Federal Communications Commission - Resolution of Notice of Inquiry, Second Report and Order, Notice of Proposed Rulemaking, and Memorandum Opinion and Order - Introduction

Sep 2, 2026

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This resolution sets out the Federal Communications Commission’s actions on radiofrequency (RF) exposure limits for workers and consumers, including compliance rules required under the National Environmental Policy Act. After reviewing public input, the Commission declines to amend existing RF emission exposure limits and streamlines exemption criteria by replacing service-based exemptions with formula-based determinations. For non-exempt licensees, it provides more flexible compliance approaches and specifies mitigation methods such as training, supervision, and signage, while also proposing targeted future limits for additional frequencies and wireless power transfer operations.

LanguageEnglish

CategoryResearch & Report

FormatDOCX

Pages157

Reading Time6 h 36 min

AccessFree to download

INTRODUCTION

Key Findings and Regulatory Approach

Streamlined Exemptions and Compliance Flexibility

Targeted Proposals for Future Uses

Denial of Reconsideration Petition

Before the Federal Communications Commission Washington, D.C. 20554 RESOLUTION OF NOTICE OF INQUIRY, SECOND REPORT AND ORDER, NOTICE OF PROPOSED RULEMAKING, AND MEMORANDUM OPINION AND ORDER Adopted: November 27, 2019 Released: December 4, 2019 Comment Date: [30 days from publication in the Federal Register] Reply Comment Date: [60 days from publication in the Federal Register] By the Commission: Commissioner Rosenworcel concurring. Table of Contents Heading Paragraph # I. INTRODUCTION 1 II. BACKGROUND 6 III. RESOLUTION OF NOTICE OF INQUIRY 10 IV. SECOND REPORT AND ORDER 17 A. Exemptions from the RF Exposure Evaluation Requirement 20 1. Exemption Criteria - Single RF Source 35 a. 1-mW Blanket Exemption 36 b. SAR-Based Exemption 42 c. MPE-Based Exemption 48 2. Exemption Criteria - Multiple RF Sources 55 a. 1-mW Exemption 56 b. Use of Summation Formulas 57 (i) Multiple RF Sources with Fixed Physical Relationship 58 (ii) RF Sources without Fixed Physical Relationships 66 B. Environmental Evaluation 69 1. Consistency in Usage of Any Valid Method for SAR Computation 71 2. Removal of Minimum Evaluation Distance Requirement from Rules for Frequencies above 6 GHz 73 3. Technical Evaluation References in Rules 74 C. Mitigation Measures to Ensure Compliance with Exposure Limits 80 1. Transient Exposure 82 2. Signage and Access Control 89 3. Training to Ensure Compliance 104 4. Responsibility for Mitigation Measures 107 D. Transition Periods 115 E. Conforming Edits 118 V. NOTICE OF PROPOSED RULEMAKING 119 A. Extension of Exposure Limits to Additional Frequencies 122 1. Localized Exposure Limit for Higher Frequencies 127 2. Averaging Area for Higher Frequencies 129 B. Transmitter-Based and Device-Based Time-Averaging 131 C. Wireless Power Transfer Devices 137 VI. MEMORANDUM OPINION AND ORDER 148 VII. PROCEDURAL MATTERS 155 VIII. ORDERING CLAUSES 165 Appendix A – Final Rules Appendix B – Proposed Rules Appendix C – Initial Regulatory Flexibility Analysis Appendix D – Final Regulatory Flexibility Analysis Appendix E – List of Commenters to 2013 RF Order and Further Notice INTRODUCTION Modern communications technologies are an ever-increasingly critical part of our everyday lives and play a vital role in the execution of our businesses and daily affairs. The number and types of radiofrequency (RF) devices have proliferated, and the ways we interact with them are continuously changing. As a result, our environment is populated with RF sources, at times located in close proximity to humans. The National Environmental Policy Act of 1969 (NEPA) requires the Commission to evaluate the effects of our actions on the quality of the human environment, including human exposure to RF energy emitted by Commission-regulated transmitters and facilities. The Commission has accordingly promulgated rules that set limits for RF exposure and, through the years, has created a framework to ensure compliance with these limits. Today, we take a number of steps regarding these limits to ensure the health and safety of workers and consumers of wireless technology, while also clarifying and streamlining rules to reduce regulatory burdens on licensees. First, we resolve a Notice of Inquiry that sought public input on, among other issues, whether the Commission should amend its existing RF emission exposure limits. After reviewing the extensive record submitted in response to that inquiry, we find no appropriate basis for and thus decline to propose amendments to our existing limits at this time. We take to heart the findings of the Food & Drug Administration (FDA), an expert agency regarding the health impacts of consumer products, that “[t]he weight of scientific evidence has not linked cell phones with any health problems.” Despite requests from some to increase and others to decrease the existing limits, we believe they reflect the best available information concerning safe levels of RF exposure for workers and members of the general public, including

FAQs

Why does the Commission evaluate human exposure to RF energy?

The Commission must evaluate the effects of its actions on the quality of the human environment, including human exposure to RF energy emitted by Commission-regulated transmitters and facilities under NEPA.

What is the outcome of the Notice of Inquiry regarding amending RF emission exposure limits?

After reviewing the record submitted in response to the inquiry, the Commission finds no appropriate basis and declines to propose amendments to existing limits at this time.

How does the resolution change exemptions and compliance methods?

It streamlines exemption criteria by replacing service-based exemptions with formula-based rules, and it provides more flexibility for licensees to establish compliance. It also specifies mitigation methods such as training, supervision, and signage.

Sep 2, 2026

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