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Before the
Federal Communications Commission
Washington, DC 20554
)
In the Matter of
)
Keith Grabowsky
)
Craigslist PostingID 3232994458 File No.: EB-SED-12-00004532
)
Philadelphia Craigslist
(Pennsylvania) )
)
CITATION AND ORDER
ILLEGAL MARKETING AND OPERATION OF SIGNAL JAMMING DEVICE
Adopted: October 15, 2012 Released: October 15, 2012
By the Chief, Spectrum Enforcement Division, Enforcement Bureau:
I. INTRODUCTION
1. This is an official CITATION AND ORDER (Citation) issued pursuant to
Section 503(b)(5) of the Communications Act of 1934, as amended
(Communications Act), to Keith Grabowsky (Mr. Grabowsky or "you") for
marketing an illegal signal jamming device (jamming device or jammer)
by repeatedly posting a classified advertisement for the device on
Craigslist.org in willful and repeated violation of Section 302(b) of
the Communications Act and Sections 2.803 and 15.201(b) of the Federal
Communications Commission (Commission or FCC) rules (Rules). This
Citation also finds that Mr. Grabowsky operated an illegal jamming
device in violation of Sections 301, 302, and 333 of the
Communications Act.
2. Jamming devices, such as cell phone jammers and GPS blockers, pose
serious risks to critical public safety communications and can prevent
individuals from making 9-1-1 and other emergency calls. Jammers can
also interfere with law enforcement communications. You should take
immediate steps to come into compliance and to avoid any recurrence of
this misconduct. For example, any operation of the signal jammer must
cease immediately, and you are strongly encouraged to voluntarily
relinquish the illegal jamming device. You also may not advertise
jamming devices for sale to any consumer in the United States through
Craigslist or through any other means.
3. We emphasize that the mere posting of a jamming device for sale on
Craigslist or any other online site or bulletin board targeting U.S.
consumers contravenes federal law. Consistent with this federal
prohibition, Craigslist expressly bars the sale and advertisement of
signal jamming devices on its site. Therefore, you have not only
violated federal law, but also contravened the contractual agreement
that governs your use of Craigslist. We will forward a copy of this
Citation to Craigslist for any action it may find appropriate under
the Craigslist Terms of Use.
4. As explained below and as provided in the Communications Act, future
violations of the Rules in this regard may subject you to substantial
monetary penalties, seizure of equipment, and criminal sanctions.
Pursuant to Sections 4(i), 4(j), and 403 of the Communications Act, we
also direct you to:
* confirm within fifteen (15) calendar days after the release date of
this Citation that you have ceased marketing and operating any jamming
device;
* provide information concerning the source(s) from which you purchased
or received the jamming device you advertised on Craigslist as well as
any other jamming devices you may have, or previously may have had, in
your possession; and
* provide information concerning any jammer sales that you may have
made.
II. background
5. On August 27, 2012, the Spectrum Enforcement Division of the
Enforcement Bureau (Bureau), through its market surveillance efforts,
observed an advertisement for a jamming device on Craigslist. The
advertisement was titled "cell phone jammer, wifi jammer - $300 (PA)"
and read:
email me with questions., pictures. Because of the nature of this item,
few details are given out. This is not a toy. For adult use only. I just
want to get rid of it as fast as possible. [sic]
6. Later that day, Bureau staff responded to the Craigslist posting via
email and inquired about the jamming device. Mr. Grabowsky replied via
email on August 27, 2012, describing various features and operating
characteristics of the jammer such as the size ("largest pocket one
that you can get"), battery recharge times (the jammer "can hold
charge for 1 - 3 hours"), and operating temperature, noting that "[i]t
does get hot" when used. Mr. Grabowsky also mentioned that this jammer
was a "really expensive unit that comes with a leather case to stop it
from heating up." Mr. Grabowsky again solicited the undercover agent,
asking if the transaction could be completed that same day and noting
that he wanted to "sell it asap."
III. applicable law and violations
A. Marketing and operation of jammers prohibited by federal law
7. Federal law prohibits the advertising, sale, and operation of jamming
devices in the United States and its territories. Section 301 of the
Communications Act prohibits the use or operation of "any apparatus
for the transmission of energy or communications or signals by radio"
within the United States unless such use is licensed or authorized.
Section 333 of the Communications Act states that "[n]o person shall
willfully or maliciously interfere with or cause interference to any
radio communications of any station licensed or authorized by or under
this Act or operated by the United States Government." In addition,
Section 302(b) of the Communications Act provides that "[n]o person
shall manufacture, import, sell, offer for sale, or ship devices or
home electronic equipment and systems, or use devices, which fail to
comply with regulations promulgated pursuant to this section."
8. The applicable implementing regulations for Section 302(b) are set
forth in Sections 2.803, 15.201, and 15.3(o) of the Rules. Section
2.803(a)(1) of the Rules provides that:
no person shall sell or lease, or offer for sale or lease (including
advertising for sale or lease), or import, ship, or distribute for the
purpose of selling or leasing or offering for sale or lease, any radio
frequency device unless . . . [i]n the case of a device subject to
certification, such device has been authorized by the Commission in
accordance with the rules in this chapter and is properly identified and
labeled as required by S: 2.925 and other relevant sections in this
chapter.
Additionally, Section 2.803(g) of the Rules provides in relevant part
that:
[R]adio frequency devices that could not be authorized or legally operated
under the current rules . . . shall not be operated, advertised,
displayed, offered for sale or lease, sold or leased, or otherwise
marketed absent a license issued under part 5 of this chapter or a special
temporary authorization issued by the Commission.
9. Pursuant to Section 15.201(b) of the Rules, intentional radiators like
jamming devices cannot be marketed in the United States or its
territories unless they have first been authorized in accordance with
the Commission's certification procedures. Section 2.803(e)(4) of the
Rules defines "marketing" as the "sale or lease, or offering for sale
or lease, including advertising for sale or lease, or importation,
shipment or distribution for the purpose of selling or leasing or
offering for sale or lease."
10. Jamming devices, however, cannot be certified or authorized because
their primary purpose is to block or interfere with authorized radio
communications. Thus, jamming devices such as the one offered on
Craigslist by Mr. Grabowsky cannot comply with the FCC's technical
standards and therefore cannot be marketed lawfully in the United
States or its territories.
A. Illegal signal jammer advertisement on Craigslist
11. The evidence indicates that Mr. Grabowsky was illegally marketing a
jamming device to consumers in the United States. As noted above,
beginning on August 27, 2012, Mr. Grabowsky advertised a cell phone
and wifi jammer on Craigslist. Craigslist is a classified
advertisements website, generally involving an online listing for a
product or service followed by an email or telephone exchange and an
in-person meeting between the buyer and seller. Craigslist users are
prohibited from posting advertisements to multiple geographic areas.
Consistent with this policy, Mr. Grabowsky posted his jammer
advertisements on one of more than 300 local sites on Craigslist-the
Philadelphia, Pennsylvania site, available at
http://philadelphia.craigslist.org. These illegal online offers for
sale were repeated in email correspondence with Bureau staff, where
Mr. Grabowsky confirmed that he was still marketing the jammer.
12. We note that both the Craigslist Terms of Use and the Craigslist
Prohibited Items List prohibit the sale and advertisement of cell
phone jammers, GPS blockers, and other signal jamming devices. The
Craigslist Terms of Use states: "Content prohibited from craigslist
includes but is not limited to: . . . content in facilitation of the
creation, advertising, distribution, provision or receipt of illegal
goods or services." The Craigslist Prohibited Items List then applies
this policy directly to signal jamming devices, noting that "[i]llegal
telecommunications equipment, including . . . signal jamming devices,"
is "not permitted on craigslist."
13. Accordingly, we find that Mr. Grabowsky has willfully and repeatedly
violated Section 302(b) of the Communications Act and Sections 2.803
and 15.201(b) of the Rules by marketing in the United States a radio
frequency device that is not eligible for certification. Further, the
nature of his ad suggests that Mr. Grabowsky was aware of the
sensitive, and/or illegal nature of the device he was offering for
sale on Craigslist. We therefore issue this Citation to Mr. Grabowsky
for violating the Communications Act and the Rules as discussed above.
Jamming devices pose significant risks to public safety and
potentially compromise other radio communications services. Mr.
Grabowsky should take immediate steps to ensure that he does not
continue to market jamming devices in the United States or its
territories, including on Craigslist.
A. Unlawful operation of signal jamming device
14. Mr. Grabowsky also appears to have operated the jamming device at
issue in the Craigslist posting. As detailed above, the operation of a
jammer by an individual consumer, even on private property, is per se
unlawful. This means that it is illegal for a consumer to use a jammer
on mass transit (e.g., train, bus) or in a residence, vehicle, school,
theater, restaurant or in any other public or private place. We
therefore find that Mr. Grabowsky has illegally operated a jamming
device in violation of Section 301, 302(b) and 333 of the
Communications Act. Operation of this device or any other jamming
device must cease immediately.
15. We are increasingly concerned that individual consumers who operate
jamming devices do not appear to understand the potentially grave
consequences of using a jammer. Instead, these operators incorrectly
assume that their illegal operation is justified by personal
convenience or should otherwise be excused. While we previously have
issued warnings to such operators in the first instance-primarily
because non-monetary penalties historically have proven effective in
deterring unlawful operation by individuals-we are not required to do
so. We are mindful of the serious risks posed by jamming devices and
the apparent need to provide greater incentives for individual
operators to cease the operation, importation, and sale of jamming
devices altogether. Therefore, we caution you and other potential
violators that going forward, and as circumstances warrant, we intend
to impose substantial monetary penalties, rather than (or in addition
to) warnings, on individuals who operate a jammer. Furthermore, the
issuance of the instant Citation does not preclude the Commission from
taking additional enforcement action in this case.
16. We again emphasize that if any jamming device remains within your
possession or control, you are strongly urged to contact the Bureau to
arrange to voluntarily relinquish the jammer. Except for the very
limited context of authorized, official use by the federal government,
jamming devices have no legal use in the United States. The Bureau's
contact information is provided in paragraph 20 below.
IV. FUTURE COMPLIANCE
17. If after receipt of this Citation, Mr. Grabowsky violates the
Communications Act or the Rules by marketing or operating an
unauthorized radio frequency device within the United States or its
territories, or otherwise engaging in conduct of the type described
herein, the Commission may impose monetary forfeitures of up to
$16,000 for each such violation or, in the case of a continuing
violation, the Commission may impose monetary forfeitures of up to
$16,000 for each day of such continuing violation up to a maximum
forfeiture of $112,500 for any single act or failure to act. For
instance, the Commission could impose separate forfeitures for each
signal jammer sold and/or for each day on which a signal jammer is
operated, advertised, or otherwise offered for sale. Violations of the
Communications Act or the Rules can also result in seizure of
equipment through in rem forfeiture actions, as well as criminal
sanctions, including imprisonment.
18. In addition to providing the required information described in
paragraph 22 below, you may respond to this Citation either through
(1) a personal interview at the closest FCC office, which must take
place within thirty (30) calendar days of the release date of this
Citation, or (2) submission of a written statement, within fifteen
(15) calendar days after the release date of this Citation. Any
written statement should specify the actions you have taken to ensure
that you do not violate the Communications Act or the Rules governing
the marketing or operation of jamming devices in the future. Please
reference file number EB-SED-12-00004532 when corresponding with the
Commission.
19. Under the Privacy Act of 1974, any statement or information you
provide may be used by the Commission to determine if further
enforcement action is required. Section 1.17 of the Rules also
requires that you provide truthful and accurate statements to the
Commission. Any knowingly or willfully false statement, or concealment
of any material fact, made in reply to this Citation is punishable by
fine or imprisonment.
V. CONTACT INFORMATION
20. The closest FCC office is the Philadelphia, Pennsylvania office. You
may contact the Spectrum Enforcement Division by telephone,
202-418-1160, to schedule an interview, which must take place within
thirty (30) calendar days after the release date of this Citation. You
should send any written statement within fifteen (15) calendar days
after the release date of this Citation to:
John D. Poutasse
Chief, Spectrum Enforcement Division
Enforcement Bureau
Federal Communications Commission
445 12th Street, SW, Rm. 3-C366
Washington, DC 20554
Re: EB File No.: EB-SED-12-00004532
21. Reasonable accommodations for people with disabilities are available
upon request. Include a description of the accommodation needed,
including as much detail as possible. Also include a way we can
contact you if we need more information. Please allow at least five
(5) calendar days advance notice; last minute requests will be
accepted, but may be impossible to fill. Requests may be submitted by
email to fcc504@fcc.gov or by phone to the Commission's Consumer &
Governmental Affairs Bureau:
For sign language interpreters, CART, and other reasonable accommodations:
202-418-0530 (voice), 202-418-0432 (tty);
For accessible format materials (braille, large print, electronic files,
and audio format):
202-418-0531 (voice), 202-418-7365 (tty).
VI. REQUEST FOR INFORMATION
22. Pursuant to Sections 4(i), 4(j), and 403 of the Communications Act,
you are directed to provide the information requested in the
non-public Appendix C hereto within fifteen (15) calendar days after
the release date of this Citation. The Request for Information
concerns your jamming device supplier(s) and sale(s) as well as the
disposition of any jamming devices in your possession. Failure to
respond to the Request for Information, or an inadequate, incomplete,
or misleading response, may subject you to additional sanctions.
VII. ORDERING CLAUSES
23. IT IS ORDERED that pursuant to Sections 4(i), 4(j), and 403 of the
Communications Act of 1934, as amended, Keith Grabowsky must provide
the information requested in paragraphs 4 and 22, as well as the
non-public Appendix C to this Citation and Order. The response to the
Request for Information must be provided in the manner indicated
herein and must be received by the FCC within fifteen (15) calendar
days after the release date of this Citation and Order.
24. IT IS FURTHER ORDERED that a copy of this Citation and Order shall be
sent by email, First Class U.S. Mail, and Certified Mail, to Keith
Grabowsky to his addresses of record.
FEDERAL COMMUNICATIONS COMMISSION
John D. Poutasse
Chief, Spectrum Enforcement Division
Enforcement Bureau
APPENDIX A
Illegal Jammer Advertisement on Craigslist
APPENDIX B
Craigslist Prohibited Items List
47 U.S.C. S: 503(b)(5).
See http://philadelphia.craigslist.org/ele/3232994458.html dated August
27, 2012 (last visited Aug. 27, 2012). Craigslist.org (Craigslist) is a
website with classified ads and forums devoted to jobs, housing,
personals, goods, services, and local activities. See
http://www.craigslist.org/about/factsheet (last visited Oct. 4, 2012).
47 U.S.C. S: 302a(b).
47 C.F.R. S:S: 2.803, 15.201(b).
47 U.S.C. S:S: 301, 302, 333; see also 47 C.F.R. S: 15.1(c).
See http://www.craigslist.org/about/prohibited.items (last visited July
30, 2012).
47 U.S.C. S:S: 154(i), 154(j), 403.
See http://philadelphia.craigslist.org/ele/3232994458.html dated August
27, 2012 (last visited Aug. 27, 2012). The jammer advertisement was posted
again on September 14, 2012 using the same title, description, and
postingID. See http://philadelphia.craigslist.org/ele/3232994458.html
(last visited Sept. 17, 2012). A copy of these illegal advertisements is
attached hereto as Appendix A.
Id.
Email to Keith Grabowsky (Aug. 27, 2012, 15:29 EST) (on file in
EB-SED-12-00004532).
Email from Keith Grabowsky (Aug. 27, 2012 15:52 EST) (on file in
EB-SED-12-00004532).
Id.
Email from Keith Grabowsky (Aug. 28, 2012 09:00 EST) (on file in
EB-SED-12-00004532) (Grabowsky Aug. 28 Email Reply).
47 U.S.C. S: 301.
Id. S: 333.
Id. S: 302a(b).
47 C.F.R. S:S: 2.803, 15.201, 15.3(o).
Id. S: 2.803(a)(1) (emphasis added).
Id. S: 2.803(g) (emphasis added).
Id. S: 15.201(b).
An "intentional radiator" is a "device that intentionally generates and
emits radio frequency energy by radiation or induction." Id. S: 15.3(o).
Id. S: 2.803(e)(4).
In very limited circumstances and consistent with applicable procurement
requirements, individuals and/or entities may market jamming devices to
the U.S. federal government for authorized, official use. See 47 U.S.C. S:
302a(c); 47 C.F.R. S: 2.807(d).
See Appendix A.
See Craigslist Terms of Use, Section 4a, Postings,
http://www.craigslist.org/about/terms.of.use (last visited July 31, 2012)
(noting that "craigslist is intended and designed as a local service.").
Craigslist permits an individual to post free classified advertisements
for goods and services, and through its anonymize email feature,
facilitates communications between the seller and the potential buyer. See
http://www.craigslist.org/about/anonymize (last visited Aug. 9, 2012)
(stating that if a seller selects the anonymize feature, the posting will
display a Craigslist email address and that Craigslist will relay any
messages sent to that address to the seller's email address).
See Craigslist Terms of Use, Section 4a, Postings,
http://www.craigslist.org/about/terms.of.use (last visited July 31, 2012)
(noting also that "a user may post content only to the single specific
geographic area offered on craigslist (see
http://www.craigslist.org/about/sites) for which that content is most
relevant" and that "[t]he same or substantially similar content (for
example, an ad for a particular item or service, a particular offer, a
particular message or a particular comment) may not be posted to or
communicated via more than one such geographic area. Content that is
equally relevant to multiple (i.e., more than one) geographic areas should
not be posted on craigslist.").
See Grabowsky Aug. 28 Email Reply (on file in EB-SED-12-00004532).
See Craigslist Terms of Use, Section 3a, Content,
http://www.craigslist.org/about/terms.of.use (last visited July 31, 2012).
See http://www.craigslist.org/about/prohibited.items (emphasis added)
(last visited July 30, 2012), attached hereto as Appendix B.
See supra text accompanying note 9 (explaining that "[b]ecause of the
nature of this item, few details are given out . . . I just want to get
rid of it as fast as possible").
See supra text accompanying note 11.
See 47 C.F.R. S: 15.5(c).
The illegal use of a signal jamming device within the United States may be
reported to the FCC at http://www.fcc.gov.complaints. For Frequently Asked
Questions and other information regarding the illegal marketing or use of
cell phone jammers, GPS blockers, and other signal jamming devices, please
consult the FCC's jammer enforcement webpage at
http://www.fcc.gov/jammers.
See 47 U.S.C. S: 503; 47 C.F.R. S: 1.80(b)(3). These amounts are subject
to further adjustment for inflation and the forfeiture amount applicable
to any violation will be determined based on the statutory amount
designated at the time of the violation. See 47 C.F.R. S: 1.80(b)(5).
See 47 U.S.C. S: 510.
See id. S:S: 401, 501.
See Privacy Act of 1974, 5 U.S.C. S: 552a(e)(3).
See 47 C.F.R. S: 1.17 ("[N]o person subject to this rule shall[:] (1) In
any written or oral statement of fact, intentionally provide material
factual information that is incorrect or intentionally omit material
information that is necessary to prevent any material factual statement
that is made from being incorrect or misleading; and (2) In any written
statement of fact, provide material factual information that is incorrect
or omit material information that is necessary to prevent any material
factual statement that is made from being incorrect or misleading without
a reasonable basis for believing that any such material factual statement
is correct and not misleading.").
See 18 U.S.C. S: 1001 et seq.
47 U.S.C. S:S: 154(i), 154(j), 403.
See, e.g., SBC Communications, Inc., Apparent Liability for Forfeiture,
Forfeiture Order, 17 FCC Rcd 7589 (2002) ($100,000 forfeiture for refusing
to attest to truthfulness and accuracy of responses to a Bureau letter of
inquiry); Connect Paging, Inc. d/b/a Get A Phone, Forfeiture Order, 22 FCC
Rcd 15146 (Enf. Bur. 2007) ($4,000 forfeiture for failure to respond to a
Bureau letter of inquiry); BigZoo.Com Corporation, Order of Forfeiture, 20
FCC Rcd 3954 (Enf. Bur. 2005) ($20,000 forfeiture for failure to respond
to an LOI); Donald W. Kaminski, Jr., Forfeiture Order, 18 FCC Rcd 26065
(Enf. Bur. 2003) ($4,000 forfeiture for failure to respond to a Bureau
letter of inquiry).
Federal Communications Commission DA 12-1610
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