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Trabue)ppCSR4974O ) ) Petition for Declaratory Ruling) Under 47 C.F.R.  1.4000)   S '  MEMORANDUM OPINION AND ORDER \  S 'X` hp x (#%'0*,.8135@8:  yO'ԍ47 C.F.R.  1.4000.> which prohibits governmental and private restrictions that impair the ability  S' xof antenna users to install, maintain, or use overtheair reception devices. {O*"' x ԍ#X\  P6G;?P#See In re Preemption of Local Zoning Regulation of Satellite Earth Stations and In re Implementation of Section  xb 207 of the Telecommunications Act of 1996, Restrictions on OvertheAir Reception Devices: Television Broadcast  {O#' x Service and Multichannel Multipoint Distribution Service, IB Docket No. 9559 and CS Docket No. 9683, Report  yO$' x3 and Order, Memorandum Opinion and Order, and Further Notice of Proposed Rulemaking, 11 FCC Rcd 19276  {ON%' xQ (1996) (consolidated) (Report and Order). The Rule became effective on October 14, 1996. Public Notice DA 961755 (Oct. 23, 1996).  The Rule implemented Section". 0*''88_"  S' x*207 of the Telecommunications Act of 1996,V". yOh'ԍPub. L. 104104, 110 Stat. 114 (Feb. 8, 1996).V which requires the Commission to "promulgate regulations  xto prohibit restrictions that impair a viewer's ability to receive video programming services through devices  S' xdesigned for overtheair reception of . . . direct broadcast satellite services."X". yO'ԍ#X\  P6G;?P#Telecommunications Act of 1996, Pub. L. No. 104104,  207, 110 Stat. 56, 114 (1996). The law promotes one of  xthe primary objectives of the Communications Act of 1934: "to make available, so far as possible, to all  xthe people of the United States . . . a rapid, efficient, nationwide, and worldwide wire and radio  S8'communication service with adequate facilities at reasonable charges. . . ."8". yO 'ԍ#X\  P6G;?P#Communications Act of 1934,  1 as amended, 47 U.S.C.  151.  S' e 3.` ` The Rule applies to restrictions on property within the exclusive use or control of an  xantenna user who has a direct or indirect ownership interest in the property. Paragraph (a) of the Rule  S' x"provides that a restriction impairs installation, maintenance, or use of a protected antennax". yO' x ԍ#X\  P6G;?P#The Rule applies to antennas designed to receive direct broadcast satellite service that are one meter or less in  x diameter; antennas designed to receive video programming services via multipoint distribution services, including  xH multichannel multipoint distribution services, instructional television fixed services, and local multipoint distribution  xb services that are one meter or less in diameter or diagonal measurement; and antennas designed to receive television broadcast signals. 47 C.F.R.  1.4000(a). if it: (1)  xunreasonably delays or prevents installation, maintenance, or use; (2) unreasonably increases the cost of  SH ' x&installation, maintenance, or use; or (3) precludes reception of an acceptable quality signal.hH ( ". yO'ԍ#X\  P6G;?P#47 C.F.R.  1.4000(a).h The only  xexceptions to the Rule are restrictions that are necessitated by safety or historic preservation concerns, and  xgeven then, the restrictions must be as narrowly tailored as possible, impose as little burden as possible,  S 'and apply in a nondiscriminatory manner throughout the regulated area.j ". yO('ԍ#X\  P6G;?P#47 C.F.R.  1.4000(b). j  S ' e m4.` ` The Rule provides parties who are affected by antenna restrictions the opportunity to  SX' xpetition the Commission to determine if the restrictions are permissible or prohibited by the Rule.h XH ". yO@'ԍ#X\  P6G;?P#47 C.F.R.  1.4000(d).h The  xRule places the burden of demonstrating that the challenged restriction complies with the Rule on the party  S' x seeking to impose the restriction.h ". yO 'ԍ#X\  P6G;?P#47 C.F.R.  1.4000(e).h The Rule also provides that no fine or other penalties shall accrue  S'against an antenna user while a proceeding is pending to determine the validity of any restriction.? h". yO"'ԍ47 C.F.R. 1.4000(a)? " 0*&&88U"Ԍ S' III.The Petition " S' e "5.` ` Petitioners are homeowners in the Garden Lakes planned community, located in Avondale,  x^Arizona. Petitioners challenge the following regulation imposed by the Association's Architectural Review Committee: X` ` O. EXTERIOR ACCESSORIES.  ` ` 1. Antennas [amended 9/12/96]  e ` ` Prior approval of the Architectural Review Committee for an antenna that  e is designed to receive direct broadcast satellite service, including direct e tohome satellite services, that is one meter or less in diameter; or an  e %antenna that is designed to receive video programming services via  e multipoint distribution services, including multichannel multipoint  e distribution services, instructional television fixed services, and local  e multipoint distribution services, and that is one meter or less in diameter  e  or diagonal measurement; or an antenna that is designed to receive  e television broadcast signals, is not required, provided it meets the following requirements:x`  S' g/` ` a) Antennas and dishes shall be painted in a fashion that   gblends into the background against which it is mounted   gprovided such painting will not interfere with reception.   g/Mounting materials, accessories, and cabling shall be   gpainted in a fashion that blends into the background against which it is mounted.   S' e 6.` ` Petitioners allege that on February 1, 1997, the Association cited them for erecting a direct  xbroadcast satellite (DBS) antenna without prior approval; that on February 10, 1997, the Association  xinstructed them to "paint the entire apparatus the same color as the house;" and that on February 27,  x@1997, the Association sought to impose on Petitioners a fine of fifty dollars per day. Petitioners argue  xthat the Association's painting requirement is based on aesthetic concerns and is not necessary for safety or historic preservation.  S' e 7.` ` Petitioners further contend that painting the "entire apparatus" is a modification of the unit  xthat will void the warranty. In support, Petitioners provide a copy of their warranty from Thomson  xkConsumer Electronics ("Thomson"), which states that Thomson's warranty will not cover "a unit that has been modified."  S!' e 8.` ` Further, petitioners argue that the cost of painting the dish would be unreasonable and that  xthe cost of a new warranty also would be unreasonable in relation to the cost of the satellite dish.  xPetitioners allege that painting can cost as much as 40% to 50% of the price of the dish. Moreover,  xkPetitioners contend that not everyone who owns a DBS satellite dish has been required to paint it, and that"H$ 0*&&88 #"  xthe Association does not require painting of other, arguably comparable items, such as telephone boxes and cable boxes, both of which are on the visible front side of homes.  S' IV.The Association's Response  S8' e 9.` ` The Association contends that painting the antenna and mounting apparatus of the antenna  x<does not void the manufacturer's warranty. In support of this position, the Association provides a  xmemorandum from Robert Markham, Vice President, Sales and Marketing, Commercial and Consumer  S'Electronics of the Arizona Wholesale Supply Company, ". yO( ' x ԍThe Association does not explain how the opinion of Arizona Wholesale Supply Company is relevant to these proceedings. stating: ` ` Bill Mingle with the Engineering department of Thompson [sic] Consumer ` ` Electronics (DSS Division) explained to me that nonmetallic paint on ` ` DSS dishes (not including the LNB [Low Noise Block converter]) ` ` will not significantly suppress signal as to effect the performance of ` ` the DSS System. ` ` Bill further explained that the dish should be properly prepared for ` ` painting by light sanding with 400 grit paper and care must be used ` ` not to paint the feed horn, LNB, logo[s], or connectors/cables. If these ` ` rules are followed the manufacturers [sic] warranty will not be voided.  xThe Association contends that even if painting voided the warranty, it would not impose an unreasonable  xexpense to repair the satellite dish because it would be necessary to replace only "the component," which  Sh' xretails for $21.95.%Xh ". yO(' x ԍThe Association does not define "the component" but cites Thomson Consumer Electronics as the source for  x; the cost of the replacement part. Response of the Garden Lakes Community Association ("Association Response") at 3.% The Association further alleges that the warranty period for "this component" is 90  S@'days from purchase, which already elapsed.}Z@@". yO ' x ԍThe Thomson Consumer Electronics warranty appended to both the Petition and the Association's response has  x a duration of one year. It offers free replacement after 90 days and imposes some labor charges for repair or  {O'replacement after 90 days. See Exhibit B of Association Response.}  S' e  10.` ` The Association argues that the dish can be painted for a minimal cost.Zb ". yO ' x ԍIn support, the Association provides an affidavit from Thomas Walker, a licensed contractor in the state of  xQ Arizona, who states that he will provide all the materials and labor to paint an eighteen inch satellite antenna and  {O"'its mounting apparatus and any exposed wiring for a total cost of $45.00. See Exhibit C of Association Response. Further, Jim  xDConaway, a principal of Planned Development Services, Inc., the Association's management agent, states  xthat he would paint an antenna at no charge if a homeowner was physically unable to paint the dish and" 0*&&88"  S' xxfinancially unable to pay a contractor.". yOh' x ԍAssociation Response at Exhibit D, Statement of Jim Conaway, Community Manager, Garden Lakes Community Association. The Association states that "[m]any homes within the community  xkhave complied with the painting requirement and no degradation of signal has occurred." The Association  xfurnishes affidavits of two homeowners who have painted their satellite dishes to conform to the  xAssociation's requirements and have experienced "no degradation nor loss of signal." In addition, the  x@Association provides a statement from a local satellite dealer stating that a satellite dish may be painted "without losing the quality of [the] picture, as long as nonmetallic paint is used."  S' e q 11.` ` The Association concedes that its restriction is not founded on safety concerns, and that  x*it erred in attempting to require prior approval of Petitioners' antenna installation. The Association argues  xthat it requires some comparable devices such as trash receptacles and air conditioners to be screened and  xasserts that it does not have authority to regulate the appearance of "public utility easements." It refers  SH ' xto "Paragraph 19 of FCC 96328 [the Report and Order]" as the basis for its painting requirement and as  S" ' xjustification for the costs imposed thereby."" ". {O' x ԍWe note that paragraph 19 of the Report and Order requires that the costs of complying with restrictions not  x be unreasonable in light of the cost of the antenna itself and its installation as well as the "visual impact of the  x antenna" and suggests that "a requirement to paint an antenna in a fashion that will not interfere with reception so that it blends into the background against which it would be mounted would likely be acceptable."  The Association also claims it has a "clearly defined aesthetic  S 'objective" and is thereby in compliance with 47 C.F.R.  25.104. ". yO' x ԍWe note that the Commission's rule in Section 25.104 applies only to satellite dishes larger than one meter and to governmental restrictions and, therefore, is not relevant to this proceeding.  S ' V.Comments  SZ' e  12.` ` BellSouth Corporation (BellSouth), the Consumer Electronics Manufacturers Association  x(CEMA), Pacific Bell Video Services (Pacific Bell), and David W. Bullington (Bullington) filed comments  xin support of the petition. The Community Associations Institute (CAI) filed in support of the  xpAssociation. BellSouth contends that the Commission should hold the Petition in abeyance until the  xCommission further revises the Rule, as advocated by BellSouth in its Petition for Reconsideration, and  xVthat the Commission should direct the Association to forbear from taking any action adverse to the  xPetitioners or others similarly situated during the pendency of BellSouth's petition as required by Section  xk1.4000(a)(3). BellSouth also argues that the Association's painting requirement is burdensome, costly and  xwould violate the warranty. CEMA offers general support for the Petitioners and urges the Commission  xto rule on the petitions so as to provide broad and controlling precedents but offers no comment on the warranty issue.  Sz' e  13.` ` Pacific Bell argues that the Association's antenna restrictions violate the Rule because  xthey require prior approval, which is prohibited unless necessary for safety or historic preservation; require  xpainting, which is unreasonable and impairs reception; and threaten fines, which chill lawful conduct.  xPacific Bell notes that the original color of Petitioner's antenna blends into the background against which"b 0*&&884"  xit is mounted and asserts that the Association's painting requirement exceeds the permissible painting  S' xrequirement described in paragraph 19 of the Report and Order because it requires that the entire  xapparatus be painted the color of the house. Pacific Bell notes also that in its Joint Petition for Partial  x7Reconsideration, filed together with the Wireless Cable Association and others, it argued that any painting  xrequirement could unreasonably increase the cost of using an antenna because the many colors used to paint houses would create an impossible burden for the industry to comply with except on a custom basis.  S' e  14.` ` Mr. Bullington, a homeowner in the Garden Lakes development, states that painting alters  xthe finish of the dish and thereby constitutes a modification for warranty purposes. He notes that the  xmemorandum from Arizona Wholesale Supply proffered by the Association to support its contention that  xpainting will not void the warranty if the logos and cables are not painted conflicts with the Association's  x requirements to paint the entire apparatus. Mr. Bullington claims he has extensive personal  xgtelecommunications and electronics experience and disagrees that painting will not adversely affect the  xperformance of the antenna "in view of the hygroscopic properties of many commercial paints" which may crack and peel over time.  S ' e \15.` ` In opposition to the Petition, CAI argues that associations may impose reasonable  xrestrictions designed to minimize the visual effect of an antenna on the owner's property. While  xacknowledging that it has not seen the restriction in question, CAI contends that the painting requirement  ximposed on Petitioners is a reasonable restriction permitted by the Commission's rules. CAI argues that  S' xDthe Commission's affirmative reference to painting in paragraph 19 of the Report and Order suggests that  x*a painting requirement is not an onerous restriction. CAI contends that Petitioners have not justified their  xcontention that painting the dish would constitute a modification of the unit under their warranty and states  xthat it contacted a Thomson customer service representative who said that painting a dish would not  xDviolate the warranty as long as the paint did not cause damage to the "plastic tip of the antenna." Further,  xCAI contends that because "paint is inexpensive and can be applied prior to, during or after installation,"  x@no evidence in the record supports a conclusion that painting would unreasonably increase the cost of  xcinstallation, maintenance or use. Finally, CAI argues that Petitioners have presented no evidence to demonstrate that painting the antenna would render it unable to receive acceptable quality signals.  ST' VI.  Petitioners' Reply  S' e 16.` ` In their reply comments, Petitioners reiterate their objections to the Association's painting  xQrequirement and to the threatened fine for noncompliance. Specifically, Petitioners argue that the burden  xof proof in this proceeding is on the Association and that the Association has not met its burden and  xMcannot shift the burden to Petitioners. Petitioners assert that the Association's estimate for the cost of  x@painting the dish does not take account of the special requirements for painting in a manner consistent  xwith the warranty requirements. Petitioners contend that DBS satellite dishes installed on four homes at  xIthe Garden Lakes Estates were not painted to match the exterior color and object, therefore, to the  xAssociation's disparate enforcement of the painting requirement. They also object to the discriminatory  xtreatment of satellite dishes in view of the absence of comparable painting requirements for air  xconditioning units and trash receptacles, which are visible in the community. In response to the  xAssociation's assertion that the warranty in question has expired, Petitioners explain that they purchased"t#0*&&88-""  S' xan extended warranty that extends the original warranty for another year.P". yOh'ԍPetitioners' Reply at 4 and Enclosure 3.P Petitioners further contend that  xthe gray color of the dish is not inconsistent with other exterior colors on the home. Specifically,  x"petitioners state that the dish is located on the patio roof which has gray trim and is near two gray  S'overhead light fixtures.X". yO' xp ԍThey note, too, that the exterior of the house includes red tile, light cream sides, dove gray trim, black windows, and a brown door. Petitioners' Reply at 5 and Enclosure 4.  S8' VII.Discussion  S' e q17.` ` The question presented here is whether this Association's requirement that antenna users  S' xpaint an antenna and its accessories in order to blend with the color of the house violates the Rule.". yO ' x ԍWe have only been asked to rule on those parts of the Association's regulations that pertain to prior approval and painting. This Order expresses no opinion on other provisions of the Association's regulations. The  xRule prohibits antenna restrictions that impair installation, maintenance or use by imposing unreasonable  Sp' x}delay, unreasonable expense, or precluding reception of an acceptable quality signal.Ap". yO'ԍ47 C.F.R.  1.4000(a).A In general, a  xrequirement that a satellite dish be painted to blend with the color of the house does not violate the Rule,  xprovided the specific requirements do not result in voiding the manufacturer's warranty or otherwise  x}impose unreasonable expense. In this case, for the reasons described below, we conclude that this Association's antenna restriction is permissible, in part, and preempted in part.  S ' e 18.` ` A requirement to paint a satellite dish is not per se prohibited by the Rule and is offered  SZ' xin the Report and Order and Order on Reconsideration as a requirement likely to be acceptable under the  S4' xRule.J&4". {Ol' x ԍReport and Order at  19 and In re Preemption of Local Zoning Regulation of Satellite Earth Stations and In  x re Implementation of Section 207 of the Telecommunications Act of 1996, Restrictions on OvertheAir Reception  {O' x Devices: Television Broadcast Service and Multichannel Multipoint Distribution Service, CS Docket No. 9683,  {O'Order on Reconsideration ("Order on Reconsideration"), FCC 98214 at  45 (released September 25, 1998).J Although not prohibited in every case, here the Association's requirement goes beyond painting  S ' xthe dish itself to require that the "mounting materials, accessories and cabling"h  ". {O2'ԍSee antenna regulation quoted at paragraph 5, supra.h associated with the dish  x*must also be painted. This part of the Association's requirement conflicts with the memorandum offered  x}by the Association as evidence that its painting requirement does not void antenna warranties. This  S' x<memorandum states that certain parts of the antenna, including the cables, should not be painted.iZ". {OL"' x ԍSee discussion of Association's memorandum describing a conversation with a Thomson engineer, supra,  9  x (To avoid invalidating the Thomson warranty here in issue, an antenna user should "not paint the feed horn, [Low Noise Block converter], logo[s], or connector/cables.").i  xMVoiding the manufacturer's warranty impairs maintenance and use by imposing unreasonable expense. "l:0*&&88"  xWe conclude, therefore, that the Association's painting requirement is preempted insofar as it applies to cables and other accessories the painting of which would void the Thomson warranty.  S' e ~19.` ` As to the requirement to paint the dish itself, there is no evidence in this record that such  xa requirement imposes unreasonable delay or precludes reception of an acceptable quality signal, but  xPetitioners assert that the requirement to paint their satellite dish imposes an unreasonable expense. It is  x7unclear from this record whether the alleged unreasonable expense arises from the actual cost of painting  xthe dish or from the more speculative cost of repairing or replacing the dish if painting voids the  xmanufacturer's warranty. Petitioners have not provided specific information regarding either the cost to  S' x7paint the dish ". yO ' x; ԍPetitioners estimate the cost of painting the dish at "40 to 50 percent" of the cost of the dish but do not provide  x either the cost of the dish or the basis for this estimate. Petitioners' Reply at 3. The Association offers an affidavit  x from a licensed contractor that he would charge $45.00 to paint a dish and its accessories. Association Response at Exhibit C. or the expense they would incur if their warranties are voided. The Association's position  xis similarly unclear. The Association's management agent states that he is willing to pay for painting an  xantenna under certain circumstances but does not specify whether those circumstances apply to  S 'Petitioners.]Z ". {Op' x ԍSee note 17, supra ("If requested, and I [management agent for the Association] became aware that an owner  x was unable to pay and was physically unable to perform the work, I would paint the antenna as a free service in order to conform to the Association's Rules.")]  S ' e 20.` ` Based on the limited record before us, we find that the Association's requirement to paint  xthe dish itself as distinguished from the cables and accessories discussed above does not appear to  xxvoid this manufacturer's warranty. In addition, we interpret the Association's offer to pay for painting the  xdish to apply to Petitioners' dish. Based on these findings, the Association's requirement that the dish be  xpainted does not impose an unreasonable expense or otherwise impair installation, maintenance or use of  S'antennas covered by the Rule.". yOz' xk ԍIf the Association pays to paint the dish in the manner described that does not void the warranty, then there would be no unreasonable expense imposed on Petitioners.  S' e v21.` ` We also note that the Association's regulations, as submitted for the record in this  xtproceeding, require prior approval of antenna installation by its Architectural Review Committee unless  xthe antenna, dish, mounting materials, accessories and cabling are painted to blend with the background  S@' xagainst which the antenna is mounted and the antenna is placed so that it is not visible. We conclude, as  xtwe have previously held, that the Association's requirement for prior approval is prohibited by the Rule  S'because it can impose an unreasonable delay. $* ". {O!' x ԍSee Report and Order,  17; Order on Reconsideration,  45; In re Star Lambert and SBCA,12 FCC Rcd 10424  {O"' x} (CSB 1997); In re MacDonald, 13 FCC Rcd 4844 (CSB 1997); and In re OmniVision, 13 FCC Rcd 4826 (CSB  xH 1997). In its response to the Petition, the Association acknowledges that "the Association's correspondence was in error requiring prior approval." Association Response at 5.  "0*&&88$"Ԍ S' e 22.` ` Based on the information in the record, we are unable to rule on Petitioners' allegations  xthat there is disparate or discriminatory enforcement of the painting requirements in Garden Lakes Estates.  xWe cannot determine from this record the accuracy of the allegation that the Association has permitted  xIsome homeowners to use satellite dishes that have not been painted. The record is also unclear on  xtwhether cable and telephone boxes are subject to the same painting requirements as satellite dishes and  xkother antennas, and, if not, whether there are external restrictions on the Association's authority to require  xDthat these items be painted. With respect to exterior air conditioning units and trash receptacles, although  xthe Association does not require painting, it does require screening of such items if they are visible from  S'neighboring units.". yO( ' x ԍAssociation Response at 4 and Exhibit 2 ("No machinery, fixtures or equipment of any type, including but not  x limited to, heating, cooling, air conditioning and refrigeration equipment and clotheslines, may be placed on any lot  x^ or Parcel without the prior approval of the Architectural Review Committee. Approval shall be conditioned upon  x screening or concealment from view of neighboring or public property. . . . Ground mounted air conditioning units shall be concealed by a solid enclosure on all sides Visible from Neighboring Property.").  Sp' VIII.Ordering Clauses  S ' e 23.` ` For the foregoing reasons, IT IS ORDERED , pursuant to Section 1.4000(d) of the Over x^theAir Reception Devices Rule, 47 C.F.R. Section 1.4000(d), and Section 1.2 of the Commission's rules,  S ' x47 C.F.R. Section 1.2, that the Petition for Declaratory Ruling filed by Otto and Ida Trabue is GRANTED  S 'to the extent indicated in paragraphs 18 and 21, above, and in all other respects is DENIED .  SX' e W24.` ` This action is taken by the Chief, Cable Services Bureau, pursuant to authority delegated by Section 0.321 of the Commission's rules. 47 C.F.R.  0.321. ` `  hhCFEDERAL COMMUNICATIONS COMMISSION ` `  hhCDeborah A. Lathen  S'` `  hhCChief, Cable Services Bureau