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FCC Mandates Digital Television Submitted to Florida State University December 12, 2007 for LIS5411 Rebecca Blinco Graduate Student, Florida State University April Edmonds Graduate Student, Florida State University

Summary
In February 2009, the Federal Communications Commission has mandated that television broadcasting be done in digital. Although the switch to all digital television has many benefits, over the past 11 years there have been major steps taken to prepare the nation for the transition in Congress. The digital transition is not only in the United States, other countries, such as the United Kingdom, have taken an active role in switching to digital transmission. The transition has been very complex and very confusing, especially to the consumers. In addition, the transition has had not only the government involved, also public interest groups, television stations and now the public libraries.

Background
The development of the television dates back as far as the 1920s. Over a vast 30 year time frame the television went from a black and white set to a set that had color. The television provided a way to unite the globe and unite the people by displaying pictures and information to anyone anywhere. What was considered a miracle as scientists had a vision of the potential of television at the time is now part of everyday life. Early attempts at production of a television were long, costly and equipment was large. There were no standards for picture quality or how the broadcasting should or should not be presented. In order to monitor the development RCA was created by President Roosevelt. In addition to RCA, the United States Federal Communications Commission (FCC) was created by an act of Congress on June 19, 1934. The act merged the administrative responsibilities for regulating broadcasting and wired communications under the rubric of one agency.1 In addition, the FCC was to regulate various segments of the communications industries through the Communications Act of 1934. The FCC not only provides standards by which broadcasting and other communications must follow, but they also represent the good of the people. The FCC is
Federal Communications Commission. Retrieved November 27, 2007 from http://www.museum.tv/archives/etv/F/htmlF/federalcommu/federalcommu.htm
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2 broadly integrated within the lives of Americans on a daily basis by ensuring that the American people have available, at reasonable costs and without discrimination, rapid, efficient, Nationand world-wide communication services; whether by radio, television, wire, satellite, or cable.2 During the 1940s the FCC wanted a strong hand in what the broadcasting industry was doing as television become a very powerful voice. RCA still continued to be very actively involved in the process. In the 1950s and 1960s most of Television broadcasting signals were received on via an antenna with Ultra High Frequency (UHF) or Very High Frequency(VHF). UHF and VHF are the most commonly known frequencies for display of television with an antenna. UHF displayed 300 MHz to 3 GHz and VHF 30MHz to 300MHz. Although the UHF frequencies were higher, there were less broadcasters broadcasting on channels 14-100 because of weaker signal problems. Most affiliates broadcasted on VHF such as CBS, NBC, and ABC broadcasted on channels 2-13. Even with all the progress that had been made remote and rural areas still could not receive much or any channels at all. During the 1940s several groups started experimenting with cable connections in rural areas. The successes of the cable experiments caught on quickly. By 1973 cable companies figured out the pay for viewing model. Thus, even the model became successful, households of lower incomes still could not afford to pay for the services, so antenna and analog usage was still predominantly saturated the market. In 2005, there were an estimated 3.9 million antennas sold ranging from $4 to $80.3 What is the big fuss? Analog television and reception has its limitations. Digital television can provide much more options to the television viewer. Digital television provides a clear picture and better sound. Why wouldnt someone want something better? Cost is always an issue with consumers. Should one ditch their current television to get the new and improved digital tuners? Should the government be promoting more television? The main reason government wants digital transmission is because it provides better emergency broadcasting and the spectrum that digital broadcasting will sit on has better capabilities for more than one signal at a time.

Analog and Digital

Digital Television is a telecommunication system for broadcasting and receiving digital sound and videos signals that requires a specially designed television set that is much more advanced than the traditional analog box. Viewers can enjoy better images, sound and clarity. In addition,

Federal Communication Commission. (2005, November 21). History of Communications. Retrieved November 20, 2007 from http://www.fcc.gov/omd/history/ Preparing consumers for the end of the digital television transition. (2005, March 10). U.S. Government.Hearing Before the Subcommittee on Telecommunications and the Internet of the Committee on Energy and Commerce. House of Representatives. Retrieved December 5, 2007, from http://www.access.gpo.gov/congress/house
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3 digital television also provides a way to clump several channels together in one bandwidth and allow it to carry electronic program guides and interactive programs.4

Analog signals are continuous electrical signals that vary in time. Analog is represented in a very wavy form and not always smooth and can be represented by snow.5 Analog degrades over time and the signal at the time of recording can change. Analog is much more difficult to compress. For television broadcasting, analog can only be presented one channel at a time on the spectrum.

Mandatory shift to analog platform under way as regulator prepares rules on digital TV. (2007, November 20). The Manila Times. Retrieved November 27, 2007, from the Gale general One File database. Analog vs. Digital Signals. Retrieved November 19, 2007 from http://cbdd.wsu.edu/kewlcontent/cdoutput/TR502/page8.htm
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Digital signals are non-continuous, they change in individual steps. They consist of pulses or digits with discrete levels or values.6 Digital does not degrade and the signal at the time of recording remains the same. Digital can be compressed. For television, digital allows four or more channels to be broadcast on the same spectrum.

Convergence
Although the FCC has ruled that the United States will transition to digital television there are still several factors that may take the process longer than anticipated. 21 Million U.S. households get their television exclusively free and over the air7 and approximately 73 million television sets nation-wide. Approximately 40% of Hispanic households nationwide rely exclusive on over-the-air reception for their local news, emergency information and other local programming. Hispanic households represent the

Analog vs. Digital Signals. Retrieved November 19, 2007 from http://cbdd.wsu.edu/kewlcontent/cdoutput/TR502/page8.htm
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Hefflinger, M. (2007, January 31). Survey: 61% of analog TV households still unaware of digital transition. Retrieved December 3, 2007 from http://www.dmwmedia.com/news/2007/01/31/survey-61-of-analog-tvhouseholds-still-unaware-of-digital-transition

5 lowest among consumer groups and the most significantly increased usage of over-theair over the past few years8. More consumer knowledge of what is happening. Surveys show that at least 61% of analog television households still are unaware of the digital transition.9 There seems to be a lot of confusion of what consumers are supposed to do. Information regarding the difference between Digital and High Definition televisions. Most televisions bought after 2007 should have a digital tuner in them. Televisions sets bought prior to 2007 may or may not have a digital tuner even if the television is HDTV. Affordability for Americans especially for low income families, senior citizens and nonenglish speaking people of any race or disability. Some consumers may only need a converter box, which the federal government is offering some coupon plans to give Association of Public Television Stations will team up with Libraries around the nation to educate analog viewers on the digital transmission. Labeling in the retail stores near analog televisions informing consumers that the sets, if purchased, may not work after February 17, 2009.10

Preparation for Transition Stakeholders in the digital television transition include consumers, government, broadcasters, cable and satellite providers, consumer electronics manufacturers, television retailers and consumer education advocates.

Government Role The Telecommunications Act of 1996 began the conversion of traditional analog television technology to digital format. This act doubled the amount of spectrum given to television stations as a temporary measure to aid the transition. In order to speed up the process and return the valuable spectrum for use by emergency officials, the Deficit Reduction Act of 2005
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Preparing consumers for the end of the digital television transition. (2005, March 10). U.S. Government. Hearing Before the Subcommittee on Telecommunications and the Internet of the Committee on Energy and Commerce, House of Representatives. Retrieved December 5, 2007 from http://www.access.gpo.gov/congress/house Hefflinger, M. (2007, January, 31). Survey: 61% of analog TV households still unaware of digital transition. Retrieved December 3, 2007, from http://www.dmwmedia.com/news/2007/01/31/survey-61-of-analog-tvhouseholds-still-unaware-of-digital-transition
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Martin, K. J. (2007, November 8). Digital Television Consumer Education Workshop Focusing on Seniors. Retrieved December 06, 2007, from http://hraunfoss.fcc.gov/edocs_public/attachmatch/DOC-278028A1.pdf

6 was signed into law by President Bush on February 8, 2006. A portion of this Act, Title III, known as the Digital Television Transition and Public Safety Act of 2005, amends the Communication Act of 1934 by directing the Federal Communication Commission to terminate analog television by February 17, 2009 and begin broadcast of digital television on February 18, 2009. To facilitate this transition the government is allocating up to $1.5 billion to fund a program for digital-to-analog converter boxes to be administered by the Department of Commerce.11 Money for this program will be gathered from an auction of analog spectrum channels fifty-two to sixtynine. Auction dates will be from January 28, 2008 to June 30, 2008 and proceeds will be placed in a fund in the U.S. Treasury called the Digital Television Transition and Public Safety Fund. It is anticipated that the auction might raise as much as $20 billion for the government. The law earmarks nearly $1.1 billion of the auction revenue to inform consumers about the transition and to help them buy converter boxes that would allow them to receive the new digital signals on their old analog sets.12 This subsidy will come in the form of up to two $40 coupons per household, excluding those with either cable or satellite television. The coupons will be available by mail, phone, or the internet. This program will be administered by the National Telecommunications and Information Administration (NTIA). The Digital Transition Act allows the NTIA to spend up to $5 million for educating consumers about the transition along with information and training for the converter boxes. The FCC will provide testing services to evaluate the boxes prior to certification by the NTIA. To administrate the coupon program NTIA contracted with IBM on August 15, 2007. IBM will manage the following areas: 1- systems processing 2- financial processing 3- consumer education and communication. NTIA and IBM anticipate the program to be operational by January 1, 2008 according to the October 17, 2007 hearing report by John M. R. Kneuer of NTIA. 13 Coupons should be available for purchase at this time.

Private Role Broadcasters and Television The National Association of Broadcasters initiated a public service announcement campaign called DTVAnswers which is currently posting on television stations. Station KWCH in Wichita, Kansas, has launched a campaign called Ready, Set, Know, which customizes the transition content to local markets in Kansas. Links on the home page include: Digital Television Made

Kruger, L.G. (2006). Digital television: An overview. CRS Report Number: RL 31260. Retrieved November, 27, 2007, from http://digital.library.unt.edu/govdocs/crs/-crs-9335
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About the DTV transition. (2007, November 6). TVNewsDay. Retrieved November, 6, 2007, from http://www.tvnewsday.com/dtv_transition/about/
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Kneuer, J.M. (2007, October 17). Hearing on the digital television transition. National Telecommunications and Information Administration Retrieved December 1, 2007, from http://www.ntia.gov.ntiahome/congress/2007/Kneuer_SenateCommerce_101707.htm

7 Easy, a DTV FAQ page, and How to Get the Most out of Your HDTV.14 If broadcasters lose their audience, they will also lose their advertising support. In addition, the government has created a website for educational purposes at www.dtv.gov. Fox Television Stations has voiced objections to required federal rules for public service announcements. They feel that the FCC is violating First Amendment rights by attempting to mandate content of television broadcasts. As a group the National Association of Broadcasters strongly opposes DTV service announcement requirements and quotas by the government because they interfere with primetime hour advertisements and programming. The NAB has their own plan for consumer education campaign funded by $697 million of their own funds.15

Cable and Satellite Companies For the digital transition the National Cable and Telecommunications Association have donated $200 million airtime and advertisements earmarked for consumer education. 16 Customers with cable or satellite service should have no immediate problems because cable and satellite dish providers will translate the digital service for their customers who have analog television. The FCC will require these providers to provide both analog and digital through February 2012 to bridge the transition.

Consumer Manufacturers and Retailers

The FCC set March 1, 2007 as the date for which all new television receivers sold in the United States must be equipped to receive digital signals (have a digital receiver/tuner). Television sets with digital displays do not necessarily include a digital tuner, so consumers must be aware. Digital television sales have increased as prices have dropped. Retailers have the responsibility to inform consumers about choices available: display choices, screen size and digital tuner options. However, the sales clerks need to be trained and educated so that they can assist customers with their particular television needs. Despite government decrees about ceasing manufacture of analog television sets, there is an existing inventory of analog television sets in the retail market.

Greenwald, A. (2007, November 5). KWCH Wichita seizes DTV education initiative. TVNewsDay. Retrieved November, 6, 2007, from http://www.tvnewsday.com/articles/2007/11/05/daily.3/
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Hearn, T. (2007, November 11). Fox stations complain about DTV mandates. Multichannel News. Retrieved November 12, 2007, from http://www.multichannel.com/article/CA6499844.html Spangler, T. (2007, November 9). CEA: 22% of analog TV owners to do nothing for DTV. Multichannel News. Retrieved November 12, 2007, from http://www.multichannel.com/article/CA6499625.html

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8 LG Electronics was the first manufacturer to develop a coupon-eligible converter box certified by the NTIA on October 8, 2007.17 Other manufacturing companies such as Thomson, Samsung, and Jasco (GE brand), have announced intentions to build the set-top boxes. These boxes will be available for purchase at retail stores. On October 16, 2007, retailers Best Buy, Circuit City and Target assured the FCC that they were ready to sell these converter boxes in support of the program. However, on November 19, 2007, the Government Accountability Office (GAO) warned of challenges to the transition schedule stating that retailers feel that they will not be ready to sell the boxes until March or April, 2008, which is 3 to 4 months after consumers can begin requesting coupons.18 The NTIA announced approval of two more models of digital-TV-to-analog converter boxes on December 6, 2007. Magnavox and Philco models bring the total to five different models, two from DigitalStream and one from Zenith. These brands all qualify for the $40 government subsidized coupons.19

Consumer Education On November 29, 2007, The Association of Public Television Stations (APTS) and the American Library Association (ALA) announced plans to collaborate on a grassroots education campaign for the Digital Television Transition. This program involves converter box demonstrations by libraries to complement Public Television on-air segments, stations printed program guides, websites and special mailings.20 On December 2, 2007, the National Association of Broadcasters and the National Black Church Initiative (NBCI) announced plans to work together to educate black churches in Washington, D.C. about the digital television transition.21 Other disadvantaged and underserved groups like

LG Electronics digital-to-analog converter box certified by U.S. Commerce Department. (2007, October 8). PR Newswire. Retrieved November 19, 2007, from http://www.prnewswire.com/cgibin/stories.pl?ACCT=109&STORY=/www/story/10-08-2007/0004677545&EDATE
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Lasar, M. (2007, November 30). GAO worries that retailers wont keep up with DTV schedule. Lasars Letter on the FCC. Retrieved December 4, 2007 from http://www.lasarletter.net/drupal/node/517

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Eggerton, J. (2007, December 6). NTIA approves DTV-converter boxes from Magnavox, Philco Broadcasting & Cable. Retrieved December 7, 2007, from http://www.broadcastcable.com/article/CA6510331.html

APTS and ALA announce extensive grassroots DTV transition consumer education initiative. (2007, November 29). Association of Public Television Stations. Retrieved November 30, 2007, from http://www.apts.org/archive/pressreleases/APTS-and-ALA-Grassroots-DTV-initiative.cfm
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Broadcasters launch black church DTV push. (2007, December 4). TVewsDay. Retrieved December 4, 2007, from http://www.tvnewsday.com/articles/2007/12/03/daily.1/

9 seniors, non-English speaking U.S. residents, people, the handicapped and the poor may be unaware of the upcoming changes for television viewers on February 18, 2009. On December 3, 2007, the FCC released and updated Emergency Alert Systems Handbooks for analog and digital television, radio stations and cable systems. The EAS handbooks provide guidance and instructions for national, state, and local EAS activation and testing procedures.22 On December 4, 2007, Betty Valds of the Latino library group REFORMA attended the Digital Television Consumer Education Workshop held by the FCC. The workshop had panel discussions focusing on minority and non-English speaking communities and the challenges associated with those groups regarding the DTV transition. "As librarians, we believe that in our role as trusted providers of information and sources of free public access to the Internet, we are uniquely qualified to help the most at-risk communities understand the transition and prepare for it," Ms. Valds said. "Because of the language barrier, Spanish-speaking patrons are among the most vulnerable, and libraries are in the perfect position to help them."23 The updates to Digital TVs included ensuring Television Decoder Circuitry for the hearing impaired have been greatly enhanced for better closed captioning and more is to come. Ten to one people who are deaf already have a digital TV or an updated TV that allows for decoding circuitry. Additionally, the National Associate of Broadcasters has developed a website called DTVAnswers.com with public service announcements (PSA) and some stations have started airing the PSAs. CBS affiliate KPix TV has not only been airing PSAs and other information on the television, they have also added information to their website that includes how to recycle old analog televisions.24 The FCC in the past few months has started having workshops addressing issues that focus on minority and non-english speaking communities and senior citizens. There have been many studies indicating that there is a digital divide gap for each of these groups, one only knows how hard it is for senior citizens to be able to use a remote control without any issues. Furthermore, American Association of Retired Persons (AARP) has an article coming out in its magazine featuring the digital transition. Retirement Living TV has started airing PSAs that will target nearly 30 million homes nationwide.25
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FCC releases 2007 EAS handbooks. (2007, December 3) Radio. Retrieved on December6, 2007, from http://radiomagonline.com/news-fcc-2007-eas-handbooks
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Library leader to speak at FCC digital television workshop on Latino, minority communities. (2007, December 4). Webwire. Retrieved on December 6, 2007, from http://www.webwire.com/ViewPressRel.asp?aId=54314

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KPix Website. Retrieved on December 9, 2007, from http://cbs5.com/technology/Digital.TV.FCC.2.342241.html

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Martin, K. J. (2007, November 8). Digital Television Consumer Education Workshop Focusing on Seniors. Retrieved December 06, 2007, from http://hraunfoss.fcc.gov/edocs_public/attachmatch/DOC-278028A1.pdf

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Projected Outcomes of DTV Change

Problems The most notable improvement of digital television is better quality sound and picture. However, several digital degradations may be observed. First, compression artifacts degrade DTV pictures when the allocated bandwidth is not sufficient for the program material demands. Second, image format problems arise from the change from 4:3 to 16:9 aspect ratio for production, transmission and display. Third, variations in audio levels during and between programs have been increased with digital broadcasting. Fourth, audio-video synchronization (lip sync) is another problem.26 All of these problems must be addressed with new standards and practice policies. In April, 2007, the Advanced Television Systems Committee (ATSC) formed a working group to investigate these issues. Another important factor is the cost to the consumer. The least costly consumer choice for continued television viewing will be a one-time purchase of a converter box. Other customer options include purchase of satellite or cable services. The most costly solution would be buying a new digital ready television set. Some consumers may choose to discontinue television use due to increased cost. Piracy is another consideration. With digital broadcasting and the option of viewing television shows via computer, piracy is facilitated. The FCC has taken steps to aid enforcement by creating a broadcast flag rule. In addition, several groups have expressed concerns of potential scams that target the elderly once the coupon program begins. Benefits Greatly improved picture and audio quality are the most compelling reasons in support of digital television. The FCC web site says Congress mandated the conversion to all-digital television broadcasting, also known as the digital television (DTV) transition, because digital is a more efficient transmission technology that allows broadcast stations to provide improved picture and sound quality, as well as provide more programming options for consumers through multiple broadcast streams (multicasting). In addition, all-digital broadcasting will free up many frequencies to be used for public safety, such as police, fire, and emergency rescue, and for the

Jones, G. (2007). Digital television broadcasting in the United States. SMPTE Motion Imaging Journal, 116, 364372.

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11 provision of advanced commercial wireless services for consumers.27 This transition is a huge undertaking for all the stakeholders. Standards The Advanced Television Systems Committee (ATSC) is an international, non-profit formed in 1982 and incorporated in 2002, for the purpose of developing voluntary standards for digital television. Governments from Canada, South Korea, Argentina, Mexico, and Honduras have adopted these standards. Currently, there are approximately 140 members representing the broadcast, broadcast equipment, motion picture, consumer electronics, and computer, cable, satellite and semiconductor industries. On December 24, 1996, the U.S. Federal Communications Commission adopted the major elements of the ATSC Digital Television Standard (A/53).28

Legislation in 110th Congress 1 . Digital Television Consumer Education Act of 2007 (Introduced in House)[H.R.608.IH] 2 . Preparing America's Seniors for the Digital Television Transition of Act of 2007 (Introduced in Senate)[S.2125.IS] 3 . Preparing America's Seniors for the Digital Transition Act of 2007 (Introduced in House)[H.R.3862.IH] 4 . National Digital Television Consumer Education Act (Introduced in House)[H.R.2566.IH] 5 . Transition Education Accountability Report Act of 2007 (Introduced in House)[H.R.2917.IH] 6 . 911 Modernization Act (Reported in Senate)[S.93.RS] 7 . 911 Modernization Act (Introduced in Senate)[S.93.IS] 8 . Public Safety Interoperability Implementation Act (Introduced in House)[H.R.3116.IH] 9 . SAVE LIVES Act (Introduced in Senate)[S.744.IS] 10 . Interoperable Emergency Communications Act (Introduced in Senate)[S.385.IS] 11 . 911 Modernization and Public Safety Act of 2007 (Referred to Senate Committee after being Received from House)[H.R.3403.RFS] 12 . 911 Modernization and Public Safety Act of 2007 (Engrossed as Agreed to or Passed by House)[H.R.3403.EH] 13 . 911 Modernization and Public Safety Act of 2007 (Reported in House)[H.R.3403.RH] 14 . Interoperable Emergency Communications Act (Reported in Senate)[S.385.RS] 15 . Improving America's Security Act of 2007 (Engrossed Amendment as Agreed to by
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DTV is coming (and sooner than you think). (2007, October 3). Federal Communication Commission. Consumer & Government Affairs Bureau. Retrieved November 2, 2007, from http://www.fcc.gov/cgb/consumerfacts/digitaltv/html
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About us. (2006). Advanced Television Systems Committee, Inc. Retrieved on December 6, 2007, from http://www.atsc.org/aboutatsc.html

12 Senate)[H.R.1.EAS] 16 . Improving America's Security Act of 2007 (Engrossed as Agreed to or Passed by Senate)[S.4.ES] 17 . Implementing Recommendations of the 9/11 Commission Act of 2007 (Enrolled as Agreed to or Passed by Both House and Senate)[H.R.1.ENR] 29

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Digital television bills in current congress. (2007, December, 8). Thomas. Retrieved on December 8, 2007, from http://www.thomas.loc.gov/cgi-bin/thomas

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Appendix A
Antennas

This table represents Analog listing of television stations in the Tallahassee, FL area that can be received by an antenna. After February 2009, to receive these stations, antenna users would need a converter box.

This table represents Digital listing of television stations in the Tallahassee, FL area that can be received by an antenna. TV reception is determined by the size and type of antenna and the direction in which it is pointed. Please note that "Compass Orientation" is referenced to magnetic North to point your antenna or rotor system for the channels you wish to receive. The "Frequency Assignment" column is provided to facilitate custom antenna design for special circumstances.

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This table represents both analog and digital listing of television stations in the Tallahassee, FL area that can be received by an antenna. After February 2009, to receive these stations, antenna users would need a converter box. 30

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The Antenna Website. Retrieved December 7, 2007 from http://antennaweb.org.