Structure and Practices of the Video Relay Services Program, 19322-19325 [2017-08488]
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19322
Federal Register / Vol. 82, No. 80 / Thursday, April 27, 2017 / Rules and Regulations
normal operating schedule to facilitate a
public fireworks event.
The Long Beach Bridge, mile 4.7,
across Reynolds Channel, has a vertical
clearance of 22 feet at mean high water
and 24 feet at mean low water in the
closed position. The existing
drawbridge operating regulations are
listed at 33 CFR 117.799(g).
This temporary deviation will allow
the Long Beach Bridge to remain closed
from 9:30 p.m. through 10:30 p.m. on
July 7, 2017 with rain dates of July 8,
2017 and July 9, 2017. The waterway is
used primarily by seasonal recreational
vessels and occasional tug/barge traffic.
Coordination with waterway users has
indicated no objections to this shortterm closure of the draw.
Vessels that can pass under the bridge
without an opening may do so at all
times. The bridge will be able to open
for emergencies. There is no alternate
route for vessels to pass.
The Coast Guard will also inform the
users of the waterways through our
Local and Broadcast Notices to Mariners
of the change in operating schedule for
the bridge so that vessel operators can
arrange their transits to minimize any
impact caused by the temporary
deviation.
In accordance with 33 CFR 117.35(e),
the drawbridge must return to its regular
operating schedule immediately at the
end of the effective period of this
temporary deviation. This deviation
from the operating regulations is
authorized under 33 CFR 117.35.
Dated: April 24, 2017.
C.J. Bisignano,
Supervisory Bridge Management Specialist,
First Coast Guard District.
[FR Doc. 2017–08504 Filed 4–26–17; 8:45 am]
BILLING CODE 9110–04–P
DEPARTMENT OF HOMELAND
SECURITY
Coast Guard
33 CFR Part 117
[Docket No. USCG–2017–0245]
Drawbridge Operation Regulation;
York River, Yorktown, VA
Coast Guard, DHS.
Notice of deviation from
drawbridge regulations.
AGENCY:
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ACTION:
The Coast Guard has issued a
temporary deviation from the operating
schedule that governs the Coleman
Memorial (US 17) Bridge which carries
US 17 across the York River, mile 7.0,
at Yorktown, VA. The deviation is
necessary to facilitate bridge
SUMMARY:
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maintenance. This deviation allows the
bridge to remain in the closed-tonavigation position.
DATES: The deviation is effective from
5:30 a.m. on Sunday, May 7, 2017,
through 8 a.m. on Sunday, May 14,
2017.
ADDRESSES: The docket for this
deviation, [USCG–2017–0245] is
available at https://www.regulations.gov.
Type the docket number in the
‘‘SEARCH’’ box and click ‘‘SEARCH’’.
Click on Open Docket Folder on the line
associated with this deviation.
FOR FURTHER INFORMATION CONTACT: If
you have questions on this temporary
deviation, call or email Mr. Michael
Thorogood, Bridge Administration
Branch Fifth District, Coast Guard,
telephone 757–398–6557, email
Michael.R.Thorogood@uscg.mil.
SUPPLMENTARY INFORMATION: The
Virginia Department of Transportation,
owner and operator of the Coleman
Memorial (US 17) Bridge, that carries
US 17 across the York River, mile 7.0,
at Yorktown, VA, has requested a
temporary deviation from the current
published schedule to test the manual
operating capabilities of each swing
span of the drawbridge. The bridge has
a vertical clearance of 60 feet above
mean high water (MHW) in the closed
position and unlimited vertical
clearance in the open position. The
current operating schedule is set out in
33 CFR 117.1025. Under this temporary
deviation, the bridge will be in the
closed-to-navigation position from 5:30
a.m. to 8 a.m., on Sunday, May 7, 2017;
with an alternative date on Sunday, May
14, 2017.
The York River is used by a variety of
vessels including recreational, tug and
barge traffic, fishing vessels, and small
commercial vessels. The Coast Guard
has carefully coordinated the
restrictions with waterway users in
publishing this temporary deviation.
Vessels able to pass through the
bridge in the closed-to-navigation
position may do so at any time. The
bridge will be able to open for
emergencies, if at least 30 minutes
notice is given, and there is no
immediate alternative route for vessels
unable to pass through the bridge in the
closed position. The Coast Guard will
also inform the users of the waterway
through our Local Notice and Broadcast
Notices to Mariners of the change in
operating schedule for the bridge so that
vessel operators can arrange their
transits to minimize any impact caused
by the temporary deviation.
In accordance with 33 CFR 117.35(e),
the drawbridge must return to its regular
operating schedule immediately at the
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end of the effective period of this
temporary deviation. This deviation
from the operating regulations is
authorized under 33 CFR 117.35.
Dated: April 21, 2017.
Hal R. Pitts,
Bridge Program Manager, Fifth Coast Guard
District.
[FR Doc. 2017–08503 Filed 4–26–17; 8:45 am]
BILLING CODE 9110–04–P
FEDERAL COMMUNICATIONS
COMMISSION
47 CFR Part 64
[CG Docket Nos. 10–51 and 03–123; DA 17–
76]
Structure and Practices of the Video
Relay Services Program
Federal Communications
Commission.
ACTION: Final rule.
AGENCY:
In this document, the
Commission’s Consumer and
Governmental Affairs Bureau (Bureau or
CGB), pursuant to delegated authority,
adopts amendments to the
Commission’s telecommunications relay
services (TRS) rules to incorporate
technical standards to improve the
interoperability and portability of
services, equipment, and software used
for video relay services (VRS) to
enhance functional equivalence and
VRS availability for consumers, ease of
compliance by providers, and overall
efficiency in the operation of VRS.
DATES: Effective Date: This rule is
effective as of May 30, 2017. The
incorporation by reference of certain
publications listed in the rules is
approved by the Director of the Federal
Register as of May 30, 2017.
Compliance Dates: The compliance
date for the VRS Provider
Interoperability Profile is August 25,
2017. The compliance date for the Relay
User Equipment (RUE) Profile is April
27, 2018. The compliance date for
contact lists and speed dial lists is
October 24, 2017.
FOR FURTHER INFORMATION CONTACT: Bob
Aldrich, Consumer and Governmental
Affairs Bureau (202) 418–0996, email
Robert.Aldrich@fcc.gov, or Eliot
Greenwald, Consumer and
Governmental Affairs Bureau, (202)
418–2235, email Eliot.Greenwald@
fcc.gov.
SUMMARY:
This is a
summary of Structure and Practices of
the Video Relay Service Program;
Telecommunications Relay Services and
SUPPLEMENTARY INFORMATION:
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Speech-to-Speech Services for
Individuals with Hearing and Speech
Disabilities, Report and Order,
document DA 17–76, adopted on
January 17, 2017, and released on
January 17, 2017, in CG Docket Nos. 10–
51 and 03–123. The Further Notice of
Proposed Rulemaking, DA 17–76, is
published elsewhere in this issue. The
full text of document DA 17–76 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. 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), (844)
432–2272 (videophone), or (202) 418–
0432 (TTY).
Incorporation by Reference
The Office of the Federal Register
(OFR) requires that agencies must
discuss in the preamble of a final rule
ways that the materials the agency is
incorporating by reference are
reasonably available to interested
parties. In addition, the preamble of the
final rule must summarize the material.
The US VRS Provider Profile TWG–6–
1, the US Video Relay Service (VRS)
Provider Interoperability Profile,
Version 15, (2015) (VRS Provider
Interoperability Profile), provides
technical specifications for the interface
between VRS providers and the
interface between a VRS provider and
the TRS Numbering Directory. The
document is available from the Federal
Communications Commission, 445 12th
Street SW., Washington, DC 20554,
(202) 418–0270, https://www.fcc.gov/
files/sip-forum-vrs-us-providers-profiletwg-6-1. The Interoperability Profile for
Relay User Equipment, draft-vrs-ruedispatch-00 (2016) (RUE Profile),
provides technical specifications that
define a standard interface between a
relay user’s equipment and the services
offered by relay service providers. The
document is available from IETF
Secretariat, 5177 Brandin Court,
Fremont, CA 94538, 510–492–4080,
https://datatracker.ietf.org/doc/draftvrs-rue-dispatch. Request for Comments
(RFC) 6351, xCard: vCard XML
Representation (2011) (xCard XML
Format), specifies a standard data
interchange format for exporting and
importing user personal contacts lists
(i.e., address books) and user speed dial
lists. The document is available from
IETF Secretariat, 5177 Brandin Court,
Fremont, CA 94538, 510–492–4080,
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https://tools.ietf.org/html/rfc6351. In
addition, all of the above documents are
available for inspection at the Federal
Communications Commission, 445 12th
Street SW., Reference Information
Center, Room CYA257, Washington, DC
20554, (202) 418–0270.
Congressional Review Act
The Commission will send a copy of
document DA 17–76 to Congress and
the Government Accountability Office
pursuant to the Congressional Review
Act, see 5 U.S.C. 801(a)(1)(A).
Final Paperwork Reduction Act of 1995
Analysis
Document DA 17–76 does not contain
any new or modified information
collection requirements subject to the
Paperwork Reduction Act of 1995,
Public Law 104–13. In addition,
therefore, it does not contain any new
or modified information collection
burden for small business concerns with
fewer than 25 employees, pursuant to
the Small Business Paperwork Relief
Act of 2002, Public Law 107–198, see 44
U.S.C. 3506(c)(4).
Synopsis
1. In document DA 17–76, the Bureau
pursuant to delegated authority
provided by the Commission in the
Structure and Practices of the Video
Relay Service Program, et al., Report
and Order, published at 78 FR 40582,
July 5, 2013 (2013 VRS Reform Order),
amends the Commission’s
telecommunication relay service (TRS)
rules to incorporate by reference certain
technical standards for the
interoperability and portability of
services, equipment, and software used
for video relay service (VRS). In August
2015, the VRS Task Group of the
Session Initiation Protocol (SIP) Forum
completed a technical standard
addressing interoperability between
VRS providers, entitled the US VRS
Provider Interoperability Profile (VRS
Provider Interoperability Profile).
Subsequently, the VRS providers
formed another group, the Relay User
Equipment Forum (RUE Forum), which
published a second technical standard
addressing interoperability between a
VRS provider and user equipment and
software, entitled the Interoperability
Profile for RUE Profile.
VRS Provider Interoperability Profile
2. The VRS Provider Interoperability
Profile provides technical specifications
for the interface between two VRS
providers, as well as the interface
between a VRS provider and the TRS
Numbering Directory. The TRS
Numbering Directory is a database that
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enables the routing of VRS and point-topoint video calls that originate and
terminate with different VRS providers.
The Bureau concludes that the VRS
Provider Interoperability Profile will
advance the Commission’s goals of
ensuring interoperability and portability
and will ‘‘advance the statutory
functional equivalency mandate [and]
improve the availability of TRS, in the
most efficient manner,’’ in accordance
with the 2013 VRS Reform Order.
Specifically, this standard will provide
a common framework for provider
compliance and specific criteria for
assessing such compliance and will
thereby increase the certainty that all
VRS users can place and receive calls
through any VRS provider and make
point-to-point calls to all other VRS
users, irrespective of the default
provider of the parties to the call, and
without the caller having to change the
VRS access technology used to make
such calls. The Bureau therefore adopts
the proposal to incorporate the VRS
Provider Interoperability Profile by
reference.
RUE Profile
3. The RUE Profile provides technical
specifications that define a standard
interface between a relay user’s
equipment and the services offered by
relay service providers. The RUE Profile
thus addresses a number of technical
issues not governed by the VRS Provider
Interoperability Profile. By specifying a
basic interface that is usable with any
provider, so that a user can freely access
any provider and switch to a different
default provider, without the need to
change equipment or software and
without experiencing any
inconvenience or disruption of
communications functions, the RUE
Profile appears to advance the goal of
full functional equivalence, potentially
allowing VRS consumers the same
degree of equipment portability that
wireline voice communications users
have enjoyed for decades. Although the
Consumer Groups support the
incorporation by reference of the RUE
Profile in the VRS interoperability rule,
VRS providers claim that the purpose of
the RUE Profile, as developed, is limited
to defining an interface between user
equipment utilizing the VRS access
technology reference platform, now
known as the Accessible
Communications for Everyone (ACE)
Application, or ‘‘ACE App,’’ and VRS
providers’ networks. They contend that
a rule requiring all provider-distributed
VRS user hardware and software to
comply with the RUE Profile would
impose major costs and burdens on VRS
providers.
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4. In document DA 17–76, the Bureau
incorporates the RUE Profile by
reference into the interoperability rule,
but on a limited basis that preserves
providers’ flexibility to continue
offering user equipment and software
that does not conform to the RUE Profile
in all respects, pending further
determinations in this proceeding. The
Bureau recognizes the concerns raised
by the providers that immediate
application of the RUE Profile as a
whole to all user equipment and
software may not be feasible without
resulting in significant disruption of
existing user arrangements.
Accordingly, the rule the Bureau adopts
requires VRS providers to comply with
the RUE Profile only for purposes of
ensuring provider interoperability with
the ACE App. The Bureau defers to the
Further Notice of Proposed Rulemaking
the question of to what extent, and on
what timetable, the RUE Profile should
be more broadly applied to existing and
prospective access technology offered
by providers.
5. The Commission previously
amended its rules to require VRS
providers to ‘‘ensure that their VRS
access technologies and their video
communications service platforms are
interoperable with the [ACE App].’’ To
ensure that the ACE App
interoperability requirement is
enforceable, the Bureau adopts a rule
that incorporates the RUE Profile by
reference into the existing rule requiring
interoperability between provider
services and the ACE App. As the
Bureau expects that the ACE App will
be released in the near future in a
version suitable for interoperability
testing, the Bureau concludes that it is
reasonable to allow one year for VRS
providers to complete software
development, testing, and deployment
to ensure that their networks are
interoperable with the ACE App.
Contact Lists and Speed Dial Lists
6. In the 2013 VRS Reform Order, the
Commission mandated that standards
for the transfer of users’ contact and
speed dial lists be broadly applicable to
all VRS access technologies. The RUE
Profile specifies such a standard data
interchange format, RFC 6351, the xCard
XML Format.
7. Accordingly, the Bureau amends
the rules to incorporate into the existing
interoperability and portability rules the
xCard specification referenced in the
RUE Profile.
Updating the Standards
8. The Bureau adopts the following
procedure for incorporating
amendments or changes to the VRS
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Provider Interoperability Profile and the
RUE Profile into the Commission’s rules
in a timely and efficient manner. Under
this procedure, CGB will make the
updated standard available to the public
online and issue a public notice seeking
comment on such modifications,
followed by an order incorporating into
the VRS rules amendments or changes
by reference if justified based on the
resulting record. When such revised
standards are completed and accepted
by the Bureau, a second public notice
will be issued containing information
on how to access the modified standards
and establishing an implementation
schedule.
Final Regulatory Flexibility Analysis
9. As required by the Regulatory
Flexibility Act of 1980, as amended
(RFA), the Bureau incorporated an
Initial Regulatory Flexibility Analysis
(IRFA) into Structure and Practices of
the Video Relay Service Program;
Telecommunications Relay Services and
Speech-to-Speech Services for
Individuals with Hearing and Speech
Disabilities, Further Notice of Proposed
Rulemaking, published at 81 FR 57851,
August 24, 2016 (August FNPRM). The
Commission sought written public
comment on the proposals in the August
FNPRM, including comment on the
IRFA. No comments were received on
the IRFA.
Need for, and Objectives of, the
Proposed Rules
10. In document DA 17–76, the TRS
rules are amended to incorporate by
reference the technical standards for
interoperability and portability of VRS
services and equipment developed by
the SIP Forum’s VRS Task Group and a
successor group, the RUE Forum.
11. The VRS Provider Interoperability
Profile provides technical specifications
for the interface between two VRS
providers, as well as the interface
between a VRS provider and the TRS
Numbering Directory. The Bureau
concludes that incorporation of the VRS
Provider Interoperability Profile will
advance the Commission’s goals of
ensuring interoperability and
portability, as required by the 2013 VRS
Reform Order, by providing a common
framework for interoperability
compliance and specific criteria for
assessing such compliance.
12. The RUE Profile specifies a
technical standard for the interface
between a provider and user software.
Because the Commission mandated that
standards for the transfer of users’
contact and speed dial lists be broadly
applicable to all VRS access
technologies, the Bureau amends the
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interoperability rule to incorporate by
reference the xCard specification
referenced in the RUE Profile. Further,
the Bureau incorporates the complete
RUE Profile into the requirement that
VRS providers ‘‘ensure that their VRS
access technologies and their video
communications service platforms are
interoperable with the [ACE App].’’
13. In addition, document DA 17–76
adopts a process that will readily enable
revisions to this rule to reflect future
amendments or changes in these
standards by issuing a public notice
seeking comment on such
modifications, followed by an order
incorporating into the VRS rules
amendments or changes by reference if
justified based on the resulting record,
after which a second public notice will
be issued containing information on
how to access the modified standards
online and establishing an
implementation schedule.
Summary of Significant Issues Raised
by Public Comments in Response to the
IRFA
14. No comments were filed in
response to the IRFA.
Listing of Small Entities Impacted
15. The rules adopted in document
DA 17–76 will affect obligations of
providers of VRS. Affected small
entities as defined by industry are as
follows.
• All Other Telecommunications.
• VRS Providers, which are generally
classified within the broad category of
‘‘All Other Telecommunications.’’
Description of Projected Reporting,
Recordkeeping, and Other Compliance
Requirements
16. The rule changes adopted in the
document DA 17–76 modify rules
governing compliance obligations.
Specifically, VRS providers must
modify their networks, e.g., their
protocols for routing calls to other
providers and for enabling users to
import contact lists, as necessary to
conform to the technical standards
incorporated into the existing TRS
interoperability rules.
17. Steps Taken To Minimize
Significant Impact on Small Entities and
Significant Alternatives Considered
18. In general, alternatives to final
rules are discussed only when those
rules pose a significant adverse
economic impact on small entities. In
this context, however, the proposed
rules generally confer benefits. In
particular, technical standards for
interoperability benefit the smaller VRS
providers because consumers find the
services of smaller providers to be more
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attractive when these services are
interoperable than when they are not
interoperable. These benefits outweigh
any burdens associated with
compliance. Moreover, because all of
the VRS providers participated in the
discussions associated with the
development of the standards, the
Bureau believes that these standards are
acceptable to all VRS providers,
including small entities. Further, to
minimize any adverse impact on VRS
providers, the Bureau adopted an
alternative that narrows the scope of
application of the technical standard for
the interface between provider networks
and user equipment and software, so
that it governs only the interface
between a provider’s network and user
equipment that employs designated
open-source user software, rather than
all user equipment and software. Lastly,
document DA 17–76 allows extended
implementation periods to ensure that
providers have sufficient time to
implement the standards.
Ordering Clauses
Pursuant to sections 1, 2, 4(i), 4(j), 225
and 303(r) of the Communications Act
of 1934, as amended, 47 U.S.C. 151, 152,
154(i), 154(j), 225, 303(r), and the
authority delegated by the Commission
in Structure and Practices of the Video
Relay Service Program et al., Report and
Order, published at 78 FR 40582, July 5,
2013, document DA 17–76 is adopted,
and part 64 of the Commission’s rules
is amended.
The Commission’s Consumer and
Governmental Affairs Bureau, Reference
Information Center, shall send a copy of
document DA 17–76, including the
Final Regulatory Flexibility Analysis to
the Chief Counsel for Advocacy of the
Small Business Administration.
List of Subjects in 47 CFR Part 64
Incorporation by reference,
Individuals with disabilities,
Telecommunications relay services,
Video relay services.
Federal Communications Commission.
Karen Peltz Strauss,
Deputy Bureau Chief, Consumer and
Governmental Affairs Bureau.
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For the reasons discussed in the
preamble, the Federal Communications
Commission amends 47 part 64 as
follows:
PART 64—MISCELLANEOUS RULES
RELATING TO COMMON CARRIERS
1. The authority citation for part 64 is
revised to read as follows:
■
Authority: 47 U.S.C. 154, 225, 254(k);
403(b)(2)(B), (c), 715, Pub. L. 104–104, 110
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14:36 Apr 26, 2017
Jkt 241001
Stat. 56. Interpret or apply 47 U.S.C. 201,
218, 222, 225, 226, 227, 228, 254(k), 616, 620,
and the Middle Class Tax Relief and Job
Creation Act of 2012, Pub. L. 112–96, unless
otherwise noted.
2. Amend § 64.621 by:
a. In paragraph (a)(1), removing the
first instance of ‘‘VRS’’ and adding in its
place ‘‘Video Relay Service (VRS)’’;
■ b. Revising paragraph (a)(3); and
■ c. Adding paragraphs (b) and (c) to
read as follows:
■
■
§ 64.621
Interoperability and portability.
(a) * * *
(3) Beginning no later than April 27,
2018, all VRS providers must ensure
that their VRS access technologies and
their video communication service
platforms are interoperable with the
VRS Access Technology Reference
Platform, including for point-to-point
calls, in accordance with the
Interoperability Profile for Relay User
Equipment (RUE Profile). No VRS
provider shall be compensated for
minutes of use involving their VRS
access technologies or video
communication service platforms that
are not interoperable with the VRS
Access Technology Reference Platform.
*
*
*
*
*
(b) Technical standards for
interoperability and portability. (1)
Beginning no later than August 25,
2017, VRS providers shall ensure that
their provision of VRS and video
communications, including their access
technology, meets the requirements of
the VRS Provider Interoperability
Profile.
(2) Beginning no later than October
24, 2017, VRS providers shall provide a
standard xCard export interface to
enable users to import their lists of
contacts in xCard XML format, in
accordance with IETF RFC 6351.
(c) Incorporation by reference. The
standards required 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 approved
material is available for inspection at
the Federal Communications
Commission (FCC), 445 12th Street,
SW., Reference Information Center,
Room CY–A257, Washington, DC 20554,
(202) 418–0270, 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.
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19325
(1) FCC (on behalf of SIP Forum), 445
12th Street SW., Washington, DC 20554,
(888) 225–5322 (voice), (844) 432–2275
(videophone), (888) 835–5322 (TTY).
(i) VRS US Providers Profile TWG–
6.1, the US VRS Provider
Interoperability Profile, September 23,
2015. https://www.fcc.gov/files/sipforum-vrs-us-providers-profile-twg-6-1.
(ii) [Reserved]
(2) The following standards are
available from the Internet Engineering
Task Force (IETF) Secretariat, 5177
Brandin Court, Fremont, CA 94538,
510–492–4080.
(i) The Interoperability Profile for
Relay User Equipment, draft-vrs-ruedispatch-00, July 20, 2016 https://
datatracker.ietf.org/doc/draft-vrs-ruedispatch/.
(ii) Request for Comments (RFC) 6351,
xCard: vCard XML Representation
(August 2011) https://tools.ietf.org/
html/rfc6351.
[FR Doc. 2017–08488 Filed 4–26–17; 8:45 am]
BILLING CODE 6712–01–P
DEPARTMENT OF TRANSPORTATION
Pipeline and Hazardous Materials
Safety Administration
49 CFR Part 190
[Docket No. PHMSA–2016–0010; Amdt. No.
190–17]
RIN–2137–AF16
Pipeline Safety: Inflation Adjustment of
Maximum Civil Penalties
Pipeline and Hazardous
Materials Safety Administration
(PHMSA), Department of Transportation
(DOT).
ACTION: Final rule.
AGENCY:
The Pipeline and Hazardous
Materials Safety Administration
(PHMSA) is revising references in its
regulations to the maximum civil
penalties for violations of Federal
pipeline safety laws, or any PHMSA
regulations or orders issued thereunder.
Under the Federal Civil Penalties
Inflation Adjustment Act Improvements
Act of 2015, which further amended the
Federal Civil Penalties Inflation
Adjustment Act of 1990, Federal
agencies are required to adjust their
civil monetary penalties effective
January 15, 2017, and annually
thereafter, to account for changes in
inflation.
PHMSA finds good cause to amend
the regulations related to civil penalties
without notice or opportunity for public
comment. Advance public notice is
SUMMARY:
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Agencies
[Federal Register Volume 82, Number 80 (Thursday, April 27, 2017)]
[Rules and Regulations]
[Pages 19322-19325]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2017-08488]
=======================================================================
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FEDERAL COMMUNICATIONS COMMISSION
47 CFR Part 64
[CG Docket Nos. 10-51 and 03-123; DA 17-76]
Structure and Practices of the Video Relay Services Program
AGENCY: Federal Communications Commission.
ACTION: Final rule.
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SUMMARY: In this document, the Commission's Consumer and Governmental
Affairs Bureau (Bureau or CGB), pursuant to delegated authority, adopts
amendments to the Commission's telecommunications relay services (TRS)
rules to incorporate technical standards to improve the
interoperability and portability of services, equipment, and software
used for video relay services (VRS) to enhance functional equivalence
and VRS availability for consumers, ease of compliance by providers,
and overall efficiency in the operation of VRS.
DATES: Effective Date: This rule is effective as of May 30, 2017. The
incorporation by reference of certain publications listed in the rules
is approved by the Director of the Federal Register as of May 30, 2017.
Compliance Dates: The compliance date for the VRS Provider
Interoperability Profile is August 25, 2017. The compliance date for
the Relay User Equipment (RUE) Profile is April 27, 2018. The
compliance date for contact lists and speed dial lists is October 24,
2017.
FOR FURTHER INFORMATION CONTACT: Bob Aldrich, Consumer and Governmental
Affairs Bureau (202) 418-0996, email Robert.Aldrich@fcc.gov, or Eliot
Greenwald, Consumer and Governmental Affairs Bureau, (202) 418-2235,
email Eliot.Greenwald@fcc.gov.
SUPPLEMENTARY INFORMATION: This is a summary of Structure and Practices
of the Video Relay Service Program; Telecommunications Relay Services
and
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Speech-to-Speech Services for Individuals with Hearing and Speech
Disabilities, Report and Order, document DA 17-76, adopted on January
17, 2017, and released on January 17, 2017, in CG Docket Nos. 10-51 and
03-123. The Further Notice of Proposed Rulemaking, DA 17-76, is
published elsewhere in this issue. The full text of document DA 17-76
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. 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), (844) 432-2272 (videophone), or (202) 418-
0432 (TTY).
Incorporation by Reference
The Office of the Federal Register (OFR) requires that agencies
must discuss in the preamble of a final rule ways that the materials
the agency is incorporating by reference are reasonably available to
interested parties. In addition, the preamble of the final rule must
summarize the material. The US VRS Provider Profile TWG-6-1, the US
Video Relay Service (VRS) Provider Interoperability Profile, Version
15, (2015) (VRS Provider Interoperability Profile), provides technical
specifications for the interface between VRS providers and the
interface between a VRS provider and the TRS Numbering Directory. The
document is available from the Federal Communications Commission, 445
12th Street SW., Washington, DC 20554, (202) 418-0270, https://www.fcc.gov/files/sip-forum-vrs-us-providers-profile-twg-6-1. The
Interoperability Profile for Relay User Equipment, draft-vrs-rue-
dispatch-00 (2016) (RUE Profile), provides technical specifications
that define a standard interface between a relay user's equipment and
the services offered by relay service providers. The document is
available from IETF Secretariat, 5177 Brandin Court, Fremont, CA 94538,
510-492-4080, https://datatracker.ietf.org/doc/draft-vrs-rue-dispatch.
Request for Comments (RFC) 6351, xCard: vCard XML Representation (2011)
(xCard XML Format), specifies a standard data interchange format for
exporting and importing user personal contacts lists (i.e., address
books) and user speed dial lists. The document is available from IETF
Secretariat, 5177 Brandin Court, Fremont, CA 94538, 510-492-4080,
https://tools.ietf.org/html/rfc6351. In addition, all of the above
documents are available for inspection at the Federal Communications
Commission, 445 12th Street SW., Reference Information Center, Room
CYA257, Washington, DC 20554, (202) 418-0270.
Congressional Review Act
The Commission will send a copy of document DA 17-76 to Congress
and the Government Accountability Office pursuant to the Congressional
Review Act, see 5 U.S.C. 801(a)(1)(A).
Final Paperwork Reduction Act of 1995 Analysis
Document DA 17-76 does not contain any new or modified information
collection requirements subject to the Paperwork Reduction Act of 1995,
Public Law 104-13. In addition, therefore, it does not contain any new
or modified information collection burden for small business concerns
with fewer than 25 employees, pursuant to the Small Business Paperwork
Relief Act of 2002, Public Law 107-198, see 44 U.S.C. 3506(c)(4).
Synopsis
1. In document DA 17-76, the Bureau pursuant to delegated authority
provided by the Commission in the Structure and Practices of the Video
Relay Service Program, et al., Report and Order, published at 78 FR
40582, July 5, 2013 (2013 VRS Reform Order), amends the Commission's
telecommunication relay service (TRS) rules to incorporate by reference
certain technical standards for the interoperability and portability of
services, equipment, and software used for video relay service (VRS).
In August 2015, the VRS Task Group of the Session Initiation Protocol
(SIP) Forum completed a technical standard addressing interoperability
between VRS providers, entitled the US VRS Provider Interoperability
Profile (VRS Provider Interoperability Profile). Subsequently, the VRS
providers formed another group, the Relay User Equipment Forum (RUE
Forum), which published a second technical standard addressing
interoperability between a VRS provider and user equipment and
software, entitled the Interoperability Profile for RUE Profile.
VRS Provider Interoperability Profile
2. The VRS Provider Interoperability Profile provides technical
specifications for the interface between two VRS providers, as well as
the interface between a VRS provider and the TRS Numbering Directory.
The TRS Numbering Directory is a database that enables the routing of
VRS and point-to-point video calls that originate and terminate with
different VRS providers. The Bureau concludes that the VRS Provider
Interoperability Profile will advance the Commission's goals of
ensuring interoperability and portability and will ``advance the
statutory functional equivalency mandate [and] improve the availability
of TRS, in the most efficient manner,'' in accordance with the 2013 VRS
Reform Order. Specifically, this standard will provide a common
framework for provider compliance and specific criteria for assessing
such compliance and will thereby increase the certainty that all VRS
users can place and receive calls through any VRS provider and make
point-to-point calls to all other VRS users, irrespective of the
default provider of the parties to the call, and without the caller
having to change the VRS access technology used to make such calls. The
Bureau therefore adopts the proposal to incorporate the VRS Provider
Interoperability Profile by reference.
RUE Profile
3. The RUE Profile provides technical specifications that define a
standard interface between a relay user's equipment and the services
offered by relay service providers. The RUE Profile thus addresses a
number of technical issues not governed by the VRS Provider
Interoperability Profile. By specifying a basic interface that is
usable with any provider, so that a user can freely access any provider
and switch to a different default provider, without the need to change
equipment or software and without experiencing any inconvenience or
disruption of communications functions, the RUE Profile appears to
advance the goal of full functional equivalence, potentially allowing
VRS consumers the same degree of equipment portability that wireline
voice communications users have enjoyed for decades. Although the
Consumer Groups support the incorporation by reference of the RUE
Profile in the VRS interoperability rule, VRS providers claim that the
purpose of the RUE Profile, as developed, is limited to defining an
interface between user equipment utilizing the VRS access technology
reference platform, now known as the Accessible Communications for
Everyone (ACE) Application, or ``ACE App,'' and VRS providers'
networks. They contend that a rule requiring all provider-distributed
VRS user hardware and software to comply with the RUE Profile would
impose major costs and burdens on VRS providers.
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4. In document DA 17-76, the Bureau incorporates the RUE Profile by
reference into the interoperability rule, but on a limited basis that
preserves providers' flexibility to continue offering user equipment
and software that does not conform to the RUE Profile in all respects,
pending further determinations in this proceeding. The Bureau
recognizes the concerns raised by the providers that immediate
application of the RUE Profile as a whole to all user equipment and
software may not be feasible without resulting in significant
disruption of existing user arrangements. Accordingly, the rule the
Bureau adopts requires VRS providers to comply with the RUE Profile
only for purposes of ensuring provider interoperability with the ACE
App. The Bureau defers to the Further Notice of Proposed Rulemaking the
question of to what extent, and on what timetable, the RUE Profile
should be more broadly applied to existing and prospective access
technology offered by providers.
5. The Commission previously amended its rules to require VRS
providers to ``ensure that their VRS access technologies and their
video communications service platforms are interoperable with the [ACE
App].'' To ensure that the ACE App interoperability requirement is
enforceable, the Bureau adopts a rule that incorporates the RUE Profile
by reference into the existing rule requiring interoperability between
provider services and the ACE App. As the Bureau expects that the ACE
App will be released in the near future in a version suitable for
interoperability testing, the Bureau concludes that it is reasonable to
allow one year for VRS providers to complete software development,
testing, and deployment to ensure that their networks are interoperable
with the ACE App.
Contact Lists and Speed Dial Lists
6. In the 2013 VRS Reform Order, the Commission mandated that
standards for the transfer of users' contact and speed dial lists be
broadly applicable to all VRS access technologies. The RUE Profile
specifies such a standard data interchange format, RFC 6351, the xCard
XML Format.
7. Accordingly, the Bureau amends the rules to incorporate into the
existing interoperability and portability rules the xCard specification
referenced in the RUE Profile.
Updating the Standards
8. The Bureau adopts the following procedure for incorporating
amendments or changes to the VRS Provider Interoperability Profile and
the RUE Profile into the Commission's rules in a timely and efficient
manner. Under this procedure, CGB will make the updated standard
available to the public online and issue a public notice seeking
comment on such modifications, followed by an order incorporating into
the VRS rules amendments or changes by reference if justified based on
the resulting record. When such revised standards are completed and
accepted by the Bureau, a second public notice will be issued
containing information on how to access the modified standards and
establishing an implementation schedule.
Final Regulatory Flexibility Analysis
9. As required by the Regulatory Flexibility Act of 1980, as
amended (RFA), the Bureau incorporated an Initial Regulatory
Flexibility Analysis (IRFA) into Structure and Practices of the Video
Relay Service Program; Telecommunications Relay Services and Speech-to-
Speech Services for Individuals with Hearing and Speech Disabilities,
Further Notice of Proposed Rulemaking, published at 81 FR 57851, August
24, 2016 (August FNPRM). The Commission sought written public comment
on the proposals in the August FNPRM, including comment on the IRFA. No
comments were received on the IRFA.
Need for, and Objectives of, the Proposed Rules
10. In document DA 17-76, the TRS rules are amended to incorporate
by reference the technical standards for interoperability and
portability of VRS services and equipment developed by the SIP Forum's
VRS Task Group and a successor group, the RUE Forum.
11. The VRS Provider Interoperability Profile provides technical
specifications for the interface between two VRS providers, as well as
the interface between a VRS provider and the TRS Numbering Directory.
The Bureau concludes that incorporation of the VRS Provider
Interoperability Profile will advance the Commission's goals of
ensuring interoperability and portability, as required by the 2013 VRS
Reform Order, by providing a common framework for interoperability
compliance and specific criteria for assessing such compliance.
12. The RUE Profile specifies a technical standard for the
interface between a provider and user software. Because the Commission
mandated that standards for the transfer of users' contact and speed
dial lists be broadly applicable to all VRS access technologies, the
Bureau amends the interoperability rule to incorporate by reference the
xCard specification referenced in the RUE Profile. Further, the Bureau
incorporates the complete RUE Profile into the requirement that VRS
providers ``ensure that their VRS access technologies and their video
communications service platforms are interoperable with the [ACE
App].''
13. In addition, document DA 17-76 adopts a process that will
readily enable revisions to this rule to reflect future amendments or
changes in these standards by issuing a public notice seeking comment
on such modifications, followed by an order incorporating into the VRS
rules amendments or changes by reference if justified based on the
resulting record, after which a second public notice will be issued
containing information on how to access the modified standards online
and establishing an implementation schedule.
Summary of Significant Issues Raised by Public Comments in Response to
the IRFA
14. No comments were filed in response to the IRFA.
Listing of Small Entities Impacted
15. The rules adopted in document DA 17-76 will affect obligations
of providers of VRS. Affected small entities as defined by industry are
as follows.
All Other Telecommunications.
VRS Providers, which are generally classified within the
broad category of ``All Other Telecommunications.''
Description of Projected Reporting, Recordkeeping, and Other Compliance
Requirements
16. The rule changes adopted in the document DA 17-76 modify rules
governing compliance obligations. Specifically, VRS providers must
modify their networks, e.g., their protocols for routing calls to other
providers and for enabling users to import contact lists, as necessary
to conform to the technical standards incorporated into the existing
TRS interoperability rules.
17. Steps Taken To Minimize Significant Impact on Small Entities
and Significant Alternatives Considered
18. In general, alternatives to final rules are discussed only when
those rules pose a significant adverse economic impact on small
entities. In this context, however, the proposed rules generally confer
benefits. In particular, technical standards for interoperability
benefit the smaller VRS providers because consumers find the services
of smaller providers to be more
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attractive when these services are interoperable than when they are not
interoperable. These benefits outweigh any burdens associated with
compliance. Moreover, because all of the VRS providers participated in
the discussions associated with the development of the standards, the
Bureau believes that these standards are acceptable to all VRS
providers, including small entities. Further, to minimize any adverse
impact on VRS providers, the Bureau adopted an alternative that narrows
the scope of application of the technical standard for the interface
between provider networks and user equipment and software, so that it
governs only the interface between a provider's network and user
equipment that employs designated open-source user software, rather
than all user equipment and software. Lastly, document DA 17-76 allows
extended implementation periods to ensure that providers have
sufficient time to implement the standards.
Ordering Clauses
Pursuant to sections 1, 2, 4(i), 4(j), 225 and 303(r) of the
Communications Act of 1934, as amended, 47 U.S.C. 151, 152, 154(i),
154(j), 225, 303(r), and the authority delegated by the Commission in
Structure and Practices of the Video Relay Service Program et al.,
Report and Order, published at 78 FR 40582, July 5, 2013, document DA
17-76 is adopted, and part 64 of the Commission's rules is amended.
The Commission's Consumer and Governmental Affairs Bureau,
Reference Information Center, shall send a copy of document DA 17-76,
including the Final Regulatory Flexibility Analysis to the Chief
Counsel for Advocacy of the Small Business Administration.
List of Subjects in 47 CFR Part 64
Incorporation by reference, Individuals with disabilities,
Telecommunications relay services, Video relay services.
Federal Communications Commission.
Karen Peltz Strauss,
Deputy Bureau Chief, Consumer and Governmental Affairs Bureau.
For the reasons discussed in the preamble, the Federal
Communications Commission amends 47 part 64 as follows:
PART 64--MISCELLANEOUS RULES RELATING TO COMMON CARRIERS
0
1. The authority citation for part 64 is revised to read as follows:
Authority: 47 U.S.C. 154, 225, 254(k); 403(b)(2)(B), (c), 715,
Pub. L. 104-104, 110 Stat. 56. Interpret or apply 47 U.S.C. 201,
218, 222, 225, 226, 227, 228, 254(k), 616, 620, and the Middle Class
Tax Relief and Job Creation Act of 2012, Pub. L. 112-96, unless
otherwise noted.
0
2. Amend Sec. 64.621 by:
0
a. In paragraph (a)(1), removing the first instance of ``VRS'' and
adding in its place ``Video Relay Service (VRS)'';
0
b. Revising paragraph (a)(3); and
0
c. Adding paragraphs (b) and (c) to read as follows:
Sec. 64.621 Interoperability and portability.
(a) * * *
(3) Beginning no later than April 27, 2018, all VRS providers must
ensure that their VRS access technologies and their video communication
service platforms are interoperable with the VRS Access Technology
Reference Platform, including for point-to-point calls, in accordance
with the Interoperability Profile for Relay User Equipment (RUE
Profile). No VRS provider shall be compensated for minutes of use
involving their VRS access technologies or video communication service
platforms that are not interoperable with the VRS Access Technology
Reference Platform.
* * * * *
(b) Technical standards for interoperability and portability. (1)
Beginning no later than August 25, 2017, VRS providers shall ensure
that their provision of VRS and video communications, including their
access technology, meets the requirements of the VRS Provider
Interoperability Profile.
(2) Beginning no later than October 24, 2017, VRS providers shall
provide a standard xCard export interface to enable users to import
their lists of contacts in xCard XML format, in accordance with IETF
RFC 6351.
(c) Incorporation by reference. The standards required 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 approved material is available for inspection at
the Federal Communications Commission (FCC), 445 12th Street, SW.,
Reference Information Center, Room CY-A257, Washington, DC 20554, (202)
418-0270, 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.
(1) FCC (on behalf of SIP Forum), 445 12th Street SW., Washington,
DC 20554, (888) 225-5322 (voice), (844) 432-2275 (videophone), (888)
835-5322 (TTY).
(i) VRS US Providers Profile TWG-6.1, the US VRS Provider
Interoperability Profile, September 23, 2015. https://www.fcc.gov/files/sip-forum-vrs-us-providers-profile-twg-6-1.
(ii) [Reserved]
(2) The following standards are available from the Internet
Engineering Task Force (IETF) Secretariat, 5177 Brandin Court, Fremont,
CA 94538, 510-492-4080.
(i) The Interoperability Profile for Relay User Equipment, draft-
vrs-rue-dispatch-00, July 20, 2016 https://datatracker.ietf.org/doc/draft-vrs-rue-dispatch/.
(ii) Request for Comments (RFC) 6351, xCard: vCard XML
Representation (August 2011) https://tools.ietf.org/html/rfc6351.
[FR Doc. 2017-08488 Filed 4-26-17; 8:45 am]
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