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(1) (a) (i) 1) a)C -2( -Ct )Bqop toatoa` hp x (#` hp x (#endnote referenceendnote reference44#XP\  P6QXP##C\  P6QP#footnote referencefootnote reference4#XP\  P6QXP#2ZqXe_YeY)Z2S&C6C^fDocument StyleNF2CC -2( -Ct )s t . 3S&C7C^fDocument StyleNF2CC -2( -Ct ) uv 4S&C8C^fDocument StyleNF2CC! -2( -Ct ) wx 5S&C9C^fDocument StyleNF2CC/ -2( -Ct )*yz   2 ]pZ^[[\6S&C:C^fDocument StyleNF2CC= -2( -Ct ){|` ` ` 7S&C;C^fRight-Aligned Paragraph NumbersK -2( -Ct )8}~@  8S&C<C^fRight-Aligned Paragraph NumbersY -2( -Ct )A@` ` `  ` ` ` 9S&C=C^fDocument StyleNF2CCg -2( -Ct )0    2`R]]^Y_10S&C>C^fRight-Aligned Paragraph Numbersu -2( -Ct )J` ` ` @  ` ` ` 11S&C?C^fRight-Aligned Paragraph Numbers -2( -Ct )S` ` `  @  12S&C@C^fRight-Aligned Paragraph Numbers -2( -Ct )\` ` `  @hhh hhh 13S&CAC^fRight-Aligned Paragraph Numbers -2( -Ct )e` ` `  hhh@ hhh 2"cJ`aab14S&CBC^fRight-Aligned Paragraph Numbers -2( -Ct )n` ` `  hhh@  15S&CCC^fRight-Aligned Paragraph Numbers -2( -Ct )w` ` `  hhh@ppp ppp 16S&CDC^fDocument StyleNF2CC -2( -Ct )F   ׃  17S&CEC^fTechnical Document StyleCC -2( -Ct )&  . 2UgTccudK e18S&CFC^fTechnical Document StyleCC -2( -Ct )&  . 19S&CGC^fTechnical Document StyleCC -2( -Ct )*    20S&CHC^fTechnical Document StyleCC -2( -Ct )'   "i~'^#)0<8HH"&H>XHH8HB8>HH^HH>"".2",2,2,"222N2222"&22H22,006"6."""""""""2"2H,H,H,H,H,XAB,>,>,>,>,""""H2H2H2H2H2H2H2H2H2H2H,H2H1H2H2H282H,H,H,B,B,B6B,H?>,>,>,>,H2H2H2H6H2H6H2""2"""2F866H2>>(>">">H2;H2H2H2H2XHB"B"B"8&8&8&86>*>>.H2H2H2H2H2H2^HH6>,>,>,H2>"H28&>"H2?22!!WFFFFFFFFFFFFFFFFFFFFFFFFFFFFFFFFFFFFFFFFFFFFFFFFxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxN$<<$.2",2222`2 LL2 LL2L"",,2d""\4  pG;W!@(#,h@\  P6G;hPH5!,),5\  P6G;,P\{,W80,%BZW*f9 xr G;X\5hC:,%rXh*f9 xr G;XX   2q yO  #X\  P6G;ɒP#X01Í ÍX01ÍÍ X oN X-#P\  P6G;P#X` hp x (#%'0*,.8135@8:" zHf yO-ԍxMr. Johnson's complaint contends that he initially contacted Brittan on January 13, 1998. Johnson Complaint, Informal Complaint No. IC9813534 (January 23, 1998). Brittan confirms this contact in its  {Oy-response to the Commission's Notice. See Brittan Response to Notice of Informal Complaint No. IC9813534 (filed July 31, 1998). As recently as May 1998, however, Brittan continued to submit forged LOAs in the same manner  X-which had resulted in complaints being filed with Brittan seven months earlier.1?Xd Hf yO-ԍxBellSouth reported that on May 22, 1998, they processed a Brittan order to execute a PICchange for  yOm-Jeffrey Matchen's telephone number. BellSouth Response to Notice of Informal Complaint No. IC9820458 (filed September 2, 1998).1 By failing to provide any evidence or information to counter the complainants' claims that their signatures were forged, or signed by someone other than the "subscriber to the telephone  XK-line(s),"K@K Hf yO-ԍx47 U.S.C.  64.1150(b).K we view those claims as admitted by Brittan. Regarding the forgery complaints, our own review of signatures that have been supplied by the complainants demonstrates that there is little similarity between the purported signatures on the LOAs and the exemplars provided by the complainants, thus rendering it more likely than not that the signatures are, as the complainants allege, forged. In several of the complaints, this finding is supported by  X-evidence that other information on the purported LOA is incorrect or clearly fabricated. In each of the twelve cases we find that the complainants have provided credible and compelling evidence that the respective LOAs proffered by Brittan were, indeed, forged. Therefore, we conclude that Brittan has apparently willfully or repeatedly violated Section 258 of the Act" @,=(=(JJo" and the Commission's rules and orders governing PIC changes in connection with the  X-unauthorized PIC changes alleged by the complainants.AHf {Ob-ԍxSee 47 U.S.C.  258; 47 C.F.R.  64.1150; 1997 FNPRM & Order on Reconsideration, 12 FCC Rcd  {O,-10674 (1997); LOA Order, 10 FCC Rcd 9560 (1995), stayed in part, In-bound Stay Order, 11 FCC Rcd 856  {O-(1995); (PIC Change Order), 7 FCC Rcd 1038 (1992), recon. denied, 8 FCC Rcd 3215 (1993); Allocation  {O-Order, 101 FCC 2d 911 (1985), Waiver Order, 101 FCC 2d 935 (Com. Car. Bur. 1985), recon. (of both  {O-Allocation Order and Waiver Order) denied, 102 FCC 2d 503 (1985) (Reconsideration Order).  X-x20.` ` Regarding the remaining complaints, our review of the complainants' telephone bills or other evidence submitted by the complainants and the LOAs submitted by Brittan as its authority for changing the complainants' PICs, demonstrate that the LOAs were not signed by an individual authorized to make such a PICchange request on behalf of the complainants. For example, Brittan submitted a LOA signed by "Lewis Hogan" for Linda Ruiz's telephone line. Based upon the complaints and Brittan's responses, it appears that Brittan obtained  X1-certain LOAs through sweepstakes promotions.B1Hf yOd-ԍxLila Ledesma, Informal Complaint No. IC9803448 (November 18, 1997) (Ledesma Complaint); Lawrence and Jill Boyle, Informal Complaint No. 9811649 (December 17, 1997) (Boyle Complaint); Krell Sielicki, Informal Complaint No. 05817 (February 10, 1998) (Sielicki Complaint); George Morton, Informal Complaint No. 9814141 (December 12, 1997) (Morton Complaint); Thomas Wren, Informal Complaint No. 9808459 (March 4, 1998) (Wren Complaint). Often, when PICchange requests are solicited using a sweepstakes promotion, the complaints filed with the Commission allege that  X -the complainant was confused as to the nature of the document the complainant signed.uC 2 Hf {O-ԍxSee e.g. Ledesma Complaint; Boyle Complaint; Morton Complaint.u To  X -help alleviate that confusion, our rules require that the sole purpose of the LOA be to  X -authorize a change in the consumer's preferred interexchange carrier.UD Hf {OL-ԍxSee 47 C.F.R.  64.1150(b).U To the extent, therefore, that the LOAs used by Brittan to effectuate a change in the consumers' PIC were also used as contest entry forms, and consequently signed by individuals without authority to request a PIC change, those LOAs are not valid under our rules.  Xd-x21.` ` The likelihood of consumer confusion, within the context of a sweepstakes promotion, also compels carriers to make every effort to confirm that the person signing the LOA is authorized to make a change in service and is not simply entering a contest. Despite Brittan's inclusion of language on the LOA regarding the signer's authority to authorize a PIC  X-change,EV Hf yO#-ԍxWe note that Brittan's LOAs contain the following statement: "By signing below, I authorize BCI, Corp. to be my new long distance provider." Brittan apparently did not take sufficient steps to ensure that the individual whose name appeared on the LOA was in fact authorized to request a PIC change for the telephone  X-number at issue. We note that in four of the complaints that are the subject of this NAL,vFHf yO9'-ԍxRuiz Complaint; Kelly Complaint; Torres Complaint; Roberts Complaint.v" >F,=(=(JJ" the last name of the person appearing on the LOA is not the same as any individual residing at the address to which the telephone number is assigned. We can only assume (and Brittan offers no alternative explanation) that Brittan did not make sufficient efforts to confirm that the person signing the LOA, upon which Brittan relied, was indeed authorized to approve a PIC change for the complainants' telephone numbers. In the context of a sweepstakes promotion, where consumers may mistakenly sign a LOA to enter a sweepstakes, Brittan could easily have verified the information on the LOA by placing a call to the telephone number to confirm that the individual listed was authorized to approve the PIC change for example. Here, Brittan offers no explanation for how individuals without any association with the complainants' telephone service were allowed to authorize a change in that service, nor does Brittan explain the measures it employed to ensure that such a violation of our rules did not occur. In each of the four cases, we find that the complainants have provided credible and compelling evidence that the respective LOAs proffered by Brittan were signed by an individual unaffiliated with the complainant's telephone service account. Therefore, we conclude that Brittan has apparently willfully or repeatedly violated section 258 of the Act and the Commission's rules and orders governing PIC changes in connection with the  X-unauthorized PIC changes alleged by the complainants.GHf {O -ԍxSee 47 U.S.C.  258; 47 C.F.R.  64.1150; 1997 FNPRM & Order on Reconsideration, 12 FCC Rcd  {O-10674 (1997); LOA Order, 10 FCC Rcd 9560 (1995), stayed in part, In-bound Stay Order, 11 FCC Rcd 856  {O-(1995); (PIC Change Order), 7 FCC Rcd 1038 (1992), recon. denied, 8 FCC Rcd 3215 (1993); Allocation  {Og-Order, 101 FCC 2d 911 (1985), Waiver Order, 101 FCC 2d 935 (Com. Car. Bur. 1985), recon. (of both  {O1-Allocation Order and Waiver Order) denied, 102 FCC 2d 503 (1985) (Reconsideration Order).  Xy-  Xb-B.xForfeiture Amount  X4-x22.` ` Brittan's apparent use of forged LOAs to effect changes in the long distance service of twelve consumers described in this NAL, and the use of LOAs signed by someone without authority to effectuate a change in four of the complainants' service, persuades us that a significant forfeiture action is warranted against Brittan for willful or repeated violations of  X-section 258 of the Act and the Commission's rules and orders.H\Hf {O -ԍxSee Commission's Forfeiture Policy Statement and Amendment of Section 1.80 of the Rules to  {O-Incorporate the Forfeiture Guidelines, Report and Order, 12 FCC Rcd 17087 (1997) (petitions for reconsideration pending). Section 503(b) of the Communications Act authorizes the Commission to assess a forfeiture of up to one hundred ten thousand dollars ($110,000) for each violation of the Act or of any rule, regulation, or  X-order issued by the Commission under the Act.I"Hf yO"-ԍx47 U.S.C.  503(b)(2)(B); 47 C.F.R.  1.80. The Commission recently amended its rules by adding a new subsection to its monetary forfeiture provisions that incorporates the inflation adjustment requirements contained in the Debt Collection Improvement Act of 1996 (Pub. L. 104134, Sec. 31001, 110 Stat. 1321),  {OB%-enacted on April 26, 1996.  Amendment of Section 1.80 of the Commission's Rules, 12 FCC Rcd 1038 (1997). In exercising such authority, we are required to take into account "the nature, circumstances, extent, and gravity of the violation and, with respect to the violator, the degree of culpability, any history of prior offenses,"e I,=(=(JJ"  X-ability to pay, and such other matters as justice may require."WJHf {Oy-ԍxSee 47 U.S.C.  503(b)(2)(D).W The Commission's forfeiture guidelines currently establish a standard forfeiture amount of $40,000 for violations of our  X-rules and orders regarding unauthorized changes of preferred interexchange carriers.K\ZHf {O-ԍxSee Commission's Forfeiture Policy Statement and Amendment of Section 1.80 of the Rules to  {O-Incorporate the Forfeiture Guidelines, Report and Order, 12 FCC Rcd 17087 (1997) (petitions for reconsideration pending). These policies and guidelines, however, include upward adjustment criteria that warrant a higher forfeiture amount based on our evaluation of the particular actions and circumstances of the  X-violator.:L~Hf {O -ԍxId.: These include the egregiousness of the misconduct, ability or inability to pay, whether the violation was intentional, whether substantial harm resulted from the violations, history of compliance with Commission requirements, whether the violator realized substantial  XH-economic gain from the misconduct, and whether the violation is repeated or continuous.gMHHf {O -ԍxId. See also 47 U.S.C.  503(b)(2)(D).g  X -x23.` ` We note that on several occasions, the Commission has sternly admonished carriers that it would take swift and decisive enforcement action, including the imposition of substantial monetary fines, against any carrier found to have engaged in slamming,  X -particularly the practice of relying on forged LOAs.N Hf {O(-ԍxSee, e.g., Nationwide Long Distance, Inc. NAL, 11 FCC Rcd at 3089. The Commission has also emphasized on numerous occasions that the actions of a carrier's marketing agents do not relieve a carrier of its independent obligation to ensure compliance with the rules. Rather, under the Communications Act, the acts or omissions of an agent or other person acting for a common carrier are deemed to be the acts or omissions of the  {OJ-carrier itself. See 47 U.S.C.  217; see also Heartline Communications, Inc. 11 FCC Rcd 18487, 18494 (1996)  {O-(Heartline Communications NAL). More recently, the Commission has  X -issued an NAL assessing forfeitures at $80,000 per violation for the use of forged LOAs.O Hf {O-ԍxAll American Telephone Company, Inc., 13 FCC Rcd 15040 (1998) (All American NAL). In that Order, the Commission found that the higher forfeiture amount was warranted by the egregiousness of misconduct, the carrier's intent to slam consumers, and the repeated nature  Xy-of the slamming violations.@PyHf {O -ԍxId.@  XK-x 24.` ` In the instant case, the evidence before us indicates that Brittan, despite our previous warnings to IXCs about the use of forged LOAs, has willfully or repeatedly engaged in this fraudulent conduct as part of a pattern to intentionally slam consumers. Moreover, as we have explained in earlier NALs, we find forgery to be a particularly egregious form of"DP,=(=(JJ("  X-slamming.QHf {Oy-ԍxExcel Telecommunications Incorporated, 11 FCC Rcd 19765, 19767 (1997). In particular, we emphasize that the level of slamming complaints received by the Commission has continued to grow, unabated by our previous enforcement actions. Accordingly, we find that stronger and more aggressive penalties are necessary to address this consumer fraud. We thus find that the upward adjustment criteria in our forfeiture guidelines that involve egregiousness of misconduct, intent of the carrier, and the repeated nature of violations are applicable in this case. Applying those criteria to the facts of this case, we conclude that it is appropriate to impose a forfeiture amount that is double the base amount  X_-contained in our forfeiture guidelines for those PICchange requests based on forged LOAs.eR_ZHf {Oj -ԍxCf. All American NAL, 13 FCC Rcd 15040 (1998).e This determination is consistent with the holding in our most recent NAL which involved  X1-conduct comparable to that alleged herein.^S1Hf {O -ԍxSee All American NAL, 13 FCC Rcd 15040.^ In this regard, the unauthorized conversions of Johnson's, Gupta's, Donnelly's, Cheney's, Kettler's, Landstra's, Nadal's, Pflug's, Sanford's, Randall's, Matchen's, and Mednick's presubscribed carrier through the use of forged LOAs constitute twelve separate violations. We propose to assess a forfeiture of eighty thousand dollars ($80,000) per violation. We will apply the forty thousand dollar ($40,000) base slamming forfeiture amount for each of the remaining four violations. In the future, we may assess a higher forfeiture amount against those carriers violating our rules requiring that LOAs be signed by the individual authorized to make such a PICchange request. This NAL places carriers on notice that the Commission will not tolerate this type of violation and that carriers must take the steps necessary to authenticate that the authorized individual's signature appears on the LOA. Thus, we find that Brittan is apparently liable for a forfeiture of one million, one hundred twenty thousand dollars ($1,120,000) for the unauthorized conversion of the  X-sixteen complainants' long distance service. Brittan will have the opportunity to submit evidence and arguments in response to this NAL to show that no forfeiture should be imposed  X-or that some lesser amount should be assessed.~T~Hf {O-ԍxSee   47 U.S.C.  503(b)(4)(C); 47 C.F.R.  1.80(f)(3).~  X-x25.` ` We are also concerned with Brittan's apparent practice of requiring a signed request from the consumer before releasing a copy of the LOA, purportedly signed by the consumer, to authorize a change. We believe this practice exposes the consumer to a risk of fraud, as well as unnecessary effort and delay, and we can discern no legitimate business purpose for it. Should Brittan release a copy of the LOA to the consumer and the consumer claims that the signature on the LOA is not his/hers, Brittan may, at that time, request proof of their signature. Accordingly, we find the requirement that a subscriber submit a signed, written request to obtain a LOA relied upon by the carrier to convert that subscriber's service to be an unreasonable practice. "T,=(=(JJ;"Ԍ X-x26.` ` We take this opportunity to remind carriers that they must provide reasonable detail when responding to the Notices issued by the Commission forwarding consumer complaints about, slamming and other questionable practices. Brittan's responses exemplify an unacceptable practice of failing to provide a detailed explanation or justification of its actions in responding to slamming complaints. A carrier will not escape enforcement consequences by simply providing a refund or credit to those consumers who actually discover an unauthorized change or action and take the time to file complaints with the Commission. Our action today should signal to carriers that their unwillingness to provide detailed information in response to consumer complaints will place them at risk of severe forfeiture penalties if we determine that they have failed adequately to rebut allegations that their conduct has violated the Act, or our rules or orders, or have otherwise failed to demonstrate that they are taking corrective action once placed on notice by consumers that a problem may exist. Our practice is to scrutinize consumer complaints and to take prompt enforcement action, including the imposition of substantial monetary fines, when the facts indicate that a carrier has failed to take the necessary steps to ensure that LOAs are valid and duly authorized and to conduct itself in a manner that promotes the interest and welfare of  X-telecommunications consumers.U&Hf {O -čxSee, e.g., All American NAL, 13 FCC Rcd at 15040; CCN, Inc., Church Discount Group, Inc., Discount Calling Card, Inc., Donation Long Distance, Inc., Long Distance Services, Inc., Monthly Discounts, Inc.,  {O-Monthly Phone Services, Inc., Revocation Order and Forfeiture Order, 13 FCC Rcd 13599 (1998) (Order);  {Oe-Heartline Communications NAL, 11 FCC Rcd 18487, 18494 (1996).  Xb-x27.` ` Finally, our review of Brittan's inadequate responses indicate a need for the Commission to continue to monitor Brittan's PICchange practices. We, therefore, require Brittan to file with this Commission a compliance plan which shall include procedures designed to promptly identify and address consumer inquiries and concerns about Brittan's  X-PICchange practices.NVHf {Om-ԍxSee 47 U.S.C.  218.N The compliance plan shall also detail actions Brittan will take and procedures it will establish to comply with the Act, and the Commission's rules and orders. The Commission will closely monitor the level and content of consumer complaints to determine whether the establishment of Brittan's proposed management practices leads to a decrease in unauthorized PIC changes.  X|-  IV. CONCLUSIONS AND ORDERING CLAUSES ă  XN-x28.` ` We have determined that Brittan apparently violated section 258 of the Act and the Commission's PIC change rules and orders by converting the PICs of the sixteen consumers identified above, on the dates and in the manner described herein. We have further determined that Brittan is apparently liable for forfeitures in the amount of eighty thousand dollars ($80,000) for each of the twelve violations involving forgeries and forty thousand dollars ($40,000) for each of the violations that did not involve forgeries, resulting in a total forfeiture amount of one million, one hundred twenty thousand dollars ($1,120,000)." HV,=(=(JJ"Ԍ X-ԙx29.` ` Accordingly, IT IS ORDERED, pursuant to section 503(b) of Communications Act of 1934, as amended, 47 U.S.C.  503(b), section 1.80 of the Commission's rules, 47 C.F.R.  1.80, that Brittan Communications International Corporation IS HEREBY NOTIFIED of an Apparent Liability for Forfeiture in the amount of one million, one hundred twenty thousand dollars ($1,120,000) for willful or repeated violations of section 258 of the  X-ActDWHf yO-ԍx47 U.S.C.  258.D and the Commission's PICchange rules and orders as described in the paragraphs  Xv-above.8X\vXHf {O -ԍxSee 47 C.F.R.  64.1150; 1997 FNPRM & Order on Recon., 12 FCC Rcd 10674; LOA Order, 10 FCC  {OI -Rcd 9560; PIC Change Order, 7 FCC Rcd 1038; Allocation Order, 101 FCC 2d 911; Waiver Order, 101 FCC 2d 935.8  XH-x30.` ` IT IS FURTHER ORDERED, pursuant to section 1.80 of the Commission's rules, 47 C.F.R.  1.80, that within thirty (30) days of the release of this Notice, Brittan Communications International Corporation SHALL PAY the full amount of the proposed  X -forfeitureY |Hf yO0-ԍxThe forfeiture amount should be paid by check or money order drawn to the order of the Federal Communications Commission. Reference should be made on Brittan Communications International Corporation's check or money order to "NAL/Acct. No. 916EF001." Such remittances must be mailed to Forfeiture Collection Section, Finance Branch, Federal Communications Commission, P.O. Box. 73482, Chicago, Illinois 606737482. OR SHALL FILE a response showing why the proposed forfeiture should not be imposed or should be reduced.  X -x31.` ` IT IS FURTHER ORDERED, pursuant to sections 4(i) and 218 of the Communications Act of 1934, as amended, 47 U.S.C.  154(i), 218, that Brittan SHALL FILE with the Commission, within thirty (30) days of the release of this Notice, a compliance plan detailing the actions it has taken and the procedures it has established, to ensure compliance with section 258 of the Act and the Commission's rules and orders relating to PIC changes. The compliance plan shall set forth procedures designed to enable Brittan to promptly identify and address consumer inquiries and concerns about its PICchange practices.  X-x32.` ` IT IS FURTHER ORDERED that a copy of this Notice of Apparent Liability for Forfeiture SHALL BE SENT by certified mail to Jim G. Edwards, President, Brittan Communications International Corporation, 600 Jefferson Avenue, Suite 500, Houston, Texas 77002. x` `  hhFEDERAL COMMUNICATIONS COMMISSION x` `  hhMagalie Roman Salas x` `  hhSecretary