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LL2L"",,2d""/>/>/>/x]SSSSx]x]x]x]xSxSx]SSxSxSf]xSxSxSxIxIxWxIx{nInInInISSSWS]a?/?]?9?]]WW]n/nKn9nCn/x]xx]x]SSxxIxIxI]?]?]?]WnUn9nax]x]x]x]x]x]xxWnInInIx]n9x]]?n9xSz+SS8-8WuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxN"(#L 1 XxPBACKGROUND p>"(#L 2 XxPDISCUSSION p>"(#L 7  X-XxX` ` xA.` ` Need for UNII Devices and Spectrum ` p>"(#L 7  X~-XxX` ` xB.` ` Spectrum to be Made Available ` p"(#I 19  Xi-XxX` ` xC.` ` Technical Standards ` p"(#I 32  XT-XxX` ` X ` ` 1. General p"(#I 32  X?-XxX` ` X ` ` 2. Power and Antenna Constraints  p"(#I 35  X*-XxX` ` X ` ` 3. Emissions Outside the Band of Operation p"(#I 51  X-XxX` ` X ` ` 4. Channeling Plan & Modulation Efficiency p"(#I 55  X-XxX` ` xD.` ` Spectrum Etiquette ` p"(#I 63  X-XxX` ` xE.` ` Spectrum Sharing Considerations ` p"(#I 72  X -XxX` ` xF.` ` Alternative Regulatory Structure ` p"(#I 84  X!-XxX` ` xG.` ` New Part 16 Regulations ` p"(#I 90  X"-XxX` ` xH.` ` Equipment Authorization ` p"(#I 98 XxPORDERING CLAUSE AND EFFECTIVE DATE p!(#F100 XxPAPPENDIX A: FINAL RULES p!(#A A1 XxPAPPENDIX B: FINAL REGULATORY FLEXIBILITY ANALYSIS pv!(#@ B1"$(,))ZZ&"  X- INTRODUCTION ׃   X-x1.` ` By this action, we amend Part 15 of our rules to make available 300 megahertz  X-of spectrum at 5.155.35 GHz and 5.7255.825 GHz for use by a new category of unlicensed  X-equipment, called Unlicensed National Information Infrastructure ("UNII") devices. Gx yO-  ԍxWe note that in the Notice of Proposed Rule Making in this proceeding, we referred to these devices as  x"NII/SUPERNet" devices. However, on July 2, 1996, we received a letter from Smart & Thevenet, P.C. on behalf   of its client, SuperNet, Inc., which requests that the Commission refrain from using the word "SUPERNet" because   it would infringe upon its trademark registration of the name "Colorado Supernet." Accordingly, we have adopted  {O= -  the term "Unlicensed National Information Infrastructure" or "UNII" to refer to the devices in this proceeding. See Letter from Harlan S. Abrahams of Smart & Thevenet, P.C., received on July 2, 1996.  These devices will provide shortrange, high speed wireless digital communications on an unlicensed basis. We anticipate that UNII devices will support the creation of new wireless local area networks ("LANs") and will facilitate wireless access to the National Information  XH-Infrastructure ("NII"). HBGx yO;-  ԍxThe National Information Infrastructure or NII is a group of networks, including the public switched  x;telecommunications network, radio and television networks, private communications networks, and other networks  xnot yet built, which together will serve the communications and information processing needs of the people of the United States in the future. In order to permit significant flexibility in the design and operation of these devices, we are adopting the minimum technical rules necessary to prevent interference to other services and to ensure that the spectrum is used efficiently. We believe that the rules set forth herein will foster the development of a broad range of new devices and service offerings that will stimulate economic development and the growth of new industries. We also expect that this action will promote the ability of U.S. manufacturers, including small businesses, to compete globally by enabling them to develop unlicensed digital  X -communications products for the world market.* * Gx yO-  ЍxFor instance, as discussed below, the rules adopted herein allow for the development of devices compatible  {OJ-with the European High Performance LAN ("HIPERLAN") standard. See infra, note 44.*  Xb-" BACKGROUND  XK-TP  X4-x2.` ` On May 15, 1995, the Wireless Information Networks Forum ("WINForum") filed a Petition for Rule Making (RM8648) requesting that we allocate 250 megahertz of spectrum at 5.105.35 GHz for the operation of new high speed Shared Unlicensed PErsonal Radio Network ("SUPERNet") devices. On May 24, 1995, Apple Computer, Inc. ("Apple") filed a Petition for Rule Making (RM8653) requesting that we allocate 300 megahertz in the 5.155.3 GHz and 5.7255.875 GHz bands to establish a new unlicensed wireless radio service to promote the full deployment of the NII. In response to these two proposals, the  X-Commission adopted a Notice of Proposed Rule Making ("NPRM") proposing to make available 350 megahertz of spectrum at 5.155.35 GHz and 5.7255.875 GHz for UNII"~ ,-(-(ZZ"  X-devices.Gx {Oy-ЍxSee Notice of Proposed Rule Making, ET Docket No. 96102, 11 FCC Rcd 7205 (1996). The NPRM also proposed that such devices be subject to certain minimum technical standards, including power limits, emission limits, and a spectrum etiquette, to ensure that the spectrum is used efficiently, and to ensure that all UNII devices have equal access to the  X-spectrum. The NPRM solicited comments on whether we should adopt a channeling plan, whether we should adopt a minimum modulation efficiency, and whether we should regulate some UNII operations, particularly those intended for longrange community network  Xz-applications, as a licensed service. Further, the NPRM proposed to establish "safeharbor rules" that would set forth conditions under which unlicensed devices could operate without risk of being considered sources of harmful interference.  X -x3.` ` In response to the NPRM, 52 comments and 26 reply comments were filed. Most commenters support making available 5 GHz spectrum for unlicensed broadband operations. However, several incumbent and potential users of this spectrum express concern about the feasibility of spectrum sharing between these new unlicensed devices and incumbent and proposed primary services.  X-x4.` ` The frequency bands addressed in this proceeding currently are used primarily by Federal Government operations, particularly military radar operations. Other uses of the bands are as follows: the 5.005.25 GHz band is allocated on a primary basis to the aeronautical radionavigation, aeronautical mobilesatellite (R), fixedsatellite, and intersatellite  X<-services for both Government and nonGovernment operations;2$<ZGx {OG-  ЍxSee 47 CFR  2.106, Table and notes 733 and 797. In addition, the 5.1505.216 GHz subband is allocated  xon a primary basis to radiodeterminationsatellite (spacetoEarth) service and to the fixedsatellite (spacetoEarth)  xservice for feeder links used in conjunction with the radiodeterminationsatellite service for both Government and  {O-nonGovernment operations. See 47 CFR  2.106, notes 797A, US307. 2 the 5.255.35 GHz band is  X%-allocated to the nonGovernment radiolocation service on a secondary basis;\%FGx {O-  /ЍxSee 47 CFR  2.106, Table. Additionally, in the 5.255.35 GHz band, radiolocation stations installed on  xJspacecraft may also be employed for the earth explorationsatellite and space research services on a secondary basis  {O-for both Government and nonGovernment operations. See 47 CFR  2.106, note 713.  the 5.6505.925  X-GHz band is allocated on a secondary basis to the amateur service;=j Gx {O)-  /ЍxSee 47 CFR  2.106, Table. Additionally, the 5.655.67 GHz and 5.835.85 GHz subbands are allocated  {O-to the amateursatellite service on a secondary basis. See 47 CFR  2.106, notes 664 and 808.= the 5.7255.875 GHz band is designated for industrial, scientific and medical ("ISM") applications and unlicensed  X-Part 15 devices,|X Gx yOW#-  ЍxOn January 30, 1996, the Commission adopted a Notice of Proposed Rule Making in ET Docket No. 968,  x\11 FCC Rcd 3068 (1996), which proposed to amend the rules regarding the operation of spread spectrum transmission systems in the 902-928 MHz, 2.400-2.4835 GHz, and 5.725-5.850 GHz bands. | and radiocommunication services operating within this band must accept  X-harmful interference that may be caused by ISM applications;^ Gx {O`'-ԍxSee 47 CFR  2.106, note 806.^ and the 5.8505.925 GHz band"x ,-(-(ZZ" is allocated on a primary basis to the fixedsatellite (Earthtospace) service for non X-Government operations and to the radiolocation service for Government operations.m Gx {Ob-ԍxSee 47 CFR  2.106, Table of Frequency Allocations.m  X-x5.` ` On November 2, 1995, the National Telecommunications and Information Administration ("NTIA"), which manages spectrum used by Federal Government operations and is the principal Executive Branch advisor on telecommunications policy, submitted a letter  Xv-addressing the WINForum and Apple petitions. vZGx {O -  =ԍxSee Letter from the Assistant Secretary for Communications and Information, United States Department of Commerce, to Chairman Hundt, received November 2, 1995. In its letter, NTIA stated that the Administration strongly supports spectrum policies that will promote affordable, highbandwidth wireless computer networks and that the proposed WINForum and Apple devices could provide an important means of unlicensed access to the NII. To protect public safety operations, however, NTIA indicated that making available the 5.05.15 GHz band for unlicensed device operations is not feasible because this band must remain fully available for air traffic control operations.  X -x6.` ` Finally, the 1995 World Radiocommunication Conference ("WRC95")  X -modified some of the international spectrum allocations in the 5 GHz frequency range. z Gx {O -  yԍxSee Final Acts of the World Radiocommunication Conference (WRC95), Geneva, 1995. The United States,  xhby signing the Final Acts with declarations, is obligated to apply provisionally the subject modifications of the Radio  xRegulations, as of the dates identified in the Final Acts and to the extent consistent with U.S. law, until either (1)  xYit deposits an instrument of ratification with the International Telecommunications Union (after ratification by the  xPresident) in which case U.S. rights and obligations under the Radio Regulations are modified, or (2) it informs the  x International Telecommunications Union that it does not accept the Final Acts in which case the United States retains its preexisting rights and obligations under the Radio Regulations to which it is party. Of principal interest to this proceeding, WRC95 allocated the 5.091 5.25 GHz band on a primary basis to the fixedsatellite (Earthtospace) service ("FSS uplinks") to provide feeder links for nongeostationary satellite systems in the mobilesatellite service ("MSS") on a coprimary basis with Government aeronautical radionavigation.  X-( DISCUSSION ׃  X-A.xNeed for UNII Devices and Spectrum  X-x7.` ` In the NPRM, the Commission recognized that recent developments in a number of different digital technologies have greatly increased the need to transfer large amounts of data from one network or system to another. For example, technological developments now permit digitization and compression of large amounts of voice, video, imaging, and data information, which can be rapidly transmitted from computers and other  X;-digital equipment to other devices within a network. The NPRM stated that these dramatic"; ,-(-(ZZ" developments in digital technology have stimulated a need for spectrum to be used for wireless interconnection within and among these networks. The Commission tentatively concluded that providing additional spectrum for unlicensed wideband operation would benefit a vast number of users, including educational, medical, business, and industrial users. Further, the Commission recognized that unlicensed access to this spectrum would permit educational institutions to form inexpensive broadband wireless computer networks between classrooms, thereby providing costeffective access to an array of multimedia services on the  X_-Internet. In addition, the NPRM requested comment on whether new UNII operations should include longerrange community networks.  X -x8.` ` Comments.The Commission's proposal to provide spectrum to accommodate UNII devices is strongly supported by the majority of the commenters ("UNII proponents").  X -The UNII proponents include a variety of potential users, some of whom represent educational, medical, business, or consumer interests. UNII proponents argue that UNII devices would facilitate connections among computers, televisions, appliance automation products, and onpremises network cable or telephone company access points within homes,  X-schools and health care facilities.R Gx {O -ԍxSee Motorola Comments at 1.R Further, they submit that unlicensed devices could potentially satisfy a collection of communications needs that otherwise would probably remain unmet if free and open consumer access to spectrum were not available. For example, Motorola states that licensed operations generally involve an expansive infrastructure needed to provide a level of reliability and coverage for a specific communications need. It argues that development of these systems requires a significant investment unlikely to be made under an unlicensed regime. In contrast, unlicensed devices do not have to have the same level of reliability and can operate both as standalone and as an adjunct to wired and licensed wireless  X-networks.RZGx {O-ԍxSee Motorola Comments at 1.R  X-x9.` ` Additionally, UNII proponents argue that UNII devices will provide communications that are flexible, mobile, have high data rates, and are low cost. They contend that existing wireless allocations and wireline alternatives may each be capable of providing some of these attributes, but not all of them. They contend that although some communication paths can be provided on wired networks or through currently allocated spectrum (like unlicensed Personal Communications Services ("UPCS")), those capabilities are inadequate to meet communications needs in a large and growing number of circumstances because they are not capable of providing the necessary data rates and do not  X-have a sufficient amount of spectrum available to meet all of the needs.Gx {O$-  \ԍxSee Northern Telecom, Inc Comments at 4 and Apple Reply at 5. We note that UPCS has access to 30 megahertz of spectrum at 19101930 MHz and 23902400 MHz. Specifically, they argue that UPCS does not provide sufficient capacity, wired networks lack flexibility and mobility, and other licensed wireless services are too costly. For example, Rockwell" F,-(-(ZZ" International Corporation ("Rockwell") claims that current unlicensed wireless systems are limited to data rates of about 2 megabits/second ("Mbits/sec"), far short of the 20 Mbits/sec  X-and higher data rates necessary to support multimedia applications.RGx {OK-ԍxSee Rockwell Comments at 2.R  X-x 10.` ` UNII proponents claim that unlicensed devices governed by flexible technical rules would enable the provision of a wide range of multimedia broadband digital communications at substantially lower costs than those offered by wired and licensedwireless  X_-networks. For example, the joint comments of EducatorsX_ZGx yOj -  !ԍxCalifornia State University, Education Network of Maine, University of Maine System, Network for  xInstructional TV, Inc., San Diego County Superintendent of Schools, South Carolina Educational Television Commission, and State of WisconsinEducational Communications Board (collectively, the "Educators"). support the proposal because UNII devices could function as unlicensed LAN facilities that would be capable of providing  X1-the lastmile loop within educational settings in a cost effective manner.T1zGx {O\-ԍxSee Educators' Comments at 2.T Educators claim that an affordable and convenient method for internal distribution of digital communications, such as would be provided by UNII devices, would be embraced by the educational community; thus, the use of UNII devices would likely extend into classrooms and other learning sites. Educators state that they are currently using the existing telecommunications infrastructure to deliver their services to some learning sites, but they face enormous financial and technical obstacles in distributing Internet access, data, voice or video services within  X-these sites to the individual classrooms where they are needed.V Gx {OM-ԍxSee Educators' Comments at 24.V Further, Apple estimates that the cost of wiring America's K12 schools would be $50 billion, while equivalent wireless connections would cost substantially less. Apple adds that even though 30 to 50 percent of America's schools have access to the Internet, only two to five percent of America's  X4-classrooms have such access.S4Gx {O-ԍxSee supra, NPRM at para. 14.S Additionally, comments from consumers and Internet service providers argue that it is extremely important for all individuals, particularly in remote,  X-insular and rural areas, to be able to access the Internet inexpensively.0 Gx {O-ԍxSee, e.g., electronic filed comments of Jim Martindale, Mike Renfro, and Jean Armour Polly.  X-x 11.` ` Some UNII proponents argue that the benefits of the NII will not be fully realized without the use of longer range community networks, as originally proposed by  X-Apple, and that spectrum should be made available for such operations.Z Gx {O%-  =ԍxSee Microsoft Comments at 5, the joint comments of the National School Board Association, Media Access  xProject, National Education Association, American Association of School Administrators, and People for the  yO&- xYAmerican Way (Joint Commenters) Comments at 5 , and Consumer Electronics Manufacturers Association (CEMA)"&,-(-(&" Comments at 5. They argue that"X,-(-(ZZ" there is a need for low cost, flexible, easily implemented means of communications networks spanning rural areas and extending information access throughout smaller municipalities. They also claim these networks are needed to unify school, library and hospital districts with broadband data connections but that, currently, longer distance connections are often  X-unavailable or prohibitively expensive.VXGx {O-ԍxSee Apple Comments at 2. V Specifically, Apple states that many schools and individuals do not have local access to the Internet and would have to pay long distance charges for such access. It claims that the needed T1 connections may cost from hundreds to tens of thousands of dollars annually and often have high upfront costs and/or per minute  XH-charges.OHGx {O -ԍxSee Apple Comments at 5.O Apple and other supporters of the community network concept state that no other technology serves the needs for widebandwidth, lowcost communications that would be served by community networks. Apple claims that the ISM bands at 900 MHz, 2.4 GHz, and 5.8 GHz do not include sufficient spectrum to accommodate high speed connections.  X -x 12.` ` The Consumer Electronics Manufacturers' Association ("CEMA") and Motorola, Inc. ("Motorola") state that unlicensed longer range UNII devices will not supplant licensed microwave facilities, but should be viewed as a complement to, rather than a  X-replacement for, licensed services.g|Gx {O-ԍxSee Motorola Comments at ii and CEMA Reply at 4.g Further, Mulcay Consulting Associates ("Mulcay") asserts that the Commission should facilitate competition to licensed longer range communications services by providing for unlicensed community networks. Mulcay argues that, over the past 20 years, the computer industry, with the benefits of open competition and unhindered innovation, has enjoyed a performancetoprice ratio that has improved by several orders of magnitude. However, over the past 20 years, the corresponding improvement in the performancetoprice ratio of transmission equipment and services has been minimal because there has been no meaningful competition to local loop common carriers and because of  X-restrictive regulations governing the use of radio frequency ("RF") spectrum.OGx {O-ԍxSee Mulcay Reply at 45.O  X-x 13.` ` On the other hand, parties with incumbent or proposed operations in the bands addressed in this proceeding argue that there has not been a sufficient demonstration of need for new unlicensed UNII devices. For example, L/Q Licensee, Inc. ("L/Q"), an MSS applicant, argues that no UNII proponent provided a demonstration of the market demand for  XN-new UNII devices or an estimate of when such demand would materialize.RNGx {O%-ԍxSee L/Q Comments at 12, 14.R In addition to general opposition to providing spectrum for all UNII devices, a number of parties oppose"72 ,-(-(ZZ" Apple's idea for longer range community networks. For example, Pacific Telesis Group ("PacTel"), a Regional Bell Operating Company, argues that unlicensed longer range links would violate requirements for regulatory parity between wireless services and increase the  X-potential for interference from UNII devices.PGx {O4-ԍxSee PacTel Comments at 3.P Similarly, the American Radio Relay League, Inc. ("ARRL") states that longer range community networks are not consistent with the typical lowpower operations authorized by Part 15 and such high powered operations would not be in accordance with the licensing requirements of the Communications Act, which it claims  X_-require that systems with a significant interference potential be operated on a licensed basis.P_ZGx {Oj -ԍxSee ARRL Comments at 59.P  X1-x 14.` ` Additionally, fixed microwave manufacturers argue that unlicensed longer range community networks are not needed because existing licensed microwave services can adequately supply the needed communications capabilities. For example, the Fixed PointToPoint Communications Section, Network Equipment Division of the Telecommunications Industry Association ("TIA") states that unlicensed links longer than 12 km in length are not needed because fixed services in higher frequency bands can provide intercommunity links more efficiently by utilizing existing equipment and related technologies, which are less expensive, more reliable and provide greater capacity and higher speeds than unlicensed  Xy-equipment.MyGx {O-ԍxSee TIA Comments at 2.M TIA adds that 12 km UNII links would be sufficient to promote compatibility with High Performance LAN ("HIPERLAN") operations. Additionally, Part 15 spread spectrum interests argue that unlicensed community networks can presently be provided by longer range spread spectrum operations under Section 15.247 without the sharing problems  X-associated with nonspread spectrum techniques.t~Gx {OL-ԍxSee Cylink Comments at 6 and Western Multiplex Comments at 2.t  X-x15.` ` Decision. We find that there is a need for unlicensed wireless devices that will be capable of providing data rates as high as 20 Mbits/sec to meet the multimedia  X-communication requirements envisioned by the UNII proponents. Gx {O-  ԍxSee, e.g., Apple Comments at 45; HewlettPackard Comments at 2, 6; Northern Telecom, Inc Comments at 10; Rockwell Comments at 2; and WINForum Comments at 714. To achieve these high data rates at a reasonable cost, we believe that these devices must use broad bandwidths of up to 20 megahertz each and therefore these devices must have access to a substantial amount of  X~-spectrum to accommodate a number of devices within the same area. ! ~j Gx yO$-  ԍxWe have assumed up to a 20 megahertz channel requirement for UNII devices that will transmit data rates  xxof 20 Mbits/sec, which equates to a spectrum efficiency of 1 Mbits/sec per hertz. We recognize that a number of  xcommercially available transmitters and systems are capable of higher data rates per hertz, but they also are generally  xcapable of achieving higher signal to noise ratios because they are not as restricted in power as UNII devices. "& ,-(-('"  xAccordingly, we believe our assumed 20 megahertz channel per device for these high data rates is appropriate due to the low powers of UNII devices.  Further, we believe"~ !,-(-(ZZ2" that accessibility to a substantial amount of spectrum is necessary for these devices to develop and mature to their full potential. The record in this proceeding supports our belief that recent developments in digital technologies have greatly increased the requirements for transferring large amounts of information and data in relatively short time frames from one  X-network or system to another." Gx {Ou-  ԍxSee, e.g., Information Technology Industry Council Comments at 24, Northern Telecom, Inc Comments at 3, and Apple Reply at 23. Specifically, we note that computers have much faster central processing units and substantially increased memory capabilities, which have increased the demand for devices that can more quickly transfer larger amounts of data. Further, digital equipment is capable of switching and directing large amounts of information within networks. In addition to these technical advances in hardware capability, there has been substantial growth in the use, size, and complexity of digital networks as well. Many of these networks are not only growing internally in the amount and types of data they contain, but are also increasingly being used in combination and interaction with other such networks.  X -x16.` ` Further, it is clear from the record that educational institutions, business, industry, and consumers are all looking for ways to begin taking advantage of the innovative technological developments that promise the delivery of multimedia services comprising voice, video, imaging, and data. We agree with the commenters who argue that existing wireline and wireless services, in some cases, may not be able to meet all of the communications requirements and demands that these technological developments bring in a  XK-costeffective manner.#KzGx {Ov-ԍxSee e.g., WINForum Comments at 56, Apple Comments at 4, and Nortel Comments at 4. The record here shows that UNII devices may be able to provide costeffective communications services that will both complement and compete with existing  X-services.g$ Gx {O-ԍxSee Motorola Comments at ii and CEMA Reply at 4.g For example, the spectrum and associated regulatory structure developed for UPCS devices were not designed to handle broadband multimedia computer applications. Equipment in the UPCS bands is limited to a maximum bandwidth of 2.5 megahertz and would not support data rates of 20 Mbits/sec or greater as envisioned for UNII devices. Further, if we were to authorize broadband, high data rate equipment to use the 30 MHz of spectrum available for UPCS, that spectrum would quickly become congested and would have limited use for the types of operations it is intended to accommodate. Additionally, we believe that as the NII and other telecommunications infrastructures grow, new communications alternatives that are flexible and inexpensive will be needed to assure delivery of information and services to all members of our society, regardless of income or location. "  $,-(-(ZZz"Ԍ X-x17.` ` Accordingly, we find that it is appropriate to provide spectrum for wireless unlicensed digital network communications devices to meet the foreseeable communications demands of multimedia network systems resulting from developments of new digital technologies. We believe that this will facilitate rapid and inexpensive wireless access to information resources by educational institutions, business, industry, and consumers. We also believe that making this spectrum available for UNII devices will further the Commission's mandate, in Section 257(b) of the Communications Act, to promote vigorous competition and  X_-technological advancement.H%Z_Gx {O-  NԍxSee 47 U.S.C.  257(b) ("the Commission shall seek to promote the policies and purposes of this Act  xfavoring... vigorous economic competition, technological advancement, and promotion of the public interest, convenience, and necessity.").H For example, allowing unlicensed devices access to the 5.155.35 GHz and 5.7255.825 GHz bands would permit educational institutions to form inexpensive broadband wireless computer networks between classrooms, thereby providing costeffective access to an array of multimedia services on the Internet. In addition, unlicensed wireless networks could help improve the quality and reduce the cost of medical care by allowing medical staff to rapidly and inexpensively obtain patient data, Xrays, and  X -medical charts.  X -x18.` ` While we agree that some of the communications requirements, particularly the longer range community networks, could be partially accommodated through licensed services, such as the fixed pointtopoint and pointtomultipoint services, we believe that the unlicensed devices contemplated here will both complement and provide a costeffective alternative to such services. They may also provide an additional and competitive means for educational institutions, libraries, and health care providers for rural areas to connect to basic and advanced telecommunications services, as envisioned by the Telecommunications Act of  X-1996.o&\Gx {O-  ԍxSee Section 254(b) of the Communications Act of 1934, as amended by Section 101 of the  {Ok- xTelecommunications Act of 1996, Pub. L. No. 104-104, 110 Stat. 56 (1996), at Section 101; see also Section 706  yO5-of the Telecommunications Act of 1996.o Given that the communications needs of these institutions are expected to be very great and that the technical means best suited to meeting these needs may vary considerably from institution to institution, we believe it desirable that a variety of communications options, including unlicensed operations such as UNII devices, be available to address these needs. Accordingly, we believe that some spectrum should be made available to accommodate some of the longer range community network requirements envisioned by the  X|-UNII proponents.'|Gx yO;"-  ԍxAs addressed below, the power limits we are adopting here will generally limit the longer range community networks to several kilometers. "N f ',-(-(ZZ"  X-B.xSpectrum to Be Made Available  X-x19.` ` In the NPRM, the Commission proposed to make available 350 megahertz of spectrum at 5.1505.350 GHz and 5.7255.875 GHz to provide for a number of UNII operations in each geographical area to meet the growing demand for new high speed data communications. The Commission stated that spectrum below 5 GHz is too congested, and that higher frequencies would both increase the cost of equipment and have even more limited  Xc-propagation characteristics than 5 GHz. Additionally, the Commission tentatively concluded that UNII devices could share spectrum in the 5 GHz range with other users.  X -x20. ` ` Comments.The UNII proponents support providing 350 megahertz of spectrum in the 5 GHz range for these devices. They argue that 350 megahertz of spectrum is needed to realize the full potential of today's broadband information technologies and to  X -encourage further innovation in the delivery of new broadband digital communications.( Gx {OT-ԍxSee Rockwell Comments at 2, WINForum Reply at 6, and HewlettPackard Comments at 2. They claim that providing unlicensed broadband devices access to this amount of spectrum will meet the needs of multiple users at a common location and should be sufficient to  X-provide for open entry and equal access by all unlicensed devices.t)ZGx {O-ԍxSee Motorola Comments at 2 and HewlettPackard Comments at 2.t Further, they claim that this amount of spectrum is needed to provide an environment for robust development and growth, and to permit the communications infrastructure to keep pace with future computer advancements. They also argue that 350 megahertz is required to link mobile users and those not served by the broadband wireline infrastructure. UNII proponents further argue that 350 megahertz is necessary for wide bandwidth UNII networks because these devices will have to  X -share the spectrum with other users, such as MSS, Amateur, and ISM.W* Gx {O-ԍxSee, e. g., WINForum Reply at 6.W Motorola adds that the proposed bands will help establish U.S. leadership in an everincreasing global market for  X-telecommunication products.R+~Gx {O -ԍxSee Motorola Comments at 2.R Similarly, Northern Telecom, Inc, ("Nortel") notes that the proposed bands would align the spectrum available domestically for UNII devices with the  X-spectrum available for European HIPERLAN systems.*,FGx {Oq -   ԍxSee Nortel Comments at 45. HIPERLAN is the new European standard for radio LANs currently being  xKformulated by ETSI RES10 for operation at 5 GHz and 17 GHz. It is intended to be a suitable radio replacement  xof wired LANs and for ad hoc networking providing a user data rate of 1020 Mbits/sec. The European  xRadiocommunications Committee ("ERC") identified the 5.155.25 GHz band for HIPERLAN throughout Europe  {O#- xand the 5.255.30 GHz band for HIPERLAN on national basis. See ETSI Final Draft, pr ETS 300 652, June 1886.  xxWe also note the European Space Agency has expressed concerns about sharing the 5.255.35 GHz band between  {O%%- xEarth Exploration Satellite Service operations and HIPERLAN. See Letter from Edoardo Marelli of the European Space Agency to SFCG Delegates regarding HIPERLAN and Cband SAR sharing Analysis, dated March 6, 1996.* " ,,-(-(ZZQ"Ԍ X-x21.` ` WINForum, however, argues that even more spectrum will be needed for UNII broadband unlicensed devices. WINForum urges the Commission to consider future  X-expansion of the UNII band above 5.35 GHz as operations mature and demand increases.O-Gx {OK-ԍxSee WINForum Reply at 6.O In this regard, WINForum estimates an eventual need for 450 megahertz of spectrum for wireless multimedia networks.  Xv-x22.` ` Incumbent users of the 5 GHz band oppose making available the entire 350 megahertz of spectrum for unlicensed UNII devices. While most incumbent users are not opposed to opening some spectrum for broadband unlicensed devices, they urge the Commission not to provide such spectrum in their own respective bands, alleging concern about potential interference from the unlicensed devices to their operations. Further, they state that WINForum originally requested only 250 megahertz of spectrum, and Apple only 300 megahertz, and that the record does not demonstrate a need for 350 megahertz. PacTel argues that 350 megahertz is excessive for unlicensed devices with unproven technology and untested market acceptance, that initially opening 100 megahertz of spectrum would be sufficient for the UNII operations to develop, and that additional spectrum could be provided  X-as needed.P.ZGx {O-ԍxSee PacTel Comments at 3.P  Xb-x23.` ` Some incumbent users also argue that the record does not demonstrate that spectrum for broadband unlicensed devices should be located at 5 GHz. In this regard, commenter L/Q argues that unlicensed UNII devices do not have to use spectrum in the 5 GHz range. They indicate that 185 megahertz of Government spectrum below 5 GHz will be made available for commercial use before the year 2004. They also assert that spectrum above the 5 GHz range could be used affordably by unlicensed devices, given that equipment  X-prices will fall as the devices become widespread.N/Gx {Ou-ԍxSee L/Q Comments at 14.N Further, Cylink Corporation ("Cylink") urges the Commission to explore whether there are other bands that are more appropriate than  X-5 GHz for mediumrange, pointtopoint communications.P0~Gx {O-ԍxSee Cylink Comments at 2.P For example, Cylink urges that the Commission consider use of the millimeter wave bands to provide wireless LAN  X|-communications for educational and industrial campus areas;1|Gx {O="-  MԍxSee First Report & Order and Second Notice of Proposed Rule Making, ET Docket No. 94124, 11 FCC Rcd 4481 (1996). the 2.4 and 5.8 GHz ranges for"| j 1,-(-(ZZ"  X-outdoor pointtopoint spread spectrum devices;2Gx {Oy-ԍxSee Notice of Proposed Rule Making, ET Docket No. 968, 11 FCC Rcd 3068 (1996). and the 5964 GHz band for unlicensed high  X-speed communications.G3ZGx {O-ԍxSupra, note 49. G  X-x24.` ` MSS interests argue that the Commission should not permit UNII devices, particularly longer range devices intended to serve community networks, in the 5.155.25 GHz  X-band because such operations would interfere with MSS feeder links.4Gx {O* -  ԍ xSee Airtouch Reply at 2, Comsat Corporation and ICO Global Communications Reply at 2, and L/Q Reply at 4. Additionally, L/Q challenges the validity of the claim that UNII devices need access to the 5.155.35 GHz band to be compatible with HIPERLAN. They assert that HIPERLAN is still only a proposal that may not ultimately be adopted in Europe.  X -x25. ` ` Regarding the upper band, 5.7255.875 GHz, incumbent interests argue that this spectrum is not needed for UNII devices because the 200 megahertz proposed in the 5.15 X -5.35 MHz band should be sufficient.5 FGx {O-  ԍ xSee Cylink Comments at 4, Western Multiplex Comments at 3 and Wireless Field Test for Education Project ("WFTEP") Comments at 3. Parties that manufacture unlicensed spread spectrum devices under Section 15.247 of the Commission's rules argue that the upper band should not be made available because UNII devices might interfere with existing unlicensed spread  X -spectrum devices operating in this band.6 Gx {O-ԍ xSee Western Multiplex Comments at 34, Metricom Reply at 6 and Cylink Reply at 12. They oppose permitting nonspread spectrum UNII devices to operate in the upper band without detailed technical analysis and equipment testing to determine which UNII applications could be implemented, and what technical  Xb-specifications will be needed to avoid interference to spread spectrum operations.X7b2 Gx {OE-ԍ xSee, e.g., Cylink Comments at 8.X Amateur interests share a similar concern, arguing that UNII devices would cause harmful interference to amateur operations in this band. For example, the Southern California Repeater and Remote Base Association ("SCRRBA") argues that the 5.155.30 GHz band would better accommodate UNII devices because it would allow for the development of equipment  X-consistent with HIPERLAN.O8 Gx {Od"-ԍ xSee SCRRBA Reply at 9.O SCRRBA, however, states that the upper band could be used  X-on a limited basis by UNII devices if adequate technical limits (i.e., spread spectrum requirement, short distance, and power limit similar to UPCS) are imposed and if the secondary allocation of the amateur service in this band were upgraded to a primary" V 8,-(-(ZZ"  X-allocation.R9Gx {Oy-ԍ xSee SCRRBA Comments at 9. R The San Bernardino Microwave Society ("SBMS"), on the other hand, opposes any UNII operations in the upper band, arguing that these devices cannot share with amateur  X-weaksignal operations.M:ZGx {O-ԍxSee SBMS Reply at 25.M  X-x26.` ` Finally, several parties oppose allowing UNII operations in the 5.855.875 GHz portion of the spectrum. The Federal Highway Administration ("FHWA") and the Intelligent Transportation Society of America ("ITS") state that UNII devices at 5.855.875 GHz would interfere with their plans to seek an allocation of the 5.855.925 GHz band for  XH-Dedicated Short Range Communications ("DSRC").;HGx {O -  ԍxSee FHWA Comments at 23 and ITS Comments at 2. FHWA's comments state that DSRC  xcommunications could encompass several applications that require guaranteed channel access. For example one such  xapplication involves implementation with roadside speed and locationsensing equipment, DSRC communications  xequipment, invehicle signing equipment and trajectory computing and control electronics. Using these components,  xas vehicles approach an intersection, their speed and location are compared with the traffic signal status and potential collision conditions are identified. DSRC is then used to warn drivers of danger. Further, Resound Corporation ("Resound"), a manufacturer of hearing health care products, argues that the 5.855.875 GHz band should not be provided for UNII operations, because such operations would interfere with the current use of this spectrum for low power hearing assistance devices permitted  X -under Section 15.249.Q< f Gx {O-ԍxSee Resound Comments at 4.Q  X -  X -x27.` ` Decision.We continue to believe that it is appropriate to provide unlicensed devices with access to a substantial amount of spectrum at 5 GHz to accommodate the demand by educational, medical, business, industrial and consumer users for broadband multimedia communications. We are also cognizant, however, of the need for UNII devices to share the spectrum with primary services without causing radio interference to those services. We believe that both of these concerns can be accommodated by adopting appropriate technical restrictions for UNII devices, particularly transmit power and outofband emission limits (see technical discussion below), and by avoiding portions of the spectrum where sharing would be particularly difficult. Accordingly, we will make 300 megahertz of spectrum available for UNII devices. Specifically, we are providing UNII devices access to three 100 megahertz bands at 5.155.25 GHz, 5.255.35 GHz and 5.7255.825 GHz. We recognize that this is less than the 350 megahertz that was proposed in the  X-NPRM, but we believe that this amount of spectrum provides an appropriate balance between spectrum sharing concerns and providing sufficient spectrum to satisfy the needs of UNII devices.  XR-x28.` ` We believe that 300 megahertz of spectrum will provide sufficient spectrum to allow the full potential of broadband multimedia technologies to be realized. This spectrum"; <,-(-(ZZ" should provide for open entry and equal access by all such devices and to allow access to the spectrum by multiple users at a common location using a variety of different devices. In this regard, we note that these broadband devices each may require 20 to 25 megahertz channel  X-bandwidth to provide the high data rates envisioned by the petitioners.=Gx {O4-  lԍxSee, e.g., HewlettPackard Comments at 6, Nortel Comments at 10, Rockwell Comments at 2, 3Com Comments at 5, and WINForum Comments at 7. Furthermore, as discussed in greater detail in Section C below, the different sharing environments applicable to the three 100 megahertz subbands, 5.155.25, 5.255.35, and 5.7255.825 GHz, require that UNII operations comply with discrete technical standards for each subband.  XH- x29.` ` This action will also open opportunities for American industry to be competitive in the global market for these new telecommunication products. Specifically, providing access to the 5.155.30 GHz band would permit UNII devices to be compatible with the European HIPERLAN and would allow American industry flexibility to create  X -products for both markets.H> "Gx {O-ԍxSee supra, n. 44.H  X -x30.` ` We also believe that the 300 megahertz of spectrum we are providing for UNII devices avoids the use of spectrum that would be particularly difficult to share with primary operations. Specifically, as addressed below, we believe that UNII devices can share with proposed and existing services in these bands including the MSS feeder link operations that may use the 5.155.25 GHz band. On the other hand, UNII devices will not have access to spectrum used by microwave landing systems ("MLS") operated by the FAA in the 5.05.15 GHz band. Additionally, UNII devices will not have access to the 5.8255.875 GHz band. This will avoid potential interference with low power Part 15 hearing aid devices and potential ITS operations in the 5.8505.875 GHz band, FSS operations in the 5.8505.925 GHz band, and amateur operations in the 5.6505.725 and 5.8255.925 GHz bands.  X-x31.` ` We are not persuaded by arguments that UNII devices should be accommodated in spectrum other than the 5 GHz bands. With regard to the argument that UNII devices could use Government spectrum below 5 GHz that will be made available in the future for commercial use, we note that this amount of spectrum is substantially less than the amount we are here making available and is distributed over a wide range of frequency bands that would make the design of equipment difficult and expensive. We note that those bands will be the subject of future rule making proceedings that will determine the types of operations for which those bands may be used. We are also unpersuaded that spectrum above the 5 GHz range, particularly the millimeter wave bands above 40 GHz, could be used by unlicensed devices as easily or be made available as quickly as the 5 GHz bands. We note that signals at these higher frequencies have propagation constraints that will reduce the communication distances of devices operating at equal powers. Further, equipment that" >,-(-(ZZ" operates at a higher frequency is typically more expensive than equipment that operates at a lower frequency range.  X-C.xTechnical Standards  X-1.xGeneral  Xc-x32.` ` In the NPRM, we proposed rules to provide the maximum technical flexibility in the design and operation of UNII devices, to ensure that they do not cause harmful interference to incumbent and future operations, and to facilitate basic spectrum sharing among unlicensed devices. We proposed a maximum peak power limit of 100 milliwatt ("mW") (10 dBW) Equivalent Isotropically Radiated Power ("EIRP") for both the upper and lower 5 GHz UNII bands. We also requested comment on whether to permit operations at up to 1 watt ("W") (0 dBW) of transmitter output power within the upper band in order to facilitate community networks. Additionally, we did not propose limits on channelization or  X -modulation efficiency, but did request comment on these issues. Further, we proposed limits on emissions outside the bands of operation. Specifically, we proposed to require all emissions occurring from UNII devices outside of the authorized bands to be attenuated by at  Xh-least 50 dB or to the radiated emission limits set forth in Section 15.209,T?hGx {O-ԍxSee 47 CFR  15.209.T whichever is the  XQ-lesser attenuation.f@QZGx {O\-ԍ xSee supra, NPRM at para. 49.f In addition, we proposed to requi