Wireless E911 Location Accuracy Requirements, 13211-13222 [2019-06012]
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Federal Register / Vol. 84, No. 65 / Thursday, April 4, 2019 / Proposed Rules
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Dated: April 1, 2019.
Frank T. Brogan,
Assistant Secretary for Elementary and
Secondary Education.
[FR Doc. 2019–06584 Filed 4–3–19; 8:45 am]
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FEDERAL COMMUNICATIONS
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47 CFR Part 20
[PS Docket No. 07–114; FCC 19–20]
Wireless E911 Location Accuracy
Requirements
Federal Communications
Commission.
ACTION: Proposed rule.
AGENCY:
In this document, the Federal
Communications Commission
(Commission) proposes to revise its
rules to require Commercial Mobile
Radio Service providers to deliver
accurate vertical location information to
Public Safety Answering points
consistent with a metric of plus or
minus three meters for wireless 911
calls placed from indoors. The
Commission seeks comment on this
proposal as well as on alternatives to
improve vertical location accuracy for
SUMMARY:
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wireless 911 calls made from multistory buildings.
DATES: Comments are due on or before
May 20, 2019 and reply comments are
due on or before June 18, 2019.
ADDRESSES: You may submit comments,
identified by PS Docket No. 07–114 by
any of the following methods:
• Federal Communications
Commission’s website: https://
www.fcc.gov/ecfs/. Follow the
instructions for submitting comments.
• Mail: 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.
• People with Disabilities: Contact the
Commission to request reasonable
accommodations (accessible format
documents, sign language interpreters,
CART, etc.) by email: FCC504@fcc.gov
or phone: 202–418–0530 or TTY: 202–
418–0432.
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:
Brenda Boykin, Policy and Licensing
Division, Public Safety and Homeland
Security Bureau, (202) 418–2062 or via
email at Brenda.Boykin@fcc.gov; Nellie
Foosaner, Policy and Licensing
Division, Public Safety and Homeland
Security Bureau, (202) 418–2925 or via
email at Nellie.Foosaner@fcc.gov.
SUPPLEMENTARY INFORMATION: This is a
summary of the Commissions Fourth
Further Notice of Proposed Rulemaking
in PS Docket No. 07–114, released on
March 18, 2019. The full text of this
document is available for public
inspection during regular business
hours in the FCC Reference Center,
Room CY–A257, 445 12th Street SW,
Washington, DC 20554, or online at
www.fcc.gov.
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This document does not contain
proposed information collection
requirements subject to the Paperwork
Reduction Act of 1995, Public Law 104–
13. In addition, therefore, it does not
contain any proposed information
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pursuant to the Small Business
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Pursuant to sections 1.415 and 1.419
of the Commission’s rules, 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).
D Electronic Filers: Comments may be
filed electronically using the internet by
accessing the ECFS: https://apps.fcc.gov/
ecfs/.
D Paper Filers: Parties who choose to
file by paper must file an original and
one copy of each filing. If more than one
docket or rulemaking number appears in
the caption of this proceeding, filers
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Filings can be sent by hand or
messenger delivery, by commercial
overnight courier, or by first-class or
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filings must be addressed to the
Commission’s Secretary, Office of the
Secretary, Federal Communications
Commission.
D All hand-delivered or messengerdelivered paper filings for the
Commission’s Secretary must be
delivered to FCC Headquarters at 445
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Washington DC 20554.
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print, electronic files, audio format),
send an email to fcc504@fcc.gov or call
the Consumer & Governmental Affairs
Bureau at 202–418–0530 (voice), 202–
418–0432 (tty).
The proceeding this Notice initiates
shall be treated as a ‘‘permit-butdisclose’’ proceeding in accordance
with the Commission’s ex parte rules.
Persons making ex parte presentations
must file a copy of any written
presentation or a memorandum
summarizing any oral presentation
within two business days after the
presentation (unless a different deadline
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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
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arguments in his or her prior comments,
memoranda, or other filings (specifying
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numbers where such data or arguments
can be found) in lieu of summarizing
them in the memorandum. Documents
shown or given to Commission staff
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must be filed consistent with rule
1.1206(b). In proceedings governed by
rule 1.49(f) or for which the
Commission has made available a
method of electronic filing, written ex
parte presentations and memoranda
summarizing oral ex parte
presentations, and all 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.
I. Introduction
1. Since the Commission first adopted
its wireless Enhanced 911 (E911)
location accuracy rules in 1996, the
wireless landscape has undergone major
changes. In 2018 the number of
Americans with smartphones rose to
77%, up from just 35% in Pew Research
Center’s first survey of smartphone
ownership conducted in 2011. As the
adoption of cellphones and
smartphones has skyrocketed, they have
become an indispensable tool to protect
consumers’ health, property, and
wellbeing, and many Americans are
now relying on mobile phones as their
only phones. Consumers make 240
million calls to 911 each year, and in
many areas 80% or more of these calls
are from wireless phones. For both first
responders and consumers, the
capability to locate wireless 911 callers
quickly and accurately is of critical
importance regardless of where the call
originates.
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2. To ensure that first responders and
Public Safety Answering Points (PSAPs)
can find 911 callers quickly and
accurately when a consumer calls from
a multi-story building, we propose a
vertical, or z-axis, location accuracy
metric of plus or minus 3 meters relative
to the handset for each of the
benchmarks and geographic
requirements previously established in
the Commission’s E911 wireless
location accuracy rules. This proposed
metric will more accurately identify the
floor level for most 911 calls, reduce
emergency response times, and save
lives.
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II. Background
3. In the 2014 Third Further Notice of
Proposed Rulemaking in this
proceeding, the Commission proposed
measures and timeframes to improve
location accuracy for wireless E911 calls
originating indoors, including, among
others, a 3-meter z-axis metric for 80%
of such calls. In the 2015 Fourth Report
and Order in this proceeding, the
Commission established benchmarks
and timetables for the deployment of zaxis technology or dispatchable location
(which includes a vertical location
component) in the top 50 Cellular
Market Areas, but deferred a decision on
a specific z-axis metric until it received
additional testing data. Specifically, the
Commission required the four
nationwide Commercial Mobile Radio
Service (CMRS) providers to establish a
test bed to develop a proposed z-axis
accuracy metric and to submit the
proposed metric to the Commission for
approval within 3 years (i.e., by August
3, 2018). The Commission stated that
the proposal would be placed out for
public comment.
4. On August 3, 2018, CTIA submitted
the ‘‘Stage Z Test Report’’ (Report or
Stage Z Test Report) on behalf of the
four nationwide CMRS providers.
According to the Report, Stage Z testing
sought to assess the accuracy of
solutions that use barometric pressure
sensors in the handset for determining
altitude in support of E911. Two
vendors, NextNav LLC (NextNav) and
Polaris Wireless, Inc. (Polaris),
participated in Stage Z. The test results
showed that in 80% of NextNav test
calls, vertical location was identified to
a range of 1.8 meters or less, while 80%
of Polaris test calls yielded a vertical
accuracy range of 4.8 meters or less. The
Report noted that Polaris’ performance
‘‘could likely be significantly improved
should a more robust handset
barometric sensor calibration approach
[than that used in the test bed] be
applied.’’
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5. In its August 3, 2018, cover letter
submitting the Report, CTIA stated that
the test results provided ‘‘helpful
insight’’ into the state of z-axis
technologies, but that ‘‘significant
questions remain about performance
and scalability in live wireless 9–1–1
calling environments.’’ On behalf of the
four nationwide wireless providers,
CTIA therefore proposed a z-axis metric
of ‘‘+/¥ 5 meters for 80% of fixes from
mobile devices capable of delivering
barometric pressure sensor-based
altitude estimates.’’ CTIA also stated
that further testing of vertical location
technologies could yield results to
validate adoption of a more accurate
z-axis metric.
6. On September 10, 2018, the Public
Safety and Homeland Security Bureau
(Bureau) released a Public Notice
seeking comment on the Report and the
carriers’ proposed z-axis metric. The
Public Notice sought to gather
information that would inform the
Bureau’s recommendations to the
Commission concerning next steps in
the development of the z-axis accuracy
metric contemplated by the Fourth
Report & Order. Fourteen entities filed
comments and reply comments.
7. Public safety organizations
unanimously opposed CTIA’s proposed
5-meter metric as too imprecise to
identify a caller’s floor level. Some
public safety organizations expressed
support for a 3-meter metric, while
others encouraged the Commission to
adopt a 2-meter metric. NextNav and
Polaris asserted that they could meet a
3-meter metric for 80% of wireless
indoor calls within the prescribed
timeframes.
8. In their initial comments, CTIA and
some nationwide CMRS providers
argued that the Commission should
defer setting a more aggressive z-axis
metric than 5 meters pending further
testing. In a December 2018 ex parte
filing, however, CTIA and all four
nationwide CMRS providers revised
their recommendation. These parties
recognized ‘‘that public safety
representatives have encouraged the
Commission to adopt a more aggressive
Z-Axis metric of ±3 meters in the near
term.’’ While continuing to stress the
importance of further testing, CTIA and
the four providers stated that ‘‘certainty
as to the Z-Axis metric in the near term,
whether via an Order or expeditiously
seeking public comment, may help
advance the development process
necessary to meet the 2021 and 2023
vertical location accuracy benchmarks
in the Fourth Report & Order.’’
9. Herein, we take steps to build on
the Commission’s adoption of the
Fourth Report and Order by proposing
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13213
a metric for the z-axis compliance
standard for wireless 911 calls that is
available to those providers that do not
choose the dispatchable location
compliance standard for vertical
location accuracy.
III. Discussion
10. Given the current state of the
record, we believe it is appropriate to
propose a z-axis metric based on a 3meter standard. This will provide the
final element of the Commission’s
existing indoor location accuracy
regime, which already includes a
timetable for CMRS providers to deliver
vertical location information by
deploying either dispatchable location
or z-axis technology in specific
geographic areas. Our proposed z-axis
metric will provide certainty to all
parties and establish a focal point for
further testing, development, and
implementation of evolving z-axis
location technologies. To ensure a
complete and comprehensive record on
this issue, we seek comment on our
proposal as discussed below.
A. Floor Level Accuracy
11. We propose a z-axis metric of 3
meters relative to the handset for 80%
of wireless E911 calls for each of the
benchmarks and geographic
requirements previously established in
the Commission’s E911 wireless
location accuracy rules. To certify
compliance with this proposed
requirement, the caller’s handset should
be located within 3 meters above or
below the vertical location provided by
the phone for 80% of indoor wireless
calls to 911, as demonstrated in the test
bed. Under our proposal, we would
amend Section 20.18 of the
Commission’s rules to require that by
April 3, 2021, nationwide CMRS
providers must deploy in each of the top
25 Cellular Market Areas either
dispatchable location or z-axis
technology in compliance with the 3meter metric. In Cellular Market Areas
where z-axis technology is used,
nationwide CMRS providers must
deploy z-axis technology to cover 80%
of the Cellular Market Area population.
By April 3, 2023, these requirements
would be expanded to cover each of the
top 50 Cellular Market Areas. Nonnationwide CMRS providers that serve
any of the top 25 or 50 Cellular Market
Areas would continue to have an
additional year to meet each of these
benchmarks in the relevant Cellular
Market Area.
12. We seek comment on our
proposed 3-meter metric. We tentatively
agree with commenters responding to
the Stage Z Test Report who assert that
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3 meters will provide sufficient
accuracy to identify the caller’s floor
level in most cases. For example, IAFF
comments that the Commission should
require vertical location information
that provides true floor level accuracy,
‘‘i.e., no more than 3 meters.’’ NENA
states that ‘‘[c]itizens and public safety
require, in the absence of a dispatchable
location solution, a z-axis accuracy
benchmark of +/¥3 meters.’’ The Texas
911 Entities assert that a metric greater
than 3 meters for 80% of calls ‘‘would
not satisfy the critical requirements of
public safety.’’ We acknowledge that a
3-meter metric is not always certain to
yield floor level accuracy. If the indoor
wireless caller’s handset is located at
the vertical center of a floor with an
average height of 3.1 to 3.9 meters, the
margins of a 3-meter metric allow for a
variance of up to six meters, which
would extend the search range to one
floor above and one floor below the
location of the handset. Nevertheless,
we believe this search range will
significantly narrow the scope of the
search and can provide a reasonable
basis for identifying the correct floor in
most cases. We seek comment on this
tentative conclusion. Do commenters
agree that the metric should be set at 3
meters? If not, what vertical location
metric should the Commission adopt,
and why?
13. We also tentatively conclude that
a 5-meter metric should not be adopted
because the record indicates it would
not yield the floor level accuracy that
first responder commenters consider
necessary. APCO states that a 5-meter
metric ‘‘translates to a range of up to
two floors below, or up to two floors
above, the actual floor where a 911
caller may be located, and some lesser
degree of accuracy for one in five calls
to 911.’’ APCO and NENA also assert
that adopting a metric of 5 meters would
undermine incentives for CMRS
providers to invest in the development
of more accurate z-axis solutions. We
seek comment on our tentative
conclusion.
14. We also seek comment on other
elements of the proposed metric. Should
the metric apply to 80% of wireless
calls? If not, what percentage of calls is
appropriate? CTIA’s proposed metric
would apply only to ‘‘mobile devices
capable of delivering barometric
pressure sensor-based altitude
estimates.’’ Should the z-axis metric
apply only to calls from such devices,
only devices manufactured after a date
certain, or should it apply to wireless
calls from all mobile devices, as we
propose? Additionally, NPSTC asserts
that reporting vertical location
information as height above ground
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level (AGL) would be preferable to
height above mean sea level (MSL)
which is how carriers’ data would
otherwise be provided by default.
Should the Commission specify that
CMRS providers must report z-axis
information as AGL, as NPSTC suggests,
or are there advantages to keying height
estimates to MSL? Should the
Commission require CMRS providers to
identify the floor level when reporting
z-axis information, as suggested by
APCO? What would be the technical
and/or operational issues in requiring
CMRS providers to provide either AGL
height or floor level information?
Should the Commission require all
CMRS providers to provide the same
type of z-axis information (e.g., MSL,
AGL, or floor level) to avoid potential
confusion at the PSAP? Alternatively,
should we decline to specify this level
of detail so that entities developing
z-axis solutions have more flexibility?
B. Technical Feasibility
15. We tentatively conclude that our
proposed 3-meter z-axis metric is
technically feasible under the
timeframes established in the Fourth
Report and Order.
16. The test bed results show that in
80% of NextNav test calls, vertical
location was identified to a range of 1.8
meters or less. NextNav achieved a
vertical accuracy within 2 meters for
67% of test calls and within 3 meters for
90% of test calls in the dense urban,
urban, and suburban morphologies.
NextNav also achieved a vertical
accuracy within 2 meters for 80% of test
calls for every handset tested. According
to NextNav, these results ‘‘were
consistent across age of handsets, with
the oldest devices (2016 models)
performing identically to the newest
(2018).’’ NextNav asserts that the results
demonstrate reasonable consistency
between handsets, weather, building
types, environments, and time of day
and that they demonstrate ‘‘the efficacy
of the overall altitude determination
system (<1m @ 80%).’’
17. In addition, Polaris states that it
was able to achieve aggregate accuracy
performance of 2.8 meters for 80% of
test calls by using additional available
location data to recalibrate and refine its
Stage Z data. This also supports our
tentative conclusion in favor of a
3-meter metric. Polaris also indicates
that in a real-world deployment its
solution would use an active
compensation correction model that
operates in an application running
continuously in the background of the
device. As stated by Dr. R. Michael
Buehrer of Virginia Tech, we also expect
that this calibration process would be at
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least as accurate as the limited (once per
month) calibration process Polaris used
in reprocessing its Stage Z data.
Accordingly, we tentatively conclude
that Polaris’ reprocessing of the data
presents a reasonably accurate picture of
the capabilities of its solution. We seek
comment on this view.
18. Additionally, we are encouraged
that entities outside the test bed have
reported on technologies that may be
able to achieve an equivalent degree of
vertical location accuracy, and in this
respect, we note that our rules do not
require the use of a particular
technology to achieve the necessary
metric. For instance, on September 18,
2018, Google announced the launch of
its Emergency Location Service in the
United States. According to Google,
Emergency Location Service is ‘‘a
supplemental service that sends
enhanced location directly from
Android handsets to emergency services
when an emergency call is placed.’’
Emergency Location Service works on
‘‘99 percent of Android devices (version
4.0 and above).’’ Emergency Location
Service is part of the Android operating
system and does not require any special
hardware or updates. Regarding vertical
location accuracy, Google states that it
is working to provide accurate altitude
and floor location and ‘‘improve
[Emergency Location Service] location
quality, especially for challenging
locations, such as urban canyons and
indoors.’’
19. We recognize that some public
safety commenters urge us to adopt a
2-meter metric, which would increase
the likelihood of providing floor-level
accuracy. However, we believe it is not
yet established that such a metric is
technically achievable on a consistent
basis, although it may become
achievable in the long term as
technology continues to evolve. While
NextNav’s test bed results demonstrate
that its solution can achieve an accuracy
of 1.8 meters or less for 80% of test calls
overall, it could only achieve an
accuracy of 2.5 meters or less for 80%
of test calls in the dense urban
morphology, where calls from multistory buildings are most likely to occur.
Similarly, even after reprocessing its
data, Polaris’ solution yielded only 2.8
meters or less for 80% of test calls.
Because the existing record does not
indicate that 2-meter accuracy is
currently achievable by either vendor in
the dense urban morphology, we
tentatively conclude that it would be
premature to adopt a 2-meter metric. We
believe, however, that our proposed
3-meter metric will encourage CMRS
providers to work with NextNav,
Polaris, and emerging location and
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device vendors to achieve more precise
vertical location accuracy solutions. We
seek comment on this view.
C. Testing
20. We propose to adopt a 3-meter
z-axis metric instead of deferring the
matter for further testing. Although
CTIA initially maintained that
additional testing was needed before a
metric could be adopted, it has since
taken the opposite view. Additionally,
vendors’ comments suggest that the
3-meter metric is technically feasible,
and public safety commenters
acknowledge that such a metric, while
not as precise as they might like, would
nevertheless be a worthwhile step to
take. Although we tentatively conclude
that the benefits of further testing are
insufficient to warrant any more delay
in the progress of this proceeding, to the
extent that the proponents of additional
testing conduct tests or studies that
yield more accurate and efficient
vertical location solutions, we
encourage these stakeholders to file
them in this docket. We observe that
CTIA recently announced that in July
2019, the test bed will begin the next
round of z-axis testing, which CTIA has
designated as ‘‘Stage Za.’’ We encourage
all technology vendors that are
developing potential z-axis solutions to
participate in Stage Za. We note,
however, that in the interest of
providing certainty in the near term to
all parties, the Commission envisions
proceeding on this rulemaking while
additional testing occurs.
21. We also tentatively conclude
based on our own assessment of the
Report that the limitations on testing
described therein do not preclude us
from adopting a 3-meter metric without
requiring additional testing. We seek
comment on this tentative conclusion.
22. For example, in Stage Z, Chicago
was added as a test region to provide a
more extreme cold-weather
environment for evaluating z-axis
technologies, but NextNav was unable
to test there. NextNav also did not test
its solution in rural morphologies. We
do not believe that the lack of NextNav
test data in either environment is a
sufficient reason to delay consideration
of a z-axis metric.
23. In particular, with respect to
extreme cold-weather testing, the Report
states that very cold weather was not
available during testing and that this is
likely because the test campaign started
in late February. Accordingly, the test
results would not have been conclusive
even if NextNav had participated. In
addition, if we were to require
additional cold-weather testing, it could
not be scheduled before next winter,
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which would entail at least a year’s
delay in adopting a metric.
24. Similarly, we do not believe that
the absence of NextNav test data in rural
morphologies warrants a delay in our
consideration of a z-axis metric. The
Report notes that the rural morphology
is ‘‘the sparsest environment overall’’
and is mostly residential, with most
structures between 1 and 2 stories high.
Moreover, the Commission’s vertical
location accuracy requirements apply
only to the top 50 Cellular Market
Areas, which are most likely to feature
the urban and dense urban
morphologies. In these morphologies,
the test bed shows that NextNav’s
solution would meet a 3-meter metric.
Additionally, NextNav’s technology was
tested for vertical accuracy in rural areas
during the original CSRIC Test Bed
conducted in 2012, and NextNav’s
results from that testing fell within 3
meters for 80% of all calls.
25. We also do not believe that testing
of additional devices, such as older and
lower-end devices, is needed prior to
adoption of a z-axis metric. NextNav
and Polaris each tested six handsets, for
a total of twelve handsets, in Stage Z.
The Report states that handsets were
selected ‘‘to ensure variety between
sensor manufacturers, the age of
handsets (within limits) and their
overall use characteristics,’’ and that the
handsets used in testing were ‘‘the same
production-ready handsets sold by
wireless carriers and available to the
general public’’ and did not contain any
hardware modification that would favor
these handsets over any commercially
available handsets. NextNav points out
that the Stage Z results showed a high
level of consistency between different
models of handsets and that these
results were consistent with the results
of prior independent tests conducted on
its technology. Although we encourage
additional testing on a greater variety of
devices, we believe that a sufficient
variety of devices have been tested to
support moving forward with our
proposed 3-meter metric at this time.
We seek comment on this assessment.
We seek comment on whether the
proposed 3-meter z-axis metric will
provide adequate vertical location
accuracy protection for consumers who
participate in the Commission’s Lifeline
program. We seek comment on the
extent to which mobile phones provided
to consumers as part of the Lifeline
program have the capability, through
barometric pressure sensors or other
means, to be located within a 3-meter
z-axis metric. We also seek comment on
how to ensure that vertical location
protections extend to and include users
of the Lifeline program. We also seek
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comment on the potential turnover rates
for wireless handsets and the features of
devices likely to be available and in use
by the compliance dates established in
our rules. Those data points would
influence the extent to which
difficulties in achieving the metric over
older and lower-end devices may pose
an impediment to meeting the proposed
requirements.
D. Deployment
26. We believe our proposed 3-meter
z-axis metric will support the
development of scalable vertical
location solutions that can be deployed
in time to meet the carriers’ 2021 and
2023 deadlines. To the extent that
CMRS providers elect to use solutions
that rely on barometric pressure
readings, nearly all smartphones on the
market appear to be equipped with
barometric pressure sensors. In
addition, both NextNav and Polaris state
that calibration of the barometric
sensors in their z-axis solutions would
be software-based and thus would scale
readily for widespread use. Polaris and
NextNav also state that industry
standards necessary to implement the
barometric sensor-based solutions tested
in Stage Z are already adopted and that
implementation of these standards is in
the hands of carriers and device
manufacturers. Based on these
comments, we believe barometric
sensor-based solutions are likely to be
scalable and can be made readily
available to wireless consumers within
the timeframes required by the rules.
We seek comment on this assessment
and its underlying factual assumptions.
27. We also seek comment on the
potential for development and
deployment of other new or emerging
vertical location solutions that could be
used to meet the proposed z-axis metric.
The Commission has previously
recognized that no single technological
approach will solve the challenge of
indoor location, and it adopted
requirements applicable to CMRS
providers that are technically feasible
and technologically neutral ‘‘so that
providers can choose the most effective
solutions from a range of options.’’ We
continue to believe that this approach
should guide the adoption of any metric
in this proceeding. CTIA states that
other vertical location technologies and
vendors will likely be ready for testing
in 2019. We seek comment on the
potential for widespread deployment
and adoption of these or other
alternatives within the timeframes
required by the rules, as well as their
likely performance in real-world
conditions. Are there issues associated
with implementing these solutions into
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wireless network systems and
production mobile devices, or scaling
them for widespread use?
28. We also seek comment on whether
we should consider accelerating or
otherwise altering the deployment
timelines within the rules. Is a 3-meter
metric achievable more quickly than the
current 2021 and 2023 deadlines? If so,
when should these deadlines be set?
These deadlines also pertain to the
carriers’ option of using dispatchable
location for vertical location accuracy.
Must the timetables be adjusted for both
options? Can CMRS providers achieve
dispatchable location and complete
work on the NEAD on an accelerated
timeframe? If not, should the
Commission decouple the choice of
deploying z-axis technology from
dispatchable location, and how would
bifurcating CMRS providers’ technology
choice impact CMRS providers’
incentives to deploy dispatchable
location and complete work on the
NEAD? If the Commission adopts a
more stringent metric such as floor level
or a +/¥ 2-meter vertical location
standard, is it achievable within the
current timeframes or would it take
longer than the current timetable in the
rules? Is it feasible to adopt both a more
precise metric and to shorten
compliance timetables? How should the
Commission address the timeframes
applicable to non-nationwide CMRS
providers? How would changing the
existing timeframes impact the
compliance regime for vertical location
accuracy?
E. Z-Axis Data Privacy and Security
29. We seek comment on the
appropriate data privacy and security
framework for z-axis data. In 2015 the
Commission established rules governing
CMRS provider usage of the National
Emergency Address Database (NEAD).
In doing so, the Commission stated that
‘‘certain explicit requirements on
individual CMRS providers are
necessary to ensure the privacy and
security of NEAD data and any other
information involved in the
determination and delivery of
dispatchable location.’’ In the same
Order the Commission required that, ‘‘as
a condition of using the NEAD or any
information contained therein to meet
our 911 location requirements, and prior
to use of the NEAD, CMRS providers
must certify that they will not use the
NEAD or associated data for any
purpose other than for the purpose of
responding to 911 calls, except as
required by law.’’ We seek comment on
whether use of z-axis data should be
limited to 911 calls except as otherwise
required by law and if such a limitation
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should be implemented and codified in
a manner similar to the limitations
applicable to the NEAD described
above.
F. Comparison of Benefits and Costs
30. We now seek comment on which
z-axis metric would allow us to achieve
the anticipated level of benefits in the
most cost-effective manner. Specifically,
because the alternative metrics have an
effect on both costs and benefits, we
seek comment on how the benefits and
costs of the proposed z-axis metric of 3
meters for 80% of calls compares to the
benefits and costs of alternative
metrics. We seek comment on the
expected number of lives saved by
adopting a 3-meter metric, versus a
2-meter or 5-meter metric. We also seek
comment on the expected number of
lives that would be saved if we required
CMRS providers to identify floor level
when reporting z-axis information. In
the Fourth Report and Order, the
Commission concluded that the location
accuracy rules, including the z-axis
accuracy metric, would improve
emergency response times, which, in
turn, would improve patient outcomes
and save lives. The Commission found
that the location accuracy
improvements that it adopted had the
potential to save approximately 10,120
lives annually at a value of $9.1 million
per statistical life, for an annual benefit
of approximately $92 billion or $291 per
wireless subscriber. The Commission
characterized this $92 billion as an
annual benefit floor value because it
also expected substantial,
unquantifiable benefits from the
reduction of human suffering and loss of
property. The Commission further
found that the costs of implementing the
available solutions to achieve the indoor
wireless location accuracy standards
were far less than the $92 billion benefit
floor, with the costs further declining as
demand grew.
31. We now seek comment on how
the benefits and costs of the proposed
z-axis metric of 3 meters for 80% of
calls compares to the benefits and costs
of alternative metrics. We tentatively
conclude that a z-axis metric of 3 meters
for 80% of calls strikes the best balance
between benefits and costs. As noted
above, some public safety commenters
identify a 3-meter metric as providing
sufficient accuracy to identify the
caller’s floor level in most cases.
Accordingly, a 3-meter metric would
manifest the benefits of location
accuracy described in the Fourth Report
and Order. The record contains
evidence that supports a finding that the
costs of implementing a 3-meter metric
are themselves low, at least on a per-
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handset basis. NextNav asserts that its
z-axis solution, which requires only
software changes to be made to each
handset, could be made available for a
nominal cost that amounts to
significantly less than a penny per
month per handset and would impose
no incremental cost burdens on new
handsets. Polaris states that its z-axis
solution is ‘‘objectively affordable’’
because it is software-based, does not
require hardware in networks or
markets, and ‘‘does not require anything
special in devices beyond
implementation of adopted 3GPP and
OMA standards.’’ Polaris’ solution also
is ‘‘instantly available and deployable
throughout a carrier’s nationwide
network.’’ As the Commission noted in
the Fourth Report and Order, we
continue to expect that these costs will
decline as demand grows.
32. We tentatively conclude that the
value of a 3-meter metric exceeds that
of a 5-meter standard because a 5-meter
metric would result in a significant
reduction in the benefits described
above. As commenters have indicated, a
5-meter metric could indicate a location
up to 2 floors below, or up to 2 floors
above, the actual floor where a 911
caller may be located. This large search
range would make it far more likely that
first responders would need to search 2
or more additional floors, significantly
increasing average emergency response
times and consequently degrading
patient outcomes. Due to the likely
degradation of patient outcomes with a
5-meter metric, we tentatively conclude
that a 3-meter metric provides greater
value. We seek comment on this
tentative conclusion, including on the
marginal benefits and costs of a 3-meter
metric versus a 5-meter metric.
33. We also tentatively conclude that,
at this time, the value of a 3-meter
metric exceeds that of a 2-meter metric.
We acknowledge that a 2-meter metric
would further improve the accuracy of
911 calls by increasing the likelihood
that the caller’s floor level could be
identified with certainty, which would
further improve emergency response
times and patient outcomes. In other
words, while the margins of both the
2-meter and 3-meter search ranges could
extend one level above and below a
caller’s floor level, a greater portion of
the 2-meter search range is likely to be
concentrated at the correct floor level.
However, because we tentatively
conclude that existing solutions are
unlikely to achieve 2-meter accuracy for
80% of E911 calls prior to the deadlines
established by our rules, we expect that
adopting a 2-meter metric would likely
cause developers of z-axis solutions to
incur substantial development, testing,
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and implementation costs, without any
guarantee of achieving the 2-meter
metric before the deadline. Rather than
force these expenditures in pursuit of
additional benefits that may not
materialize on-schedule, we tentatively
conclude that there is greater value in
adopting the certain benefits of the
achievable 3-meter metric. In addition,
we observe that any delay in
deployment of z-axis solutions
necessitated by a 2-meter metric would
also delay realization of the benefits of
improved location accuracy—i.e.,
improved emergency response times,
better patient outcomes, and lives saved.
We seek comment on this tentative
conclusion, including on the marginal
benefits and costs of a 2-meter metric
versus a 3-meter or 5-meter metric. We
also seek comment on how the benefits
and costs of requiring CMRS providers
to identify floor level when reporting
z-axis information would compare to
the benefits and costs of providing zaxis information as AGL or MSL height.
Are these costs and benefits any
different for non-nationwide providers
as opposed to nationwide providers?
34. We seek comment on our analysis
and tentative conclusions as to the
comparative value of these z-axis
metrics. Are there ways to more
precisely quantify the differences in
patient outcomes that would arise from
the adoption of 2-, 3-, and 5-meter
metrics? For example, under each of
these metrics, in what percentage of
calls would the floor reported to first
responders be the correct one? How
much additional time is necessary for
first responders to search additional
floors of a building if the 911 caller is
not on the first floor that they search?
How much more time would be
required for a first responder to find a
911 caller if a 5-meter metric were
adopted, as compared to adoption of a
3-meter metric? How much less time
would be required for a first responder
to find a 911 caller if a 2-meter metric
were adopted? What costs would arise
from implementing z-axis solutions to
meet a 3-meter metric that would not
exist when implementing a 5-meter
metric? What is the projected amount of
those costs? Are there z-axis solutions
for which the cost of satisfying a 3-meter
metric is the same or negligible when
compared to the costs of implementing
a 5-meter metric? Are there any
alternative z-axis metrics that have not
been addressed that we should
consider?
IV. Initial Regulatory Flexibility
Analysis
35. As required by the Regulatory
Flexibility Act of 1980, as amended
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(RFA), the Commission has prepared
this Initial Regulatory Flexibility
Analysis (IRFA) of the possible
significant economic impact on a
substantial number of small entities by
the policies and rules proposed in the
Fourth Further Notice of Proposed Rule
Making (Notice). Written public
comments are requested on this IRFA.
Comments must be identified as
responses to the IRFA and must be filed
by the deadlines in this Notice. The
Commission will send a copy of the
Notice, including this IRFA, to the Chief
Counsel for Advocacy of the Small
Business Administration (SBA). In
addition, the Notice and IRFA (or
summaries thereof) will be published in
the Federal Register.
A. Need for, and Objectives of, the
Proposed Rules
36. The Notice advances the
Commission’s goal of ensuring ‘‘that all
Americans using mobile phones—
whether they are calling from urban or
rural areas, from indoors or outdoors—
have technology that is functionally
capable of providing accurate location
information so that they receive the
support they need in times of an
emergency.’’ In the Notice, the
Commission proposes to adopt a metric
to more precisely identify the location
of a 911 wireless caller located in a
multi-story building. More specifically,
we propose to require the provisioning
of vertical location (z-axis) information
that would enable first responders to
identify the caller’s floor level for most
wireless calls to 911 from multi-story
buildings, which represents a critical
element to achieving the Commission’s
indoor location accuracy objectives.
Consistent with the regulatory
framework established in the last major
revision of the Commission’s wireless
location accuracy rules in 2015 and the
information developed in the associated
docket, this Notice proposes a z-axis
location accuracy metric of 3 meters
above or below a handset for 80 percent
of wireless Enhanced 911 (E911) indoor
calls. As alternatives, we seek comment
on different metrics of two or five
meters, as well as potentially revised
time frames depending on the precision
of the metric adopted. Our proposed
metric, if adopted, could augment the
ability of Public Safety Answering
Points (PSAPs) and first responders to
more accurately identify the floor level
for most 911 calls made from multistory buildings, reduce emergency
response times, and, ultimately, save
lives. It also implements the final
element of the Commission’s existing
indoor location accuracy regime, which
already includes a timetable for
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Commercial Mobile Radio Service
(CMRS) providers to deliver vertical
location information by deploying either
dispatchable location or z-axis
technology in specific geographic areas.
Our proposed z-axis metric will provide
certainty to all parties and establish a
focal point for further testing,
development, and implementation of
evolving z-axis location technologies.
B. Legal Basis
37. The proposed action is authorized
under Sections 1, 2, 4(i), 7, 10, 201, 214,
222, 251(e), 301, 302, 303, 307, 309, 316,
and 332, of the Communications Act of
1934, 47 U.S.C. 151, 152(a), 154(i), 157,
160, 201, 214, 222, 251(e), 301, 302, 303,
307, 309, 316, 332; the Wireless
Communications and Public Safety Act
of 1999, Public Law 106–81, 47 U.S.C.
615 note, 615, 615a, 615b; and Section
106 of the Twenty-First Century
Communications and Video
Accessibility Act of 2010, Public Law
111–260, 47 U.S.C. 615c.
C. Description and Estimate of the
Number of Small Entities to Which the
Proposed Rules Will Apply
38. The RFA directs agencies to
provide a description of and, where
feasible, an estimate of the number of
small entities that may be affected by
the proposed rules, if adopted. The RFA
generally defines the term ‘‘small
entity’’ as having the same meaning as
the terms ‘‘small business,’’ ‘‘small
organization,’’ and ‘‘small governmental
jurisdiction.’’ In addition, the term
‘‘small business’’ has the same meaning
as the term ‘‘small business concern’’
under the Small Business Act. A small
business concern is one which: (1) Is
independently owned and operated; (2)
is not dominant in its field of operation;
and (3) satisfies any additional criteria
established by the SBA.
39. Small Businesses, Small
Organizations, Small Governmental
Jurisdictions. Our actions, over time,
may affect small entities that are not
easily categorized at present. We
therefore describe here, at the outset,
three broad groups of small entities that
could be directly affected herein. First,
while there are industry specific size
standards for small businesses that are
used in the regulatory flexibility
analysis, according to data from the
SBA’s Office of Advocacy, in general a
small business is an independent
business having fewer than 500
employees. These types of small
businesses represent 99.9% of all
businesses in the United States which
translates to 28.8 million businesses.
40. Next, the type of small entity
described as a ‘‘small organization’’ is
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generally ‘‘any not-for-profit enterprise
which is independently owned and
operated and is not dominant in its
field.’’ Nationwide, as of August 2016,
there were approximately 356,494 small
organizations based on registration and
tax data filed by nonprofits with the
Internal Revenue Service (IRS).
41. Finally, the small entity described
as a ‘‘small governmental jurisdiction’’
is defined generally as ‘‘governments of
cities, counties, towns, townships,
villages, school districts, or special
districts, with a population of less than
fifty thousand.’’ U.S. Census Bureau
data from the 2012 Census of
Governments indicate that there were
90,056 local governmental jurisdictions
consisting of general purpose
governments and special purpose
governments in the United States. Of
this number there were 37,132 General
purpose governments (county,
municipal and town or township) with
populations of less than 50,000 and
12,184 Special purpose governments
(independent school districts and
special districts) with populations of
less than 50,000. The 2012 U.S. Census
Bureau data for most types of
governments in the local government
category show that the majority of these
governments have populations of less
than 50,000. Based on this data we
estimate that at least 49,316 local
government jurisdictions fall in the
category of ‘‘small governmental
jurisdictions.’’
1. Telecommunications Service
Providers
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a. Wireless Telecommunications
Providers
42. Pursuant to 47 CFR § 20.18(a), the
Commission’s 911 service requirements
are only applicable to Commercial
Mobile Radio Service (CMRS)
‘‘[providers], excluding mobile satellite
service operators, to the extent that they:
(1) Offer real-time, two way switched
voice service that is interconnected with
the public switched network; and (2)
Utilize an in-network switching facility
that enables the provider to reuse
frequencies and accomplish seamless
hand-offs of subscriber calls. These
requirements are applicable to entities
that offer voice service to consumers by
purchasing airtime or capacity at
wholesale rates from CMRS licensees.’’
43. Below, for those services subject
to auctions, we note that, as a general
matter, the number of winning bidders
that qualify as small businesses at the
close of an auction does not necessarily
represent the number of small
businesses currently in service. Also,
the Commission does not generally track
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subsequent business size unless, in the
context of assignments or transfers,
unjust enrichment issues are implicated.
44. All Other Telecommunications.
The ‘‘All Other Telecommunications’’
category is comprised of establishments
primarily engaged in providing
specialized telecommunications
services, such as satellite tracking,
communications telemetry, and radar
station operation. This industry also
includes establishments primarily
engaged in providing satellite terminal
stations and associated facilities
connected with one or more terrestrial
systems and capable of transmitting
telecommunications to, and receiving
telecommunications from, satellite
systems. Establishments providing
internet services or voice over internet
protocol (VoIP) services via clientsupplied 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 annual
receipts of $32.5 million or less. For this
category, U.S. Census Bureau data for
2012 shows that there were 1,442 firms
that operated for the entire year. Of
those firms, a total of 1,400 had annual
receipts less than $25 million and 42
firms had annual receipts of $25 million
to $49,999,999. Thus, the Commission
estimates that the majority of ‘‘All Other
Telecommunications’’ firms potentially
affected by our action can be considered
small.
45. AWS Services (1710–1755 MHz
and 2110–2155 MHz bands (AWS–1);
1915–1920 MHz, 1995–2000 MHz,
2020–2025 MHz and 2175–2180 MHz
bands (AWS–2); 2155–2175 MHz band
(AWS–3)). For the AWS–1 bands, the
Commission has defined a ‘‘small
business’’ as an entity with average
annual gross revenues for the preceding
three years not exceeding $40 million,
and a ‘‘very small business’’ as an entity
with average annual gross revenues for
the preceding three years not exceeding
$15 million. For AWS–2 and AWS–3,
although we do not know for certain
which entities are likely to apply for
these frequencies, we note that the
AWS–1 bands are comparable to those
used for cellular service and personal
communications service. The
Commission has not yet adopted size
standards for the AWS–2 or AWS–3
bands but proposes to treat both AWS–
2 and AWS–3 similarly to broadband
PCS service and AWS–1 service due to
the comparable capital requirements
and other factors, such as issues
involved in relocating incumbents and
developing markets, technologies, and
services.
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46. Competitive Local Exchange
Carriers (Competitive LECs).
Competitive Access Providers (CAPs),
Shared-Tenant Service Providers, and
Other Local Service Providers. Neither
the Commission nor the SBA has
developed a small business size
standard specifically for these service
providers. The appropriate NAICS Code
category is Wired Telecommunications
Carriers and under that size standard,
such a business is small if it has 1,500
or fewer employees. U.S. Census Bureau
data for 2012 indicate that 3,117 firms
operated during that year. Of that
number, 3,083 operated with fewer than
1,000 employees. Based on these data,
the Commission concludes that the
majority of Competitive LECS, CAPs,
Shared-Tenant Service Providers, and
Other Local Service Providers, are small
entities. According to Commission data,
1,442 carriers reported that they were
engaged in the provision of either
competitive local exchange services or
competitive access provider services. Of
these 1,442 carriers, an estimated 1,256
have 1,500 or fewer employees. In
addition, 17 carriers have reported that
they are Shared-Tenant Service
Providers, and all 17 are estimated to
have 1,500 or fewer employees. Also, 72
carriers have reported that they are
Other Local Service Providers. Of this
total, 70 have 1,500 or fewer employees.
Consequently, based on internally
researched FCC data, the Commission
estimates that most providers of
competitive local exchange service,
competitive access providers, SharedTenant Service Providers, and Other
Local Service Providers are small
entities.
47. Incumbent Local Exchange
Carriers (LECs). Neither the Commission
nor the SBA has developed a small
business size standard specifically for
incumbent local exchange services. The
closest applicable NAICS Code category
is Wired Telecommunications Carriers.
Under the applicable SBA size standard,
such a business is small if it has 1,500
or fewer employees. U.S. Census Bureau
data for 2012 indicate that 3,117 firms
operated the entire year. Of this total,
3,083 operated with fewer than 1,000
employees. Consequently, the
Commission estimates that most
providers of incumbent local exchange
service are small businesses that may be
affected by our actions. According to
Commission data, one thousand three
hundred and seven (1,307) Incumbent
Local Exchange Carriers reported that
they were incumbent local exchange
service providers. Of this total, an
estimated 1,006 have 1,500 or fewer
employees. Thus, using the SBA’s size
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standard, the majority of incumbent
LECs can be considered small entities.
48. Narrowband Personal
Communications Services. Two
auctions of narrowband personal
communications services (PCS) licenses
have been conducted. To ensure
meaningful participation of small
business entities in future auctions, the
Commission has adopted a two-tiered
small business size standard in the
Narrowband PCS Second Report and
Order. Through these auctions, the
Commission has awarded a total of 41
licenses, out of which 11 were obtained
by small businesses. A ‘‘small business’’
is an entity that, together with affiliates
and controlling interests, has average
gross revenues for the three preceding
years of not more than $40 million. A
‘‘very small business’’ is an entity that,
together with affiliates and controlling
interests, has average gross revenues for
the three preceding years of not more
than $15 million. The SBA has
approved these small business size
standards.
49. Offshore Radiotelephone Service.
This service operates on several UHF
television broadcast channels that are
not used for television broadcasting in
the coastal areas of states bordering the
Gulf of Mexico. The closest applicable
SBA size standard is for Wireless
Telecommunications Carriers (except
Satellite), which is an entity employing
no more than 1,500 persons. U.S.
Census Bureau data in this industry for
2012 show that there were 967 firms
that operated for the entire year. Of this
total, 955 firms had employment of 999
or fewer employees and 12 had
employment of 1000 employees or
more. Thus, under this SBA category
and the associated small business size
standard, the majority of Offshore
Radiotelephone Service firms can be
considered small. There are presently
approximately 55 licensees in this
service. However, the Commission is
unable to estimate at this time the
number of licensees that would qualify
as small under the SBA’s small business
size standard for the category of
Wireless Telecommunications Carriers
(except Satellite).
50. Radio and Television Broadcasting
and Wireless Communications
Equipment Manufacturing. This
industry comprises establishments
primarily engaged in manufacturing
radio and television broadcast and
wireless communications equipment.
Examples of products made by these
establishments are: Transmitting and
receiving antennas, cable television
equipment, GPS equipment, pagers,
cellular phones, mobile
communications equipment, and radio
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and television studio and broadcasting
equipment. The SBA has established a
small business size standard for this
industry of 1,250 employees or less.
U.S. Census Bureau data for 2012 shows
that 841 establishments operated in this
industry in that year. Of that number,
828 establishments operated with fewer
than 1,000 employees, 7 establishments
operated with between 1,000 and 2,499
employees and 6 establishments
operated with 2,500 or more employees.
Based on this data, we conclude that a
majority of manufacturers in this
industry are small.
51. Rural Radiotelephone Service. The
Commission has not adopted a size
standard for small businesses specific to
the Rural Radiotelephone Service. A
significant subset of the Rural
Radiotelephone Service is the Basic
Exchange Telephone Radio System
(BETRS). The closest applicable SBA
size standard is for Wireless
Telecommunications Carriers (except
Satellite), which is an entity employing
no more than 1,500 persons. For this
industry, U.S. Census Bureau data for
2012 show that there were 967 firms
that operated for the entire year. Of this
total, 955 firms had employment of 999
or fewer employees and 12 had
employment of 1000 employees or
more. Thus, under this category and the
associated size standard, the
Commission estimates that the majority
of Rural Radiotelephone Services firm
are small entities. There are
approximately 1,000 licensees in the
Rural Radiotelephone Service, and the
Commission estimates that there are
1,000 or fewer small entity licensees in
the Rural Radiotelephone Service that
may be affected by the rules and
policies proposed herein.
52. Wireless Communications
Services. This service can be used for
fixed, mobile, radiolocation, and digital
audio broadcasting satellite uses. The
Commission defined ‘‘small business’’
for the wireless communications
services (WCS) auction as an entity with
average gross revenues of $40 million
for each of the three preceding years,
and a ‘‘very small business’’ as an entity
with average gross revenues of $15
million for each of the three preceding
years. The SBA has approved these
small business size standards. In the
Commission’s auction for geographic
area licenses in the WCS there were
seven winning bidders that qualified as
‘‘very small business’’ entities, and one
that qualified as a ‘‘small business’’
entity.
53. Wireless Telecommunications
Carriers (except Satellite). This industry
comprises establishments engaged in
operating and maintaining switching
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and transmission facilities to provide
communications via the airwaves.
Establishments in this industry have
spectrum licenses and provide services
using that spectrum, such as cellular
services, paging services, wireless
internet access, and wireless video
services. The appropriate size standard
under SBA rules is that such a business
is small if it has 1,500 or fewer
employees. For this industry, U.S.
Census Bureau data for 2012 show that
there were 967 firms that operated for
the entire year. Of this total, 955 firms
had employment of 999 or fewer
employees and 12 had employment of
1000 employees or more. Thus, under
this category and the associated size
standard, the Commission estimates that
the majority of wireless
telecommunications carriers (except
satellite) are small entities.
54. Wireless Telephony. Wireless
telephony includes cellular, personal
communications services, and
specialized mobile radio telephony
carriers. The closest applicable SBA
category is Wireless
Telecommunications Carriers (except
Satellite) and the appropriate size
standard for this category under the
SBA rules is that such a business is
small if it has 1,500 or fewer employees.
For this industry, U.S. Census Bureau
data for 2012 show that there were 967
firms that operated for the entire year.
Of this total, 955 firms had fewer than
1,000 employees and 12 firms had 1000
employees or more. Thus, under this
category and the associated size
standard, the Commission estimates that
a majority of these entities can be
considered small. According to
Commission data, 413 carriers reported
that they were engaged in wireless
telephony. Of these, an estimated 261
have 1,500 or fewer employees and 152
have more than 1,500 employees.
Therefore, more than half of these
entities can be considered small.
55. 700 MHz Guard Band Licensees.
In 2000, in the 700 MHz Guard Band
Order, the Commission adopted size
standards for ‘‘small businesses’’ and
‘‘very small businesses’’ for purposes of
determining their eligibility for special
provisions such as bidding credits and
installment payments. A small business
in this service is an entity that, together
with its affiliates and controlling
principals, has average gross revenues
not exceeding $40 million for the
preceding three years. Additionally, a
very small business is an entity that,
together with its affiliates and
controlling principals, has average gross
revenues that are not more than $15
million for the preceding three years.
SBA approval of these definitions is not
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required. An auction of 52 Major
Economic Area licenses commenced on
September 6, 2000 and closed on
September 21, 2000. Of the 104 licenses
auctioned, 96 licenses were sold to nine
bidders. Five of these bidders were
small businesses that won a total of 26
licenses. A second auction of 700 MHz
Guard Band licenses commenced on
February 13, 2001 and closed on
February 21, 2001. All eight of the
licenses auctioned were sold to three
bidders. One of these bidders was a
small business that won a total of two
licenses.
56. Lower 700 MHz Band Licenses.
The Commission previously adopted
criteria for defining three groups of
small businesses for purposes of
determining their eligibility for special
provisions such as bidding credits. The
Commission defined a ‘‘small business’’
as an entity that, together with its
affiliates and controlling principals, has
average gross revenues not exceeding
$40 million for the preceding three
years. A ‘‘very small business’’ is
defined as an entity that, together with
its affiliates and controlling principals,
has average gross revenues that are not
more than $15 million for the preceding
three years. Additionally, the lower 700
MHz Service had a third category of
small business status for Metropolitan/
Rural Service Area (MSA/RSA)
licenses—‘‘entrepreneur’’—which is
defined as an entity that, together with
its affiliates and controlling principals,
has average gross revenues that are not
more than $3 million for the preceding
three years. The SBA approved these
small size standards. An auction of 740
licenses (one license in each of the 734
MSAs/RSAs and one license in each of
the six Economic Area Groupings
(EAGs)) commenced on August 27, 2002
and closed on September 18, 2002. Of
the 740 licenses available for auction,
484 licenses were won by 102 winning
bidders. Seventy-two of the winning
bidders claimed small business, very
small business or entrepreneur status
and won a total of 329 licenses. A
second auction commenced on May 28,
2003, closed on June 13, 2003, and
included 256 licenses: 5 EAG licenses
and 476 Cellular Market Area licenses.
Seventeen winning bidders claimed
small or very small business status and
won 60 licenses, and nine winning
bidders claimed entrepreneur status and
won 154 licenses. On July 26, 2005, the
Commission completed an auction of 5
licenses in the Lower 700 MHz band
(Auction No. 60). There were three
winning bidders for five licenses. All
three winning bidders claimed small
business status.
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57. In 2007, the Commission
reexamined its rules governing the 700
MHz band in the 700 MHz Second
Report and Order. An auction of 700
MHz licenses commenced January 24,
2008, and closed on March 18, 2008,
which included: 176 Economic Area
licenses in the A-Block, 734 Cellular
Market Area licenses in the B-Block,
and 176 EA licenses in the E-Block.
Twenty winning bidders, claiming small
business status (those with attributable
average annual gross revenues that
exceed $15 million and do not exceed
$40 million for the preceding three
years) won 49 licenses. Thirty-three
winning bidders claiming very small
business status (those with attributable
average annual gross revenues that do
not exceed $15 million for the preceding
three years) won 325 licenses.
58. Upper 700 MHz Band Licenses. In
the 700 MHz Second Report and Order,
the Commission revised its rules
regarding Upper 700 MHz licenses. On
January 24, 2008, the Commission
commenced Auction 73 in which
several licenses in the Upper 700 MHz
band were available for licensing: 12
Regional Economic Area Grouping
licenses in the C Block, and one
nationwide license in the D Block. The
auction concluded on March 18, 2008,
with 3 winning bidders claiming very
small business status (those with
attributable average annual gross
revenues that do not exceed $15 million
for the preceding three years) and
winning five licenses.
59. Wireless Resellers. The SBA has
not developed a small business size
standard specifically for Wireless
Resellers. The SBA category of
Telecommunications Resellers is the
closest NAICS code category for
wireless resellers. The
Telecommunications Resellers industry
comprises establishments engaged in
purchasing access and network capacity
from owners and operators of
telecommunications networks and
reselling wired and wireless
telecommunications services (except
satellite) to businesses and households.
Establishments in this industry resell
telecommunications; they do not
operate transmission facilities and
infrastructure. Mobile virtual network
operators (MVNOs) are included in this
industry. Under the SBA’s size
standard, such a business is small if it
has 1,500 or fewer employees. U.S.
Census Bureau data for 2012 show that
1,341 firms provided resale services for
the entire year. Of that number, all
operated with fewer than 1,000
employees. Thus, under this category
and the associated small business size
standard, the majority of these resellers
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can be considered small entities.
According to Commission data, 213
carriers have reported that they are
engaged in the provision of local resale
services. Of these, an estimated 211
have 1,500 or fewer employees.
Consequently, the Commission
estimates that the majority of Wireless
Resellers are small entities.
b. Equipment Manufacturers
60. Radio and Television Broadcasting
and Wireless Communications
Equipment Manufacturing. This
industry comprises establishments
primarily engaged in manufacturing
radio and television broadcast and
wireless communications equipment.
Examples of products made by these
establishments are: Transmitting and
receiving antennas, cable television
equipment, GPS equipment, pagers,
cellular phones, mobile
communications equipment, and radio
and television studio and broadcasting
equipment. The SBA has established a
size standard for this industry of 1,250
employees or less. U.S. Census data for
2012 shows that 841 establishments
operated in this industry in that year. Of
that number, 828 establishments
operated with fewer than 1,000
employees, 7 establishments operated
with between 1,000 and 2,499
employees and 6 establishments
operated with 2,500 or more employees.
Based on this data, we conclude that a
majority of manufacturers in this
industry can be considered small.
61. Semiconductor and Related
Device Manufacturing. This industry
comprises establishments primarily
engaged in manufacturing
semiconductors and related solid state
devices. Examples of products made by
these establishments are integrated
circuits, memory chips,
microprocessors, diodes, transistors,
solar cells and other optoelectronic
devices. The SBA has developed a small
business size standard for
Semiconductor and Related Device
Manufacturing, which consists of all
such companies having 1,250 or fewer
employees. U.S. Census Bureau data for
2012 show that there were 862
establishments that operated that year.
Of this total, 843 operated with fewer
than 1,000 employees. Thus, under this
size standard, the majority of firms in
this industry can be considered small.
D. Description of Projected Reporting,
Recordkeeping, and Other Compliance
Requirements for Small Entities
62. The Notice proposes and seeks
comment on a z-axis (vertical) location
accuracy metric that will, if adopted,
affect the reporting, recordkeeping and/
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or other compliance requirements of
nationwide and non-nationwide CMRS
providers, including small businesses.
Under the current rules, by 2021,
nationwide CMRS providers must
deploy either (1) dispatchable location,
or (2) z-axis technology that achieves
the Commission-approved z-axis metric,
which metric is yet to be adopted, in
each of the top 25 Cellular Market
Areas. CMRS providers must deploy
z-axis technology to cover 80 percent of
the Cellular Market Areas population if
z-axis technology is used. By 2021,
nationwide CMRS providers must
deploy dispatchable location or z-axis
technology pursuant to the metric that
will be adopted by the Commission in
each of the top 50 Cellular Market
Areas. Non-nationwide carriers,
including resellers, that serve any of the
top 25 or 50 CMAs will have an
additional year to meet the two
benchmarks (i.e., until 2022 for the top
25 Cellular Market Areas and 2024 for
the top 50 Cellular Market Areas). Thus,
under the Commission’s proposal,
CMRS nationwide and non-nationwide
CMRS providers that deploy z-axis
technology will be required to provide
vertical location information within 3
meters under the Commission’s existing
timelines. As alternatives, we seek
comment on different metrics of two or
five meters, as well as potentially
revised time frames depending on the
precision of the metric adopted.
63. We have tentatively concluded,
based on the z-axis solution test results
and other comments, that a metric of 3
meters for 80% of indoor calls is
technically achievable and that z-axis
solutions capable of meeting this metric
can be deployed within the timeframes
established in the rules. As described
further below, we also have tentatively
concluded that the cost of compliance
with the 3-meter metric is relatively
low. Small entities may incur costs
associated with software and/or
hardware changes and may need to
employ engineers or other experts in
order to comply with the proposal in the
Notice. However, the technology
solution a small entity chooses to
implement the requirement will
determine the nature of the costs it
incurs.
64. We anticipate that small entities
would have a choice of vendors with
z-axis technology solutions, which will
lessen their costs to comply with the
proposed rule, if adopted. One of the
vendors that participated in Stage Z
testing, NextNav, asserts that its z-axis
solution requires only software changes
to be made to each handset could be
made available for a nominal cost that
amounts to significantly less than a
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penny per month per handset. Another
test vendor, Polaris, asserts that its
solution is instantly available and
deployable throughout a carrier’s
nationwide network. Polaris also asserts
that its solution is ‘‘objectively
affordable’’ because it is software-based,
does not require hardware in networks
or markets, and ‘‘does not require
anything special in devices beyond
implementation of adopted 3GPP and
OMA standards.’’ Further, with the
addition of vertical location
technologies and vendors into the
market, small entities will have more
implementation options, which could
further reduce their cost of compliance.
As noted above, Google has announced
that it has developed and is deploying
its Emergency Location System (ELS) in
the U.S. for Android devices. Google
states that ELS is ‘‘a supplemental
service that sends enhanced location
directly from Android handsets to
emergency services when an emergency
call is placed.’’ Google also states that
ELS is part of the Android operating
system and does not require any special
hardware or updates. Moreover, as the
Commission noted in the Fourth Report
and Order, we continue to expect that
these technology costs will decline as
demand grows.
E. Steps Taken To Minimize the
Significant Economic Impact on Small
Entities, and Significant Alternatives
Considered
65. 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.
66. Based on a comparison of the
benefits and costs to alternatives
metrics, the Commission believes that
the 3-meter metric that it proposes to
adopt is the most cost-effective option
for achieving the Commission’s
objectives in this proceeding while
avoiding undue burdens on all entities.
The metric should benefit all entities by
giving certainty in selecting an option
for complying with the Commission’s
rules. While the rule proposed in the
Notice would apply to all nationwide
and non-nationwide CMRS in the same
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13221
manner, the Commission has already
taken steps to accommodate smaller
non-nationwide CMRS providers by
supplying additional time to comply
with any vertical location accuracy
benchmarks ultimately adopted by the
Commission. The rules also already
establish that nationwide and nonnationwide CMRS providers may
choose to provide dispatchable location
or deploy z-axis technology; and they
give non-nationwide CMRS providers
an additional year to comply with the
Commission’s z-axis benchmarks. In
addition, the proposed rule gives small
entities the freedom to choose a solution
that best fits their financial situation,
rather than imposing a specific z-axis
technology solution, which should
minimize the economic impact on these
entities. The Commission does not
believe that the costs and/or
administrative burdens associated with
the proposed rule would unduly burden
small entities and expects to more fully
consider the economic impact and
alternatives for small entities following
the review of comments filed in
response to the Notice. The metric the
Commission proposes to adopt should
benefit all entities by giving certainty in
selecting an option for complying with
the Commission’s rules. Many CMRS
providers likely would be able to avoid
unnecessary costs by knowing that the
Commission has chosen an accuracy
metric of 3 meters, which means they
don’t have to make an expensive
attempt to satisfy a 2-meter metric by
the implementation date specified in the
rules. All CMRS providers, including
small entities, should benefit from the
scale economies provided to phone
manufacturers who would be able to
provision all phones to the same
3-meter standard adopted by the
Commission. As alternatives, we seek
comment on different metrics of two or
five meters, as well as potentially
revised time frames depending on the
precision of the metric adopted.
F. Federal Rules That May Duplicate,
Overlap, or Conflict With the Proposed
Rules
67. None.
V. Ordering Clauses
68. Accordingly, it is ordered,
pursuant to Sections 1, 2, 4(i), 7, 10,
201, 214, 222, 251(e), 301, 302, 303, 307,
309, 316, and 332, of the
Communications Act of 1934, 47 U.S.C.
151, 152(a), 154(i), 157, 160, 201, 214,
222, 251(e), 301, 302, 303, 307, 309, 316,
332; the Wireless Communications and
Public Safety Act of 1999, Public Law
106–81, 47 U.S.C. 615 note, 615, 615a,
615b; and Section 106 of the Twenty-
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First Century Communications and
Video Accessibility Act of 2010, Public
Law 111–260, 47 U.S.C. 615c, that this
Fourth Further Notice of Proposed
Rulemaking, is hereby adopted.
69. It is further ordered that the
Commission’s Consumer and
Governmental Affairs Bureau, Reference
Information Center, shall send a copy of
this Fourth Further Notice of Proposed
Rulemaking, including the Initial
Regulatory Flexibility Analysis, to the
Chief Counsel for Advocacy of the Small
Business Administration.
List of Subjects in 47 CFR Part 20
Communications common carriers,
Communications equipment, Radio.
For the reasons discussed in the
preamble, the Federal Communications
Commission proposes to amend 47 CFR
part 20 as follows:
PART 20—COMMERCIAL MOBILE
SERVICES
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, 610, 615, 615a, 615b, 615c,
unless otherwise noted.
2. Section 20.18 is amended by
revising paragraph (i)(2)(ii)(C)
introductory text and paragraph
(i)(2)(ii)(D) to read as follows:
■
911 Service.
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*
*
*
*
(i) * * *
(2) * * *
(ii) * * *
(C) By April 3, 2021: In each of the
top 25 CMAs, nationwide CMRS
providers shall deploy either
dispatchable location, or z-axis
technology in compliance with the
following z-axis accuracy metric: Within
3 meters above or below (plus or minus
3 meters) the handset for 80% of
wireless E911 calls.
*
*
*
*
*
(D) By April 3, 2023: In each of the
top 50 CMAs, nationwide CMRS
providers shall deploy either
dispatchable location, or z-axis
technology in compliance with the
following z-axis accuracy metric: Within
3 meters above or below (plus or minus
3 meters) the handset for 80% of
wireless E911 calls.
*
*
*
*
*
[FR Doc. 2019–06012 Filed 4–3–19; 8:45 am]
BILLING CODE 6712–01–P
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National Highway Traffic Safety
Administration
49 CFR Part 571
[Docket No. NHTSA–2019–0024]
RIN 2127–AL03
Federal Motor Vehicle Safety
Standards; Glazing Materials
National Highway Traffic
Safety Administration (NHTSA),
Department of Transportation (DOT).
ACTION: Proposed rule; withdrawal.
AGENCY:
NHTSA withdraws its June
21, 2012 Notice of Proposed Rulemaking
(NPRM), which proposed revising
Federal motor vehicle safety standard
(FMVSS) No. 205, ‘‘Glazing materials,’’
to harmonize it with Global Technical
Regulation (GTR) No. 6, ‘‘Safety Glazing
Materials for Motor Vehicles and Motor
Vehicle Equipment.’’ Based on the
results of the agency’s review of
available information and analysis of
the technically substantive comments
on the proposal, NHTSA is unable to
conclude at this time that harmonizing
FMVSS No. 205 with GTR No. 6 would
increase safety.
DATES: As of April 4, 2019, the proposed
amendments to 49 CFR part 571 that
were contained in the notice of
proposed rulemaking (NPRM) published
June 21, 2012 (77 FR 37477) are
withdrawn.
FOR FURTHER INFORMATION CONTACT:
James Myers, Office of Crashworthiness
Standards (Phone 202–366–1810; FAX:
202–366–2739) or Callie Roach, Office
of the Chief Counsel (Phone: 202–366–
2992; FAX: 202–366–3820).
You may send mail to these officials
at: National Highway Traffic Safety
Administration, 1200 New Jersey
Avenue SE, Washington, DC 20590.
SUPPLEMENTARY INFORMATION:
SUMMARY:
Federal Communications Commission.
Katura Jackon,
Federal Register Liaison Officer, Office of the
Secretary.
§ 20.18
DEPARTMENT OF TRANSPORTATION
I. Background
Federal Motor Vehicle Safety
Standard (FMVSS) No. 205, ‘‘Glazing
materials,’’ (49 CFR 571.205), specifies
performance requirements for the types
of glazing that may be installed in motor
vehicles. It also specifies the vehicle
locations in which the various types of
glazing may be installed. The purpose of
FMVSS No. 205 is to reduce injuries
(e.g., lacerations) resulting from impact
to glazing surfaces, to ensure a
necessary degree of transparency in
motor vehicle windows for driver
visibility, and to minimize the
possibility of occupants being thrown
through the vehicle windows in
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collisions. FMVSS No. 205 applies to
passenger cars, multipurpose passenger
vehicles, trucks, buses, motorcycles,
slide-in campers, pickup covers
designed to carry persons while in
motion and low speed vehicles, and to
glazing materials for use in those
vehicles.
GTR No. 6, ‘‘Safety Glazing Materials
for Motor Vehicles and Motor Vehicle
Equipment,’’ was adopted under the
United Nations/Economic Commission
for Europe (UN/ECE) 1998 Agreement,
which is administered by World Forum
for Harmonization of Vehicle Regulation
(WP.29). At the one-hundred-and-thirtysecond session of the WP.29 in March
2004, the formal proposal to develop a
GTR on safety glazing was adopted, and
at that time restricted the scope of the
glazing GTR to glass safety glazing,
thereby excluding other materials, such
as plastics. The objective of GTR No. 6
is to develop an internationally
harmonized standard regarding the
safety of glass automotive glazing
materials. GTR No. 6 includes
requirements and tests to ensure that the
mechanical properties, optical qualities
and environmental resistance of glazing
are satisfactory; it does not include type
approval, plastic glazing and
installation requirements.
II. NPRM
On June 21, 2012, NHTSA published
a NPRM 1 as part of the agency’s
ongoing effort to harmonize vehicle
safety standards under the UN/ECE
1998 agreement when, and to the extent,
appropriate to do so. The agency stated
in the NPRM that harmonization with
GTR No. 6 would modernize the test
procedures for tempered glass,
laminated glass, and glass-plastic
glazing used in front windshields and
rear and side windows. The GTR
proposed an upgraded fragmentation
test for testing the tempering of curved
tempered glass, and a new procedure for
testing an optical property of the
windshield at the angle of installation,
to more accurately reflect real world
driving conditions than the current
procedure used in Standard No. 205.
The agency said further that most of the
proposals were minor amendments that
would harmonize differing
measurements and performance
requirements for similar test procedures.
Many of the tests in the GTR were said
to be substantially similar to tests
currently included in FMVSS No. 205.
III. Comments Received
In the NPRM, the agency requested
public comment on whether the
1 77
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Agencies
[Federal Register Volume 84, Number 65 (Thursday, April 4, 2019)]
[Proposed Rules]
[Pages 13211-13222]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2019-06012]
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FEDERAL COMMUNICATIONS COMMISSION
47 CFR Part 20
[PS Docket No. 07-114; FCC 19-20]
Wireless E911 Location Accuracy Requirements
AGENCY: Federal Communications Commission.
ACTION: Proposed rule.
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SUMMARY: In this document, the Federal Communications Commission
(Commission) proposes to revise its rules to require Commercial Mobile
Radio Service providers to deliver accurate vertical location
information to Public Safety Answering points consistent with a metric
of plus or minus three meters for wireless 911 calls placed from
indoors. The Commission seeks comment on this proposal as well as on
alternatives to improve vertical location accuracy for
[[Page 13212]]
wireless 911 calls made from multi-story buildings.
DATES: Comments are due on or before May 20, 2019 and reply comments
are due on or before June 18, 2019.
ADDRESSES: You may submit comments, identified by PS Docket No. 07-114
by any of the following methods:
Federal Communications Commission's website: https://www.fcc.gov/ecfs/. Follow the instructions for submitting comments.
Mail: 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.
People with Disabilities: Contact the Commission to
request reasonable accommodations (accessible format documents, sign
language interpreters, CART, etc.) by email: [email protected] or phone:
202-418-0530 or TTY: 202-418-0432.
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: Brenda Boykin, Policy and Licensing
Division, Public Safety and Homeland Security Bureau, (202) 418-2062 or
via email at [email protected]; Nellie Foosaner, Policy and
Licensing Division, Public Safety and Homeland Security Bureau, (202)
418-2925 or via email at [email protected].
SUPPLEMENTARY INFORMATION: This is a summary of the Commissions Fourth
Further Notice of Proposed Rulemaking in PS Docket No. 07-114, released
on March 18, 2019. The full text of this document is available for
public inspection during regular business hours in the FCC Reference
Center, Room CY-A257, 445 12th Street SW, Washington, DC 20554, or
online at www.fcc.gov.
Paperwork Reduction Act
This document does not contain proposed information collection
requirements subject to the Paperwork Reduction Act of 1995, Public Law
104-13. In addition, therefore, it does not contain any proposed
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).
Pursuant to sections 1.415 and 1.419 of the Commission's rules, 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).
[ssquf] Electronic Filers: Comments may be filed electronically
using the internet by accessing the ECFS: https://apps.fcc.gov/ecfs/.
[ssquf] Paper Filers: Parties who choose to file by paper must file
an original and one copy of each filing. If more than one docket or
rulemaking number appears in the caption of this proceeding, filers
must submit two additional copies for each additional docket or
rulemaking number.
Filings can be sent by hand or messenger delivery, by commercial
overnight courier, or by first-class or overnight U.S. Postal Service
mail. All filings must be addressed to the Commission's Secretary,
Office of the Secretary, Federal Communications Commission.
[ssquf] All hand-delivered or messenger-delivered paper filings for
the Commission's Secretary must be delivered to FCC Headquarters at 445
12th St. SW, Room TW-A325, Washington, DC 20554. The filing hours are
8:00 a.m. to 7:00 p.m. All hand deliveries must be held together with
rubber bands or fasteners. Any envelopes and boxes must be disposed of
before entering the building.
[ssquf] Commercial overnight mail (other than U.S. Postal Service
Express Mail and Priority Mail) must be sent to 9050 Junction Drive,
Annapolis Junction, MD 20701.
[ssquf] U.S. Postal Service first-class, Express, and Priority mail
must be addressed to 445 12th Street SW, Washington DC 20554.
People with Disabilities: To request materials in accessible
formats for people with disabilities (braille, large print, electronic
files, audio format), send an email to [email protected] or call the
Consumer & Governmental Affairs Bureau at 202-418-0530 (voice), 202-
418-0432 (tty).
The proceeding this Notice initiates shall be treated as a
``permit-but-disclose'' proceeding in accordance with the Commission's
ex parte rules. Persons making ex parte presentations must file a copy
of any written presentation or a memorandum summarizing any oral
presentation within two business days after the presentation (unless a
different deadline applicable to the Sunshine period applies). Persons
making oral ex parte presentations are reminded that memoranda
summarizing the presentation must (1) list all persons attending or
otherwise participating in the meeting at which the ex parte
presentation was made, and (2) summarize all data presented and
arguments made during the presentation. If the presentation consisted
in whole or in part of the presentation of data or arguments already
reflected in the presenter's written comments, memoranda or other
filings in the proceeding, the presenter may provide citations to such
data or arguments in his or her prior comments, memoranda, or other
filings (specifying the relevant page and/or paragraph numbers where
such data or arguments can be found) in lieu of summarizing them in the
memorandum. Documents shown or given to Commission staff during ex
parte meetings are deemed to be written ex parte presentations and must
be filed consistent with rule 1.1206(b). In proceedings governed by
rule 1.49(f) or for which the Commission has made available a method of
electronic filing, written ex parte presentations and memoranda
summarizing oral ex parte presentations, and all 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.
I. Introduction
1. Since the Commission first adopted its wireless Enhanced 911
(E911) location accuracy rules in 1996, the wireless landscape has
undergone major changes. In 2018 the number of Americans with
smartphones rose to 77%, up from just 35% in Pew Research Center's
first survey of smartphone ownership conducted in 2011. As the adoption
of cellphones and smartphones has skyrocketed, they have become an
indispensable tool to protect consumers' health, property, and
wellbeing, and many Americans are now relying on mobile phones as their
only phones. Consumers make 240 million calls to 911 each year, and in
many areas 80% or more of these calls are from wireless phones. For
both first responders and consumers, the capability to locate wireless
911 callers quickly and accurately is of critical importance regardless
of where the call originates.
[[Page 13213]]
2. To ensure that first responders and Public Safety Answering
Points (PSAPs) can find 911 callers quickly and accurately when a
consumer calls from a multi-story building, we propose a vertical, or
z-axis, location accuracy metric of plus or minus 3 meters relative to
the handset for each of the benchmarks and geographic requirements
previously established in the Commission's E911 wireless location
accuracy rules. This proposed metric will more accurately identify the
floor level for most 911 calls, reduce emergency response times, and
save lives.
II. Background
3. In the 2014 Third Further Notice of Proposed Rulemaking in this
proceeding, the Commission proposed measures and timeframes to improve
location accuracy for wireless E911 calls originating indoors,
including, among others, a 3-meter z-axis metric for 80% of such calls.
In the 2015 Fourth Report and Order in this proceeding, the Commission
established benchmarks and timetables for the deployment of z-axis
technology or dispatchable location (which includes a vertical location
component) in the top 50 Cellular Market Areas, but deferred a decision
on a specific z-axis metric until it received additional testing data.
Specifically, the Commission required the four nationwide Commercial
Mobile Radio Service (CMRS) providers to establish a test bed to
develop a proposed z-axis accuracy metric and to submit the proposed
metric to the Commission for approval within 3 years (i.e., by August
3, 2018). The Commission stated that the proposal would be placed out
for public comment.
4. On August 3, 2018, CTIA submitted the ``Stage Z Test Report''
(Report or Stage Z Test Report) on behalf of the four nationwide CMRS
providers. According to the Report, Stage Z testing sought to assess
the accuracy of solutions that use barometric pressure sensors in the
handset for determining altitude in support of E911. Two vendors,
NextNav LLC (NextNav) and Polaris Wireless, Inc. (Polaris),
participated in Stage Z. The test results showed that in 80% of NextNav
test calls, vertical location was identified to a range of 1.8 meters
or less, while 80% of Polaris test calls yielded a vertical accuracy
range of 4.8 meters or less. The Report noted that Polaris' performance
``could likely be significantly improved should a more robust handset
barometric sensor calibration approach [than that used in the test bed]
be applied.''
5. In its August 3, 2018, cover letter submitting the Report, CTIA
stated that the test results provided ``helpful insight'' into the
state of z-axis technologies, but that ``significant questions remain
about performance and scalability in live wireless 9-1-1 calling
environments.'' On behalf of the four nationwide wireless providers,
CTIA therefore proposed a z-axis metric of ``+/- 5 meters for 80% of
fixes from mobile devices capable of delivering barometric pressure
sensor-based altitude estimates.'' CTIA also stated that further
testing of vertical location technologies could yield results to
validate adoption of a more accurate z-axis metric.
6. On September 10, 2018, the Public Safety and Homeland Security
Bureau (Bureau) released a Public Notice seeking comment on the Report
and the carriers' proposed z-axis metric. The Public Notice sought to
gather information that would inform the Bureau's recommendations to
the Commission concerning next steps in the development of the z-axis
accuracy metric contemplated by the Fourth Report & Order. Fourteen
entities filed comments and reply comments.
7. Public safety organizations unanimously opposed CTIA's proposed
5-meter metric as too imprecise to identify a caller's floor level.
Some public safety organizations expressed support for a 3-meter
metric, while others encouraged the Commission to adopt a 2-meter
metric. NextNav and Polaris asserted that they could meet a 3-meter
metric for 80% of wireless indoor calls within the prescribed
timeframes.
8. In their initial comments, CTIA and some nationwide CMRS
providers argued that the Commission should defer setting a more
aggressive z-axis metric than 5 meters pending further testing. In a
December 2018 ex parte filing, however, CTIA and all four nationwide
CMRS providers revised their recommendation. These parties recognized
``that public safety representatives have encouraged the Commission to
adopt a more aggressive Z-Axis metric of 3 meters in the
near term.'' While continuing to stress the importance of further
testing, CTIA and the four providers stated that ``certainty as to the
Z-Axis metric in the near term, whether via an Order or expeditiously
seeking public comment, may help advance the development process
necessary to meet the 2021 and 2023 vertical location accuracy
benchmarks in the Fourth Report & Order.''
9. Herein, we take steps to build on the Commission's adoption of
the Fourth Report and Order by proposing a metric for the z-axis
compliance standard for wireless 911 calls that is available to those
providers that do not choose the dispatchable location compliance
standard for vertical location accuracy.
III. Discussion
10. Given the current state of the record, we believe it is
appropriate to propose a z-axis metric based on a 3-meter standard.
This will provide the final element of the Commission's existing indoor
location accuracy regime, which already includes a timetable for CMRS
providers to deliver vertical location information by deploying either
dispatchable location or z-axis technology in specific geographic
areas. Our proposed z-axis metric will provide certainty to all parties
and establish a focal point for further testing, development, and
implementation of evolving z-axis location technologies. To ensure a
complete and comprehensive record on this issue, we seek comment on our
proposal as discussed below.
A. Floor Level Accuracy
11. We propose a z-axis metric of 3 meters relative to the handset
for 80% of wireless E911 calls for each of the benchmarks and
geographic requirements previously established in the Commission's E911
wireless location accuracy rules. To certify compliance with this
proposed requirement, the caller's handset should be located within 3
meters above or below the vertical location provided by the phone for
80% of indoor wireless calls to 911, as demonstrated in the test bed.
Under our proposal, we would amend Section 20.18 of the Commission's
rules to require that by April 3, 2021, nationwide CMRS providers must
deploy in each of the top 25 Cellular Market Areas either dispatchable
location or z-axis technology in compliance with the 3-meter metric. In
Cellular Market Areas where z-axis technology is used, nationwide CMRS
providers must deploy z-axis technology to cover 80% of the Cellular
Market Area population. By April 3, 2023, these requirements would be
expanded to cover each of the top 50 Cellular Market Areas. Non-
nationwide CMRS providers that serve any of the top 25 or 50 Cellular
Market Areas would continue to have an additional year to meet each of
these benchmarks in the relevant Cellular Market Area.
12. We seek comment on our proposed 3-meter metric. We tentatively
agree with commenters responding to the Stage Z Test Report who assert
that
[[Page 13214]]
3 meters will provide sufficient accuracy to identify the caller's
floor level in most cases. For example, IAFF comments that the
Commission should require vertical location information that provides
true floor level accuracy, ``i.e., no more than 3 meters.'' NENA states
that ``[c]itizens and public safety require, in the absence of a
dispatchable location solution, a z-axis accuracy benchmark of +/-3
meters.'' The Texas 911 Entities assert that a metric greater than 3
meters for 80% of calls ``would not satisfy the critical requirements
of public safety.'' We acknowledge that a 3-meter metric is not always
certain to yield floor level accuracy. If the indoor wireless caller's
handset is located at the vertical center of a floor with an average
height of 3.1 to 3.9 meters, the margins of a 3-meter metric allow for
a variance of up to six meters, which would extend the search range to
one floor above and one floor below the location of the handset.
Nevertheless, we believe this search range will significantly narrow
the scope of the search and can provide a reasonable basis for
identifying the correct floor in most cases. We seek comment on this
tentative conclusion. Do commenters agree that the metric should be set
at 3 meters? If not, what vertical location metric should the
Commission adopt, and why?
13. We also tentatively conclude that a 5-meter metric should not
be adopted because the record indicates it would not yield the floor
level accuracy that first responder commenters consider necessary. APCO
states that a 5-meter metric ``translates to a range of up to two
floors below, or up to two floors above, the actual floor where a 911
caller may be located, and some lesser degree of accuracy for one in
five calls to 911.'' APCO and NENA also assert that adopting a metric
of 5 meters would undermine incentives for CMRS providers to invest in
the development of more accurate z-axis solutions. We seek comment on
our tentative conclusion.
14. We also seek comment on other elements of the proposed metric.
Should the metric apply to 80% of wireless calls? If not, what
percentage of calls is appropriate? CTIA's proposed metric would apply
only to ``mobile devices capable of delivering barometric pressure
sensor-based altitude estimates.'' Should the z-axis metric apply only
to calls from such devices, only devices manufactured after a date
certain, or should it apply to wireless calls from all mobile devices,
as we propose? Additionally, NPSTC asserts that reporting vertical
location information as height above ground level (AGL) would be
preferable to height above mean sea level (MSL) which is how carriers'
data would otherwise be provided by default. Should the Commission
specify that CMRS providers must report z-axis information as AGL, as
NPSTC suggests, or are there advantages to keying height estimates to
MSL? Should the Commission require CMRS providers to identify the floor
level when reporting z-axis information, as suggested by APCO? What
would be the technical and/or operational issues in requiring CMRS
providers to provide either AGL height or floor level information?
Should the Commission require all CMRS providers to provide the same
type of z-axis information (e.g., MSL, AGL, or floor level) to avoid
potential confusion at the PSAP? Alternatively, should we decline to
specify this level of detail so that entities developing z-axis
solutions have more flexibility?
B. Technical Feasibility
15. We tentatively conclude that our proposed 3-meter z-axis metric
is technically feasible under the timeframes established in the Fourth
Report and Order.
16. The test bed results show that in 80% of NextNav test calls,
vertical location was identified to a range of 1.8 meters or less.
NextNav achieved a vertical accuracy within 2 meters for 67% of test
calls and within 3 meters for 90% of test calls in the dense urban,
urban, and suburban morphologies. NextNav also achieved a vertical
accuracy within 2 meters for 80% of test calls for every handset
tested. According to NextNav, these results ``were consistent across
age of handsets, with the oldest devices (2016 models) performing
identically to the newest (2018).'' NextNav asserts that the results
demonstrate reasonable consistency between handsets, weather, building
types, environments, and time of day and that they demonstrate ``the
efficacy of the overall altitude determination system (<1m @ 80%).''
17. In addition, Polaris states that it was able to achieve
aggregate accuracy performance of 2.8 meters for 80% of test calls by
using additional available location data to recalibrate and refine its
Stage Z data. This also supports our tentative conclusion in favor of a
3-meter metric. Polaris also indicates that in a real-world deployment
its solution would use an active compensation correction model that
operates in an application running continuously in the background of
the device. As stated by Dr. R. Michael Buehrer of Virginia Tech, we
also expect that this calibration process would be at least as accurate
as the limited (once per month) calibration process Polaris used in
reprocessing its Stage Z data. Accordingly, we tentatively conclude
that Polaris' reprocessing of the data presents a reasonably accurate
picture of the capabilities of its solution. We seek comment on this
view.
18. Additionally, we are encouraged that entities outside the test
bed have reported on technologies that may be able to achieve an
equivalent degree of vertical location accuracy, and in this respect,
we note that our rules do not require the use of a particular
technology to achieve the necessary metric. For instance, on September
18, 2018, Google announced the launch of its Emergency Location Service
in the United States. According to Google, Emergency Location Service
is ``a supplemental service that sends enhanced location directly from
Android handsets to emergency services when an emergency call is
placed.'' Emergency Location Service works on ``99 percent of Android
devices (version 4.0 and above).'' Emergency Location Service is part
of the Android operating system and does not require any special
hardware or updates. Regarding vertical location accuracy, Google
states that it is working to provide accurate altitude and floor
location and ``improve [Emergency Location Service] location quality,
especially for challenging locations, such as urban canyons and
indoors.''
19. We recognize that some public safety commenters urge us to
adopt a 2-meter metric, which would increase the likelihood of
providing floor-level accuracy. However, we believe it is not yet
established that such a metric is technically achievable on a
consistent basis, although it may become achievable in the long term as
technology continues to evolve. While NextNav's test bed results
demonstrate that its solution can achieve an accuracy of 1.8 meters or
less for 80% of test calls overall, it could only achieve an accuracy
of 2.5 meters or less for 80% of test calls in the dense urban
morphology, where calls from multi-story buildings are most likely to
occur. Similarly, even after reprocessing its data, Polaris' solution
yielded only 2.8 meters or less for 80% of test calls. Because the
existing record does not indicate that 2-meter accuracy is currently
achievable by either vendor in the dense urban morphology, we
tentatively conclude that it would be premature to adopt a 2-meter
metric. We believe, however, that our proposed 3-meter metric will
encourage CMRS providers to work with NextNav, Polaris, and emerging
location and
[[Page 13215]]
device vendors to achieve more precise vertical location accuracy
solutions. We seek comment on this view.
C. Testing
20. We propose to adopt a 3-meter z-axis metric instead of
deferring the matter for further testing. Although CTIA initially
maintained that additional testing was needed before a metric could be
adopted, it has since taken the opposite view. Additionally, vendors'
comments suggest that the 3-meter metric is technically feasible, and
public safety commenters acknowledge that such a metric, while not as
precise as they might like, would nevertheless be a worthwhile step to
take. Although we tentatively conclude that the benefits of further
testing are insufficient to warrant any more delay in the progress of
this proceeding, to the extent that the proponents of additional
testing conduct tests or studies that yield more accurate and efficient
vertical location solutions, we encourage these stakeholders to file
them in this docket. We observe that CTIA recently announced that in
July 2019, the test bed will begin the next round of z-axis testing,
which CTIA has designated as ``Stage Za.'' We encourage all technology
vendors that are developing potential z-axis solutions to participate
in Stage Za. We note, however, that in the interest of providing
certainty in the near term to all parties, the Commission envisions
proceeding on this rulemaking while additional testing occurs.
21. We also tentatively conclude based on our own assessment of the
Report that the limitations on testing described therein do not
preclude us from adopting a 3-meter metric without requiring additional
testing. We seek comment on this tentative conclusion.
22. For example, in Stage Z, Chicago was added as a test region to
provide a more extreme cold-weather environment for evaluating z-axis
technologies, but NextNav was unable to test there. NextNav also did
not test its solution in rural morphologies. We do not believe that the
lack of NextNav test data in either environment is a sufficient reason
to delay consideration of a z-axis metric.
23. In particular, with respect to extreme cold-weather testing,
the Report states that very cold weather was not available during
testing and that this is likely because the test campaign started in
late February. Accordingly, the test results would not have been
conclusive even if NextNav had participated. In addition, if we were to
require additional cold-weather testing, it could not be scheduled
before next winter, which would entail at least a year's delay in
adopting a metric.
24. Similarly, we do not believe that the absence of NextNav test
data in rural morphologies warrants a delay in our consideration of a
z-axis metric. The Report notes that the rural morphology is ``the
sparsest environment overall'' and is mostly residential, with most
structures between 1 and 2 stories high. Moreover, the Commission's
vertical location accuracy requirements apply only to the top 50
Cellular Market Areas, which are most likely to feature the urban and
dense urban morphologies. In these morphologies, the test bed shows
that NextNav's solution would meet a 3-meter metric. Additionally,
NextNav's technology was tested for vertical accuracy in rural areas
during the original CSRIC Test Bed conducted in 2012, and NextNav's
results from that testing fell within 3 meters for 80% of all calls.
25. We also do not believe that testing of additional devices, such
as older and lower-end devices, is needed prior to adoption of a z-axis
metric. NextNav and Polaris each tested six handsets, for a total of
twelve handsets, in Stage Z. The Report states that handsets were
selected ``to ensure variety between sensor manufacturers, the age of
handsets (within limits) and their overall use characteristics,'' and
that the handsets used in testing were ``the same production-ready
handsets sold by wireless carriers and available to the general
public'' and did not contain any hardware modification that would favor
these handsets over any commercially available handsets. NextNav points
out that the Stage Z results showed a high level of consistency between
different models of handsets and that these results were consistent
with the results of prior independent tests conducted on its
technology. Although we encourage additional testing on a greater
variety of devices, we believe that a sufficient variety of devices
have been tested to support moving forward with our proposed 3-meter
metric at this time. We seek comment on this assessment. We seek
comment on whether the proposed 3-meter z-axis metric will provide
adequate vertical location accuracy protection for consumers who
participate in the Commission's Lifeline program. We seek comment on
the extent to which mobile phones provided to consumers as part of the
Lifeline program have the capability, through barometric pressure
sensors or other means, to be located within a 3-meter z-axis metric.
We also seek comment on how to ensure that vertical location
protections extend to and include users of the Lifeline program. We
also seek comment on the potential turnover rates for wireless handsets
and the features of devices likely to be available and in use by the
compliance dates established in our rules. Those data points would
influence the extent to which difficulties in achieving the metric over
older and lower-end devices may pose an impediment to meeting the
proposed requirements.
D. Deployment
26. We believe our proposed 3-meter z-axis metric will support the
development of scalable vertical location solutions that can be
deployed in time to meet the carriers' 2021 and 2023 deadlines. To the
extent that CMRS providers elect to use solutions that rely on
barometric pressure readings, nearly all smartphones on the market
appear to be equipped with barometric pressure sensors. In addition,
both NextNav and Polaris state that calibration of the barometric
sensors in their z-axis solutions would be software-based and thus
would scale readily for widespread use. Polaris and NextNav also state
that industry standards necessary to implement the barometric sensor-
based solutions tested in Stage Z are already adopted and that
implementation of these standards is in the hands of carriers and
device manufacturers. Based on these comments, we believe barometric
sensor-based solutions are likely to be scalable and can be made
readily available to wireless consumers within the timeframes required
by the rules. We seek comment on this assessment and its underlying
factual assumptions.
27. We also seek comment on the potential for development and
deployment of other new or emerging vertical location solutions that
could be used to meet the proposed z-axis metric. The Commission has
previously recognized that no single technological approach will solve
the challenge of indoor location, and it adopted requirements
applicable to CMRS providers that are technically feasible and
technologically neutral ``so that providers can choose the most
effective solutions from a range of options.'' We continue to believe
that this approach should guide the adoption of any metric in this
proceeding. CTIA states that other vertical location technologies and
vendors will likely be ready for testing in 2019. We seek comment on
the potential for widespread deployment and adoption of these or other
alternatives within the timeframes required by the rules, as well as
their likely performance in real-world conditions. Are there issues
associated with implementing these solutions into
[[Page 13216]]
wireless network systems and production mobile devices, or scaling them
for widespread use?
28. We also seek comment on whether we should consider accelerating
or otherwise altering the deployment timelines within the rules. Is a
3-meter metric achievable more quickly than the current 2021 and 2023
deadlines? If so, when should these deadlines be set? These deadlines
also pertain to the carriers' option of using dispatchable location for
vertical location accuracy. Must the timetables be adjusted for both
options? Can CMRS providers achieve dispatchable location and complete
work on the NEAD on an accelerated timeframe? If not, should the
Commission decouple the choice of deploying z-axis technology from
dispatchable location, and how would bifurcating CMRS providers'
technology choice impact CMRS providers' incentives to deploy
dispatchable location and complete work on the NEAD? If the Commission
adopts a more stringent metric such as floor level or a +/- 2-meter
vertical location standard, is it achievable within the current
timeframes or would it take longer than the current timetable in the
rules? Is it feasible to adopt both a more precise metric and to
shorten compliance timetables? How should the Commission address the
timeframes applicable to non-nationwide CMRS providers? How would
changing the existing timeframes impact the compliance regime for
vertical location accuracy?
E. Z-Axis Data Privacy and Security
29. We seek comment on the appropriate data privacy and security
framework for z-axis data. In 2015 the Commission established rules
governing CMRS provider usage of the National Emergency Address
Database (NEAD). In doing so, the Commission stated that ``certain
explicit requirements on individual CMRS providers are necessary to
ensure the privacy and security of NEAD data and any other information
involved in the determination and delivery of dispatchable location.''
In the same Order the Commission required that, ``as a condition of
using the NEAD or any information contained therein to meet our 911
location requirements, and prior to use of the NEAD, CMRS providers
must certify that they will not use the NEAD or associated data for any
purpose other than for the purpose of responding to 911 calls, except
as required by law.'' We seek comment on whether use of z-axis data
should be limited to 911 calls except as otherwise required by law and
if such a limitation should be implemented and codified in a manner
similar to the limitations applicable to the NEAD described above.
F. Comparison of Benefits and Costs
30. We now seek comment on which z-axis metric would allow us to
achieve the anticipated level of benefits in the most cost-effective
manner. Specifically, because the alternative metrics have an effect on
both costs and benefits, we seek comment on how the benefits and costs
of the proposed z-axis metric of 3 meters for 80% of calls compares to
the benefits and costs of alternative metrics. We seek comment on the
expected number of lives saved by adopting a 3-meter metric, versus a
2-meter or 5-meter metric. We also seek comment on the expected number
of lives that would be saved if we required CMRS providers to identify
floor level when reporting z-axis information. In the Fourth Report and
Order, the Commission concluded that the location accuracy rules,
including the z-axis accuracy metric, would improve emergency response
times, which, in turn, would improve patient outcomes and save lives.
The Commission found that the location accuracy improvements that it
adopted had the potential to save approximately 10,120 lives annually
at a value of $9.1 million per statistical life, for an annual benefit
of approximately $92 billion or $291 per wireless subscriber. The
Commission characterized this $92 billion as an annual benefit floor
value because it also expected substantial, unquantifiable benefits
from the reduction of human suffering and loss of property. The
Commission further found that the costs of implementing the available
solutions to achieve the indoor wireless location accuracy standards
were far less than the $92 billion benefit floor, with the costs
further declining as demand grew.
31. We now seek comment on how the benefits and costs of the
proposed z-axis metric of 3 meters for 80% of calls compares to the
benefits and costs of alternative metrics. We tentatively conclude that
a z-axis metric of 3 meters for 80% of calls strikes the best balance
between benefits and costs. As noted above, some public safety
commenters identify a 3-meter metric as providing sufficient accuracy
to identify the caller's floor level in most cases. Accordingly, a 3-
meter metric would manifest the benefits of location accuracy described
in the Fourth Report and Order. The record contains evidence that
supports a finding that the costs of implementing a 3-meter metric are
themselves low, at least on a per-handset basis. NextNav asserts that
its z-axis solution, which requires only software changes to be made to
each handset, could be made available for a nominal cost that amounts
to significantly less than a penny per month per handset and would
impose no incremental cost burdens on new handsets. Polaris states that
its z-axis solution is ``objectively affordable'' because it is
software-based, does not require hardware in networks or markets, and
``does not require anything special in devices beyond implementation of
adopted 3GPP and OMA standards.'' Polaris' solution also is ``instantly
available and deployable throughout a carrier's nationwide network.''
As the Commission noted in the Fourth Report and Order, we continue to
expect that these costs will decline as demand grows.
32. We tentatively conclude that the value of a 3-meter metric
exceeds that of a 5-meter standard because a 5-meter metric would
result in a significant reduction in the benefits described above. As
commenters have indicated, a 5-meter metric could indicate a location
up to 2 floors below, or up to 2 floors above, the actual floor where a
911 caller may be located. This large search range would make it far
more likely that first responders would need to search 2 or more
additional floors, significantly increasing average emergency response
times and consequently degrading patient outcomes. Due to the likely
degradation of patient outcomes with a 5-meter metric, we tentatively
conclude that a 3-meter metric provides greater value. We seek comment
on this tentative conclusion, including on the marginal benefits and
costs of a 3-meter metric versus a 5-meter metric.
33. We also tentatively conclude that, at this time, the value of a
3-meter metric exceeds that of a 2-meter metric. We acknowledge that a
2-meter metric would further improve the accuracy of 911 calls by
increasing the likelihood that the caller's floor level could be
identified with certainty, which would further improve emergency
response times and patient outcomes. In other words, while the margins
of both the 2-meter and 3-meter search ranges could extend one level
above and below a caller's floor level, a greater portion of the 2-
meter search range is likely to be concentrated at the correct floor
level. However, because we tentatively conclude that existing solutions
are unlikely to achieve 2-meter accuracy for 80% of E911 calls prior to
the deadlines established by our rules, we expect that adopting a 2-
meter metric would likely cause developers of z-axis solutions to incur
substantial development, testing,
[[Page 13217]]
and implementation costs, without any guarantee of achieving the 2-
meter metric before the deadline. Rather than force these expenditures
in pursuit of additional benefits that may not materialize on-schedule,
we tentatively conclude that there is greater value in adopting the
certain benefits of the achievable 3-meter metric. In addition, we
observe that any delay in deployment of z-axis solutions necessitated
by a 2-meter metric would also delay realization of the benefits of
improved location accuracy--i.e., improved emergency response times,
better patient outcomes, and lives saved. We seek comment on this
tentative conclusion, including on the marginal benefits and costs of a
2-meter metric versus a 3-meter or 5-meter metric. We also seek comment
on how the benefits and costs of requiring CMRS providers to identify
floor level when reporting z-axis information would compare to the
benefits and costs of providing z-axis information as AGL or MSL
height. Are these costs and benefits any different for non-nationwide
providers as opposed to nationwide providers?
34. We seek comment on our analysis and tentative conclusions as to
the comparative value of these z-axis metrics. Are there ways to more
precisely quantify the differences in patient outcomes that would arise
from the adoption of 2-, 3-, and 5-meter metrics? For example, under
each of these metrics, in what percentage of calls would the floor
reported to first responders be the correct one? How much additional
time is necessary for first responders to search additional floors of a
building if the 911 caller is not on the first floor that they search?
How much more time would be required for a first responder to find a
911 caller if a 5-meter metric were adopted, as compared to adoption of
a 3-meter metric? How much less time would be required for a first
responder to find a 911 caller if a 2-meter metric were adopted? What
costs would arise from implementing z-axis solutions to meet a 3-meter
metric that would not exist when implementing a 5-meter metric? What is
the projected amount of those costs? Are there z-axis solutions for
which the cost of satisfying a 3-meter metric is the same or negligible
when compared to the costs of implementing a 5-meter metric? Are there
any alternative z-axis metrics that have not been addressed that we
should consider?
IV. Initial Regulatory Flexibility Analysis
35. As required by the Regulatory Flexibility Act of 1980, as
amended (RFA), the Commission has prepared this Initial Regulatory
Flexibility Analysis (IRFA) of the possible significant economic impact
on a substantial number of small entities by the policies and rules
proposed in the Fourth Further Notice of Proposed Rule Making (Notice).
Written public comments are requested on this IRFA. Comments must be
identified as responses to the IRFA and must be filed by the deadlines
in this Notice. The Commission will send a copy of the Notice,
including this IRFA, to the Chief Counsel for Advocacy of the Small
Business Administration (SBA). In addition, the Notice and IRFA (or
summaries thereof) will be published in the Federal Register.
A. Need for, and Objectives of, the Proposed Rules
36. The Notice advances the Commission's goal of ensuring ``that
all Americans using mobile phones--whether they are calling from urban
or rural areas, from indoors or outdoors--have technology that is
functionally capable of providing accurate location information so that
they receive the support they need in times of an emergency.'' In the
Notice, the Commission proposes to adopt a metric to more precisely
identify the location of a 911 wireless caller located in a multi-story
building. More specifically, we propose to require the provisioning of
vertical location (z-axis) information that would enable first
responders to identify the caller's floor level for most wireless calls
to 911 from multi-story buildings, which represents a critical element
to achieving the Commission's indoor location accuracy objectives.
Consistent with the regulatory framework established in the last major
revision of the Commission's wireless location accuracy rules in 2015
and the information developed in the associated docket, this Notice
proposes a z-axis location accuracy metric of 3 meters above or below a
handset for 80 percent of wireless Enhanced 911 (E911) indoor calls. As
alternatives, we seek comment on different metrics of two or five
meters, as well as potentially revised time frames depending on the
precision of the metric adopted. Our proposed metric, if adopted, could
augment the ability of Public Safety Answering Points (PSAPs) and first
responders to more accurately identify the floor level for most 911
calls made from multi-story buildings, reduce emergency response times,
and, ultimately, save lives. It also implements the final element of
the Commission's existing indoor location accuracy regime, which
already includes a timetable for Commercial Mobile Radio Service (CMRS)
providers to deliver vertical location information by deploying either
dispatchable location or z-axis technology in specific geographic
areas. Our proposed z-axis metric will provide certainty to all parties
and establish a focal point for further testing, development, and
implementation of evolving z-axis location technologies.
B. Legal Basis
37. The proposed action is authorized under Sections 1, 2, 4(i), 7,
10, 201, 214, 222, 251(e), 301, 302, 303, 307, 309, 316, and 332, of
the Communications Act of 1934, 47 U.S.C. 151, 152(a), 154(i), 157,
160, 201, 214, 222, 251(e), 301, 302, 303, 307, 309, 316, 332; the
Wireless Communications and Public Safety Act of 1999, Public Law 106-
81, 47 U.S.C. 615 note, 615, 615a, 615b; and Section 106 of the Twenty-
First Century Communications and Video Accessibility Act of 2010,
Public Law 111-260, 47 U.S.C. 615c.
C. Description and Estimate of the Number of Small Entities to Which
the Proposed Rules Will Apply
38. The RFA directs agencies to provide a description of and, where
feasible, an estimate of the number of small entities that may be
affected by the proposed rules, if adopted. The RFA generally defines
the term ``small entity'' as having the same meaning as the terms
``small business,'' ``small organization,'' and ``small governmental
jurisdiction.'' In addition, the term ``small business'' has the same
meaning as the term ``small business concern'' under the Small Business
Act. A small business concern is one which: (1) Is independently owned
and operated; (2) is not dominant in its field of operation; and (3)
satisfies any additional criteria established by the SBA.
39. Small Businesses, Small Organizations, Small Governmental
Jurisdictions. Our actions, over time, may affect small entities that
are not easily categorized at present. We therefore describe here, at
the outset, three broad groups of small entities that could be directly
affected herein. First, while there are industry specific size
standards for small businesses that are used in the regulatory
flexibility analysis, according to data from the SBA's Office of
Advocacy, in general a small business is an independent business having
fewer than 500 employees. These types of small businesses represent
99.9% of all businesses in the United States which translates to 28.8
million businesses.
40. Next, the type of small entity described as a ``small
organization'' is
[[Page 13218]]
generally ``any not-for-profit enterprise which is independently owned
and operated and is not dominant in its field.'' Nationwide, as of
August 2016, there were approximately 356,494 small organizations based
on registration and tax data filed by nonprofits with the Internal
Revenue Service (IRS).
41. Finally, the small entity described as a ``small governmental
jurisdiction'' is defined generally as ``governments of cities,
counties, towns, townships, villages, school districts, or special
districts, with a population of less than fifty thousand.'' U.S. Census
Bureau data from the 2012 Census of Governments indicate that there
were 90,056 local governmental jurisdictions consisting of general
purpose governments and special purpose governments in the United
States. Of this number there were 37,132 General purpose governments
(county, municipal and town or township) with populations of less than
50,000 and 12,184 Special purpose governments (independent school
districts and special districts) with populations of less than 50,000.
The 2012 U.S. Census Bureau data for most types of governments in the
local government category show that the majority of these governments
have populations of less than 50,000. Based on this data we estimate
that at least 49,316 local government jurisdictions fall in the
category of ``small governmental jurisdictions.''
1. Telecommunications Service Providers
a. Wireless Telecommunications Providers
42. Pursuant to 47 CFR Sec. 20.18(a), the Commission's 911 service
requirements are only applicable to Commercial Mobile Radio Service
(CMRS) ``[providers], excluding mobile satellite service operators, to
the extent that they: (1) Offer real-time, two way switched voice
service that is interconnected with the public switched network; and
(2) Utilize an in-network switching facility that enables the provider
to reuse frequencies and accomplish seamless hand-offs of subscriber
calls. These requirements are applicable to entities that offer voice
service to consumers by purchasing airtime or capacity at wholesale
rates from CMRS licensees.''
43. Below, for those services subject to auctions, we note that, as
a general matter, the number of winning bidders that qualify as small
businesses at the close of an auction does not necessarily represent
the number of small businesses currently in service. Also, the
Commission does not generally track subsequent business size unless, in
the context of assignments or transfers, unjust enrichment issues are
implicated.
44. All Other Telecommunications. The ``All Other
Telecommunications'' category is comprised of establishments primarily
engaged in providing specialized telecommunications services, such as
satellite tracking, communications telemetry, and radar station
operation. This industry also includes establishments primarily engaged
in providing satellite terminal stations and associated facilities
connected with one or more terrestrial systems and capable of
transmitting telecommunications to, and receiving telecommunications
from, satellite systems. Establishments providing internet services or
voice over internet protocol (VoIP) services via client-supplied
telecommunications connections are also included in this industry. The
SBA has developed a small business size standard for All Other
Telecommunications, which consists of all such firms with annual
receipts of $32.5 million or less. For this category, U.S. Census
Bureau data for 2012 shows that there were 1,442 firms that operated
for the entire year. Of those firms, a total of 1,400 had annual
receipts less than $25 million and 42 firms had annual receipts of $25
million to $49,999,999. Thus, the Commission estimates that the
majority of ``All Other Telecommunications'' firms potentially affected
by our action can be considered small.
45. AWS Services (1710-1755 MHz and 2110-2155 MHz bands (AWS-1);
1915-1920 MHz, 1995-2000 MHz, 2020-2025 MHz and 2175-2180 MHz bands
(AWS-2); 2155-2175 MHz band (AWS-3)). For the AWS-1 bands, the
Commission has defined a ``small business'' as an entity with average
annual gross revenues for the preceding three years not exceeding $40
million, and a ``very small business'' as an entity with average annual
gross revenues for the preceding three years not exceeding $15 million.
For AWS-2 and AWS-3, although we do not know for certain which entities
are likely to apply for these frequencies, we note that the AWS-1 bands
are comparable to those used for cellular service and personal
communications service. The Commission has not yet adopted size
standards for the AWS-2 or AWS-3 bands but proposes to treat both AWS-2
and AWS-3 similarly to broadband PCS service and AWS-1 service due to
the comparable capital requirements and other factors, such as issues
involved in relocating incumbents and developing markets, technologies,
and services.
46. Competitive Local Exchange Carriers (Competitive LECs).
Competitive Access Providers (CAPs), Shared-Tenant Service Providers,
and Other Local Service Providers. Neither the Commission nor the SBA
has developed a small business size standard specifically for these
service providers. The appropriate NAICS Code category is Wired
Telecommunications Carriers and under that size standard, such a
business is small if it has 1,500 or fewer employees. U.S. Census
Bureau data for 2012 indicate that 3,117 firms operated during that
year. Of that number, 3,083 operated with fewer than 1,000 employees.
Based on these data, the Commission concludes that the majority of
Competitive LECS, CAPs, Shared-Tenant Service Providers, and Other
Local Service Providers, are small entities. According to Commission
data, 1,442 carriers reported that they were engaged in the provision
of either competitive local exchange services or competitive access
provider services. Of these 1,442 carriers, an estimated 1,256 have
1,500 or fewer employees. In addition, 17 carriers have reported that
they are Shared-Tenant Service Providers, and all 17 are estimated to
have 1,500 or fewer employees. Also, 72 carriers have reported that
they are Other Local Service Providers. Of this total, 70 have 1,500 or
fewer employees. Consequently, based on internally researched FCC data,
the Commission estimates that most providers of competitive local
exchange service, competitive access providers, Shared-Tenant Service
Providers, and Other Local Service Providers are small entities.
47. Incumbent Local Exchange Carriers (LECs). Neither the
Commission nor the SBA has developed a small business size standard
specifically for incumbent local exchange services. The closest
applicable NAICS Code category is Wired Telecommunications Carriers.
Under the applicable SBA size standard, such a business is small if it
has 1,500 or fewer employees. U.S. Census Bureau data for 2012 indicate
that 3,117 firms operated the entire year. Of this total, 3,083
operated with fewer than 1,000 employees. Consequently, the Commission
estimates that most providers of incumbent local exchange service are
small businesses that may be affected by our actions. According to
Commission data, one thousand three hundred and seven (1,307) Incumbent
Local Exchange Carriers reported that they were incumbent local
exchange service providers. Of this total, an estimated 1,006 have
1,500 or fewer employees. Thus, using the SBA's size
[[Page 13219]]
standard, the majority of incumbent LECs can be considered small
entities.
48. Narrowband Personal Communications Services. Two auctions of
narrowband personal communications services (PCS) licenses have been
conducted. To ensure meaningful participation of small business
entities in future auctions, the Commission has adopted a two-tiered
small business size standard in the Narrowband PCS Second Report and
Order. Through these auctions, the Commission has awarded a total of 41
licenses, out of which 11 were obtained by small businesses. A ``small
business'' is an entity that, together with affiliates and controlling
interests, has average gross revenues for the three preceding years of
not more than $40 million. A ``very small business'' is an entity that,
together with affiliates and controlling interests, has average gross
revenues for the three preceding years of not more than $15 million.
The SBA has approved these small business size standards.
49. Offshore Radiotelephone Service. This service operates on
several UHF television broadcast channels that are not used for
television broadcasting in the coastal areas of states bordering the
Gulf of Mexico. The closest applicable SBA size standard is for
Wireless Telecommunications Carriers (except Satellite), which is an
entity employing no more than 1,500 persons. U.S. Census Bureau data in
this industry for 2012 show that there were 967 firms that operated for
the entire year. Of this total, 955 firms had employment of 999 or
fewer employees and 12 had employment of 1000 employees or more. Thus,
under this SBA category and the associated small business size
standard, the majority of Offshore Radiotelephone Service firms can be
considered small. There are presently approximately 55 licensees in
this service. However, the Commission is unable to estimate at this
time the number of licensees that would qualify as small under the
SBA's small business size standard for the category of Wireless
Telecommunications Carriers (except Satellite).
50. Radio and Television Broadcasting and Wireless Communications
Equipment Manufacturing. This industry comprises establishments
primarily engaged in manufacturing radio and television broadcast and
wireless communications equipment. Examples of products made by these
establishments are: Transmitting and receiving antennas, cable
television equipment, GPS equipment, pagers, cellular phones, mobile
communications equipment, and radio and television studio and
broadcasting equipment. The SBA has established a small business size
standard for this industry of 1,250 employees or less. U.S. Census
Bureau data for 2012 shows that 841 establishments operated in this
industry in that year. Of that number, 828 establishments operated with
fewer than 1,000 employees, 7 establishments operated with between
1,000 and 2,499 employees and 6 establishments operated with 2,500 or
more employees. Based on this data, we conclude that a majority of
manufacturers in this industry are small.
51. Rural Radiotelephone Service. The Commission has not adopted a
size standard for small businesses specific to the Rural Radiotelephone
Service. A significant subset of the Rural Radiotelephone Service is
the Basic Exchange Telephone Radio System (BETRS). The closest
applicable SBA size standard is for Wireless Telecommunications
Carriers (except Satellite), which is an entity employing no more than
1,500 persons. For this industry, U.S. Census Bureau data for 2012 show
that there were 967 firms that operated for the entire year. Of this
total, 955 firms had employment of 999 or fewer employees and 12 had
employment of 1000 employees or more. Thus, under this category and the
associated size standard, the Commission estimates that the majority of
Rural Radiotelephone Services firm are small entities. There are
approximately 1,000 licensees in the Rural Radiotelephone Service, and
the Commission estimates that there are 1,000 or fewer small entity
licensees in the Rural Radiotelephone Service that may be affected by
the rules and policies proposed herein.
52. Wireless Communications Services. This service can be used for
fixed, mobile, radiolocation, and digital audio broadcasting satellite
uses. The Commission defined ``small business'' for the wireless
communications services (WCS) auction as an entity with average gross
revenues of $40 million for each of the three preceding years, and a
``very small business'' as an entity with average gross revenues of $15
million for each of the three preceding years. The SBA has approved
these small business size standards. In the Commission's auction for
geographic area licenses in the WCS there were seven winning bidders
that qualified as ``very small business'' entities, and one that
qualified as a ``small business'' entity.
53. Wireless Telecommunications Carriers (except Satellite). This
industry comprises establishments engaged in operating and maintaining
switching and transmission facilities to provide communications via the
airwaves. Establishments in this industry have spectrum licenses and
provide services using that spectrum, such as cellular services, paging
services, wireless internet access, and wireless video services. The
appropriate size standard under SBA rules is that such a business is
small if it has 1,500 or fewer employees. For this industry, U.S.
Census Bureau data for 2012 show that there were 967 firms that
operated for the entire year. Of this total, 955 firms had employment
of 999 or fewer employees and 12 had employment of 1000 employees or
more. Thus, under this category and the associated size standard, the
Commission estimates that the majority of wireless telecommunications
carriers (except satellite) are small entities.
54. Wireless Telephony. Wireless telephony includes cellular,
personal communications services, and specialized mobile radio
telephony carriers. The closest applicable SBA category is Wireless
Telecommunications Carriers (except Satellite) and the appropriate size
standard for this category under the SBA rules is that such a business
is small if it has 1,500 or fewer employees. For this industry, U.S.
Census Bureau data for 2012 show that there were 967 firms that
operated for the entire year. Of this total, 955 firms had fewer than
1,000 employees and 12 firms had 1000 employees or more. Thus, under
this category and the associated size standard, the Commission
estimates that a majority of these entities can be considered small.
According to Commission data, 413 carriers reported that they were
engaged in wireless telephony. Of these, an estimated 261 have 1,500 or
fewer employees and 152 have more than 1,500 employees. Therefore, more
than half of these entities can be considered small.
55. 700 MHz Guard Band Licensees. In 2000, in the 700 MHz Guard
Band Order, the Commission adopted size standards for ``small
businesses'' and ``very small businesses'' for purposes of determining
their eligibility for special provisions such as bidding credits and
installment payments. A small business in this service is an entity
that, together with its affiliates and controlling principals, has
average gross revenues not exceeding $40 million for the preceding
three years. Additionally, a very small business is an entity that,
together with its affiliates and controlling principals, has average
gross revenues that are not more than $15 million for the preceding
three years. SBA approval of these definitions is not
[[Page 13220]]
required. An auction of 52 Major Economic Area licenses commenced on
September 6, 2000 and closed on September 21, 2000. Of the 104 licenses
auctioned, 96 licenses were sold to nine bidders. Five of these bidders
were small businesses that won a total of 26 licenses. A second auction
of 700 MHz Guard Band licenses commenced on February 13, 2001 and
closed on February 21, 2001. All eight of the licenses auctioned were
sold to three bidders. One of these bidders was a small business that
won a total of two licenses.
56. Lower 700 MHz Band Licenses. The Commission previously adopted
criteria for defining three groups of small businesses for purposes of
determining their eligibility for special provisions such as bidding
credits. The Commission defined a ``small business'' as an entity that,
together with its affiliates and controlling principals, has average
gross revenues not exceeding $40 million for the preceding three years.
A ``very small business'' is defined as an entity that, together with
its affiliates and controlling principals, has average gross revenues
that are not more than $15 million for the preceding three years.
Additionally, the lower 700 MHz Service had a third category of small
business status for Metropolitan/Rural Service Area (MSA/RSA)
licenses--``entrepreneur''--which is defined as an entity that,
together with its affiliates and controlling principals, has average
gross revenues that are not more than $3 million for the preceding
three years. The SBA approved these small size standards. An auction of
740 licenses (one license in each of the 734 MSAs/RSAs and one license
in each of the six Economic Area Groupings (EAGs)) commenced on August
27, 2002 and closed on September 18, 2002. Of the 740 licenses
available for auction, 484 licenses were won by 102 winning bidders.
Seventy-two of the winning bidders claimed small business, very small
business or entrepreneur status and won a total of 329 licenses. A
second auction commenced on May 28, 2003, closed on June 13, 2003, and
included 256 licenses: 5 EAG licenses and 476 Cellular Market Area
licenses. Seventeen winning bidders claimed small or very small
business status and won 60 licenses, and nine winning bidders claimed
entrepreneur status and won 154 licenses. On July 26, 2005, the
Commission completed an auction of 5 licenses in the Lower 700 MHz band
(Auction No. 60). There were three winning bidders for five licenses.
All three winning bidders claimed small business status.
57. In 2007, the Commission reexamined its rules governing the 700
MHz band in the 700 MHz Second Report and Order. An auction of 700 MHz
licenses commenced January 24, 2008, and closed on March 18, 2008,
which included: 176 Economic Area licenses in the A-Block, 734 Cellular
Market Area licenses in the B-Block, and 176 EA licenses in the E-
Block. Twenty winning bidders, claiming small business status (those
with attributable average annual gross revenues that exceed $15 million
and do not exceed $40 million for the preceding three years) won 49
licenses. Thirty-three winning bidders claiming very small business
status (those with attributable average annual gross revenues that do
not exceed $15 million for the preceding three years) won 325 licenses.
58. Upper 700 MHz Band Licenses. In the 700 MHz Second Report and
Order, the Commission revised its rules regarding Upper 700 MHz
licenses. On January 24, 2008, the Commission commenced Auction 73 in
which several licenses in the Upper 700 MHz band were available for
licensing: 12 Regional Economic Area Grouping licenses in the C Block,
and one nationwide license in the D Block. The auction concluded on
March 18, 2008, with 3 winning bidders claiming very small business
status (those with attributable average annual gross revenues that do
not exceed $15 million for the preceding three years) and winning five
licenses.
59. Wireless Resellers. The SBA has not developed a small business
size standard specifically for Wireless Resellers. The SBA category of
Telecommunications Resellers is the closest NAICS code category for
wireless resellers. The Telecommunications Resellers industry comprises
establishments engaged in purchasing access and network capacity from
owners and operators of telecommunications networks and reselling wired
and wireless telecommunications services (except satellite) to
businesses and households. Establishments in this industry resell
telecommunications; they do not operate transmission facilities and
infrastructure. Mobile virtual network operators (MVNOs) are included
in this industry. Under the SBA's size standard, such a business is
small if it has 1,500 or fewer employees. U.S. Census Bureau data for
2012 show that 1,341 firms provided resale services for the entire
year. Of that number, all operated with fewer than 1,000 employees.
Thus, under this category and the associated small business size
standard, the majority of these resellers can be considered small
entities. According to Commission data, 213 carriers have reported that
they are engaged in the provision of local resale services. Of these,
an estimated 211 have 1,500 or fewer employees. Consequently, the
Commission estimates that the majority of Wireless Resellers are small
entities.
b. Equipment Manufacturers
60. Radio and Television Broadcasting and Wireless Communications
Equipment Manufacturing. This industry comprises establishments
primarily engaged in manufacturing radio and television broadcast and
wireless communications equipment. Examples of products made by these
establishments are: Transmitting and receiving antennas, cable
television equipment, GPS equipment, pagers, cellular phones, mobile
communications equipment, and radio and television studio and
broadcasting equipment. The SBA has established a size standard for
this industry of 1,250 employees or less. U.S. Census data for 2012
shows that 841 establishments operated in this industry in that year.
Of that number, 828 establishments operated with fewer than 1,000
employees, 7 establishments operated with between 1,000 and 2,499
employees and 6 establishments operated with 2,500 or more employees.
Based on this data, we conclude that a majority of manufacturers in
this industry can be considered small.
61. Semiconductor and Related Device Manufacturing. This industry
comprises establishments primarily engaged in manufacturing
semiconductors and related solid state devices. Examples of products
made by these establishments are integrated circuits, memory chips,
microprocessors, diodes, transistors, solar cells and other
optoelectronic devices. The SBA has developed a small business size
standard for Semiconductor and Related Device Manufacturing, which
consists of all such companies having 1,250 or fewer employees. U.S.
Census Bureau data for 2012 show that there were 862 establishments
that operated that year. Of this total, 843 operated with fewer than
1,000 employees. Thus, under this size standard, the majority of firms
in this industry can be considered small.
D. Description of Projected Reporting, Recordkeeping, and Other
Compliance Requirements for Small Entities
62. The Notice proposes and seeks comment on a z-axis (vertical)
location accuracy metric that will, if adopted, affect the reporting,
recordkeeping and/
[[Page 13221]]
or other compliance requirements of nationwide and non-nationwide CMRS
providers, including small businesses. Under the current rules, by
2021, nationwide CMRS providers must deploy either (1) dispatchable
location, or (2) z-axis technology that achieves the Commission-
approved z-axis metric, which metric is yet to be adopted, in each of
the top 25 Cellular Market Areas. CMRS providers must deploy z-axis
technology to cover 80 percent of the Cellular Market Areas population
if z-axis technology is used. By 2021, nationwide CMRS providers must
deploy dispatchable location or z-axis technology pursuant to the
metric that will be adopted by the Commission in each of the top 50
Cellular Market Areas. Non-nationwide carriers, including resellers,
that serve any of the top 25 or 50 CMAs will have an additional year to
meet the two benchmarks (i.e., until 2022 for the top 25 Cellular
Market Areas and 2024 for the top 50 Cellular Market Areas). Thus,
under the Commission's proposal, CMRS nationwide and non-nationwide
CMRS providers that deploy z-axis technology will be required to
provide vertical location information within 3 meters under the
Commission's existing timelines. As alternatives, we seek comment on
different metrics of two or five meters, as well as potentially revised
time frames depending on the precision of the metric adopted.
63. We have tentatively concluded, based on the z-axis solution
test results and other comments, that a metric of 3 meters for 80% of
indoor calls is technically achievable and that z-axis solutions
capable of meeting this metric can be deployed within the timeframes
established in the rules. As described further below, we also have
tentatively concluded that the cost of compliance with the 3-meter
metric is relatively low. Small entities may incur costs associated
with software and/or hardware changes and may need to employ engineers
or other experts in order to comply with the proposal in the Notice.
However, the technology solution a small entity chooses to implement
the requirement will determine the nature of the costs it incurs.
64. We anticipate that small entities would have a choice of
vendors with z-axis technology solutions, which will lessen their costs
to comply with the proposed rule, if adopted. One of the vendors that
participated in Stage Z testing, NextNav, asserts that its z-axis
solution requires only software changes to be made to each handset
could be made available for a nominal cost that amounts to
significantly less than a penny per month per handset. Another test
vendor, Polaris, asserts that its solution is instantly available and
deployable throughout a carrier's nationwide network. Polaris also
asserts that its solution is ``objectively affordable'' because it is
software-based, does not require hardware in networks or markets, and
``does not require anything special in devices beyond implementation of
adopted 3GPP and OMA standards.'' Further, with the addition of
vertical location technologies and vendors into the market, small
entities will have more implementation options, which could further
reduce their cost of compliance. As noted above, Google has announced
that it has developed and is deploying its Emergency Location System
(ELS) in the U.S. for Android devices. Google states that ELS is ``a
supplemental service that sends enhanced location directly from Android
handsets to emergency services when an emergency call is placed.''
Google also states that ELS is part of the Android operating system and
does not require any special hardware or updates. Moreover, as the
Commission noted in the Fourth Report and Order, we continue to expect
that these technology costs will decline as demand grows.
E. Steps Taken To Minimize the Significant Economic Impact on Small
Entities, and Significant Alternatives Considered
65. 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.
66. Based on a comparison of the benefits and costs to alternatives
metrics, the Commission believes that the 3-meter metric that it
proposes to adopt is the most cost-effective option for achieving the
Commission's objectives in this proceeding while avoiding undue burdens
on all entities. The metric should benefit all entities by giving
certainty in selecting an option for complying with the Commission's
rules. While the rule proposed in the Notice would apply to all
nationwide and non-nationwide CMRS in the same manner, the Commission
has already taken steps to accommodate smaller non-nationwide CMRS
providers by supplying additional time to comply with any vertical
location accuracy benchmarks ultimately adopted by the Commission. The
rules also already establish that nationwide and non-nationwide CMRS
providers may choose to provide dispatchable location or deploy z-axis
technology; and they give non-nationwide CMRS providers an additional
year to comply with the Commission's z-axis benchmarks. In addition,
the proposed rule gives small entities the freedom to choose a solution
that best fits their financial situation, rather than imposing a
specific z-axis technology solution, which should minimize the economic
impact on these entities. The Commission does not believe that the
costs and/or administrative burdens associated with the proposed rule
would unduly burden small entities and expects to more fully consider
the economic impact and alternatives for small entities following the
review of comments filed in response to the Notice. The metric the
Commission proposes to adopt should benefit all entities by giving
certainty in selecting an option for complying with the Commission's
rules. Many CMRS providers likely would be able to avoid unnecessary
costs by knowing that the Commission has chosen an accuracy metric of 3
meters, which means they don't have to make an expensive attempt to
satisfy a 2-meter metric by the implementation date specified in the
rules. All CMRS providers, including small entities, should benefit
from the scale economies provided to phone manufacturers who would be
able to provision all phones to the same 3-meter standard adopted by
the Commission. As alternatives, we seek comment on different metrics
of two or five meters, as well as potentially revised time frames
depending on the precision of the metric adopted.
F. Federal Rules That May Duplicate, Overlap, or Conflict With the
Proposed Rules
67. None.
V. Ordering Clauses
68. Accordingly, it is ordered, pursuant to Sections 1, 2, 4(i), 7,
10, 201, 214, 222, 251(e), 301, 302, 303, 307, 309, 316, and 332, of
the Communications Act of 1934, 47 U.S.C. 151, 152(a), 154(i), 157,
160, 201, 214, 222, 251(e), 301, 302, 303, 307, 309, 316, 332; the
Wireless Communications and Public Safety Act of 1999, Public Law 106-
81, 47 U.S.C. 615 note, 615, 615a, 615b; and Section 106 of the Twenty-
[[Page 13222]]
First Century Communications and Video Accessibility Act of 2010,
Public Law 111-260, 47 U.S.C. 615c, that this Fourth Further Notice of
Proposed Rulemaking, is hereby adopted.
69. It is further ordered that the Commission's Consumer and
Governmental Affairs Bureau, Reference Information Center, shall send a
copy of this Fourth Further Notice of Proposed Rulemaking, including
the Initial Regulatory Flexibility Analysis, to the Chief Counsel for
Advocacy of the Small Business Administration.
List of Subjects in 47 CFR Part 20
Communications common carriers, Communications equipment, Radio.
Federal Communications Commission.
Katura Jackon,
Federal Register Liaison Officer, Office of the Secretary.
For the reasons discussed in the preamble, the Federal
Communications Commission proposes to amend 47 CFR part 20 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, 610, 615, 615a, 615b, 615c, unless
otherwise noted.
0
2. Section 20.18 is amended by revising paragraph (i)(2)(ii)(C)
introductory text and paragraph (i)(2)(ii)(D) to read as follows:
Sec. 20.18 911 Service.
* * * * *
(i) * * *
(2) * * *
(ii) * * *
(C) By April 3, 2021: In each of the top 25 CMAs, nationwide CMRS
providers shall deploy either dispatchable location, or z-axis
technology in compliance with the following z-axis accuracy metric:
Within 3 meters above or below (plus or minus 3 meters) the handset for
80% of wireless E911 calls.
* * * * *
(D) By April 3, 2023: In each of the top 50 CMAs, nationwide CMRS
providers shall deploy either dispatchable location, or z-axis
technology in compliance with the following z-axis accuracy metric:
Within 3 meters above or below (plus or minus 3 meters) the handset for
80% of wireless E911 calls.
* * * * *
[FR Doc. 2019-06012 Filed 4-3-19; 8:45 am]
BILLING CODE 6712-01-P