Corporation for Public Broadcasting Facing the Spectrum Incentive Auction and Repacking Process A Guide for Public Television Stations and Governing Boards 7/8/2014 Facing the Incentive Auction and Repacking Process — July 8, 2014 Contents 1 Introduction ............................................................................................................................. 3 2 Background ............................................................................................................................. 4 2.1 Spectrum Management, Usage and Regulation ............................................................... 4 2.2 The Attractiveness of Broadcast Spectrum ...................................................................... 6 2.3 Public Media’s Role ......................................................................................................... 7 2.4 Broadband Explained ..................................................................................................... 11 2.5 The National Broadband Plan ........................................................................................ 12 2.6 The “Spectrum Act” ....................................................................................................... 13 2.6.1 Reverse Auction.. .................................................................................................... 13 2.6.2 Repacking.. ............................................................................................................. 14 2.6.3 Forward Auction.. ................................................................................................... 14 2.7 Public Media’s Advocacy in Response to the FCC’s Spectrum Incentive Auction Rulemaking Process .................................................................................................................. 14 2.8 The FCC’s Report and Order ......................................................................................... 16 2.8.1 Auction Timing ....................................................................................................... 18 2.8.2 Reverse Auction ...................................................................................................... 18 2.8.3 Spectrum Repacking Process .................................................................................. 19 2.8.4 Low Power Television (LPTV) Stations and Television Translators ..................... 21 2.8.5 Transition Plan ........................................................................................................ 21 2.8.6 Reimbursement of Relocation Costs ....................................................................... 22 2.8.7 Forward Spectrum Auction ..................................................................................... 22 2.8.8 Future Wireless Spectrum Band Plan (“The 600 MHz Band”) .............................. 22 2.8.9 Unlicensed Spectrum .............................................................................................. 23 2.9 Future Related FCC Proceedings ................................................................................... 23 3 Discussion ............................................................................................................................. 24 3.1 Opportunities Presented by the Spectrum Auction ........................................................ 25 3.1.1 Use of Auction Proceeds as a Major Capital Infusion ............................................ 25 3.1.2 Addressing Perceived Inefficiencies in Market Coverage ...................................... 25 3.1.3 Enhancing Efficient Operations .............................................................................. 25 3.2 The Threat to Universal Access / Universal Service...................................................... 26 3.2.1 White Areas Created Through a Relinquishment Bid in the Reverse Auction ....... 26 3.2.2 White Areas Created Through a Channel-Sharing Arrangement with a Station Operating on a Channel That Has Reduced or Different Coverage ...................................... 27 1 Facing the Incentive Auction and Repacking Process — July 8, 2014 3.2.3 White Areas Created Where a Television Translator Must Vacate its Current Channel and Does Not Have Another Available Channel on Which to Relocate or Cannot Afford Relocation ................................................................................................................. 28 3.2.4 White Areas Created Through a Reduction in a Public Television Station’s Service Area in the Repacking Process Due to Actual Facility Changes, New Interference or Changes in the Software Used by the FCC ........................................................................... 29 3.3 The Consequences of the Loss of Universal Access to Public Broadcasting ................ 30 3.3.1 Geographic Impacts ................................................................................................ 32 3.3.2 Socio-Economic Impacts ........................................................................................ 33 3.3.3 Impact on Diverse Communities and Public Media’s Mission to Serve Unserved and Underserved Audiences ................................................................................................. 34 3.3.4 Impact on the Public Media System ....................................................................... 34 3.3.5 Disruption and Expense in the Repacking Process ................................................. 35 4 Conclusion ............................................................................................................................ 38 5 Facing the Incentive Auction and Repacking Process .......................................................... 39 5.1 Issues for Station Managements and Governing Boards to Consider ............................ 39 5.2 Station Auction Considerations ...................................................................................... 41 5.2.1 General Considerations ........................................................................................... 41 5.2.2 The Bidding Process ............................................................................................... 43 5.2.3 Auction Options ...................................................................................................... 44 5.2.4 Transparency ........................................................................................................... 52 5.3 Station Repacking Considerations ................................................................................. 53 5.3.1 Reimbursement of Relocation Costs ....................................................................... 54 5.3.2 Eligibility ................................................................................................................ 54 5.3.3 Process .................................................................................................................... 54 5.3.4 Likely Channel Relocation Issues ........................................................................... 56 5.4 Duty of Care: Questions for the Entire Public Media System ....................................... 57 6 Glossary of Terms Used in this White Paper ........................................................................ 58 2 Facing the Incentive Auction and Repacking Process — July 8, 2014 1 Introduction In mid-2015, the Federal Communications Commission (FCC) is planning to hold a voluntary spectrum incentive auction1 in which television stations, including public television stations, will be able to bid on surrendering their licenses, moving from a UHF channel to one in the VHF band, or sharing a different channel with other stations, in exchange for cash. Stations participating in the spectrum incentive auction could realize large monetary gains, but at the cost of restricting or eliminating their existing or future services. Following the spectrum incentive auction, the FCC will “repack” the remaining television stations, both commercial and noncommercial, into a smaller segment of spectrum, requiring many to change channels and modify their transmission facilities accordingly.2 Stations that are forced to move to a different channel will likely experience disruption in their broadcast service and incur relocation expenses, most, but perhaps not all, of which will be reimbursed, and may not be able to provide as much coverage as before. This spectrum incentive auction and repacking process presents several challenges for the public media system, including the potential for: (1) holes being created in public television’s nationwide over-the-air coverage if public television stations that are the only providers of services in their area make a license relinquishment bid in the auction and go off the air; (2) channel sharing stations being limited in their future program services; and (3) some licensees receiving large sums of money for their stations’ channels, while many other stations face the disruption and perhaps some of the expense of repacking. The spectrum incentive auction and repacking process may also present some public media stations with certain opportunities, including the ability to: (1) use significant cash proceeds from their participation in the auction to strengthen or expand the creation of content and services, and/or the use of distribution platforms other than terrestrial broadcasting; (2) reduce service duplication in markets with multiple PBS stations;