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FCC-13-39A1.Pdf Federal Communications Commission FCC 13-39 Before the Federal Communications Commission Washington, D.C. 20554 In the Matter of ) ) Reassessment of Federal Communications ) ET Docket No. 13-84 Commission Radiofrequency Exposure Limits and ) Policies ) ) Proposed Changes in the Commission's Rules ) ET Docket No. 03-137 Regarding Human Exposure to Radiofrequency ) Electromagnetic Fields ) ) FIRST REPORT AND ORDER FURTHER NOTICE OF PROPOSED RULE MAKING AND NOTICE OF INQUIRY Adopted: March 27, 2013 Released: March 29, 2013 Comment Date: (90 days after date of publication in the Federal Register). Reply Comment Date: (150 days after date of publication in the Federal Register). By the Commission: TABLE OF CONTENTS Heading Paragraph # I. INTRODUCTION.................................................................................................................................. 1 II. BACKGROUND.................................................................................................................................. 10 III. REPORT AND ORDER ...................................................................................................................... 14 A. Evaluation of RF Exposure............................................................................................................ 18 1. Primacy of Specific Absorption Rate (SAR) over Power Density or Field Strength below 6 GHz............................................................................................................................ 18 2. Technical Evaluation References in Rules.............................................................................. 28 3. Pinna (Outer Ear) Classification as an Extremity.................................................................... 42 4. Part 1 / Part 95 MedRadio (formerly Medical Implant Communications Service) Measurement Consistency....................................................................................................... 51 B. Mitigation....................................................................................................................................... 57 1. Labeling and Instructions for Mobile and Portable Devices Intended for Occupational Use Only.................................................................................................................................. 58 2. Clarification of Application of Occupational Exposure Limits............................................... 64 3. Responsibility for Compliance at Fixed Sites with Multiple Transmitters ............................. 80 4. Labeling and Installation of Fixed Consumer Transmitters .................................................... 85 C. Effective Date ................................................................................................................................ 98 D. Deletion of Old Rules and Update of Portable and Mobile Service Evaluation List................... 105 IV. FURTHER NOTICE OF PROPOSED RULE MAKING.................................................................. 108 Federal Communications Commission FCC 13-39 A. Definition of Terms Related to our Further Proposals................................................................. 110 B. Exemption: Power and Distance Criteria to Streamline Determination of Compliance.............. 114 1. Blanket 1 mW Exemption ..................................................................................................... 121 2. MPE-Based Exemption of Fixed, Mobile, and Portable RF Sources.................................... 127 a. Single Transmitters......................................................................................................... 128 b. Multiple Fixed Transmitters ........................................................................................... 139 c. Summation for RF Sources without Definable Physical Relationships is not Required.......................................................................................................................... 142 3. SAR-Based Exemption of Fixed, Mobile, and Portable RF Sources .................................... 145 a. Single Transmitters......................................................................................................... 148 b. Multiple Portable Transmitters ....................................................................................... 154 c. Multiple Portable and Mobile Transmitters.................................................................... 161 d. Portable Transmitters with Operating Frequencies above Six Gigahertz or at Distances Greater than λ/2π............................................................................................ 161 C. Evaluation of Portable Devices.................................................................................................... 167 1. Consistency in Usage of Any Valid Method for SAR Computation..................................... 168 2. Removal of Minimum Evaluation Distance Requirement from Rules for Frequencies above Six Gigahertz .............................................................................................................. 170 3. Technical Evaluation References in Rules............................................................................ 173 D. Mitigation..................................................................................................................................... 175 1. Transient Exposure in Controlled Environments near Fixed RF Sources............................. 175 2. Proximity Restriction and Disclosure Requirements for Fixed RF Sources ......................... 184 E. Review and Update All RF Safety Text in Parts 1 and 2 for Clarity and Consistency................ 204 V. NOTICE OF INQUIRY ..................................................................................................................... 205 A. Introduction.................................................................................................................................. 205 B. Background.................................................................................................................................. 211 C. Discussion.................................................................................................................................... 216 1. Exposure Limits .................................................................................................................... 218 2. Consumer Information .......................................................................................................... 231 3. Exposure Reduction Policies................................................................................................. 236 4. Evaluation.............................................................................................................................. 244 5. Proximity Restriction and Disclosure Requirements for Portable RF Sources ..................... 248 VI. PROCEDURAL MATTERS.............................................................................................................. 253 A. Final and Initial Regulatory Flexibility Analysis......................................................................... 253 B. Paperwork Reduction Act Analysis............................................................................................. 255 C. Filing Requirements..................................................................................................................... 259 D. Ex Parte Rules.............................................................................................................................. 262 E. Congressional Review Act........................................................................................................... 263 VII. ORDERING CLAUSES.................................................................................................................... 264 APPENDIX A- Final Rules APPENDIX B- Proposed Rules APPENDIX C- Derivation of General MPE-Based Exemption from RF Evaluation for Single RF Sources APPENDIX D- Derivation of General SAR-Based Exemption from RF Evaluation for Single RF Sources APPENDIX E- Final Regulatory Flexibility Analysis APPENDIX F- Initial Regulatory Flexibility Analysis APPENDIX G- List of Commenters APPENDIX H- Summary of Comments and Discussion on Non-Action Topics from the 2003 Notice of Proposed Rulemaking I. INTRODUCTION 1. Periodic review of the government’s rules and regulations to ensure they have kept pace with current knowledge and changing needs is an important characteristic of good government, and we 2 Federal Communications Commission FCC 13-39 here will advance the process of providing a comprehensive review and modification, where appropriate, of this Commission’s various rules pertaining to the implementation of the National Environmental Policy Act (NEPA) requirements for environmental reviews, specifically those reviews related to health and safety of radiofrequency (RF) emissions from radio transmitters. Our actions herein are intended to ensure that our measures are compliant with our environmental responsibilities and requirements and that the public is appropriately protected from any potential adverse effects from RF exposure as provided by our rules, while avoiding any unnecessary burden in complying with these rules. This document is divided into three parts: a Report and Order (Order) and a Further Notice of Proposed Rulemaking (Further Notice) in ET Docket No. 03-137,
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