Federal Communications Commission FCC 16-89 Before the Federal Communications Commission Washington, D.C. 20554 In the Matter of ) ) Use of Spectrum Bands Above 24 GHz For ) GN Docket No. 14-177 Mobile Radio Services ) ) Establishing a More Flexible Framework to ) IB Docket No. 15-256 Facilitate Satellite Operations in the 27.5-28.35 ) GHz and 37.5-40 GHz Bands ) ) Petition for Rulemaking of the Fixed Wireless ) RM-11664 Communications Coalition to Create Service ) Rules for the 42-43.5 GHz Band ) ) Amendment of Parts 1, 22, 24, 27, 74, 80, 90, 95, ) WT Docket No. 10-112 and 101 To Establish Uniform License Renewal, ) Discontinuance of Operation, and Geographic ) Partitioning and Spectrum Disaggregation Rules ) and Policies for Certain Wireless Radio Services ) ) Allocation and Designation of Spectrum for ) IB Docket No. 97-95 Fixed-Satellite Services in the 37.5-38.5 GHz, ) 40.5-41.5 GHz and 48.2-50.2 GHz Frequency ) Bands; Allocation of Spectrum to Upgrade Fixed ) and Mobile Allocations in the 40.5-42.5 GHz ) Frequency Band; Allocation of Spectrum in the ) 46.9-47.0 GHz Frequency Band for Wireless ) Services; and Allocation of Spectrum in the 37.0- ) 38.0 GHz and 40.0-40.5 GHz for Government ) Operations ) REPORT AND ORDER AND FURTHER NOTICE OF PROPOSED RULEMAKING Adopted: July 14, 2016 Released: July 14, 2016 Comment Date: September 30, 2016 Reply Comment Date: October 31, 2016 By the Commission: Chairman Wheeler and Commissioners Clyburn and Rosenworcel issuing separate statements; Commissioner Pai approving in part, concurring in part and issuing a statement; Commissioner O’Reilly approving in part, dissenting in part and issuing a statement. TABLE OF CONTENTS Heading Paragraph # I. INTRODUCTION.................................................................................................................................. 1 II. EXECUTIVE SUMMARY.................................................................................................................... 4 III. BACKGROUND.................................................................................................................................... 6 Federal Communications Commission FCC 16-89 A. The Millimeter Wave Mobile Opportunity...................................................................................... 6 B. Notice of Inquiry.............................................................................................................................. 8 C. Notice of Proposed Rulemaking .................................................................................................... 11 D. Recent Technological Developments............................................................................................. 15 E. World Radio Conference ............................................................................................................... 16 IV. REPORT AND ORDER ...................................................................................................................... 17 A. 28 GHz Band (27.5-28.35 GHz) .................................................................................................... 19 1. Suitability for Mobile Use....................................................................................................... 22 2. Licensing the 28 GHz Band .................................................................................................... 28 a. Use of Geographic Area Licensing................................................................................... 28 b. License Area Size ............................................................................................................. 33 3. Mobile Rights for Incumbents................................................................................................. 37 4. Satellite Terrestrial Sharing..................................................................................................... 43 a. Sharing with FSS Earth Stations....................................................................................... 43 b. Licensing of FSS Earth Stations ....................................................................................... 48 c. Aggregate Interference to Satellite Receivers................................................................... 61 5. Band Plan ................................................................................................................................ 70 B. 39 GHz Band (38.6-40 GHz)......................................................................................................... 73 1. Suitability for Mobile Service ................................................................................................. 75 2. Licensing the 39 GHz Band .................................................................................................... 77 a. Use of Geographic Area Licensing................................................................................... 77 b. License Area Size ............................................................................................................. 80 3. Mobile Rights for Incumbents................................................................................................. 83 4. Non-Federal Satellite Terrestrial Sharing – Licensing of Gateway Earth Stations................. 88 5. Band Plan ................................................................................................................................ 94 6. Pre-Auction License Reconfiguration..................................................................................... 97 C. 37 GHz Band (37-38.6 GHz)....................................................................................................... 101 1. Suitability for Mobile Use..................................................................................................... 103 2. Licensing the 37 GHz Band .................................................................................................. 106 3. License Area Size.................................................................................................................. 119 4. Band Plan for Upper Band Segment ..................................................................................... 122 D. 64-71 GHz Band .......................................................................................................................... 125 E. Federal Sharing Issues ................................................................................................................. 132 1. 39.5-40 GHz .......................................................................................................................... 133 2. 37-38.6 GHz .......................................................................................................................... 138 3. Passive Services Below 37 GHz............................................................................................ 152 F. Licensing, Operating, and Regulatory Issues............................................................................... 159 1. Creation of New Rule Service and Part................................................................................. 159 2. Regulatory Status .................................................................................................................. 162 3. Foreign Ownership Reporting............................................................................................... 169 4. Eligibility............................................................................................................................... 172 5. License Term......................................................................................................................... 174 6. Mobile Spectrum Holdings Policies...................................................................................... 178 7. Performance Requirements ................................................................................................... 191 a. Introduction..................................................................................................................... 191 b. Performance Metrics and Milestones.............................................................................. 196 c. Failure to Meet Buildout Requirements.......................................................................... 211 d. Treatment of Incumbents ................................................................................................ 217 e. Alternatives to Performance Requirements .................................................................... 221 8. Permanent Discontinuance of Operations ............................................................................. 224 9. Secondary Markets Policies .................................................................................................. 229 a. Partitioning and Disaggregation ..................................................................................... 229 b. Spectrum Leasing ........................................................................................................... 235 2 Federal Communications Commission FCC 16-89 10. Other Operating Requirements.............................................................................................. 240 11. Competitive Bidding Procedures........................................................................................... 245 a. Applicability of Part 1 Competitive Bidding Rules.......................................................