Federal Register, Volume 85 Issue 215 (Thursday, November 5, 2020)

[Federal Register Volume 85, Number 215 (Thursday, November 5, 2020)]
[Proposed Rules]
[Pages 70569-70572]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2020-24366]

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FEDERAL COMMUNICATIONS COMMISSION

47 CFR Part 73

[MB Docket No. 20-343; FCC 20-145; FRS 17191]

FCC Seeks Comment on Proposed Application Limit for NCE FM New
Station Applications in Upcoming 2021 Filing Window

AGENCY: Federal Communications Commission.

ACTION: Proposed rule; proposed action.

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SUMMARY: The Commission recently adopted changes to its rules and
procedures for considering competing applications for new noncommercial
educational (NCE) FM radio stations in Reexamination of the Comparative
Standards and Procedures for Licensing Noncommercial Educational
Broadcast Stations and Low Power FM Stations, MB Docket No. 19-3,
Report and Order. In this document, the Commission announces that it is
directing the Media Bureau (Bureau) to open a filing window for NCE FM
new station applications for the FM reserved band (channels 201-220).
The Bureau will issue a future Public Notice to announce the specific
dates of the 2021 window. The Commission also seeks comment on a
proposal establishing a ten-application limit in the upcoming 2021
filing window.

DATES: Comments are due on or before November 20, 2020, and reply
comments are due or before November 30, 2020.

ADDRESSES: You may submit comments, identified by MB Docket No. 20-343,
by any of the following methods:
Electronic Filers: Comments may be filed electronically
using the internet by accessing the Federal Communications Commission's
ECFS website: http://apps.fcc.gov/ecfs/. Follow the instructions for
submitting comments.
Paper Filers: Parties who choose to file by paper must
file an original and one copy of each filing. If more than one docket
or rulemaking number appears in the caption of this proceeding, filers
must submit two additional copies for each additional docket or
rulemaking number.
Filings can be sent by commercial overnight courier, or by first-
class or overnight U.S. Postal Service mail. All filings must be
addressed to the Commission's Secretary, Office of the Secretary,
Federal Communications Commission.
Commercial overnight mail (other than U.S. Postal Service
Express Mail

[[Page 70570]]

and Priority Mail) must be sent to 9050 Junction Drive, Annapolis
Junction, MD 20701.
U.S. Postal Service first-class, Express, and Priority
mail must be addressed to 45 L Street NE, Washington, DC 20554.
Effective March 19, 2020, and until further notice, the
Commission no longer accepts any hand or messenger delivered filings.
This is a temporary measure taken to help protect the health and safety
of individuals, and to mitigate the transmission of COVID-19. See FCC
Announces Closure of FCC Headquarters Open Window and Change in Hand-
Delivery Policy, Public Notice, DA 20-304 (March 19, 2020).
During the time the Commission's building is closed to the
general public and until further notice, if more than one docket or
rulemaking number appears in the caption of a proceeding, paper filers
need not submit two additional copies for each additional docket or
rulemaking number; an original and one copy are sufficient.
People with Disabilities: To request materials in accessible
formats for people with disabilities (braille, large print, electronic
files, audio format), send an email to fcc504@fcc.gov or call the
Consumer and Governmental Affairs Bureau at 202-418-0530 (voice), 1-
888-835-5322 (tty).

FOR FURTHER INFORMATION CONTACT: For additional information, contact
Amy Van de Kerckhove, Amy.Vandekerckhove@fcc.gov; James Bradshaw,
James.Bradshaw@fcc.gov; or Lisa Scanlan, d79bbea4b6f984b4b6b9bbb6b997b1b4b4f9b0b8a1, of the
Media Bureau, Audio Division, (202) 418-2700. Direct press inquiries to
Janice Wise, Janice.Wise@fcc.gov, (202) 418-8165.

SUPPLEMENTARY INFORMATION: This is a summary of the Commission's
document, Public Notice, FCC-20-145, released October 19, 2020. The
full text of this document is available for public inspection and can
be downloaded at https://docs.fcc.gov/public/attachments/FCC-20-145A1.docx or by using the search function for MB Docket No. 20-343 on
the Commission's ECFS web page at www.fcc.gov/ecfs.

I. Background

1. In the initial rulemaking proceeding on comparative standards
for NCE applicants, the Commission reserved the right to establish by
public notice a limit on the number of NCE applications filed by a
party in a filing window. In 2007, before the window opened, the
Commission sought comment on an application cap and subsequently
established a limit of ten NCE FM new station applications filed by any
party during the October 2007 filing window. This application limit
helped restrict the number of mutually exclusive applications
(including ``daisy chains'' of mutually exclusive applications), and
thereby minimized the delay caused by processing complicated
application chains. The ten application cap allowed the Commission to
expeditiously process and grant thousands of applications to a wide
range of local and diverse applicants, therefore promoting the rapid
expansion of new NCE FM service throughout the country.

II. Discussion

2. Given the success of the October 2007 window, we tentatively
conclude that we should establish a ten-application limit in the
upcoming NCE FM filing window. We believe this limit would deter
speculative filings, permit the expeditious processing of the
applications filed in the window, and provide interested parties with a
meaningful opportunity to file for and obtain new NCE FM station
licenses. In contrast, we tentatively conclude that the failure to
establish a limit on the number of new NCE FM applications that a party
may file in the window could lead to a large number of speculative
filings, creating the potential for extraordinary procedural delays.
3. We acknowledge that the Commission previously stated in 2000
that the point system criteria and window filing procedures should be
sufficient to ``ameliorate the filing of large numbers of mutually
exclusive applications by speculative, barely qualified, applicants''
and that it would consider an application limit ``[i]f the number of
mutually exclusive applications received under the new [point] system
exceeds our expectations.'' However, after the 2003 FM translator
window, in which the Commission received over 13,000 applications, many
filed by speculative filers, the Commission and NCE FM applicants were
concerned that failure to establish an application cap before the 2007
window could lead to similar mass speculative filings and procedural
delays.
4. Consistent with the Commission's predictions in connection with
establishing an application cap before opening the October 2007 window,
we expect there will be a large volume of NCE FM applications filed in
the forthcoming window that will require establishing an application
cap before the window opens. There are several factors that could
contribute to a large volume of NCE FM applications in this window: (a)
There is no application filing fee; (b) there are no ownership limits
in the reserved band; (c) there has not been a filing window for new
NCE FM applications for over ten years; and (d) the Commission recently
simplified and clarified its rules and procedures for filing
applications for new NCE applications and considering competing
applications. Accordingly, we tentatively conclude that establishing an
application limit before the window opens will provide certainty to
potential applicants and allow for expeditious processing of
applications. We seek comment on this approach.
5. Accordingly, we tentatively conclude that a ten-application cap
is a reasonable limit to prevent mass filings by speculators and to
permit the efficient and expeditious processing of window-filed
applications while at the same time supporting the goals of localism
and diversity reflected in the NCE FM point system. As such, we propose
the following limit:
An applicant may file no more than a total of ten applications in
the 2021 NCE FM filing window. Furthermore, a party to an application
filed in the 2021 NCE FM filing window may hold attributable interests
in no more than a total of ten applications filed in the window. If it
is determined that any party to an application has an attributable
interest in more than ten applications, the Bureau will retain the ten
applications that were filed first--based on the date of application
receipt--and dismiss all other applications.
6. We seek comment on this proposed limit. We specifically seek
comment on whether ten applications is the appropriate limit to enable
the efficient processing of applications and initiation of new NCE FM
service, whether a different number would be more appropriate, or
whether we should establish no limit at all. In particular, we note
that our goal is to give interested parties the opportunity to apply
for local and regional NCE FM outlets, subject to the apparent need for
an application cap for the reasons described above.

III. Procedural Matters

7. Statement of Legal Authority. The Commission's legal authority
for limiting the number of applications a party may file during a
broadcast filing window is found in 47 U.S.C. 151, 152(a), 154(i) and
(j), 301, 303(g) and (r), 308(b), and 309(j).
8. Filing Requirements--Comments may be filed using the
Commission's Electronic Comment Filing System

[[Page 70571]]

(ECFS). See Electronic Filing of Documents in Rulemaking Proceedings,
63 FR 24121 (1998). Pleadings sent via email to the Commission will be
considered informal and will not be part of the official record.
Comments, reply comments, and ex parte submissions will be publicly
available online via ECFS.
9. Ex Parte Restrictions. The proceeding in this Public Notice
shall be treated as a ``permit but disclose'' proceeding in accordance
with the Commission's ex parte rules. Persons making ex parte
presentations must file a copy of any written presentation or a
memorandum summarizing any oral presentation within two business days
after the presentation (unless a different deadline applicable to the
Sunshine period applies). Persons making oral ex parte presentations
are reminded that memoranda summarizing the presentation must (1) list
all persons attending or otherwise participating in the meeting at
which the ex parte presentation was made, and (2) summarize all data
presented and arguments made during the presentation. If the
presentation consisted in whole or in part of the presentation of data
or arguments already reflected in the presenter's written comments,
memoranda or other filings in the proceeding, the presenter may provide
citations to such data or arguments in his or her prior comments,
memoranda, or other filings (specifying the relevant page and/or
paragraph numbers where such data or arguments can be found) in lieu of
summarizing them in the memorandum. Documents shown or given to
Commission staff during ex parte meetings are deemed to be written ex
parte presentations and must be filed consistent with rule 1.1206(b),
47 CFR 1.1206(b). Participants in this proceeding should familiarize
themselves with the Commission's ex parte rules.
10. Initial Regulatory Flexibility Act. As required by the
Regulatory Flexibility Act, we have prepared an Initial Regulatory
Flexibility Analysis (IRFA), which is set forth in the Appendix.
Written public comments are requested on the IRFA. These comments must
be filed in accordance with the same filing procedures and deadlines
for comments on the proposed application limit, and should have a
separate and distinct heading designating them as responses to the
IRFA.
11. The Consumer and Governmental Affairs Bureau, Reference
Information Center, shall send a copy of this Public Notice, including
the Initial Regulatory Flexibility Analysis, to the Chief Counsel for
Advocacy of the Small Business Administration, and shall cause it to be
published in the Federal Register.
12. Paperwork Reduction Act. This document contains proposed
information collections subject to the Paperwork Reduction Act of 1995
(PRA). The Commission has OMB approval to collect these applications
under OMB Control Number 3060-0029.

IV. Initial Regulatory Flexibility Analysis

13. As required by the Regulatory Flexibility Act, as amended (RFA)
the Commission has prepared this Initial Regulatory Flexibility
Analysis (IRFA) of the possible significant economic impact on a
substantial number of small entities of the potential application limit
considered in FCC Seeks Comment on Proposed Application Limit for NCE
FM New Station Applications in Upcoming 2021 Window, FCC 20-145 (Public
Notice). Written public comments are requested on this IRFA. Comments
must be identified as responses to the IRFA and must be filed by the
deadlines for comments on the Public Notice. The Commission will send a
copy of the Public Notice, including this IRFA, to the Chief Counsel
for Advocacy of the Small Business Administration (SBA). In addition,
the Public Notice and the IRFA (or summaries thereof) will be published
in the Federal Register.

A. Need for, and Objectives of, the Proposed Limit

14. The Commission has determined that, absent a limit on the
number of applications that a party may file in the filing window
described in the Public Notice, some parties may file a large number of
speculative applications, including applications proposing stations in
communities to which the applicant has no apparent connection and
applications that are mutually exclusive with each other. Accordingly,
the Commission has tentatively determined that a limit of ten
applications for new NCE FM construction permits in the filing window
is an appropriate procedural safeguard to deter speculation and permit
the expeditious processing of the NCE FM applications filed in the
window. The Commission believes that the proposed limit will benefit
small entities, as defined below.

B. Legal Basis

15. The Public Notice is released pursuant to sections 1, 2(a),
4(i) and (j), 301, 303(g) and (r), 308(b), and 309(j) of the
Communications Act of 1934, as amended, 47 U.S.C. 151, 152(a), 154(i)
and (j), 301, 303(g) and (r), 308(b), and 309(j).

C. Description and Estimate of the Number of Small Entities To Which
the Proposed Procedures Will Apply

16. The RFA directs agencies to provide a description of, and,
where feasible, an estimate of the number of small entities that may be
affected by the proposed procedures, if adopted. The RFA defines the
term ``small entity'' as having the same meaning as the terms ``small
business,'' ``small organization,'' and ``small governmental entity''
under Section 3 of the Small Business Act. In addition, the term
``small business'' has the same meaning as the term ``small business
concern'' under the Small Business Act. A small business concern is one
which: (1) Is independently owned and operated; (2) is not dominant in
its field of operation; and (3) satisfies any additional criteria
established by the SBA.
17. NCE FM Radio Stations. The proposed application limit will
apply to potential licensees of the NCE FM radio service. This Economic
Census category ``comprises establishments primarily engaged in
broadcasting aural programs by radio to the public.'' The SBA has
created the following small business size standard for this category:
Those having $41.5 million or less in annual receipts. Census data for
2012 show that 2,849 firms in this category operated in that year. Of
this number, 2,806 firms had annual receipts of less than $25 million,
and 43 firms had annual receipts of $25 million or more. Because the
Census has no additional classifications that could serve as a basis
for determining the number of stations whose receipts exceeded $41.5
million in that year, we conclude that the majority of radio broadcast
stations were small entities under the applicable SBA size standard. In
addition, the Commission has estimated the number of NCE FM radio
stations to be 4,197. Because NCE licensees must be non-profit, we will
presume that all are small entities.

D. Description of Projected Reporting, Recordkeeping, and Other
Compliance Requirements

18. We anticipate that none of the changes adopted as a result of
the Public Notice would result in an increase to the reporting and
recordkeeping requirements of broadcast stations or applicants for NCE
FM authorizations. As noted above, we invite small business entities to
comment in response to the Public Notice.

[[Page 70572]]

E. Steps Taken To Minimize Significant Impact on Small Entities, and
Significant Alternatives Considered

19. The RFA requires an agency to describe any significant
alternatives that it has considered in reaching its proposed approach,
which may include the following four alternatives (among others): (a)
The establishment of differing compliance or reporting requirements or
timetables that take into account the resources available to small
entities; (b) the clarification, consolidation, or simplification of
compliance or reporting requirements under the rule for small entities;
(c) the use of performance, rather than design, standards; and (d) an
exemption from coverage of the rule, or any part thereof, for small
entities.
20. We are directed under law to describe any alternatives we
consider, including alternatives not explicitly listed above. The
Public Notice describes and seeks comment on a proposed limit on the
number of new NCE FM applications that may be filed during the filing
window described in the Public Notice. The proposed limit is intended
to benefit all small NCE entities seeking to establish a new NCE FM
service on a local or regional basis by preventing mass filings of
speculative applications. The proposed limit should benefit applicants
by expediting the review and processing of applications filed during
the window. The proposed limit does not impose any significant
compliance or reporting requirements because it would merely set a
limit on the number of applications for new NCE FM authorizations that
a party could file during the window. Accordingly, we are not aware of
any alternatives that would benefit small entities. We encourage small
entities to comment on the proposed limit described in the Public
Notice.

F. Federal Rules That May Duplicate, Overlap, or Conflict With the
Proposed Limit

21. None.

List of Subjects in 47 CFR Part 73

Radio, Reporting and recordkeeping requirements.

Federal Communications Commission.
Marlene Dortch,
Secretary.

Proposed Rule

For the reasons discussed in the preamble, the Federal
Communications Commission proposes to amend 47 CFR part 73 as follows:

PART 73--RADIO BROADCAST SERVICES

0
1. The authority citation for part 73 continues to read as follows:

Authority: 47 U.S.C. 154, 155, 301, 303, 307, 309, 310, 334,
336, 339.

0
2. Section 73.503 is amended by adding paragraph (g) to read as
follows:

Sec. 73.503 Licensing requirements and service.

* * * * *
(g) Application Limit. An applicant may file no more than a total
of ten applications in the 2021 NCE FM filing window. A party to an
application filed in the 2021 NCE FM filing window may hold
attributable interests, as defined in Sec. 73.7000, in no more than a
total of ten applications filed in the window. If it is determined that
any party to an application has an attributable interest in more than
ten applications, the Media Bureau will retain the ten applications
that were filed first--based on the date of application receipt--and
dismiss all other applications.

[FR Doc. 2020-24366 Filed 11-4-20; 8:45 am]
BILLING CODE 6712-01-P