am improvement comments
TRANSCRIPT
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Before the
Federal Communications Commission
Washington, D.C.
In the matter of:
)
Revitalization of the AM Radio Service ) MB Docket No. 13-249
)
COMMENTS OF SCOTT FYBUSH
Scott Fybush hereby submits these comments in response to the Commissions
Oct. 31, 2013 Notice of Proposed Rulemaking in the above-captioned proceeding:
QUALIFICATIONS
Fybush has worked in and around AM radio since 1991, as a journalist at
WKOX(AM), Framingham, Massachusetts, WCAP(AM), Lowell, Massachusetts,
WBZ(AM), Boston, Massachusetts and WXXI(AM), Rochester, N.Y. As a journalist and
analyst covering the broadcast industry, Fybush has edited or written for trade
publications including The Radio Journal, Radio World, Radio Guide, Current, and since
1994 his ownNorthEast Radio Watch1, covering broadcast engineering, technology,
regulatory and business issues. As a consultant, Fybush has advised station owners and
groups on signal improvement and acquisition strategy. Since 2000, Fybush has profiled
broadcast facilities on the weekly Tower Site of the Weekpage and in the annual Tower
Site Calendar, with special attention to the history of AM transmission in the United
States. He has visited and studied thousands of broadcast facilities from coast to coast.
Fybush (hereinafter, Commenter) is a member of trade and hobby organizations
including the Society of Broadcast Engineers, the National Radio Club and the
Worldwide TV-FM DX Association. His comments here are strictly his own.
1http://www.fybush.com/
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INTRODUCTION
The Commissions renewed attention to the plight of AM radio comes at perhaps
the last moment at which it can be of any practical benefit. As it approaches its 100th
anniversary, AM radio in the U.S. is plagued by historically high interference levels,
deteriorating receiver design, an aging universe of transmission facilities and a plethora
of competitors for the attention span of would-be listeners.
With nearly 5,000 AM stations on the air across the country, the U.S. has a wider
variety and larger number of broadcast facilities than almost any other nation on earth. It
is nearly impossible to generalize about a typical AM station, and thus to create a one-
size-fits-all regulatory policy that can apply to everything from a 250-watt daytimer in
Montana to a 50,000-watt class A station in New York or Los Angeles.
However, these comments will attempt to address three broad categories of station
that, in the opinion and experience of this commenter, encompass most of the AM
stations seeking to benefit from a revision of the FCCs regulations.
The Giants
Only a small handful of AM stations are fully technically competitive at the
highest levels of American radio. In most of the biggest markets rated by Nielsen Audio,
fewer than a half-dozen AM stations can provide 10 mV/m or better signals2to all or
nearly all of the rated metro area both day and night. Even using the Commissions
accepted service standards (100% 5 mV/m day, 80% NIF night), there are numerous
large metros in which not a single AM station covers the entire market day and night,
putting the entire AM dial at an immediate disadvantage.3
Almost without exception, the giant AM stations that are fully technically
competitive in large markets are 50,000-watt class A stations operating with essentially
the same technical facilities they have enjoyed since the 1930s. Depending upon the
2While the Commissions rules have long established 5 mV/m as the standard for daytime groundwave
coverage of community of license, analysis of Nielsen Audio ratings broken out by ZIP code now show
that due to ever-increasing levels of man-made interference, AM stations in medium and large markets
draw the lions share of their ratings only in areas where they deliver 10 mV/m or more of signal. The
Commissions rules once required 25 mV/m of signal over the main post office of the city of license, a
level that seems prescient in retrospect.3These markets include Atlanta, Washington, D.C., Tampa-St. Petersburg, Providence, Charlotte,
Indianapolis, Tucson, Birmingham and Winston-Salem, N.C.
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geographic size of the markets they serve, the ground conductivity around their
transmitter sites and the history of high-powered allocations in their regions4, some major
metropolitan areas have one or even zero AM stations that can claim a level of service
equal to or better than the full class B or C FM stations with which they must compete. In
metropolitan areas as large as Atlanta, Houston, Miami-Fort Lauderdale and Washington,
D.C., there is now no AM station that can fully cover the market as it exists in 2014.
Even in the large markets that still have several fully-competitive AM signals, station
owners have found it necessary to simulcast their programming on full-market FM
stations in order to compete in todays marketplace5.
For most of these remaining AM giants, there is no longer any practical economic
benefit derived from wide-area skywave coverage at night. The concern, instead, is
groundwave coverage at the edges of metro markets that have sprawled dramatically
since most of these stations built their current transmitter plants in the years just before or
after World War II.
The Middle of the Pack
Beyond the 100-200 biggest signals that qualify as fully-competitive giants are
some 2,000-plus AM stations that are perhaps most in need of FCC regulatory
intervention in order to have any chance at survival.
These stations are largely class B regional signals, the umbrella designation
established by the Rio treaty to replace former domestic classes I-B, II-A, II-B and III. In
the very largest markets, these stations struggle (even with 50,000 watts in many cases) to
provide sufficient signal level to metropolitan areas that have seen population sprawl into
locations never envisioned by the engineers who designed their directional patterns in the
1940s and 1950s. Unlike the giant stations transmitter plants, which Commission
4
Despite the Commissions effort to better spread out high-powered AM allocations over the lengthycourse of its clear-channel proceedings in the 1950s and 1960s, the pattern of high-power AM signal
distribution around the U.S. still largely follows the population patterns of the era before World War II, an
impediment to which the only real solution would be a wholesale reallocation of the AM band, a practical
impossibility in the 21stcentury.
5Prominent examples of this trend include WSCR, Chicago (50 kW ND fulltime), WWL, New Orleans (50
kW DA-1), KCBS, San Francisco (50 kW DA-1) and WFAN, New York (50 kW ND fulltime). WSB,
Atlanta (50 kW ND fulltime) suffers from the worst ground conductivity of any major market and has
begun simulcasting on a powerful FM sibling, WSBB-FM, Doraville, GA, in an attempt to fill in coverage
gaps.
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policy encouraged to be built in outlying rural areas, many of these class B stations have
been further hindered by multiple-tower transmitter sites that are rapidly aging, expensive
to maintain and are in closer-in suburban locations now encircled by dense development.
Increasingly, these stations owners find they are worth more for their land than for the
value of the station license6. Even if these stations owners have both the economic
wherewithal and the allocation spacing to build a new transmitter plant in a location
where more of the present-day market could be served, those potential new transmitter
sites would too often end up in upscale residential areas where NIMBY factors make
the construction of new transmitter sites an impossibility.7
In addition to the overall problem of man-made interference levels, further
challenges for the middle of the pack AM stations include crowded former regional
channels that were jammed full of interfering signals in the last years of the AM boom in
the 1950s and 1960s; a lack of funding for the Enforcement Bureau to keep vigilant
watch on stations failing to reduce power as required at sunset; and increased interference
from international sources including Cuban stations operating outside international treaty
and Mexican stations widely believed to be operating at variance from treaty restrictions.
Many of these middle-of-the-pack AMs once lived at or near the top of the
ratings in their communities, but the result of all the many challenges they face is that
these stations have, on the whole, displayed the greatest signs of AMs decline. Unable to
reach an entire rated market, many of these stations have replaced expensive local
programming with satellite-fed talk or sports, becoming second- and third-tier sisters to
clusters of larger FM and AM outlets. Those with viable programming often end up
simulcasting on FM signals that draw most of the combined audience. Others end up
being sold to owners attempting to serve niche audiences with foreign-language or
6This, in turn, is an unintended consequence of the old 25 mV/m at the post office coverage requirement,
which practically restricted the distance at which most class B stations could be built from the city center
and thus landed their sites right in the path of later suburban growth. Examples of stations silenced in order
to sell the underlying land can be found in markets as large as Detroit (WDTW, Dearborn) and Bangor,
Maine (WAEI).7One of the few stations that has successfully made such a move is KRKO, Everett, Washington, and the
Commissions records are replete with evidence both of the millions of dollars station owner Andy Skotdal
spent to survive years of legal challenges and of the subsequent vandalism that destroyed much of the new
site shortly after it was built.
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religious programming. In general, the markets these stations attempt to serve are too
large, geographically, to be usefully served by FM translators.
The challenge of maintaining aging directional arrays is especially acute for these
broadcasters, and the Enforcement Bureaus records provide ample evidence of the
additional interference caused when these stations find themselves unable to broadcast
within licensed parameters.
The Smallest AMs
Much of the Commissions latest attempt to revitalize the AM service has, rightly,
been focused on and driven by the needs of the smallest AM stations. The 2,000 or so
smallest AM stations on the FCCs rolls include the class C (formerly class IV)
graveyard stations and a motley assortment of class D signals that are former daytime-
only signals, some operating on a secondary basis on the former clear channels and others
operating on former regional channels.
In small towns, the graveyard stations are, ironically, often among the few
contemporary AMs still able to fully cover their communities with a usable signal; the
small size of these communities has also produced numerous success stories of FM
translators in the years since the Commission began allowing their use by AM stations.8
The relatively minimal requirements for transmission facilities a short single tower, or
even a fiberglass whip continue to make it comparatively simple for these stations
owners to maintain their plants or relocate them when necessary.
The record has been decidedly more mixed with respect to the class D stations.
Under post-World War II Commission policy that encouraged as many stations to be
jammed into the dial as possible9, these stations were often built with expensive and
complicated directional arrays and wedged into tight allocation scenarios that make them
8In many cases, these AM stations and their new translators have further benefited by an unintended
consequence of another Commission policy: until it was slowed by the revised Rural Radio Policy, the
widespread move of suburban and rural FM stations to larger cities often left these small AMs as the only
remaining stations attempting to serve smaller communities at the far fringes of larger cities and metro
areas.9The historical record amply shows that these policies were heavily driven by political pressure from
Congressional representatives seeking more broadcast signals for areas that boomed after World War II;
inevitably, the necessity to regulate according to the laws of physics and good engineering practice is
tempered by the reality of the politics within which the Commission must operate.
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impossible to move. The relaxation of clear-channel protections and introduction of post-
sunset and pre-sunrise authority through the 1970s and 1980s gave many of these stations
a taste of nighttime operation, albeit against ridiculously high NIF limits that rendered
those minimal nighttime authorizations effectively useless.
As a result of the scarcity of listening options as late as the 1960s, some of these
stations experienced success despite these signal limitations. The rise of FM beginning in
the late 1960s sealed the fate of many of these stations, and the explosion of personalized
listening choices in recent years has only hastened their decline.10
It is only in the context of a full historical understanding of these three disparate
groups of stations that we can begin to analyze the Commissions instant proposals and
offer additional recommendations.
A. OPEN FM TRANSLATOR FILING WINDOW EXCLUSIVELY
FOR AM LICENSEES AND PERMITTEES
The need for such a window is obvious and urgent, and this commenter fully
supports this proposal.
The record now amply demonstrates the value of an FM presence for AM
broadcasters. It is tempting, especially from a broadcast historians perch, to romanticize
the value of small-town, full-service AM radio. In the real world in which the
broadcasters of 2014 operate, however, the marketplace has already spoken: even in
small towns, the vast majority of American radio listening has already migrated to the
FM dial and the advertisers pursuing that listening audience want an FM presence for
their advertising dollars.
The small AM broadcasters who were fortunate enough to be able to purchase
(and in some cases, relocate) FM translators have almost without exception found success
10As best this researcher can determine, the last daytimer to register any significant ratings as a mass-
audience station in a large market was WSCR, 820 kHz, Chicago; its all-sports format, the first in that
market, moved to a full-time signal in 1997 once it had achieved success. Ironically, the 820 kHz facility in
Chicago had been reduced to daytime-only status after development pressure claimed its former nighttime
directional site in suburban Elmhurst, Illinois, further demonstrating the myriad challenges that have now
faced AM operators for decades.
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as a result. Stations such as WWSF, Sanford, Maine11
that had ceased to be useful local
presences in their communities are once again providing local news and emergency
information and selling airtime to local advertisers as a direct result of their new presence
on the FM dial. The use of translators to provide continued service after dark has
transformed WCJW, Warsaw, N.Y.12
, allowing it to profit from broadcasting high school
sports that would otherwise have occurred after sign-off. Its presence on the FM dial
allows its localized country format to more fully compete with distant FM country
stations in Rochester and Buffalo, an hours drive away, that offer no local service to the
rural areas around Warsaw. Similar stories are repeated all across the country.
Because the FM dial is nearing full capacity in many parts of the U.S., this
commenter supports significant restrictions on an AM-only translator window. The
continued demand for new FM service has repeatedly resulted in abuses of the
Commissions processes, as witnessed by the thousands of translators from the last filing
window that ended up in the hands of only a handful of parties, who have then reaped
significant profits by reselling those translators to AM stations. Even the 2013 LPFM
window produced evidence of attempts at bulk filing, notwithstanding a strict one-to-a-
customer rule.13
As a result, this commenter encourages the Commission to conduct an AM
translator window in a series of stages. First priority should be given to licensees who
own only a small number (perhaps three or fewer) of AM stations, and those licensees
should be limited to only a single application each. (This window could also provide a
much-needed major change opportunity to existing standalone AMs seeking to improve
existing translators.) A second phase of the window process could then open up
remaining FM channels to AM stations that are part of larger clusters. If frequencies still
remain available, a third phase could then provide additional translator opportunities to
licensees that had been limited by the one-to-a-customer initial window.
Because the number of available FM channels is now relatively small, and
because much of the initial demand for AM translators has already been sated, there is no
11WWSF, formerly WPHX, operates with 1000 watts daytime, 234 watts nighttime, non-directional, and
operates translator W272CG.12
WCJW operates with 2500 watts, daytime-only, and is heard over five translators that provide the only
local commercial service to much of its sprawling rural listening area.13
http://home.recnet.com/node/595
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reason to expect these windows would produce anywhere near the volume of applicants
that overwhelmed the Commissions filing processes in 2003. These windows could
move much more rapidly, and with room for the Commission to provide flexibility in the
form of waivers to the one-to-a-customer rule where specific and unusual local
circumstances might dictate otherwise.
Additionally, if the trafficking of translator permits remains a concern, this
commenter would support linking the new FM translators tightly to their corresponding
AM licenses, allowing them to be sold only in tandem with the AM license. Such a
linkage would have the unfortunate result of creating a two-tiered system of translators,
in which translators from the 2003 window and earlier would be freely transferable
(sometimes at considerable profit), while translators from the new window would be
locked to their corresponding AM station. This could be mitigated by a sunset period
(perhaps seven to ten years) after which the new translators would also be transferable, or
as will be explored under further proposals by allowing existing translators to also
be locked to a corresponding AM station in exchange for the ability to make additional
technical improvements unavailable to unlocked translators.
It is difficult to find evidence of harm to existing FM broadcasters from these new
AM translators. Because of the tight technical limitations of AM fill-in translators, as
well as the limitations of the translator service in general, few AM translators compete
directly with larger FM signals.14
The bigger impact of the translator service appears to
be the creation of new mega-translators fed by FM HD subchannels in larger markets15
;
that impact, however, is outside the scope of this rulemaking.
14A rare counterexample is K272EE, Las Vegas, Nevada, which translates KQLL(AM), Henderson,
Nevada, broadcasting an oldies format as Kool 102. Because it does not subscribe to Nielsen Audio,Kool 102 does not appear in the Las Vegas ratings, but anecdotal evidence suggests KQLL and its
translator do not pull any significant revenue away from their larger FM competitors.15
Examples include K265CA, Albuquerque, NM, where the terrain of Sandia Crest allows the use of 250
watts ERP at 1230 meters AAT, yielding a signal larger than a full class A signal if derated for that HAAT.
K265CAs programming, fed by the HD2 of sister station KBQI-FM, drew a 2.5 rating in the Fall 2013
Nielsen Audio ratings. (http://ratings.radio-online.com/cgi-bin/rol.exe/arb141). Similar mega-translators
have appeared in markets such as Atlanta, Kansas City and Portland, Oregon. By their nature, they must
almost always fill in FM stations, since few AMs have 2 mV/m contours that reach out as far as these
translators.
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B. MODIFY DAYTIME COMMUNITY COVERAGE STANDARDS
FOR EXISTING AM STATIONS
As explored extensively in the introductory paragraphs, the state of AM radio
allocations is deeply rooted in history and largely set in stone by the pattern of population
distribution across America in the years around World War II. This militates deeply
against any attempt to make AM service more closely reflect 21stcentury population
realities.
The revision of the Commissions Rural Radio rules in 2013 implicitly endorsed a
recognition of the reality that service to an urbanized area is of more practical
importance than service to a specific incorporated community within that urbanized area.
The wild diversity of forms of local government, annexation laws and population sprawl
across the U.S. has made continued reliance on the Commissions community of license
rules an anachronism, notwithstanding the presumption inherent in this proceeding that
such continued reliance is somehow desirable.
This commenter strongly supports modification of the 100-percent/80-percent
rule.16The Commission need only study the growing number of ongoing Special
Temporary Authority (STA) requests from AM stations that have lost transmitter sites
and must continue to operate at reduced temporary facilities. Even in cases where a
replacement for a complex directional array is possible based on land availability and
zoning, the cost of building such an array from scratch now often exceeds the value of the
stations license. In the real AM world of 2012, the choice is not between some ideal of
100-percent-day/80-percent-night coverage and lesser service; it is between lesser (but
affordable) service and no service at all. (These stations almost universally fall into the
second of the three categories outlined above, the middle of the pack that is already the
most threatened among AM broadcasters.)
In some perhaps even many cases, it may be desirable for the overall health of
the AM dial to encourage those challenged stations to go silent for good, especially if a
tax credit can be provided or if another station on the same or an adjacent channel were to
be allowed to compensate a licensee for the surrender of such a license. Commenter
16Commenter notes that even the existing 100 percent rule assumes a 5 mV/m coverage standard that, as
outlined earlier, is no longer a realistic metric for determining commercially usable siganl levels in a
crowded urban marketplace with todays high noise floors.
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recognizes, however, that such a policy flies in the face of the longstanding Commission
presumption that a greater number of stations is always preferable to fewer, and that
some level of service to a community is preferable to none at all.
With respect to the proposal that stations changing community of license be
required to continue to abide by the 100/80 rule, greater flexibility than suggested by the
Commission is warranted. Within urbanized areas, the Commission now recognizes (in
its Rural Radio rules for FM) that individual municipal lines are of little relevance to
broadcast service. With a showing that an existing AM site is threatened, or that the
public interest can be better served by relocating an existing AM station within an
urbanized area, existing AM licensees should enjoy the freedom to follow the proposed
50-percent rule even when a change to a new community of license is warranted.
Given the expense of moving an AM site to a new location, such applications will
be few in number and the Commission should adopt a lenient policy of considering
waiver requests whenever a public-interest benefit can plausibly be demonstrated.
However, no such leniency should be granted to applications for new stations.
Given the essentially full nature of the AM dial in almost all parts of the country, there is
no compelling reason for the Commission to open the door to additional clutter in the
form of new stations, with the exception of the expanded band (1610-1700 kHz) and the
530 kHz frequency. Those 11 channels have been underutilized, and any full examination
of the options available for AM band improvement should include a re-examination of
Commission policy that has long hindered full development of that spectrum.
If a window is ever again to be opened for new stations in the traditional AM
band (540-1600 kHz), it should be strictly limited to only those applications that can meet
the most stringent technical criteria; in practice, that would effectively amount to a
permanent freeze on all new AM applications save, perhaps, a handful of class C signals
in remote areas.
C. MODIFY NIGHTTIME COMMUNITY COVERAGE
STANDARDS FOR EXISTING AM STATIONS
In lieu of a more comprehensive AM improvement policy, existing AM licensees
have already discovered that with the advent of FM translators, the Commissions
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existing nighttime coverage requirements (and thus the need for expensive, complex
directional arrays) can be relaxed de factosimply by downgrading an existing class B
middle-of-the-pack station to class D status. In Owensboro, Kentucky, for instance,
Cromwell Broadcasting had struggled with a four-tower night array for WVJS(AM) that
was challenging to keep in tune. By downgrading from class B to class D, WVJS was
able to eliminate three of its four towers, reducing its power from 5000 watts to 980 watts
by day and from 1000 watts to 20 watts at night. While this reduced the coverage area
served by WVJS on AM, an FM translator mounted atop the remaining AM tower
provides more than adequate service overall to the community.17
In light of this marketplace reality, there is little the Commission can or should do
by way of regulation to preserve service that is no longer economically justifiable. If
the AM band has effectively matured, it should be allowed maximum flexibility in its
waning years. Existing stations can already eliminate all nighttime coverage requirements
by downgrading to class D (in the process potentially opening up improvement
opportunities for their neighbors); in general, they should also be allowed a middle
ground in which they reduce their nighttime signal while retaining class B protection for
the reduced signal, regardless of the extent to which the reduced signal covers its
community of license.
At the same time, stations should be discouraged from cluttering the nighttime
AM spectrum with signals that cause interference while providing little useful service. A
sharply reduced spectrum fee structure for class B stations that voluntarily downgrade to
class D (rather than maintaining minimal class B service) would serve this purpose.
While it would be desirable to maintain stricter scrutiny for the small number of
stations that provide the only source of service to a remote or otherwise unserved area,
the marketplace must be allowed to dictate which AM services are sustainable and which
are not. As long as AM licensees have the option of downgrading to class D or
surrendering the AM license completely, no amount of regulatory good intention can
preserve service that has become economically unsustainable.
17http://www.fybush.com/tower-site-of-the-week-1052012-wvjs-owensboro-ky/
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D. ELIMINATE THE AM RATCHET RULE
Yes. Absent any showing that this well-intentioned rule has provided even one
iota of the interference reduction it was designed to create, it should be abandoned as the
misguided impediment it has become.
As a general principle, it has been this commenters experience that the AM
facilities that provide the greatest public service and have been most likely to survive and
thrive despite the mediums overall decline are the oldest, largest signals. As the
Commission correctly notes, it is precisely those signals that are most thwarted from
improvement by the ratchet rule, and it should be abandoned posthaste.
E. PERMIT WIDER IMPLEMENTATION OF MODULATION
DEPENDENT CARRIER LEVEL CONTROL TECHNOLOGIES
At the listener level, this commenter has noticed no adverse effects from stations
known to be testing MDCL technologies, and as a consultant, this commenter is aware of
stations that have reported significant savings on power bills as a result. MDCL
technology has been widely implemented for many decades outside the U.S. with no
known problems, and should be encouraged for the higher-power U.S. licensees for
whom it will provide financial benefits.
F. MODIFY AM ANTENNA EFFICIENCY STANDARDS
Of the Commissions six concrete proposals in this Notice, this is by far the most
vexing. This commenter concurs with the concerns about the increasing difficulty in
siting AM antennas, especially at lower frequencies. The construction of a new AM
transmitter site has become a near-impossibility in the 21stcentury thanks to increased
difficulty in zoning for tall towers and the expense of the land needed for ground systems
and multiple-tower directional arrays. Including legal expenses, it can easily cost well
over a million dollars to construct a new AM site of significant power. Few AM stations
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are now worth enough money to justify that expense, and the disparity between stick
value of a license and the cost of a transmission facility continues to increase.
Set against that backdrop, the cost of a kilowatt-hour of electricity is of less
importance than this Rulemaking proposal would suggest. While there is indeed no
evidence that the constant-dollar cost of electricity has declined significantly since most
of todays AM infrastructure was built in the 1930s, 1940s and 1950s, the size of a
transmitter sites power bill should be a concern solely for the licensee, not for the
Commission.
Eliminating or significantly reducing AM antenna efficiency requirements would
give AM broadcasters parity with their FM counterparts. It is of no concern to the
Commission whether an FM station chooses to make its licensed ERP by using a high-
power transmitter and a low-efficiency antenna or whether it chooses to use a multi-bay
antenna fed by a lower-powered transmitter. The same should be true for at least smaller
AM broadcasters. As with FM licensing standards, as long as a broadcaster is able to
make a showing that its proposed antenna system will produce a desired field strength
level at the appropriate distance from the transmitter site, the choice of antenna input
power and efficiency should be up to the licensee.
As a real-world matter, such a rule change would give AM broadcasters much-
needed flexibility to reduce tower height. Stations that can reduce their tower height
below 200 feet can eliminate the expensive regulatory burdens of painting and lighting,
and should be allowed to remove their towers from ASR registration as well if they can
provide a no hazard determination. A reduction in efficiency standards should also
include the ability to use non-standard antenna types such as roof-mounted and shunt-
fed antennas, contingent upon the submission of computer modeling to assess efficiency
and radiation patterns. The use of such lower-profile antennas would provide much-
needed flexibility to many AM stations struggling to find viable transmission locations.
However, attention must continue to be paid to skywave radiation and the effect
of shorter antennas on the noise floor under distant co-channel stations. That noise floor
has been irreparably raised in recent decades by the boom in new electronic devices in
homes, switching-mode power supplies, LED street and traffic lighting and the lack of
enforcement of Part 15 standards. The NIF levels of existing stations should not be
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further raised (in reality, if not on paper) by additional interference from other domestic
AM stations.
Unlike FCC rules, the laws of physics are not subject to repeal. Despite decades
of attempts to legislate the effects of skywave out of existence, the fact remains that
medium-wave frequencies will propagate at long distances given even the slightest
opportunity and with even the most minimal of power. In addition to commenters
industry activities, commenter is also a longtime member of the National Radio Club
(NRC), the nations oldest AM DX club. While DX reception is no longer of economic
importance to most AM stations or the industry as a whole, the NRCs DX News and
DX Audio Service publications, as well as those of other similar clubs, provide ample
evidence that AM signals continue to travel and be heard at great distances. A recent
issue of DX News, for instance, carried reports of a test from WKAL (1450 kHz) from
Rome, New York being heard in Nebraska and of WRCE (1490 kHz) from Watkins
Glen, New York being heard in southern New Hampshire18.
The purpose of this comment is not to plead for special consideration for hobbyist
activities but rather to note that skywave propagation is inseparable from medium-wave
AM transmission. Any attempt to revise the rules for transmission systems or for station
protections (as will be explored in the next section) must take the reality of skywave
propagation into account, or it will fail to achieve the desired real-world results.
G. ADDITIONAL SUGGESTIONS
1. Re-evaluate the use of digital HD Radio transmission on MW spectrum
Since the Commission approved the use of the HD Radio system for both daytime
and nighttime transmission, the result has been at best mixed. While the Commissions
records indicate that only 300 AM stations (just over 6% of the total) have notified an
intention to operate digitally, the real numbers appear to be even less impressive. A
collaborative effort among AM listeners to track stations actually operating at night in
18http://www.e-dxn.com/news/81_DXN/DXN81_15.pdf
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hybrid analog-digital mode now shows just 58 AM stations confirmed as being heard
with HD Radio as of January 2014.19
The claims that hybrid operation causes no interference to adjacent-channel
analog stations have long since been discredited by many in the engineering community.
While co-owned WABC, New York (770 kHz) and WJR, Detroit (760 kHz) still appear
on the FCCs list of stations with AM digital notification, it is well known that the
stations then-owner, Citadel, turned off the digital signals on both stations after
incoming skywave from WJRs upper sidebands caused significant interference to
critical-hours reception of WABC in areas within WABCs local market.
The commenter has also personally observed the degradation of the night signal
of station WYSL, Avon, NY (1040 kHz) by the upper digital sidebands of WBZ, Boston,
MA (1030 kHz)20. While the commenters home is outside the small NIF contour of
WYSL, personal observation over a period of time before and after the start of digital
operation by WBZ showed that a WYSL signal that was once usually listenable (despite
the sole-source interference contribution of WHO, Des Moines) became nearly inaudible
under the digital hash of the WBZ signal, which is often strong enough to trigger the
data display on several HD Radio receivers. While WYSL was able to restore service
(including University of Rochester sports broadcasts) to commenters local area through
the use of an FM translator, W221CL, its situation still represents a worst-case scenario
of the negative effects of hybrid HD Radio operation on the AM dial.
As a further indication of the minimal marketplace penetration of AM HD Radio
in the hybrid mode, it should be noted that of the 58 AM stations confirmed as operating
with HD Radio day and night, a significant number also simulcast their programming on
either an FM HD subchannel of a sister station or on a full-power analog FM station in
their market21
.
19http://topazdesigns.com/iboc/station-list.html
20As a matter of full disclosure, as well as of no small irony, commenter acknowledges his status as a
former newsroom employee of WBZ; again, commenter speaks only for himself in these comments.21
Notable examples include WBZ itself, simulcast on WBZ-FM-HD2; WFAN (660) New York, simulcast
on WFAN-FM; KSL (1160) Salt Lake City, simulcast on KSL-FM; KNX (1070) Los Angeles, simulcast on
KCBS-FM-HD2.
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While the use of a more spectrum-efficient digital-only AM HD mode has been
shown to hold some promise and additional testing should be encouraged22
, the
Commissions further inquiry on the use of digital transmission on medium wave should
also include a re-examination of the spectrum efficiency and interference potential of
continued hybrid operation in the face of an overall lack of enthusiasm from the industry.
2. Carefully examine additional operating authority for class D stations
during night hours
In a media environment in which FM and TV stations have long operated on 24-
hour schedules and in which an unlimited array of content options are available 24/7 on
the Internet, the plight of the daytime-only AM station is a significant anachronism. It
would be impossible not to be sympathetic to the challenges faced by standalone AM
operators trying to eke advertising dollars and listenership out of communities they are
unable to fully serve at hours that can be as late as 8:15 AM and as early as 4:15 PM in
winter. (At a bare minimum, such class D stations should be first in line in a staggered
window of translator applications.)
From a historical perspective, it is easy to argue that some of these stations,
especially those facing high NIF levels from multiple sources on former regional
channels, should never have been authorized in the first place as a matter of good
engineering practice, as witness the Commissions eventual decision to stop licensing
new class D facilities. The reality, however, is that these stations exist and in many cases
have existed for many decades. Where possible, every bit of regulatory flexibility
(including extended hours of pre-sunrise and post-sunset authority) should be brought to
bear to improve their lot, but only if it is possible to do so without further degrading the
overall engineering integrity of the band.
On the former regional channels on which class D stations are protecting former
class III (now class B) stations that often run 5 kW or less at night, the concern is not the
protection of received skywave signals, but rather the incursion of new skywave
22While the purpose of the all-digital testing was, admittedly, to improve in-market reception quality,
commenter notes that impressively steady digital reception of WBT (1110) Charlotte, N.C. was achieved in
Rochester, N.Y. during its all-digital overnight testing in 2013.
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interference into the received groundwave signal of the legacy class B signal. These
legacy class B stations are the stations identified at the start of these comments as the
middle of the pack. They are almost universally already unable to provide full
interference-free signals to the entirety of their markets. Adding new sources of incoming
skywave interference and thus increasing those class B signals noise floors would further
contract the usable service area of those class B signals. The Commission should move
extremely cautiously in studying the effects of any such rulemaking proposal, always
with a careful eye to the unavoidable reality of skywave propagation, even when such
propagation is unintended and entirely undesirable.
The Commission should, however, provide regulatory relief to allow class D
signals and other class B stations to benefit when an existing class B operator determines
its signal is no longer economically viable. Tax credits might be offered to encourage
marginal class B facilities to downgrade to class D or leave the air completely, especially
if a showing can be made that such a thinning of the herd can provide expansion
opportunities for other class D stations that remain viable.
As a corollary, stations that are allowed increased nighttime power under any
such proposal should be subject to extremely strict enforcement scrutiny. Without
aggressive work by the Enforcement Bureau and harsh penalties for violations, the
temptation to look the other way and stretch limited extended operating hours still
farther is a strong one, and the potential for increased overall interference on the band is
large.23
The Commission should also explore the possibility of diplomatic relief for
stations now limited by Canadian and Mexican authorizations. While international
treaties remain in effect, the reality on the ground is that the regulators in both Canada
and Mexico are well on their way to significantly reducing the actual use of the facilities
authorized by those decades-old treaties, leaving behind hundreds of ghost allocations
that remain protected but are unlikely ever again to be used. Even a small reduction in the
amount of protection now required for Canadian and Mexican allocations would yield a
23If the Enforcement Bureau resources can be expended, stricter scrutiny of existing stations for after-hours
operation could also reap immediate benefits in interference reduction across the band and level the playing
field for the many operators who have diligently played by the rules for many years while suffering
interference from others who have largely gone unpunished or have received slap-on-the-wrist penalties
for extended operation outside licensed parameters.
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large benefit for many stations now operating as class D or very limited class B facilities
on those frequencies.
The question of class A skywave protection is a thornier one. While most class A
stations themselves now derive little or no economic benefit from their vast skywave
coverage areas at night, the Commission should move with extreme caution on any
proposal to further limit that coverage. First, the Commission and class A licensees
should carefully consider the potential unintended consequences of additional signals at
night raising the overall noise floor and reducing the usable nighttime groundwave
coverage of these stations24
, which are often the last economically viable major AM
signals in their markets. (To that end, the Commission should also be encouraged to study
the practical impact of an increase to the Rio treaty maximum of 100 kW for class A
stations that could benefit from the increased local groundwave signal to combat the
ever-rising noise floor.) Second, there remain even now vast areas of the country where
local nighttime AM is nonexistent, FM coverage is spotty (and lacking in local
emergency coverage even where signals exist), and the era of universal high-speed
broadband service is still a thing of the distant future.
Class A nighttime skywave service remains the only readily-available source of
news and information in a mobile context in big swaths of rural America, and class A
skywave services remain an enviably efficient way of delivering one-to-many coverage
of remote parts of the country where other more modern forms of signal coverage may
not be economically viable for many years to come. In addition, those class A signals
provide a vital last resort of emergency coverage, blanketing large swaths of the
country with signals that can be heard on even the simplest of receivers when power
outages and natural disasters render more sophisticated delivery systems useless. The
Commission should carefully consider the extent to which any proposal to reduce that
service balances it with additional public-interest benefits elsewhere, and the legacy value
of class A skywave service in remote areas should carry heavy weight in that balance.
24The experience of hybrid HD Radio service at station pairs such as WJR-WABC or WBBM-WCBS is
relevant here, since the adjacent-channel interference from other class A stations is now a significant source
of noise-floor increase for certain class A stations that have long enjoyed enviably low noise floors.
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3. Further relaxation of interference standards for FM translators
providing fill-in service for signal-impaired AM stations
While the crowding of the FM dial is outside the scope of this rulemaking
proceeding, the need for standalone AM operators to be able to compete in a world that
has increasingly moved to (or beyond) FM is not.
The Commission should, therefore, move swiftly to examine whether the
regulatory hurdles involved in translator operation can be lowered to allow more AM
owners to enjoy the demonstrable benefits of FM translator operation.
Among those regulatory hurdles is the height disparity that allows some
translators to be more equal than others. In a handful of fortunate areas with
topography or very tall towers that permit a translator antenna to be placed hundreds of
meters above the target audience, the 250-watt translator maximum and lack of height
derating can and does allow for mega-translators that enjoy coverage larger than a
comparable height-derated class A or even C3 full-power FM would enjoy.25
Experience shows that even in relatively crowded FM landscapes such as Atlanta,
Kansas City and Albuquerque, those mega-translators are otherwise able to provide the
required contour protection to other FM stations and thereby coexist with other licensees.
The Commission should consider expanding that contour-protection methodology to
allow translator operators limited to lower antenna heights to make corresponding power
increases (up to a certain ceiling, perhaps half of an equivalent class A signal) so long as
they can make a showing of no interference to existing FM operators. In exchange for
that flexibility, eligibility should be strictly limited to stand-alone small AM operators
and the resulting mega-translator should be locked to the AM license with no
profiteering permitted.
The Commission should also look closely at the experience of its regulatory
counterparts north of the border. The CRTC and Industry Canada have been several steps
ahead of the FCC in allowing AM stations to move completely to the FM dial, either
25An example is K279BP, Albuquerque, NM, which operates with 250 watts at 1240 meters AAT from
Sandia Crest, relaying KOAZ(AM), Isleta, NM. The FCCs FMPower calculator shows a 6 kW-equivalent
class A station at that location would be allowed 36 watts, while a class C3 would be allowed 115 watts and
a C2 would be allowed 460 watts.
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under an existing license or by permitting nested operations that preserve an existing
AM signal accompanied by the equivalent of a U.S. mega-translator to provide robust
FM service to the core of a market. In certain cases, the elimination of existing AM
service in favor of replacement FM has allowed for the improvement of other legacy AM
service as frequencies are freed up or interference protections removed.26
Such policies
should be considered in the U.S. as well, allowing FM translator service to continue as a
replacement primary service upon the surrender of the companion AM license and a
showing of interference reduction that would result. Since such cases would be few in
number and distinct in circumstance, the Commission should be generous in considering
contingent plans by multiple AM stations that can creatively show public-interest benefit
by making several such moves at once. (An example might be a failing class B station in
one location surrendering its license completely, a co-channel class D station in another
location surrendering its license in favor of translator-only operation and a third co-
channel class B station making a significant AM signal improvement as a result.)
The Commission should also move swiftly to reassess the need for the current 2
mV/25-mile restriction on signal duplication by a translator. Given the widely varying
pattern of population density across the U.S., there are some locations in which 25 miles
is two markets away and others in which 25 miles is half the drive to the nearest
grocery store. Likewise, there are some locations in which 250 watts produces a 2 mV/m
signal that well exceeds 25 miles, and others in which that same 250 watts only reaches a
few miles. At a bare minimum, the Commission should be generous in considering
waivers of that rule where a clear public interest in doing so can be articulated.
SUMMARY
Commenter is broadly in favor of the six specific recommendations offered in this
Notice, all of which are long-overdue, common sense forms of regulatory relief that can
provide immediate and meaningful assistance to broadcasters who still seek to provide
26CFRA, Ottawa (580 kHz) was able to increase its night power from 10 kW to 30 kW after several other
Canadian stations on that frequency went silent; the former CHWO (1250 kHz) in Oakville, Ontario was
able to move to the class A 50 kW signal vacated by the former CBL (740) in Toronto upon CBLs move to
FM in 1999.
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public service on a legacy medium that has long since matured and now appears to be on
a steady (if slow) decline in listenership and profitability. Commenter urges that these
changes, along with more dramatic moves, be made with a careful eye toward the real-
world laws of physics, balancing the needs for additional service by the smallest stations
against the potential of interference to the valuable service still offered by the largest
stations on the AM band.
CONCLUSION
There are few, if any, mass-media technologies that remain even usable at all after
nearly a century of operation. While 78-rpm records and cord-switchboard telephones
have been relegated to antique-store curiosities, thousands of analog AM stations are still
serving listeners on a daily basis well into the 21stcentury. A handful remain as
prominent major-market outlets that are fully competitive with newer FM sisters and
even newer forms of media. Thousands more serve as the reliable source of local news,
high school sports and emergency weather information in small towns from coast to
coast. The Commission has a unique opportunity in this proceeding to give those stations
new flexibility to continue providing that service, while at the same time protecting the
giants and finding ways to thin the middle of the pack to enhance the viability of at
least some of those stations. It is to be commended for beginning that conversation.
Respectfully submitted, January 21, 2014
Scott Fybush92 Bonnie Brae Avenue
Rochester NY 14618