
telephone handset must comply with a standard that was developed in 
consultation with interested consumer stakeholders as described in this 
paragraph (c). Consumer stakeholders designated by the Consumer and 
Governmental Affairs Bureau shall be given the option to participate at 
the start of and throughout the standards development process and shall 
be invited to participate in relevant subcommittees and working groups. 
Any organization membership fees that may ordinarily be required for 
participation in the standards-setting process shall be waived for 
consumer organizations operating under a tax-exempt, non-profit status, 
and reasonable accommodations, such as sign language interpreters and 
communication access real-time translation (CART) shall be provided, as 
needed, for the attendance and participation of such designees during 
committee deliberations, at no cost to individuals needing such 
accommodations.
0
12. Amend Sec.  68.316 by revising the introductory text to read as 
follows:


Sec.  68.316  Hearing aid compatibility: Technical requirements.

    A telephone handset is hearing aid compatible for the purposes of 
this section if it complies with a standard meeting the requirements of 
Sec.  68.315 or with the following standard, published by the 
Telecommunications Industry Association, copyright 1983, and reproduced 
by permission of the Telecommunications Industry Association:
* * * * *
0
13. Revise Sec.  68.317 to read as follows:


Sec.  68.317  Hearing aid compatibility volume control: technical 
standards.

    (a)(1) For telephones manufactured in the United States or imported 
for use in the United States prior to [TWO YEARS AFTER PUBLICATION OF 
THE FINAL RULE], such a telephone complies with the volume control 
requirements of this section if it complies with:
    (i) The applicable provisions of paragraphs (b) through (g) of this 
section;
    (ii) Paragraphs (h) and (i) of this section; or
    (iii) A standard meeting the requirements of Sec.  68.315.
    (2) For telephones manufactured in the United States or imported 
for use in the United States on or after [TWO YEARS AFTER PUBLICATION 
OF THE FINAL RULE], such a telephone complies with the volume control 
requirements of this section if it complies with:
    (i) Paragraphs (h) and (i) of this section; or
    (ii) A standard meeting the requirements of Sec.  68.315.
    (b) An analog telephone complies with the Commission's volume 
control requirements if the telephone is equipped with a receive volume 
control that provides, through the receiver in the handset or headset 
of the telephone, 12 dB of gain minimum and up to 18 dB of gain 
maximum, when measured in terms of Receive Objective Loudness Rating 
(ROLR), as defined in paragraph 4.1.2 of ANSI/EIA-470-A-1987 (Telephone 
Instruments With Loop Signaling). The 12 dB of gain minimum must be 
achieved without significant clipping of the test signal. The telephone 
also shall comply with the upper and lower limits for ROLR given in 
table 4.4 of ANSI/EIA-470-A-1987 when the receive volume control is set 
to its normal unamplified level.
    Note to paragraph (b): Paragraph 4.1.2 of ANSI/EIA-470-A-1987 
identifies several characteristics related to the receive response of a 
telephone. It is only the normal unamplified ROLR level and the change 
in ROLR as a function of the volume control setting that are relevant 
to the specification of volume control as required by this section.
    (c) The ROLR of an analog telephone shall be determined over the 
frequency range from 300 to 3300 HZ for short, average, and long loop 
conditions represented by 0, 2.7, and 4.6 km of 26 AWG nonloaded cable, 
respectively. The specified length of cable will be simulated by a 
complex impedance. (See Figure A.) The input level to the cable 
simulator shall be -10 dB with respect to 1 V open circuit from a 900 
ohm source.
    (d) A digital telephone complies with the Commission's volume 
control requirements if the telephone is equipped with a receive volume 
control that provides, through the receiver of the handset or headset 
of the telephone, 12 dB of gain minimum and up to 18 dB of gain 
maximum, when measured in terms of Receive Objective Loudness Rating 
(ROLR), as defined in paragraph 4.3.2 of ANSI/EIA/TIA-579-1991 
(Acoustic-To-Digital and Digital-To-Acoustic Transmission Requirements 
for ISDN Terminals). The 12 dB of gain minimum must be achieved without 
significant clipping of the test signal. The telephone also shall 
comply with the limits on the range for ROLR given in paragraph 4.3.2.2 
of ANSI/EIA/TIA-579-1991 when the receive volume control is set to its 
normal unamplified level.
    (e) The ROLR of a digital telephone shall be determined over the 
frequency range from 300 to 3300 Hz using the

[[Page 80737]]

method described in paragraph 4.3.2.1 of ANSI/EIA/TIA-579-1991. No 
variation in loop conditions is required for this measurement since the 
receive level of a digital telephone is independent of loop length.
    (f) The ROLR for either an analog or digital telephone shall first 
be determined with the receive volume control at its normal unamplified 
level. The minimum volume control setting shall be used for this 
measurement unless the manufacturer identifies a different setting for 
the nominal volume level. The ROLR shall then be determined with the 
receive volume control at its maximum volume setting. Since ROLR is a 
loudness rating value expressed in dB of loss, more positive values of 
ROLR represent lower receive levels. Therefore, the ROLR value 
determined for the maximum volume control setting should be subtracted 
from that determined for the nominal volume control setting to 
determine compliance with the gain requirement.
    (g) The 18 dB of receive gain may be exceeded provided that the 
amplified receive capability automatically resets to nominal gain when 
the telephone is caused to pass through a proper on-hook transition in 
order to minimize the likelihood of damage to individuals with normal 
hearing.
    (h) A telephone complies with the Commission's volume control 
requirements if it is equipped with a receive volume control that 
provides, through the receiver in the handset or headset of the 
telephone, 18 dB of Conversational Gain minimum and up to 24 dB of 
Conversational Gain maximum when measured as described in ANSI/TIA-
4965-2012 (Telecommunications--Telephone Terminal Equipment--Receive 
Volume Control Requirements for Digital and Analog Wireline 
Telephones). The 18 dB of Conversational Gain minimum must be achieved 
without significant clipping of the speech signal used for testing.
    (i) The 24 dB of Conversational Gain maximum may be exceeded 
provided the amplified receive capability automatically resets to a 
level less than 18 dB of Conversational Gain when the telephone is 
caused to pass through a proper on-hook transition in order to minimize 
the likelihood of damage to individuals with normal hearing.
    (j) These incorporations by reference of paragraph 4.1.2 (including 
table 4.4) of American National Standards Institute (ANSI) Standard 
ANSI/EIA-470-A-1987, paragraph 4.3.2 of ANSI/EIA/TIA-579-1991, and 
ANSI/TIA-4965-2012 were approved by the Director of the Federal 
Register in accordance with 5 U.S.C. 552(a) and 1 CFR part 51. Copies 
of these publications may be purchased from the American National 
Standards Institute (ANSI), Sales Department, 11 West 42nd Street, 13th 
Floor, New York, NY 10036, (212) 642-4900, or https://global.ihs.com/. 
Copies also may be inspected during normal business hours at the 
following locations: Consumer and Governmental Affairs Bureau, 
Reference Information Center, Federal Communications Commission, 445 
12th Street SW., Washington, DC 20554; and the National Archives and 
Records Administration (NARA). For information on the availability of 
this material at NARA, call 202-741-6030, or go to: https://www.archives.gov/federal_register/code_of_federal_regulations/ibr_locations.html. These standards may also be viewed on the ``ANSI 
Incorporated by Reference (IBR) Portal'' at https://ibr.ansi.org/.
    (k) Manufacturers and other responsible parties of telephones 
subject to this rule shall engage in consultation with people with 
hearing loss and their representative organizations for the purpose of 
assessing the effectiveness of the standard adopted pursuant to 
paragraph (j) of this section. Such consultation shall include testing 
a sample of products certified to be compliant with the revised 
standard to evaluate whether products compliant with such standard are 
providing a uniform and appropriate range of volume to meet the 
telephone needs of consumers. Such consultation and testing shall occur 
by [ONE YEAR AFTER THE EFFECTIVE DATE OF THE FINAL RULE], pursuant to 
paragraph (j) of this section, with follow-up every three years 
thereafter to assess the impact of these technological changes.
0
14. Amend Sec.  68.320 by revising paragraph (e) to read as follows:


Sec.  68.320  Supplier's Declaration of Conformity.

* * * * *
    (e) No person shall use or make reference to a Supplier's 
Declaration of Conformity in a deceptive or misleading manner or to 
convey the impression that such a Supplier's Declaration of Conformity 
reflects more than a determination by the responsible party that the 
device or product has been shown to be capable of complying with the 
applicable technical.
0
15. Amend Sec.  68.324 by adding paragraphs (e) introductory text and 
(g) to read as follows:


Sec.  68.324  Supplier's Declaration of Conformity requirements.

* * * * *
    (e) For terminal equipment that is directly connected to the public 
switched telephone network:
* * * * *
    (g) For ACS telephonic CPE subject to a Supplier's Declaration of 
Conformity, the responsible party shall make a copy of the Supplier's 
Declaration of Conformity freely available to the general public on its 
company Web site.

[FR Doc. 2015-31368 Filed 12-24-15; 8:45 am]
 BILLING CODE 6712-01-P