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This provision  zP(remained unchanged by subsequent amendments to the Communications Act. See generally the Telecommunications Act of 1996, Pub. L. No. 104104, 110 Stat. 56 (1996) revising the cable regulatory requirements but leaving requirements of 624(g) unchanged. Wireless cable systems' (entities that own or lease facilities and channels that transmit programming to the public via ITFS, MDS, or MMDS channels), participation in EAS is authorized under Sections 303(r) and 706 of the Communications act. Section 706 grants specific communicationsrelated powers to the President in times of war or national emergency. EAS replaced the Emergency Broadcast System (EBS) with updated equipment that provides emergency alerts via a digital signaling process. EAS messages provide a digitally encoded alert containing information such as the nature, area, and duration of the potential emergency, as well as an audio message that is no longer than two minutes in  ev2length.6v > xP1(ԍThe EAS alert is designed to make viewers/listeners aware of emergencies that may affect them so that they may take appropriate protective action or seek additional information. EAS equipment transmits a message that provides the viewer with the reason or event posing a threat, the location that the event may be affecting, an approximate time period that a threat to safety will last, and the originator of the alert message. State and local messages are voluntarily transmitted to the public by EAS participants.6 National level EAS messages and EAS tests must be forwarded to the public. All other EAS messages are transmitted on a voluntary basis by the EAS participant.   e123.` ` The Commission has adopted two additional EAS items since the release of the  e 2First R&O. Our Memorandum Opinion and Order (MO&O) released October 23, 1995, stated that cable systems may interrupt local broadcast channels in order to present an EAS  e 2message to viewers.} > zPW(ԍMemorandum Opinion and Order, 10 FCC Rcd 11494, 2124 (1995).} MO&O  MO&O MOO The Second Report and Order (Second R&O), established additional  e 2EAS guidelines outlining cable system participation in EAS. L > zP(ԍSecond Report and Order, Amendment of Part 73, Subpart G, of the Commission's Rules Regarding the Emergency Broadcast System, FO Docket Nos. 91171/91301, FCC 97338, 13 FCC Rcd 6353 (1997). The EAS rules require that cable systems must send some type of visual alert, as well as an audio alert on all channels  e 2when activating the EAS.  > xP(ԍSections 11.51(g)(2) and 11.51(h)(3). These sections require that cable systems carrying EAS activations place either a video interrupt and audio interrupt on all channels with full video and audio on at least one channel (for cable systems with less than 5,000 subscribers) or provide the video and audio of the digital header portion of the EAS message on all channels (for cable systems with 5,000 or more subscribers). "0*%%[["Ԍ e24.` ` The National Association of Broadcasters (NAB)7D> zPy(ԍSee letter dated May 21, 1997, from Henry Baumann, Executive Vice President and General Counsel National Association of Broadcasters to Beverly Baker, Esq. Chief, Compliance and Information Bureau, Federal Communications Commission (hereinafter referred to as the NAB May 21 letter); May 30, 1997, from Edward O. Fritts, President & CEO, NAB to Reed E. Hundt, Chairman, Federal Communications Commission. In addition, a member of Congress has expressed concern about broadcast emergency information being  zPc(overridden by cable EAS messages. See letter dated September 8, 1997 from Representative Tauzin, Chairman, Subcommittee on Telecommunications, Trade, and Consumer Protection to Reed Hundt, Chairman, Federal Communications Commission.7 N21AB N21 has expressed concern that, when the Emergency Alert System is activated, a cable television system's EAS message  e2could interrupt more detailed emergency information provided by a local broadcaster.o X> xPW (ԍNAB writes that "... the FCC's plan for cable television's participation in the EAS more assuredly will result in the cable subscribing, local television viewer being prevented from receiving uptodate emergency  xP (related information provided by local broadcasters." NAB May 21 letter, at 2. oNAB CONCERN NAB points out that, because of the local nature of broadcast station programming, as opposed to most cable programming services, cable operators' EAS messages will not provide emergency information that is as useful as that which broadcasters provide. According to the NAB, many local broadcasters have weather and news resources that may provide additional  e_2information concerning a developing emergency event.s _ > zP(ԍSee NAB May 21 letter, supra note  N218  at 3.s In the Second R&O, in response to these concerns, we modified our rules to provide that a cable operator (upon written agreement with the broadcaster) may elect not to interrupt the programming of a broadcast  e 2station carrying news or weather related information.L  > xPQ(ԍOur rules previously provided simply that cable systems could elect to not interrupt the EAS message  xP(itself with another EAS message. Section 11.51(g)(5), 47 C.F.R.  11.51(g)(5) (1996). Sections 11.51(g)(4) and 11.51(h)(4) allow the creation of a written agreement between a broadcaster and a cable or wireless cable system that releases the cable system from interrupting a broadcasters' programming on that system for an EAS  zPq(state or local message. See 47 C.F.R. 11.51LN22   e 2Y III. Discussion 6  e 25.` ` In the Second Further Notice the Commission sought comment on whether  e 2selective override should be mandated as NAB requests  8> xP (ԍNAB requests that the Commission amend its EAS rules to provide for selective override of particular  xPX!(channels carried over a cable system. NAB suggests that the Commission adopt a policy that would require cable operators to not transmit the EAS message on channels carrying broadcast stations when such stations certify to the cable system that they meet the following requirements: (1)originate local news programs at the studio facility; (2)have weather equipment at the studio facility to support the stations' weather department; (3)have the ability to run video crawls over network or local programming to advise the public of weather"x$ 0*%%Z$" conditions or other public emergencies and; (4)the station's master control center is manned at all times when the station is ontheair. or if the current rule permitting"   0*%%[[ "  e2written agreements to not override a broadcasters signal is sufficient.^ > zP(ԍSecond Further Notice at  6. ^ NAB suggests that the Commission adopt a policy that would require cable operators to not transmit the EAS 6message on channels carrying broadcast stations when such stations certify to the cable  e2system that they meet the following requirements:> zP (ԍId.::  (1)originate local news programs at the studio facility; 6 (2)have weather equipment at the studio facility to support the stations' weather department; (3)have the ability to run video crawls over network or local programming to advise the public of weather conditions or other public emergencies and; (4)the station's master control center is manned at all times when the station is ontheair. We also sought comment as to whether such a proposal would satisfy the requirements of Section 624(g) of the Communications Act.  e2Selective Override   eb26.` ` In comments submitted in response to the Second Further Notice, NAB restates arguments it raised in previous filings that requiring or permitting cable EAS messages to preempt broadcast signals violates Section 111(c)(3) of the Copyright Act and the must carry  e2provisions set forth in Section 614(b)(3)(A) of the Communications Act.D> xP(ԍComments of NAB, April 20, 1998, at 411 and n.6. Section 111(c)(3) of the Copyright Act provides that an infringement occurs "if the content of the particular program ... or any commercial advertising or station announcements transmitted by the primary transmitter ... is in any way willfully altered by the cable systems through changes, deletions, or additions ...." 17 U.S.C.  111(c)(3). The must carry provisions provide that when a cable operator carries a local station, it must carry the primary audio and video in their entirety and may not delete programming unless required by Commission rules. 47 U.S.C.  534(b)(3); 47 C.F.R.  76.62.NABNAB NAB NAB further contends that local broadcast station programming is exempt from the 1992 Cable Act's requirement that cable systems provide emergency information to their subscribers. According to NAB, that statutory mandate was directed only at cable's nonbroadcast video  e2programming (e.g., Lifetime, Discovery, HBO, CNN), which had not participated in the" 0*%%[["  e2former Emergency Broadcast System.B> zPy(ԍId. at 46.B NAB argues that "the law should have no effect"  e2where cable subscribers are viewing local broadcast stations.:Z> zP(ԍId.: NAB additionally urges the Commission to preempt provisions of cable television franchise agreements that require emergency messaging over all cable channels, claiming that the information provided by  e2broadcasters is superior to that provided by cable systems.A> zPA (ԍId. at 19.A NAB also contends that the Commission's rules allowing cable operators and broadcasters to enter into written agreements  ev2to institute selective overrides?v~> xP (ԍSections 11.51(g)(4) and (h)(4) of the Commission's Rules, 47 C.F.R. 11.51(g)(4) and (h)(4), provide that "Cable systems and wireless cable systems may elect not to interrupt EAS messages from broadcast stations based upon a written agreement between all concerned. Further, cable systems and wireless cable systems may elect not to interrupt the programming of a broadcast station carrying news or weather related emergency information with state and local EAS messages based on a written agreement between all parties."? are "unworkable" because some broadcasters would have to  e_2negotiate with hundreds of cable systems to implement such procedures.__. > zP>(ԍNAB supra, note  NAB15 , at 34._ CBS Corporation also supported mandatory selective overrides and expressed concern that viewers will lose access to emergency programming provided by broadcast stations if cable systems interrupt  e 2programming with EAS messages.c > xP(ԍComments of CBS Corporation, April 17, 1998, at 3.c Other commenters note that due in part to the information gathering resources available at many broadcast stations, television broadcasters will be able to provide the latest emergency information when emergencies occur in their  e 2broadcast coverage area. X P > xP(ԍComments of WJETTV, April 21, 1998 at 2; Texas Broadcasters Association, the Missouri Broadcasters Association, the Minnesota Broadcasters Association, and the California Broadcasters Association, April 21, 1998 at 4.  WJET  Several commenters noted that broadcast stations invest significant  e 2resources in developing local news and weather coverage."X p> xP(ԍComments of Broadcasters' Joint Comments, April 20, 1998, at 4. WCIA states they spend more then $25,000 annually to purchase Doppler radar images and other data. The station also obtains data from the National Weather Service (NWS). at 3."BROADCASTERS JOINT WJETTV's comments were typical of many who contend that coverage of emergency events may be severely hampered if  e2interrupted by an EAS alert transmitted by a cable system.> zP#(ԍWJETTV, supra note  WJET22  at 2. State and local EAS messages are intended to alert the public of a potential emergency in order to allow them to seek addition information or take protective action. The Joint Broadcasters comment"0*%%[[" that program interruption has occurred when their signals have been interrupted on cable systems by messages sent to cable subscribers that replace normal programming with blank  e2screens and an audio message.> zPK(ԍ Broadcasters Joint Comments supra note BROADCASTERS JOINT23, at 7.  e27.` ` Time Warner, among other cable television entities, opposed mandatory selective override and stated that channel overrides will actually deprive many viewers of local emergency alerts. They point out that broadcasters transmit state and local EAS messages on a voluntary basis, and in some instances may not send information to their  eH2viewers.^HZ> xPS (ԍComments of Time Warner April 20, 1998, at 6.^TIME WARNERTIME WARNERTIME WARNERTIME WARNERTIME WARNERTIME_WARNER Additionally, they contend that mandatory channel override rules could result in cable subscribers watching broadcast stations on a cable system from ever viewing any emergency information if the local broadcaster does not provide it. Armstrong Cable Services and Intermountain Cable, Inc. state that adoption of mandatory selective override will force cable operators to violate franchise agreements because of their franchise agreement  e 2requirements to cover local emergencies. > xPp(ԍComments of Armstrong Cable Services and Intermountain Cable, Inc., April 20, 1998, at 5. Further, Time Warner comments that many cable franchise authorities require allchannel override to provide local emergency information and that cable operators would have to install two separate sets of switch closures to meet the  e2local franchise authority requirement and a mandatory selective override.mz> zP(ԍTime Warner supra note TIME WARNER26, at 10.m Several commenters state that cable subscribers that are located out of the normal reception area of a broadcast station may also be deprived of local messages when viewing the broadcast station  eK2on their cable system.K > xP(ԍComments of Safety Alert Monitor (SAM) at 1; National Cable Television Association (NCTA) at 78; MediaOne Inc at 2.   e28.` ` Additionally, the Commission received ex parte comments from local  e2government entities objecting to the proposal to mandate selective override.wd > zP(ԍSee Appendix C for a complete list of ex parte commenters.w Central Virginia National Disaster Medical System's (Central Virginia) comments were typical of the objections to the proposal. Central Virginia stated that the proposal would prevent cable television viewers from receiving emergency announcements from their local public  e2safety/emergency management authorities. > xPQ$(ԍComments of Central Virginia National Disaster Medical System, Richmond, Virginia, June 29, 1998. It is Central Virginia's contention that emergency" 0*%%[[H"  e2information on television stations can be helpful but is mainly weather related.@ > zPy(ԍId. at 2.@ Central Virginia claims that local emergency alerts are used for hazardous materials spills, prison escapes and local snow emergencies, among other things, and that television stations do not cover these local emergencies because the station serves hundreds of communities and do not  e2cover local emergencies that affect only one community.:!Z> zP(ԍId.: Central Virginia states that the decision to provide an emergency alert for local conditions should be a determination left up  ev2to each municipal emergency management authority on a casebycase basis, as reflected(#(#  e_2in their cable franchise.:"_> zP (ԍId.: Finally, the National Weather Service stated that it objects to the proposed mandatory selective override because it will impair the ability of local emergency  e12management personnel to protect the public from natural disasters.p#1~> xP`(ԍComments of the National Weather Service dated August 19, 1998.p    e 29.` ` Comments filed by the National League of Cities and municipalities and municipal organizations in seven states (National League of Cities), representing more than 17,000 municipalities, and additional municipalities in seven states objected to the proposal to  e 2mandate selective override because of the harm it could cause municipalities.$ > xP}(ԍComments of the National League of Cities and municipalities and municipal organizations in seven states (National League of Cities) at 3. LEAGUE NATIONAL LEAGUE The National League of Cities states that the principal focus of its comments is related to the effects that mandating selective override would have on Local Emergency Notification Systems provided  ey2for in cable franchises.%yf > xP(ԍThe National League of Cities uses the term Local Emergency Notification Systems to refer to local emergency systems provided for by a cable franchise. Comments of the National League of Cities at n. 2. They argue, however, that the proposed rule change would also  eb2cause cable television subscribers to miss "Federal" EAS messages.& b > xP(ԍComments of the National League of Cities at 6. The Emergency Alert System requires participating broadcast stations and all cable television systems to transmit the national EAS message and required test messages. All broadcast stations and cable television systems are permitted to voluntarily transmit state and local EAS messages.LEAGUE OF CITIES  e42 10.` ` The National League of Cities states that one vital public safety function of local government is immediate notification to the public of local emergencies and that cable television systems are a prime means for local public safety officials to notify residents of an"&0*%%[["  e2emergency.@'> zPy(ԍId. at 7.@ They additionally note that cable franchise authorities typically provide for Local Emergency Notification Systems that are used by local public safety authorities for a wide variety of local emergencies such as toxic chemical spills or local road restrictions that  e2may not be covered by a television station.;(Z> zP(ԍ Id.; Further, the National League of Cities claims that thousands of lives will be lost if Local Emergency Notification Systems cannot be used  e2in local emergency situations.:)> zP* (ԍId.: The FCC Local and State Government Advisory Committee  ev2(LSGAC) echoed similar concerns.*v~> xP (ԍ Comments of the Federal Communications Commission Local and State Government Advisory Committee (LSGAC), Advisory Recommendation No. 12 (adopted October 30, 1998). According to the LSGAC, the present system, which allows brief interruption of all cable programming to deliver emergency messages, is critical in assisting local government to quickly reach large groups of people during emergency situations. LSGAC contends that selective override would "result in dilution of the government's ability to circulate public safety bulletins to the public" and would have a  e 2"detrimental effect on local government's ability to address public safety issues."R+ > zP(ԍId. at  3, 4 and 6.R LSGAC contends that "the individual franchising authority is in the best position to decide what  e 2emergency message to convey" to the local community.E, h > zP(ԍId. at  6.E LSGAC also points out that the present emergency alert system "does not provide for an extended, unilateral takeover of a  e 2broadcast, preempting programming for an entire day or evening."E- > zPR(ԍId. at  3.E Rather, according to LSGAC, the two minute messages relayed by cable operators "are not unreasonable  ey2impositions on broadcasters, considering the importance of the public hearing the message.";.y > zP(ԍId. ; LSGAC states that the "message from the government is important, not how the broadcasters dress it up" and that current regulations do not prevent broadcasters "from delivering the  e42glossy message that is discussed in their filings."D/4> zP"(ԍId. at 2.D  e2 11.` ` The National League of Cities also argues that the Commission has no statutory authority to preempt existing cable franchise provisions requiring all channel Local"/0*%%[[,"  e2Emergency Notification Systems.0> zPy(ԍNational League of Cities supra note NATIONAL LEAGUE36, at 13. They contend that cable television franchise renewals are governed by Section 626 of the Cable Act and that a community's determination that an allchannel Local Emergency Notification System is necessary to meet community needs and  e2interests is dispositive unless appealed to the local courts.:1Z> zP(ԍId.:  e26Implementation Costs  e_2 12.` ` The Commission requested specific comment on the additional cost to install  eH2equipment that has the capacity for selective override.W2H> zP (ԍSecond Further Notice at  8.W We noted that the record contains a6  e12wide disparity in the estimated costs.31~> zP`(ЍSee NAB's May 21 letter, supra note  N218 . In this letter NAB listed two manufacturers cost estimates for cable override switches, one selective channel override system for a 70 channel trunk switched cable system costing $7,000 and a second for an 80 channel cable system with individual channel switches costing $8,000. Time Warner Entertainment Company (Time Warner) stated that selective override equipment is prohibitively expensive and would make many override systems obsolete. Opposition to Petition for Partial Reconsideration, Time Warner Entertainment Company, L.P., Washington, D.C., February 23, 1995, at 24. Part of the disparity in estimated costs, according to several commenters, may be due to the different types of installed infrastructure at existing  e 2cable television systems.4" > zP(ԍSee comments of National Association of Broadcasters at 19; National Cable Television Association and Cable Telecommunications Association (NCTA) at 13; and Ameritech at 6. Additional per channel cost indicated for cable systems in comments was between $100 (NAB) and $995 (NCTA). Ameritech, which will use nontraditional headend equipment quotes a possible implementation cost of $100,000. NAB,AMERITECH,NCTANAB,AMERITECH,NCTAAdditionally, Time Warner claims that cable systems also vary  e 2widely in the amount of equipment needed to comply with a selective override rule.k5 > zP(ԍTime Warner supra note TIME_WARNER26 at 8.k In many cases channel deletion filters will be needed to prevent the display of an EAS message  e 2on channels carrying broadcast stations.6 t> zP(ԍSee Declaration of Andy Scott, NCTA comments, supra note NAB,AMERITECH,NCTA52, and comments of Safety Alert Monitor, April 16, 1998, at 1. These filters have an estimated cost between $100  e 2and $1,000 apiece.z7 > zP&"(ԍNAB, NCTA, and Ameritech supra note NAB,AMERITECH,NCTA52.z NCTA claims that cable systems not originally designed to accept  e2channel overrides may also incur additional maintenance costs.8`> zP$(ԍSee Declaration of Andy Scott, NCTA supra note NAB,AMERITECH,NCTA52. The Small Cable Business" 80*%%[[" Administration (SCBA) claims that smaller systems would more likely incur more significant  e2economic impact due to economies of scale.9> xPb(ԍReply comments of Small Cable Business Administration (SCBA), May 4, 1998, at 67.  e2 13.` ` Decision. After carefully considering the record in this proceeding, we decline to mandate selective channel overrides at this time. We agree that many broadcast stations undeniably provide valuable emergency related information and help save life and property. The record suggests however, in certain circumstances, cable systems may be better suited to provide necessary emergency information to local communities. For instance, the record indicates that many local governments view cable television systems as a primary means of notifying residents about local emergencies since municipalities can control such emergency  e 2notifications through cable franchise agreements: X> zP# (ԍNational League of Cities, supra note LEAGUE OF CITIES38, at 7; ex parte comments of City of Leon Valley, June 25,  zP (1998, at 2; ex parte comments of City of Rockwall, June 24, 1998. control they do not have over  e 2broadcasters.@; > zPh(ԍ Id.@ The record further suggests that because broadcast stations often serve a wide coverage area crossing hundreds of communities, they may not cover local emergencies that  e 2affect only a single community.O< F> zP(ԍSee 8, supra.O By contrast, cable franchise agreements frequently require  e 2local cable systems to cover all local emergencies.:= > zPG(ԍId.: Additionally, many local governments consider cable television systems to be a primary means for alerting local residents of nonweather related emergencies, such as hazardous materials spills or local road restrictions, which tend to affect a more confined area than weatherrelated emergencies and therefore  eb2may not be covered by an area TV station.V>bj > zP}(ԍSee 10, supra.V Whether selective override is beneficial may depend upon local facts and circumstances. For that reason, we believe voluntary selective  e42override is preferable to a mandatory scheme. As held in the First R&O, the Commission  e2currently regulates only National emergency messaging under the EAS.)?Z > zP(ԍReport and Order and Further Notice of Proposed Rule Making (First R&O), Amendment of Part 73, Subpart G, of the Commission's Rules Regarding the Emergency Broadcast System, FO Docket Nos. 91171/91301, 10 FCC Rcd 1786 (1994)., at 1809) State and local EAS messages may be sent on a voluntary basis when the EAS system is not in use during" ?0*%%[["  e2National emergencies.@> xPy(ԍSections 11.51(a),11.51(g) and 11.51(h) 47 C.F.R.  11.51(a), 11.51(g), 11.51(h), specifies that all EAS participants transmit EAS National messages and EAS tests. Neither NAB nor any commenters supporting NAB's proposal have raised a compelling basis for changing our existing policy by regulating local EAS messages through mandatory selective override.  e2 14.` ` Our Memorandum Opinion and Order already resolved the copyright and mustcarry issues raised by NAB, by rejecting NAB's contention that a cable's EAS interruption of a broadcast retransmission violates the Copyright Act and the must carry provisions set forth  e_2in Section 614(b)(3)(A) of the Communications Act.~A_ > zP0 (ԍMemorandum Opinion and Order, 10 FCC Rcd 11494 (1525) (1995).~ MO&O  MO&O  We find our analysis in the  eH2Memorandum Opinion and Order is still valid and again reject NAB's arguments on these points. Furthermore, we find no merit in NAB's assertion that local broadcast stations must be exempted from the statutory requirement that cable systems provide emergency information to their subscribers. Neither the plain language of the statute nor the legislative history support such a mandatory exemption. Section 624(g) requires that each cable operator ensure that viewers of video programming on cable systems are afforded emergency  e 2information.qB > xP!(ԍSection 624(g) of the Communications Act, 47 U.S.C.  544(g).q Nowhere in the statutory language or legislative history is there a requirement that broadcast programming transmitted over cable systems be exempt from the EAS requirements of Section 624(g) simply because such broadcast programming is subject to its own EAS requirements.  eK215.` ` We therefore decline to preempt provisions of cable television franchise agreements that require emergency messaging over all cable channels. Neither NAB nor the other commenters supporting mandatory selective override have provided sufficient grounds  e2for overturning our decision in the Second R&O not to preempt existing franchise agreements that require emergency alerting for local conditions. To the contrary, the record in this proceeding continues to support our finding that "franchising officials are most familiar with local conditions and threats to their communities as well as the types of emergency information needed to respond to such threats. They are also best suited to work within their  e2communities to develop state and local emergency alerting plans."MCB> zP (ԍSecond R&O at  33.M   ee216.` ` Finally, we find that the Commission's rules allowing cable operators and broadcasters to enter into written agreements to institute selective overrides provide participants sufficient flexibility in serving their audience while meeting obligations prescribed"7 C0*%%[[D"  e2by Congress.D> xPy(ԍSections 11.51(g)(4) and (h)(4) of the Commission's Rules, 47 C.F.R. 11.51(g)(4) and (h)(4). We find no merit in NAB's contention that negotiations with a multitude of different cable systems would make the rules "unworkable" for broadcast stations.  e2` ` | IV. CONCLUSION ă  e217.` ` After carefully considering the NAB's request, we find that mandating selective channel override is inappropriate at this time. Therefore, we are declining to adopt rules that would require the mandatory selective override of broadcast stations by cable television systems.  e 2 V. PROCEDURAL MATTERS  e 26  e 218.` ` Final Regulatory Flexibility Analysis. In this Third Report and Order we have determined not to promulgate any final rules, therefore no final Regulatory Act analysis is required. " XD0*%%[[ "  e2 VI. ORDERING CLAUSES Đ6  e219.X` hp x (#%'0*,.8135@8: