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The FCC issues licenses for stations. A station has a service area. For some stations it goes out to 60dBu, for some it is less. In that service area (contour) the station is protected from just about everything. Full power station (Class A, B, C) are primary users. They are even protected from secondary users (translators and LPFM’s) outside of their contour to an extent. LPFM’s and translators on the other hand are not protected from interference outside their contours from other licensed stations, however they would be protected from interference from unlicensed users provided the FCC took action.
The above NOUO is for use of a frequency (93.5 MHz) inside the area a licensed station (WTTZ-LP) is licensed to serve. So if it were a part 15 user, they could be complying with 15.239 or 15.209 but still be issued a NOUO for causing harmful interference (to a licensed user). On the other hand, if it is a pirate, operating on a frequency a station is licensed to use in that stations licensed service area is just stupid.
WTTZ-LP is licensed, not operating under a CP.
WTTZ-LP is not operating optimally in my opinion. They have a ton of HAAT, a LPFM’s reference facility is 30m, they are at 151.7m, so they have a corresponding reduction of power; a LPFM’s reference power is 100W, they are operating with 4W. 4W at 151.7m have the same predicted coverage as 100W@30m, but the 100W@30m will have a much better power density so it will penetrate buildings better. Given the crappy power density of WTTZ-LP, the person operating on 93.5 that got the NOUO would not have had a hard time getting receivers to lock onto their signal (capture effect) instead of the WTTZ-LP signal.