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IqYB, q4  pQ .:[G5,0[4  pQ IqYB, q4  pQ #DdS>,8d\  P6QP."DjS>,j4  pQ!DjS>,j4  pQ$m)<2%,<\  P6QP%W!0(,h0\  P6QhP&I(!,,(\  P6Q,P'{,C8*,RC*f9 xQX(5PC2,R.MXP*f9 xQXX )=eKU,q2e\  P@QP *M_l,q:T\  P@QTP>+X=3,?:&X2p NQ&l& VՖ y iwiwWPCHYPUSWEP7TKERNELWPCSHAR1H)M6 0#`M:\WINAPPS\WPC\WPCHYP `<X01Í ÍZX01Í Ív X- #hxP7hP##SxP7HP#y #Xj\  P6G;W XP#Federal Communications Commission`(# FCC 97153 ă  yxdddyv(h O-g<#X}xP7"XP##&sxP7 ڞ&P#PAGE ؃1 Њ#^\  P6Q 0P#џ  `<*2# Xj\  P6G;W XP##Xj\  P6G;W XP# Before the #|\  P6G; 0P#у  wK# \  P6G; fP# Federal Communications Commission # |\  P6G; 0P#у  `|<l Washington, D.C. # XP\  P6QW XP#у  XX-X` hp x (#%'0*,.8135@8:X yO(-ԍ HP Comments at 2.; AvantGarde provides commercial shorthaul services in the 38 GHz band and argues that the band exhibits propagation characteristics similar to other bands above 40 GHz, demonstrating that commercial use of millimeter wave transmis XH-sion is practical.D?Hz yO -ԍ Avant Garde Comments at 2.D  X -x,45.ؠ Sky Station argues that its proposal to provide a stratosphericbased service will encourage the commercial development of the unused millimeter wave band and promote  X -our policy goals stated in the First NPRM. Sky Station contends that its service will position the United States as a world leader in stratospheric telecommunications technology and promote substantial job opportunity and economic growth by creating a new market for stratospheric platforms, millimeter wave chipsets, 47 GHz transmission equipment, and global broadband wireless services. It argues that the large service capability of each platform and the fiveyear implementation schedule for deployment of 250 platforms will provide global coverage for the wireless personal telecommunications services that consumers and developing  XM-countries seek at an inexpensive rate.S@M yO,-ԍ Sky Station Request and Petition at 813.S Sky Station submits in the Application extensive information that it argues demonstrates the technical and operational feasibility of the platforms,  X-including the mechanical, power, telecommunications links, and operational concerns.JA yO -ԍ Sky Station Application at 230.J  X-x-46.ؠ Approximately 30 letters were filed by individuals, groups, and a few foreign representatives in support of Sky Station's proposal. Of them, certain technology developers, such as U.S. Robotics, argue that the proposed service will encourage the development of new  X-technologies that would create new methods for broadband and portable wireless access.WB yO-ԍ U.S. Robotics Letter to Request and Petition.W Certain financial institutions, such as JPMorgan, support Sky Station's technology as a poten X~-tial breakthrough in providing low cost telecommunications.RC~ yO"-ԍ JPMorgan Letter to Request and Petition.R Other letters from potential users, such as CARE and WWF, argue that a global, lowcost telecommunications service such as that proposed would enable them to monitor their international projects and achieve their"P$ C0*&&ss0"  X-goals more efficiently and effectively.sD yOy-ԍ CARE Letter to Request and Petition; WWF Letter to Request and Petition.s In addition, TIA supports the introduction and implementation of new technologies that fully exploit the bands above 40 GHz, and generally does  X-not oppose the services proposed by Sky Station.ZEX yOm-ԍ TIA Reply Comments to Request and Petition at 7.Z  X-X` hp x (#%'0*,.8135@8: pZQ!:Tp##!Xj\  P6G;W XP#First NPRM, including Sky Station's proposed service.&BStyle 5#XP\  P6QW XP#UFz {O?-ԍ 3651 GHz Band Plan NPRM, at para. 6.U We pointed out in the First  Xm-NPRM that Section 7 of the Communications Act directs us to encourage the provision of  XX-new technologies and services to the public.iGX {O9!-ԍ First NPRM, 9 FCC Rcd at 7082, citing 47 U.S.C.  157.i Opening the 47 GHz band for commercial use that includes such novel uses of the stratosphere furthers our goals to encourage and facilitate further technology transfer from the military sector, create opportunities for economic growth, and promote United States competitiveness internationally by enabling development of technology for potential use in other parts of the world. "G0*&&ss;"Ԍ X- D. Flexible Licensing Framework  X-X` hp x (#%'0*,.8135@8:JMz yO -ԍ mmWAG Comments at 6.> They could serve the emerging PCS industry as a means for major backhaul links. LMDStype applications could include video distribution to businesses and homes for interactive services and information access. The bands could meet the requirements for wireless premises area communications networks and support ex X-tremely high speed applications, such as SONET speeds and beyond.DK yO-ԍ mmWAG Reply Comments at 5.D  X-x352.ؠ Motorola, in response to the First NPRM, states that it does not comment on the proposed licensing framework because the proposals do not encompass satellite technologies. It asserts that, inasmuch as we found the potential dominant use to be a terrestrial service and proposed to define licensing rules to reflect that dominant use, the licensing rules would make no sense for satellite services. Motorola points out that it is well established that satellite  XR-services are not amenable to licensing rules for terrestrial services.GLR yOS"-ԍ Motorola Reply Comments at 5.G HP points out that, since the comments from satellite interests do not propose rules to include satellite services among the users in the frequencies above 40 GHz and they do not appear to have an interest in these"$L0*&&ss" bands, we should concentrate on multipoint distribution, pointtopoint communication, prem X-ises communication, and the vehicular radar terrestrial services at issue.AM yOb-ԍ HP Reply Comments at 4.A  X-x453.ؠ Other commenters support our proposal to provide for broadbased flexible service as long as their interest in shortrange, fixed, pointtopoint links is accommodated by expanding the spectrum to be allocated to include additional bands. AT&T, HP, and mmWAG request that we modify our proposal to license the 47 GHz band by allocating an additional 2  X_-gigahertz of spectrum from 48.250.2 GHz.sN_X {O -ԍ Id. at 45; AT&T Reply Comments at 6; mmWAG Reply Comments at 23. s HP argues that the proposal provides an opportunity for expanded multipoint distribution service of the LMDS type as well as fixed point X1-topoint licensed services.AO1| yO -ԍ HP Reply Comments at 5.A Alcatel, Harris, and TIA also request that we modify our proposal for the 47 GHz band by adding the band at 48.551.4 GHz for pointtopoint services. To accommodate these additional services, they request we establish a 500 megahertz guardband between the new services and the licensed uses we proposed for the 47 GHz band by shifting  X -the 47 GHz band to 47.048.0 GHz.P  yO-ԍ Alcatel Reply Comments at 1; Harris Reply Comments at 1; TIA Reply Comments at 2, 89.  X -x554.ؠTIA supports our goal to encourage innovation and worldwide competitiveness, and agrees that our proposal for broad areabased licensing would give flexibility to fixed pointtopoint microwave users. It requests that the spectrum it seeks to be added at 48.551.4 GHz be dedicated to nonarea based, linkperlink, traditional licensing not subject to auctioning, which services it argues otherwise would be overlooked in our "open market" licens X4-ing by auction.AQ4 yO7-ԍ TIA Comments at i, 56.A HCP agrees that there is a need for additional spectrum that can serve the purposes similar to LMDS in providing pointtomultipoint service and that the basic regulatory framework we proposed, that includes auctioning wide bandwidths on an areawide basis,  X-is appropriate for such licensed uses.^R yO-ԍ HCP Comments at 4, 1011; HCP Reply Comments at 23.^  X-x655. Sky Station argues that its technology is designed to take advantage of frequency in the 47 GHz band and that, unlike many other proposed services, its service is uniquely suited for the band and allowed under the Allocation Table. It argues that a unique feature of the stratosphericbased platform is its high elevation angles and high power, enabling useful communication links to be provided with high reliability in the 47 GHz region, despite the  XN-high water vapor attenuation and dry air path losses occurring in the millimeter wave band.TSN yO$-ԍ Sky Station Request and Petition at 1213.T It expects to provide a global broadband personal communications service that interconnects"7& S0*&&ss" with the Internet's World Wide Web in competition with cellular and PCS wireless services,  X-as well as future satellite services.NT {Ob-ԍ Id., Attachment 1, at 1, 911.N The operations constitute fixed services, although Sky  X-Station expects to include mobile services.QUZ yOo-ԍ Sky Station Further Comments at 2, 89.Q The stratospheric platforms are fixed, as are the base stations, and many of the subscribers will be fixed. Depending on their location within the Sky Station coverage areas, subscribers will use fixed or portable communicators with varying antenna profiles to interconnect with the public switched telephone network or communicate with another Sky Station communicator, computers, or other compatible devices that  X_-are linked to the Sky Station system via Sky Station earth stations.qV_| yO -ԍ Sky Station Application at 715, Sky Station Reply Comments at 3.q  X1-x756.ؠ Several of the letters filed in support of its proposed service urge us to permit Sky Station to implement its competitive service. Representatives of three foreign countries and several advocates for the developing world seek access to inexpensive communications service  X -to improve the lives and opportunities of consumers around the world.W  yO-ԍ Letters to Request and Petition from Britain's Overseas Development Administration; Australia's Ausproject International Pty. Ltd.; Mexico's MESON; CARE; Mercy Medical Airlift; VITA. BET and Eden, as  X -entertainment companies, support access to a wireless interactive communications system.X  yO-ԍ #Tps7@Ր##X\  P6G;gP#BET Letter to Request and Petition; Eden Letter to Request and Petition.  X -x857.ؠ Sky Station states that the proposed service cannot share cochannel frequencies with conventional fixed, mobile, or satellite services and requests that we dedicate to its exclusive use the portions of the band at 47.247.5 GHz for earthtostratosphere and 47.948.2 GHz for stratospheretoearth to ensure its success and maximize use of the spectrum. It argues that only the dedication of 600 megahertz of spectrum will support the multiple, global  X4-services it proposes.Y4 yO!-ԍ Sky Station Application at Attachment, The Global Market for GSTS; Sky Station Reply Comments at 6 {O-8. See para.  27P27 , supra. It requests that we modify the Allocation Table to permit only fixed and mobile stratospheric systems to operate in these sub-bands. It also requests that Footnote 901 and US Footnote 297 be modified to identify its exclusive use in these bands and exclude  X-broadcast satellite service (BSS) feeder links, as well.aZ  yO-ԍ Sky Station Request and Petition at 15, Attachment 3. a  X- x  X-x958.ؠIn reply to Sky Station's filing, HCI and Motorola argue that, although the band is not used today for the fixed satellite service (FSS) or BSS, the band provides much needed expansion capacity to accommodate future use requirements of those services. They argue that the band provides a basis for growth in the satellite sector and that we should ensure that suf"| Z0*&&ssn"Ԯ X-ficient spectrum remains available for FSS and BSS.[ yOy-ԍ Hughes Opposition and Reply to Request and Petition at 2; Hughes Reply to Application at 2; Motorola Opposition to Request and Petition at 24. TIA argues that Sky Station does not need the entire 600 megahertz it requests for exclusive use, but rather demonstrates that a minimum of 20 megahertz would be sufficient. It argues that Sky Station and the supporting letters fail to explain how the proposed service would be implemented or how the spectrum could be managed with such a service to protect other users of the bands where Sky Station  X-would be operating.s\  yO-ԍ TIA Comments to the Request and Petition at 78; TIA Reply Comments at 3.s  X_-x:59.ؠ AvantGarde argues that, depending on the anticipated uses for the spectrum and changed circumstances, we may need to reexamine our proposal to rely on the same service rules we proposed for LMDS in the 28 GHz band. It contends that our remaining proposals concerning license territory size and amount of spectrum to be awarded to each licensee, among others, are potentially affected by the intended use of the spectrum. AvantGarde questions whether the licensing scheme originally proposed for LMDS would be appropriate for the bands above 40 GHz, or whether some other licensing methodology would better meet the needs of the commercial service providers reflected in the comments. It contends that we must ensure that any of the bands we may license are not artificially constrained in the man X-ner in which they are licensed or used in order to maximize public interest benefits.F]B yO-ԍ AvantGarde Comments at 23.F  Xb-x;60.ؠ EndGate and MACOM, as suppliers and developers of millimeter wave equipment, essentially argue that the millimeter wave technology is available for services above 40 GHz that are similar to the pointtomultipoint services proposed for the 28 GHz band, but  X-that the technology would evolve differently to reflect the different frequency characteristics.B^d yO-ԍ Endgate Comments at 12.B MACOM contends that the 28 GHz band is well suited for a video distribution service to the general public, which employs wide beam, low gain transmitting antennas rather than the nar X-rower beam, higher gain antennas that would provide a more specialized service.@_ yO-ԍ MACOM Comments at 12.@  0  X-X` hp x (#%'0*,.8135@8:63. We conclude that all identified uses of the 47 GHz band may be valuable and should be permitted. The record also confirms that both the technology and potential applications of millimeter wave spectrum will continue to evolve rapidly. Since we initiated this proceeding we have seen important new technologies proposed for the millimeter wave spectrum, and it is likely that other technologies also will be developed. Under the circumstances, we conclude that we should not limit the types of services that can be offered in the band.  X-x?64.ؠAccordingly, we adopt our proposal to license the 47 GHz band based on the services currently allowed under the Allocation Table. The spectrum from 47.2 to 50.2 GHz is allocated domestically for Government and nonGovernment Fixed, FixedSatellite, and Mo XP-bile uses, and internationally for the same uses.?`P yO-ԍ 47 C.F.R.  2.106.? We find that the range of services covers all of the services identified as potential uses of the 47 GHz band. We confirm the view that we  X"-expressed in the First NPRM that a broadly defined service allocation coupled with the licensing, technical, and operating rules to be proposed in a subsequent rulemaking will provide the best means of assuring that this spectrum will be used to the greatest benefit of the public.  X -x@65.ؠ We deny the requests of AT&T, HP, mmWAG, Alcatel, Harris, and TIA to expand the band to include spectrum up to 51 GHz in order to provide for pointtopoint servic X"-es. That additional spectrum in the adjacent bands will be addressed in response to the 3651  X#-GHz Band Plan NPRM, in which we proposed to designate the portion 48.250.2 GHz for"#X`0*&&sse"" predominantly satellite use. We point out that pointtopoint services may be provided in the 47 GHz band under the allocations for that band.  X-xA66. We disagree with TIA's assertion that licensing on such an "openmarket" basis, which provides licensees with broad flexibility to engage in any uses under the Allocation Table, evades our statutory responsibilities under Section 303(c) and, in light of our proposal  Xv-to auction the spectrum, is inconsistent with Section 309(j) of the Communications Act.av yO-ԍ#X\  P6G;gP# TIA Comments at 1923, citing 47 U.S.C. 303(c), 309(j).Ė The Commission has broad authority under the Communications Act to designate spectrum usage, as well as the authority to perform any and all acts necessary in the execution of our func X1-tions.rb1X {O -ԍ See Section 4(i) of the Communications Act, 47 U.S.C.  154(i).r Our designation of more than one service for the 47 GHz band is consistent with the Commission's authority and obligations under the Communications Act. Section 303 of the Communications Act does not restrict the Commission's discretion to prescribe the nature of the service to be rendered over radio frequencies or our authority to allocate frequencies to the various classes of stations or assign spectrum to stations for more than one permissible  X -use.c  yO-ԍ We acknowledge that certain other sections of the Communications Act reflect the fact that Congress  {Os-expected the Commission to utilize some amount of spectrum for particular types of services. See, e.g., 47 U.S.C.  309(b) (referring to fixed pointtopoint microwave stations, industrial radio positioning stations, and aeronautical stations); 47 U.S.C.  319 (distinguishing among amateur stations, mobile stations, public coast stations, privately owned fixed microwave stations, common carrier stations, and broadcast stations). Nevertheless, these sections cannot be read to limit the Commission's discretion to permit the use of spectrum for more broadly defined services. We have already discussed this issue in other decisions and our action here is consistent  X -with precedent.d^ ~ {Oh-ԍ See, e.g., Allocation of Spectrum Below 5 GHz Transferred from Federal Government Use, ET Docket  {O2-No. 9432, Second Report and Order, 11 FCC Rcd 624 (1995) (GWCS Second Report and Order), recon. pend {O-ing; Part 27 Report and Order, at paras. 2932. #Tps7@Ր##X\  P6G;gP#Ѷ With respect to allocation decisions, courts have accorded ``substantial  X-deference'' to Commission determinations.3e6  {O -ԍ See National Ass'n of Regulatory Util. Comm'ners v. FCC, 525 F.2d 630, 636 (D.C. Cir.), cert. denied,  {O-425 U.S. 992 (1976); see also Telocator Network of America v. FCC, 691 F.2d 525, 549 (D.C.Cir. 1982). 3 Commission precedent also supports the permis Xy-sibility of allocating spectrum in a manner that allows for a range of uses.@f\y$  yO-ԍ Amendment of Parts 2 and 22 of the Commission's Rules Relative to Cellular Communications Systems,  {O-GN Docket Nos. 8412321, 841233, and 841234, Report and Order, 2 FCC Rcd 1825, 1841 (1986),  recon.  {Or-denied, 2 FCC Rcd 6830 (1987).@  XK-xB67. In light of the range of possible uses, the likelihood that new uses can be developed in the future, and the lack of a record for specific service designations that would better serve the public interest and the goals of the Communications Act, our broad service designation comports with the public interest and with our statutory authority. Our decision to desig X-nate this spectrum in this manner is unrelated to our proposal in the First NPRM to award  X-licenses through competitive bidding. The designation is not entirely openended and will be"f0*&&ss" subject to technical rules we will adopt. Therefore, we have not delegated to private parties our responsibility to allocate spectrum and adopt appropriate technical standards.  X-  X-xC68. We find that, when we propose licensing and other service rules for the 47 GHz  X-band, we will follow the approach proposed in the First NPRM to tailor the rules to reflect what we expect will likely be the dominant use of this spectrum, while retaining the flexibility allowed under the Allocation Table. Especially for ``frontier'' bands such as those above 40 GHz, this approach should set allocation and licensing rules that promote rapid, efficient use of this spectrum to meet all the communications needs advanced by commenters, while allowing the market to adjust to changing needs and technologies and providing scope for innovative uses. It will also minimize regulatory barriers and requirements that might otherwise hamper entrepreneurial efforts to develop effective commercial uses of this spectrum.  X -xD69.ؠHowever, we do not find that the dominant use of spectrum in the 47 GHz band is likely to be similar to LMDS in the 28 GHz band, as we proposed. As AvantGarde requests, we have reexamined our proposal, and we have taken into account the anticipated uses and changed circumstances reflected in the record for purposes of determining whether another licensing methodology would better meet the needs posed by those anticipated uses. Only Sky Station has submitted comments that propose specific uses for the 47 GHz band, apart from the general millimeter wave uses otherwise expressed in the comments or the general support confirming our expectation of fixed, pointtomultipoint services in the band. We find that the  X-dominant use of the 47 GHz band is likely to be a fixed, pointtomultipoint service that employs stratospheric platforms at fixed locations.  X-X` hp x (#%'0*,.8135@8: pZQ!:Tp##!Xj\  P6G;W XP#First NPRM, we pointed out that fixed pointtopoint and pointtomultipoint services, which we expected in the bands above 40 GHz to be like LMDS, are provided to subscribers throughout a geographic area. We sought comment on the extent to which there is a significant commercial interest in obtaining exclusive, areawide use of millimeter wave spectrum and, if so, what size licensing areas and spectrum blocks should be  X-used.$BStyle 5#XP\  P6QW XP#djz {O=-ԍ First NPRM, 9 FCC Rcd at 7088, 7090 (paras. 23, 28).d  XR-xJ75. In requesting us to expand the proposed bands to provide for pointtopoint services, Alcatel, HCP, HP, Harris, mmWAG, and TIA do not oppose the areawide licensing we proposed for the 47 GHz band to allow for the services we expected would be the primary commercial use of the band. HCP states that the proposed bands would be for wide area services, while TIA states that the 47 GHz band would be retained for the licensed uses we pro X-posed.[k yO%-ԍ HCP Reply Comments at 2; TIA Reply Comments at 9.[ HP and mmWAG suggest that an expanded 47 GHz band could be used for expand"k0*&&ss"Ԯ X-ed multipoint distribution service.]l yOy-ԍ HP Reply Comments at 5; mmWAG Reply Comments at 3. ] They request that, under their proposal to expand the band to 50.2 GHz, we authorize at least one gigahertz to each license and retain flexibility in granting broader bandwidths so that multigigahertz services will be possible. HP favors the licensing of large service areas. It argues that they afford a licensee more flexibility in designing a network and greater incentive to make the investments required to take full advantage of millimeter wave technology. Such areas also minimize the boundaries across which standard  Xv-protocols and interference levels would have to be addressed.;mvX yO -ԍ HP Comments at 2.;  XH-xK76.ؠ Pacific Bell supports our proposal to allocate the 47 GHz band for licensing under the proposed framework. However, it asserts that the proposed licensing areas and blocks are for broadband interests and it is concerned that narrowband interests not be excluded from our consideration. Pacific Bell requests some additional division in the 47 GHz band to accommodate some narrowband applications. It argues that there should be provisions for pointtopoint microwave links in blocks similar to our rules for 38 GHz. Pacific Bell also argues that smaller areas, such as BTAs, may be more appropriate for narrowband applications than the MTAs we proposed for licensing areas, which it argues are much larger and appropriate for such wideband uses as LMDS. Pacific Bell requests that we consider carefully what service area is  Xy-most appropriate for the bandwidth available in a particular frequency band.Gnyz yO6-ԍ Pacific Bell Comments at 23.G  XK-xL77.ؠ PCom requests that we divide the spectrum allocations carefully to reflect the proposed usage of the spectrum. Paired blocks with maximum frequency separation are required for fixed service, twoway links. It contends that the larger the percentage frequency separation, the easier is the RF filter implementation, but that separation at higher frequencies would require a greater total amount of spectrum to be available. PCom argues that for pointtomultipoint applications, contiguous blocks of spectrum are required to allow the use of  X-multichannel operation within a given service area.Do yO-ԍ PCom Reply Comments at 2.D  X-xM78.ؠSky Station supports areawide licensing to accommodate its service proposal within the United States and requests that we adopt rules similar to the rules for Personal Communications Services (PCS) that provide for larger areas, such as national or superregional areas, to reflect the broad scope of its proposed services. Sky Station requests that we clarify that, like the PCS rules, we will authorize a blanket license for each market and frequency block that allows a single station to serve an entire service area rather than individual sites. Sky Station argues that, for its service, licenses should be divided into pairs of 100 MHz each, with a  X-separation of at least 500 MHz.pp yO%-ԍ Sky Station Further Comments at 67, 11, citing 47 C.F.R.  24.102.p "p0*&&ssZ"Ԍ X-ԙX` hp x (#%'0*,.8135@8: