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X-x17. We conclude that, at present, the resale rule remains necessary as applied to cellular, broadband PCS and covered SMR providers. Although CMRS as a whole is  X-becoming a competitive industry,1$Z g {O-#X\  P6G;IP#э See generally Implementation of Sections 3(n) and 332 of the Communications Act, GN Docket No. 93252, Third Report and Order, 9 FCC Rcd 7988, 800136 (1994); Implementation of Section 6002(B) of the Omnibus Budget Reconciliation Act of 1993, Annual Report and Analysis of Competitive Market Conditions  {O -with Respect to Commercial Mobile Services, 10 FCC Rcd 8844 (1995) (Competition Report). it is in transition with the continuing introduction of PCS and transformation of SMR, and some aspects of it are not yet substantially competitive. In particular, each geographic market has only two licensed cellular carriers, and in most markets these carriers do not yet face competition from any other facilitiesbased provider capable of offering reasonably substitutable services to a substantial majority of cellular customers. Thus, we have recently observed that the market for cellular services "is not the model of  X -perfect competition."~2 F g {O-#X\  P6G;IP#э Competition Report, 10 FCC Rcd at 8866.~ Until this situation changes, we remain concerned that cellular carriers have market power sufficient to enable them to impose unreasonable restrictions upon resale, and thus to stifle the competition that resellers can provide. Furthermore, as new entrants, such as broadband PCS providers, begin to seek customers, they will be competing directly with cellular firms that in many instances have been in the market for a decade or more. The  X-advantages such incumbency conveys are well understood.G3 g {O-#X\  P6G;IP#э See generally R. Gilbert, "Mobility Barriers and the Value of Incumbency," in The Handbook of  yO-Industrial Organization; J. Tirole, The Theory of Industrial Organization, 277303 (1992).G x  Xb-x18. We also conclude that broadband PCS and covered SMR providers should be governed by the same resale obligations as cellular carriers. More than any other wireless service, we expect broadband PCS providers to target their services, at least initially, toward  X-the same customers who are currently served and sought after by cellular providers.M4Z2 g {O-#X\  P6G;IP#э See Competition Report, 10 FCC Rcd at 8859 ; Amendment of the Commission's Rules to Establish New Personal Communications Services, GEN Docket No. 90314, Notice of Proposed Rule Making and Tentative Decision, 7 FCC Rcd 5676, 570107 (1992).M Therefore, while we recognize that the market power of broadband PCS providers is not parallel with that of cellular carriers, we conclude that requiring broadband PCS providers to permit unrestricted resale will promote regulatory symmetry and will further the same procompetitive ends as applying the same rule to cellular providers, including policing price discrimination and encouraging competitive pricing. Furthermore, we note that in any" T 40*&&aap" geographic market, the earliest licensed broadband PCS providers will have a headstart  X-advantage over their last licensed competitors of up to two years.5X g yOb-#X\  P6G;IP#э The earliest broadband PCS licenses were awarded to three holders of pioneer's preferences on December 13, 1994. The remaining A and B block licenses were awarded on June 23, 1995, and the C block auction was completed on May 6, 1996. We plan to begin the auction of D, E, and F block licenses later this year. Much as previously occurred in the cellular market, we believe that the ability to resell their competitors' services will help lower this hurdle for the later PCS entrants and give them the opportunity quickly to  X-become viable competitors.6 g {O= -#X\  P6G;IP#э See Cellular Resale Order, 7 FCC Rcd at 400708.  Xv-x19. In addition, we conclude that certain SMR providers should be governed by our resale policy because such providers have significant potential to compete directly with cellular and broadband PCS providers in the near term. These "covered SMR providers" include two classes of SMR licensees. First, the resale rule will extend to 800 MHz and 900  X -MHz SMR licensees that hold geographic area licenses.7X z g yOE-#X\  P6G;IP#э The Commission is now in the process of issuing geographic area licenses in the 900 MHz service based on the results of the 900 MHz auction completed in April 1996. Auctioning of geographic area licenses in the 800 MHz SMR band will commence following the conclusion of our rulemaking in PR Docket No. 930144.  Second, the rule will cover incumbent wide area SMR licensees, defined as licensees who have obtained extended implementation authorizations in the 800 MHz or 900 MHz SMR service, either by waiver or under Section 90.629 of our rules. Within each of these classes, "covered SMR providers" includes only licensees that offer realtime, twoway switched voice service that is interconnected with the public switched network, either on a standalone basis or packaged with other telecommunications services. Because they do not compete substantially with cellular and broadband PCS providers, local SMR licensees offering mainly dispatch services to specialized customers in a noncellular system configuration, as well as licensees offering only data, oneway, or stored voice services on an interconnected basis, are not covered by  X4-the resale rule we adopt today.b8Z4 g yO-#X\  P6G;IP#э Several commenters recognize that different resale rules may be appropriate for different SMR providers,  {OG-depending on the nature of their services. See PCIA Comments at 16 n.36; BellSouth Reply Comments at 2; E.F. Johnson Reply Comments at 3 n.4.b The costs of applying the resale policy to their operations would outweigh the benefits. Not the least of these costs is that applying the policy might give them an incentive to eliminate their interconnection, which would not be in the public interest. Of course, any SMR provider that is not interconnected to the public switched  X-network does not offer CMRS, and therefore is not subject to the resale rule.9 g {OE#-#X\  P6G;IP#э See CMRS Second Report and Order, 9 FCC Rcd at 145051. " N 90*&&aa"Ԍ X-x20. Some commenters argue that PCS providers need time to work out bugs in their  X-systems and implement handset certification before they can permit unrestricted resale.: g yOb-#X\  P6G;IP#Ѝ APC Comments at 911; PCIA Comments at 2021; Pacific Reply Comments at 912; U.S. Airwaves Reply Comments at 12. Similarly, some commenters argue that the resale rule should not apply to SMR providers  X-because of technical considerations, or due to the danger of fraud.;  g {O-#X\  P6G;IP#э See, e.g., AMTA Comments at 1013; Nextel Comments at 1315; PCIA Comments at 1519. We are not persuaded, however, that technical considerations require any delay in applying the resale rule to these carriers. Commenters' arguments appear to rest in part on a theory that, if providers are required to respond to any and all requests for bulk capacity, then they will lose control of  X_-their networks in a managerial sense (e.g., control over network growth). That argument is flawed because the resale rule does not require providers to respond to any and all requests  X3-for bulk capacity per se. The rule requires only that a bulk discount (or any offering) made available to one customer must be made available to similarly situated customers on a nondiscriminatory basis. Commenters have not sufficiently explained how their engineering control over their networks will be diminished if their services are purchased by parties that intend to resell the services rather than directly by end users. In addition, we are not persuaded by commenters' speculation that SMR carriers' exposure to fraud would be increased by unrestricted resale or that operators would not have means available consistent with the resale rule to limit such exposure.  Xf-x21. With respect to other CMRS, by contrast, commenters make persuasive arguments  XO-that competitive conditions render a resale rule an unnecessary burden.B<O g {O-#X\  P6G;IP#э See, e.g., AirTouch Comments at 1718; BellSouth Comments at 7; GTE Comments at 2122; PageNet Comments at 211; PCIA Comments at 1013; WJG Maritel Comments at 68; AirTouch Reply Comments at 7 yOD-9; BellSouth Reply Comments at 8; PageNet Reply Comments at 28; Watercom Reply Comments at 24; Letter from Robert L. Pettit, counsel for PCIA, to William F. Caton, Acting Secretary, FCC, dated Jan. 22, 1996,  {O-Attachment at 23 (PCIA Ex Parte).B At present, cellular, broadband PCS and covered SMR providers are the only CMRS carriers principally competing against each other for customers in the mass market for twoway switched voice and data services. In contrast, most other CMRS providers, at least for the immediate future, will not be positioned to compete successfully for these customers. Furthermore, with regard to these other CMRS providers, the record suggests that resale is an established practice, competition appears to be vigorous, and there is no evidence that such providers are  X-unreasonably restricting resale.-=&f g {O"-#X\  P6G;IP#э See AMTA Comments at 12 n.10; MobileMedia Comments at 34; PCIA Comments at 1213; PageNet  {O#-Reply Comments at 78; PCIA Ex Parte, Attachment at 2; Letter from Alan A. Shark, President and CEO, AMTA, to Rosalind K. Allen, Deputy Chief, Wireless Telecommunications Bureau, dated May 16, 1996, at 5.  {O!%-See also Competition Report, 10 FCC Rcd at 886768; CMRS Second Report and Order, 9 FCC Rcd at 146770.- We conclude that differences in the market conditions faced" T =0*&&aa4" by classes of CMRS other than cellular, broadband PCS and covered SMR providers warrant  X-a decision not to apply the resale rule to these other carriers.6> g yOb-#X\  P6G;IP#э Because of this conclusion, we need not address arguments that resale of these services is technically  {O*-infeasible or would cause other harms. See, e.g., GTE Comments at 1821; InFlight Comments at 58.6  X-x22. Finally, we do not by this Order relieve CMRS providers of any portion of their statutory obligation under Sections 201(b) and 202(a) of the Act, nor do we determine that  X-any resale practice is just and reasonable per se. Therefore, to the extent that a CMRS provider offers interstate service, an unjust or unreasonable resale practice or unjust or unreasonable discrimination against resellers may be the subject of a complaint alleging a statutory violation under Section 208 of the Act. In deciding such a complaint, we would consider whether the activity complained of is unjust and unreasonable based on all the circumstances of the case, including the market conditions affecting that particular carrier. Of course, to the extent a cellular, broadband PCS, or covered SMR provider violates our rule adopted here, a Section 208 complaint concerning such rule violation may be filed regardless  X -of whether the service is interstate or intrastate.? " g {O-#X\  P6G;IP#э See Continental Mobile Telephone Co. v. Chicago SMSA Limited Partnership, 9 FCC Rcd 1583 (1994).  X - C . Sunset  X{-x23. Geotek argues that if we decide that unrestricted resale of cellular service is necessary to help PCS licensees overcome the headstart enjoyed by their cellular competitors, the rule should continue to apply only for a fiveyear period. At the end of that time, Geotek states, PCS providers should no longer need to rely on resale and all resale obligations for  X-CMRS providers should be eliminated.l@ g yO-#X\  P6G;IP#э Geotek Reply Comments at 4.l For similar reasons, Bell Atlantic suggests that we  X-reexamine the costs and benefits of the resale rule after we finish awarding PCS licenses.qAD g yO-#X\  P6G;IP#э Bell Atlantic Comments at 1112.q  X-x24. We agree with Geotek and Bell Atlantic that the competitive development of broadband PCS service will obviate the need for a resale rule in the cellular and broadband PCS market sector. Our rules require broadband PCS licensees to significantly build out their  X-networks within five years of being licensed.mB g yO"-#X\  P6G;IP#э 47 C.F.R.  24.203. m Thus, within five years after the D, E, and F block broadband PCS licenses are awarded, it is reasonable to anticipate that there will be up to six facilitiesbased broadband PCS carriers, as well as potentially one or more covered SMR providers, competing with two cellular licensees in every geographic area. We therefore provide that application of the resale rule to cellular, broadband PCS and covered SMR"9d B0*&&aa" providers will terminate five years after we award the last group of initial licenses for currently allocated broadband PCS spectrum. The commencement of the fiveyear sunset period will be announced by Public Notice.  X- D . Resale by FacilitiesBased Competitors  Xv-x25. The current resale rule for cellular carriers permits a licensed provider to restrict or prohibit resale by the other licensed provider in the same geographic area beginning five  XH-years after the second carrier is authorized to begin construction.pCH g yO -#X\  P6G;IP#э 47 C.F.R.  22.901(e).p Many commenters contend  X1-that we should allow all CMRS providers to impose similar restrictions on resale by their facilitiesbased competitors after some initial period. These commenters generally argue that our rules should balance the interest in "jumpstarting" competition in CMRS against the danger of creating an incentive for licensees to "free ride" on their competitors' investments  X -rather than rapidly building out their networks.D\ X g {O-#X\  P6G;IP#Ѝ See, e.g., Alltel Comments at 34; AT&T Comments at 2728; BellSouth Comments at 810; Comcast Comments at 2627; GTE Comments at 2223; NYNEX Comments at 8; PCS Primeco Comments at 10; RCA  {Op-Comments at 1113; RCC Comments at 7; see also Pacific Comments at 9. Most of these commenters favor permitting restrictions on resale by a facilitiesbased competitor beginning five years after the competitor  X -obtains its license,E | g {O-#X\  P6G;IP#э See, e.g., Alltel Comments at 3; CTIA Comments at 25; GTE Comments at 2223; RCA Comments at 1112; Vanguard Comments at 1112; U.S. Airwaves Reply Comments at 13. but some advocate a shorter periodF  g {O.-#X\  P6G;IP#э See, e.g., AT&T Comments at 28 (18 months); BellSouth Comments at 89 (no more than three years); New Par Comments at 2223 (one year); SNET Comments at 17 (18 months). and a few argue that the window  X-should be ten years.G0 g {Oq-#X\  P6G;IP#э See Pacific Comments at 910; Sprint Venture Comments at 10.  Xb-x26. Some commenters contend that CMRS carriers should never be required to permit resale by their facilitiesbased competitors, even for a limited time. These commenters argue that a rule requiring unrestricted facilitiesbased resale would confer few public benefits because the market will lead carriers to allow resale by their facilitiesbased competitors  X-where resale makes economic sense.H g {Oy!-#X\  P6G;IP#Ѝ See AirTouch Comments at 16; see also Pacific Comments at 8. At the same time, these parties argue, the potential costs of unrestricted resale by facilitiesbased providers are great. In particular, commenters  X-warn, the availability of resale may discourage licensees from building out their networks,oIT g {O$-#X\  P6G;IP#э See SBMS Comments at 19.o"I0*&&aa"  X-PCS licensees may build their networks to resemble cellular networks rather than innovating,qJ g {Oy-#X\  P6G;IP#э See Nextel Comments at 10.q and established carriers may abuse their resale rights by deliberately absorbing the capacity of their small competitors and denying those competitors the opportunity to earn a reasonable  X-return.KZ g {O-#X\  P6G;IP#э See MobileMedia Comments at 7; see also Vanguard Comments at 1011. On the other hand, a few commenters argue that facilitiesbased providers should be  X-permitted to resell CMRS without restrictions indefinitely.L g {OA -#X\  P6G;IP#э See GSA Comments at 8; ITAA Comments at 67; Cable & Wireless Reply Comments at 89.  Xv-x27. We conclude that unrestricted resale by facilitiesbased competitors during the transitional period will serve the public interest by speeding the transition to a fully competitive market sector. Given the imperfectly competitive, duopoly cellular market that exists today, we do not believe that market forces alone provide sufficient incentive for carriers to allow their facilitiesbased competitors to resell service where economically efficient. Furthermore, as discussed above, one reason for requiring cellular, broadband PCS, and covered SMR carriers to comply with the resale rule for an interim period is to help new entrants overcome the advantages enjoyed by the established incumbents with which they will be competing. An exception to the resale rule for facilitiesbased competitors would defeat this goal.  Xy-x28. We are unconvinced by arguments that unrestricted resale by facilitiesbased competitors would create unacceptable costs. As discussed previously, it is reasonable to assume that CMRS providers will price their services to earn a return on their investment and will incorporate appropriate language into their agreements to guard against an unexpected discontinuation of services. Such contracting practices should protect carriers against their competitors' making shortterm demands that would leave them with stranded capacity, whether deliberately or otherwise. Furthermore, the continued growth in CMRS demand  X-makes it likely that any temporary excess capacity would quickly be utilized.M\~ g {O-#X\  P6G;IP#э See, e.g., Competition Report, 10 FCC Rcd at 8846, 8874. The growth rate of cellular subscribers in  {O-1994 exceeded 50 percent. Sakelaris, Cellular Industry on Threshold of Entering New Era of Services, Radio  yO-Comm. Report, July 24, 1995, at 22. In addition, our decision to sunset the resale rule, combined with the existence of our buildout requirements, will limit any incentive for licensees to rely on resale rather than constructing facilities, even assuming that carriers that have invested substantial sums in obtaining licenses would have such incentive. For these reasons, we conclude that the costs of not excepting facilitiesbased competitors from the resale rule are small, and indeed are outweighed by the administrative costs of implementing an exception. "7M0*&&aa"Ԍ X-x29. We also are unpersuaded by those commenters that favor cutting off the resale rule for facilitiesbased competitors after less than five years. Our rules allow broadband PCS licensees five years to meet their first buildout threshold. Because of the headstart disadvantages that these providers will face, it is reasonable to forbid restrictions on their use of resale to establish themselves throughout the initial buildout period, especially in light of the relatively small cost exacted by the resale rule. It is also reasonable to allow covered SMR providers a similar period to establish themselves through resale. Given our decision to sunset the resale rule in its entirety five years after the last currently allotted broadband PCS spectrum license is awarded, we need not consider separately arguments for extending the rule as applied to facilitiesbased competitors for longer than five years.  X -x30. Consistent with our decision not to permit cellular, broadband PCS, and covered SMR providers to restrict resale by their facilitiesbased competitors during the transitional period, we also eliminate the provision in our existing rule that permits cellular licensees to impose such restrictions on their fully operational cellular competitors. A primary reason we adopted this exception for cellular licensees was our concern that a licensee in the duopoly cellular market would serve much of its licensed area by using its competitor's facilities rather  Xy-than building out its own network.Ny g {O-#X\  P6G;IP#Ѝ See Cellular Resale NPRM and Order, 6 FCC Rcd at 172122; Cellular Resale Order, 7 FCC Rcd at 4008. This was especially a concern because most cellular  Xb-licenses were awarded by lottery (i.e., at far less than their economic value), and because in the absence of a general sunset a licensee could theoretically continue to rely on resale indefinitely even though the public interest would favor buildout of competitive facilities. Today, however, most cellular licensees have already built out their networks. We therefore conclude that the exception is no longer necessary to serve its intended purpose, and that its elimination will promote procompetitive goals, as well as maintain regulatory parity among competing providers, by giving cellular licensees the same opportunities to resell as their competitors during the transitional period.  X- E. Other Issues  Xg-x31. Finally, we address two comments regarding application of the resale rule to particular circumstances. First, AT&T claims that any resale obligation we impose should apply only to services that are regulated under Title II; thus, a provider should not be obligated to offer a reseller the same package of bundled service and customer premises  X -equipment that it offers to other large customers.jO " g yO"-#X\  P6G;IP#э AT&T Comments at 26 n.56.j We are concerned, however, that excluding from the resale rule all bundled packages that include nonTitle II components would potentially offer carriers an easy means to circumvent the rule. Although we do not preclude the possibility that a restriction on resale of a bundled package could be shown just" O0*&&aa" and reasonable under some circumstances, we do not as a general matter limit application of the resale rule as AT&T requests. x32. Second, GTE proposes that providers should be permitted to restrict resale of services that include proprietary equipment or technology. GTE argues that this exception is necessary in order to preserve CMRS licensees' incentive to develop and offer innovative  Xv-services.Pv g {O-#X\  P6G;IP#э See GTE Reply Comments at 1516; Letter from Andre J. Lachance, attorney for GTE, to Barbara Esbin, Commercial Wireless Division, dated Dec. 7, 1995, at 46. We are not persuaded by GTE's argument. As discussed above, the resale rule does not prevent a provider from recovering its costs incurred in providing a service, including the costs of developing any underlying technology, or from inserting in its sales agreements appropriate, nondiscriminatory terms to protect its interests. As a general matter, therefore, we are not convinced that the resale rule undermines providers' incentive to innovate. Although it is conceivable that concerns regarding proprietary information or technology might under some circumstances constitute reasonable justification for restricting resale, the present record is insufficient to establish what those conditions might be with enough precision to permit formulation of a general rule.  X- IV. CONCLUSION ă  Xb-x 33. We conclude that, under current market conditions, unrestricted resale of cellular, broadband PCS and covered SMR services will promote the public interest by hastening the arrival of full competition. We therefore transitionally prohibit cellular, broadband PCS and covered SMR carriers from restricting the resale of their services or discriminating against resellers. In light of anticipated competitive developments in this market, we will sunset this resale rule five years after the last group of licenses for currently allocated broadband PCS spectrum is awarded.  X-  X- z V. PROCEDURAL MATTERS #Xw P7=XP#у  X|- A. Regulatory Flexibility Act  YN-  PARA203  x !34.ؠPROCEDURE REGFLEX נAs required by Section 604 of the Regulatory Flexibility Act, 5 U.S.C.  604  Y7-(1981), the Commission has prepared a Final Regulatory Flexibility Analysis (FRFA) of the impact of the policies and rules adopted in this Order on small entities. The FRFA is contained in Appendix B to this Order.  X- ""P0*&&aai"  X-  B. Authority  Y-x "35.AUTHORITY This action is taken pursuant to Sections 1, 4(i), 4(j), 201, 202, 303(r), 309, 332, and 403 of the Communications Act, 47 U.S.C.  151, 154(i), 154(j), 201, 202, 303(r), 309, 332, 403.  X_- C. Further Information   Y1-x #36.FURTHERINFO For further information regarding this Order, contact Jeffrey Steinberg of the Wireless Telecommunications Bureau Policy Division, at 2024181310.  Y -  X - 'VI. ORDERING CLAUSES ׃  Y -x $37.ؠORDERINGCLAUSESנAccordingly, IT IS ORDERED that the rule amendments appearing at Appendix  Y -C and discussed  herein ARE ADOPTED and SHALL BE EFFECTIVE sixty days following publication in the Federal Register.  Yb-x %38.ؠ IT IS FURTHER ORDERED that the Request for Acceptance of LateFiled  YK-Comments filed by Waterway Communication System, Inc. IS GRANTED. x` `  hhFEDERAL COMMUNICATIONS COMMISSION x` `  hhWilliam F. Caton x` `  hhActing Secretary "P0*&&aaP"  X-   &APPENDIX A ׃  X- Parties Filing Comments  Y-T P 1. AirTouch Communications, Inc. (AirTouch) 2. All Cellular, Inc. 3. Alltel Mobile Communications, Inc. (Alltel) 4. American Mobile Telecommunications Association, Inc. (AMTA) 5. American Personal Communications (APC) 6. American Tel Group 7. Ameritech 8. AT&T Corporation (AT&T) 9. Bell Atlantic Mobile Systems, Inc. (Bell Atlantic)  Y -10. BellSouth Corporation, BellSouth Telecommunications, Inc., BellSouth Cellular Corp. (#(#X (BellSouth) 11. Cellnet Communications, Inc. 12. Cellnet of Ohio, Inc. (Cellnet of Ohio) 13. Cellular Service, Inc. and ComTech Mobile Telephone Company (CSI/ComTech) 14. Cellular Telecommunications Industry Association (CTIA) 15. Comcast Cellular Communications, Inc. (Comcast) 16. Connecticut Telephone and Communication Systems, Inc. (Connecticut Telephone) 17. E.F. Johnson Company (E.F Johnson) 18. Frontier Cellular Holding Inc. (Frontier) 19. General Communication, Inc. (GCI) 20. General Services Administration (GSA) 21. Geotek Communications, Inc. (Geotek) 22. GTE Service Corporation (GTE) 23. Horizon Cellular Telephone Company (Horizon) 24. InFlight Phone Corporation (InFlight) 25. Information Technology Association of America (ITAA) 26. WorldCom, Inc. d/b/a LDDS WorldCom (LDDS) 27. MCI Telecommunications Corporation (MCI) 28. MobileMedia Communications, Inc. (MobileMedia) 29. MobileOne 30. Molasky, Andrew M. 31. National Telephone Cooperative Association (NTCA) 32. National Wireless Resellers Association (NWRA) 33. New Par  Y"-34. New York Telephone Company, New England Telephone & Telegraph Company, and (#(#X NYNEX Mobile Communications Company (NYNEX) 35. Nextel Communications, Inc. (Nextel) 36. Pacific Telesis Mobile Services and Pacific Bell Mobile Services (Pacific)"Q%P0*&&aap&"Ԍ37. Paging Network, Inc. (PageNet) 38. PCS Primeco, L.P. (PCS Primeco) 39. Personal Communications Industry Association (PCIA) 40. Rural Cellular Association (RCA) 41. Rural Cellular Coalition (RCC) 42. San Diego Cellular Communications, Inc. 43. SNET Cellular, Inc. (SNET) 44. The Southern Company (Southern) 45. Southwestern Bell Mobile Systems, Inc. (SBMS) 46. Sprint Telecommunications Venture (Sprint Venture) 47. Telecommunications Resellers Association (TRA) 48. Time Warner Telecommunications (Time Warner) 49. Vanguard Cellular Systems, Inc. (Vanguard) 50. Western Wireless Corporation (Western) 51. WJG Maritel Corporation (WJG Maritel)  Y- Parties Filing Reply Comments ă 1. AirTouch 2. Allnet Communication Services, Inc. (Allnet) 3. AMTA 4. Ameritech 5. AT&T 6. Bell Atlantic NYNEX Mobile, Inc. (Bell Atlantic NYNEX) 7. BellSouth 8. Cable & Wireless, Inc. (Cable & Wireless) 9. People of the State of California and the Public Utilities Commission of California (California) 10. CSI/ComTech 11. CTIA 12. Connecticut Telephone 13. E.F. Johnson 14. GSA 15. Geotek 16. GTE 17. InFlight 18. MCI 19. National Association of Regulatory Utility Commissioners (NARUC) 20. NWRA 21. New Par 22. Nextel 23. Pacific Bell Mobile Services (Pacific)"R%P0*&&aap&"Ԍ24. PageNet 25. PCS Primeco 26. PCIA 27. SNET 28. Southern 29. SBMS 30. Sprint Venture 31. TRA 32. U.S. AirWaves Inc. (U.S. AirWaves) 33. Vanguard 34. Waterway Communication System, Inc. (Watercom)  Y -   " P0*&&aaP "  Y-  ' APPENDIX B Final Regulatory Flexibility Analysis  Y- xAs required by Section 603 of the Regulatory Flexibility Act, 5 U.S.C.  603 (RFA),  Y-an Initial Regulatory Flexibility Analysis (IRFA) was incorporated in the Second Notice of  Yw-Proposed Rulemaking in this proceeding (Second NPRM). The Commission sought written  Yb-public comments on the proposals in the Second NPRM, including on the IRFA. The Commission's Final Regulatory Flexibility Analysis (FRFA) in this Report and Order conforms to the RFA, as amended by the Contract With America Advancement Act of 1996, Pub. L. No. 10421, 110 Stat. 847 (1996).  X - I.xNeed for and Purpose of this Action:  Y - xIn this decision, the Commission, on an interim basis, extends its rule under which cellular licensees are currently prohibited from restricting resale of their service to broadband personal communications services (PCS) and certain geographic area specialized mobile radio (SMR) providers. The Commission also eliminates an exception to the current rule under which cellular licensees are permitted to restrict resale by competing fully operational cellular licensees in the same geographic market. The purposes of this action are to help bring the benefits of competition to the market for these services while the market is in transition to a fully competitive state, as well as to help jump start competition by allowing new entrants to enter the marketplace quickly by reselling their competitors' services while they build out their facilities.  X- II.XxSummary of Issues Raised by the Public Comments in Response to the Initial Regulatory Flexibility Analysis:(#  Y- xNo comments were filed in direct response to the IRFA. In general comments on the  Yj-Second NPRM, however, some commenters raised issues that might affect small entities. In particular, some commenters argued that the obligation to permit unrestricted resale would make it difficult for some providers, especially paging, narrowband PCS, public coast service, and other small providers, to manage their capacity and to earn a reasonable return on their investment. The Commission determined that these objections were not well founded because the resale rule does not prevent carriers from pricing their services so as to earn a return on their investment or from including provisions in their contracts to protect themselves against stranded capacity.  X"- III.xChanges Made to the Proposed Rules: x  Yo$-xIn the Second NPRM, the Commission proposed to extend the resale rule to all commercial mobile radio services (CMRS) providers. However, the Commission here"Z%P0*&&aap&" determines instead to apply the rule only to cellular, broadband PCS and certain SMR providers because it has concluded that application of the resale rule to other CMRS providers will not promote the public interest at this time. The Commission also determines to sunset application of the resale rule to affected cellular, broadband PCS and SMR providers in approximately five years because by that time the development of competition is expected to render the rule unnecessary. In light of this sunset decision, the Commission does not adopt its proposal to allow providers subject to the rule to restrict resale by their fully operational facilitiesbased competitors, and it further eliminates the existing exception between competing cellular licensees in order to maintain regulatory parity and because it has  Y1-determined that the exception no longer serves a useful purpose.  X -IV.xDescription and Estimate of the Small Entities Subject to the Rules:  Y -x The rule adopted in this Report and Order will apply to providers of cellular, broadband PCS, and geographic area 800 MHz and 900 MHz specialized mobile radio services, including licensees who have obtained extended implementation authorizations in the 800 MHz or 900 MHz SMR services, either by waiver or under Section 90.629 of the Commission's Rules. However, the rule will apply to SMR licensees only if they offer realtime, twoway voice service that is interconnected with the public switched network.  U4-Xx A.` ` Estimates for Cellular Licensees (# xThe Commission has not developed a definition of small entities applicable to cellular licensees. Therefore, the applicable definition of small entity is the definition under the  Y-Small Business Administration (SBA) rules #X~ps7X##Xj\  P6G; XP#applicable to radiotelephone companies. This definition provides that a small entity is a radiotelephone company employing fewer than  X-1,500 persons.Q g yO$-#X\  P6G;IP#э 13 C.F.R.  121.201, Standard Industrial Classification (SIC) Code 4812. Since the Regulatory Flexibility Act amendments were not in effect until the record in this proceeding was closed, the Commission was unable to request information regarding the number of small cellular businesses and is unable at this time to determine the precise number of cellular firms which are small businesses. xThe size data provided by the SBA does not enable us to make a meaningful esimate of the number of cellular providers which are small entities because it combines all  X -radiotelephone companies with 500 or more employees.2RX X g yO"-#X\  P6G;IP#э U.S. Small Business Administration 1992 Economic Census Employment Report, Bureau of the Census, U.S. Department of Commerce, SIC Code 4812 (radiotelephone communications industry data adopted by the SBA Office of Advocacy). 2 We therefore used the 1992 Census of Transportation, Communications, and Utilities, conducted by the Bureau of the Census, which is the most recent information available. This document shows that only 12"xR0*&&aav " radiotelephone firms out of a total of 1,178 such firms which operated during 1992 had 1,000  X-or more employees.Sy g yOb-#X\  P6G;IP#э U.S. Bureau of the Census, U.S. Department of Commerce, 1992 Census of Transportation, Communications, and Utilities, UC92S1, Subject Series, Establishment and Firm Size, Table 5, Employment  S-Size of Firms: 1992, SIC Code 4812 (issued May 1995).#X~ps7X#  #Xj\  P6G; XP#Therefore, even if all 12 of these firms were cellular telephone  X-companies, nearly all cellular carriers were small businesses under the SBA's definition#Xj\  P6G; XP##X~ps7X#.#Xj\  P6G; XP# We assume, for purposes of our evaluations and conclusions in this FRFA, that all of the current cellular licensees are small entities, as that term is defined by the SBA. Although there are 1,758 cellular licenses, we do not know the number of cellular licensees, since a cellular licensee may own several licenses.  Xd-  WM<x  B.` ` Estimates for Broadband PCS Licensees  xThe broadband PCS spectrum is divided into six frequency blocks designated A through F. Pursuant to 47 C.F.R.  24.720(b), the Commission has defined "small entity" in the auctions for Blocks C and F as a firm that had average gross revenues of less than $40  X -million in the three previous calendar years. This regulation defining "small entity" in the  X -context of broadband PCS auctions has been approved by the SBA.T  g {O}-#X\  P6G;IP#э See Implementation of Section 309(j) of the Communications Act Competitive Bidding, PP Docket No.  yOG-93253, Fifth Report and Order, 9 FCC Rcd 5532, 558184 (1994). #X~ps7X##Xj\  P6G; XP# xThe Commission has auctioned broadband PCS licenses in Blocks A, B, and C. We do not have sufficient data to determine how many small businesses bid successfully for licenses in Blocks A and B. There were 89 winning bidders that qualified as small entities in the Block C auction. Based on this information, we conclude that the number of broadband PCS licensees affected by the rule adopted in this Report and Order includes the 89 winning bidders that qualified as small entities in the Block C broadband PCS auction. xAt present, no licenses have been awarded for Blocks D, E, and F of broadband PCS spectrum. Therefore, there are no small businesses currently providing these services. However, a total of 1,479 licenses will be awarded in the D, E, and F Block broadband PCS auctions, which are scheduled to begin on August 26, 1996. Eligibility for the 493 F Block licenses is limited to entrepreneurs with average gross revenues of less than $125 million. However, we cannot estimate how many of these licenses will be won by small entities, nor how many small entities will win D or E Block licenses. Given the facts that nearly all radiotelephone companies have fewer than 1,000 employees and that no reliable estimate of the number of prospective D, E, and F Block licensees can be made, we assume, for purposes of our evaluations and conclusions in this FRFA, that all of the licenses will be awarded to small entities, as that term is defined by the SBA. "cT0*&&aa<"  W<x C.` ` Estimates for SMR Licensees  xPursuant to 47 C.F.R.  90.814(b)(1), the Commission has defined "small entity" in auctions for geographic area 800 MHz and 900 MHz SMR licenses as a firm that had average  X-gross revenues of less than $15 million in the three previous calendar years. This regulation defining "small entity" in the context of 800 MHz and 900 MHz SMR has been approved by  X_-the SBA.U_ g {O-#X\  P6G;IP#э See Amendment of Parts 2 and 90 of the Commission's Rules to Provide for the Use of 200 Channels Outside the Designated Filing Areas in the 896901 MHz and the 935940 MHz Bands Allotted to the Specialized Mobile Radio Pool, PR Docket No. 89583, Second Order on Reconsideration and Seventh Report and Order, 11 FCC Rcd 2639, 2693702 (1995); Amendment of Part 90 of the Commission's Rules to Facilitate Future Development of SMR Systems in the 800 MHz Frequency Band, PR Docket No. 93144, First Report and Order, Eighth Report and Order, and Second Further Notice of Proposed Rulemaking, 11 FCC Rcd 1463 (1995). xThe rule adopted in this Report and Order applies to SMR providers in the 800 MHz and 900 MHz bands that either hold geographic area licenses or have obtained extended implementation authorizations. We do not know how many firms provide 800 MHz or 900 MHz geographic area SMR service pursuant to extended implementation authorizations, nor how many of these providers have annual revenues of less than $15 million. Since the Regulatory Flexibility Act amendments were not in effect until the record in this proceeding was closed, the Commission was unable to request information regarding the number of small businesses in this category. We do know that one of these firms has over $15 million in revenues. We assume, for purposes of our evaluations and conclusions in this FRFA, that all of the remaining existing extended implementation authorizations are held by small entities, as that term is defined by the SBA. xThe Commission recently held auctions for geographic area licenses in the 900 MHz  X-SMR band. There were 60 winning bidders who qualified as small entities in the 900 MHz  X-auction. Based on this information, we conclude that the number of geographic area SMR  X-licensees affected by the rule adopted in this Report and Order includes these 60 small  X-entities.     X-#Xj\  P6G; XP#xNo auctions have been held for 800 MHz geographic area SMR licenses. Therefore, no small entities currently hold these licenses. A total of 525 licenses will be awarded for the upper 200 channels in the 800 MHz geographic area SMR auction. However, the Commission has not yet determined how many licenses will be awarded for the lower 230 channels in the 800 MHz geographic area SMR auction. There is no basis to estimate, moreover, how many small entities within the SBA's definition will win these licenses. Given the facts that nearly all radiotelephone companies have fewer than 1,000 employees and that no reliable estimate of the number of prospective 800 MHz licensees can be made, we"BU0*&&aa" assume, for purposes of our evaluations and conclusions in this FRFA, that all of the licenses will be awarded to small entities, as that term is defined by the SBA.  W< xD.` ` Estimates for Resellers  X-x We were unable to obtain reliable data regarding the number of entities that resell services covered by the rule adopted in this Report and Order, or how many of these are small entities. Since the Regulatory Flexibility Act amendments were not in effect until the record in this proceeding was closed, the Commission was unable to request information regarding the number of small businesses in this category. We note, however, that resellers are included among the 1,178 radiotelephone firms described in the 1992 Census data discussed above, 12 of which had 1,000 or more employees. Given the facts that nearly all radiotelephone companies have fewer than 1,000 employees and that no reliable estimate of the number of resellers can be made, we assume, for purposes of our evaluations and conclusions in this FRFA, that all resellers are small entities, as that term is defined by the SBA.  X-  Xy-V.XxSummary of Projected Reporting, Recordkeeping and Other Compliance  Xb-Requirements: (# xThe rule adopted in this Report and Order imposes no reporting or recordkeeping requirements. The rule also requires no affirmative compliance action by any entity to which it applies. Rather, the rule operates as a negative prohibition forbidding restrictions on the resale of service. Therefore, the only compliance costs likely to be incurred are administrative costs to ensure that an entity's practices are in compliance with the rule.  X- VI.xSteps Taken to Minimize the Economic Impact on Small Entities: xThe Commission determines not to apply its resale rule to CMRS providers other than those classified as cellular, broadband PCS and certain SMR. Many of the providers that are thereby excluded from the rule are small entities, including paging, narrowband PCS, airground, public coast service, and noncovered SMR providers. In addition, the Commission's decision to sunset the resale rule five years after it awards the last group of initial licenses for currently allotted broadband PCS spectrum will reduce the impact of the rule on small entities by limiting the period of time for which such entities are subject to that rule. By prohibiting restrictions on resale during a transitional period, the Commission's decision benefits small entities that are resellers or that will use resale while they are building out their facilities.  X"- VII.xSignificant Alternatives Considered and Rejected: xThe Commission considered and rejected several significant alternatives. The Commission rejected the alternative of extending the resale rule to all CMRS providers"Q%U0*&&aa'$" because it determined that such a rule is unnecessary at this time to promote competition or the availability of socially useful offerings in services other than cellular, broadband PCS, and geographic area SMR. At the same time, the Commission rejected the alternative of extending an interim resale rule to a universe less than all cellular, broadband PCS, and covered SMR providers because it concluded that a more limited rule would not adequately promote its competitive and social ends and would be inconsistent with the principle of regulatory parity. The Commission rejected the alternative of continuing the resale rule indefinitely because it determined that the rule would be unnecessary once broadband PCS licensees are fully operational as facilitiesbased competitors to cellular providers. Finally, the Commission rejected the alternative of allowing providers to restrict resale by their facilitiesbased competitors because in the short term such an exception would defeat the purpose of allowing new entrants to use resale to help them enter the market more quickly, and in the long term the sunset of the resale rule as a whole would render the exception irrelevant.  X - VIII.xReport to Congress xThe Commission shall send a copy of this Final Regulatory Flexibility Analysis, along with this Report and Order, in a report to Congress pursuant to the Small Business Regulatory Enforcement Fairness Act of 1996, 5 U.S.C.  801(a)(1)(A). A copy of this FRFA will also  XK-be published in the Federal Register.T ă"KU0*&&aa"  X-  ) APPENDIX C TPTP  X-/Final Rules ă Parts 20 and 22 of Chapter I of Title 47 of the Code of Federal Regulations are amended as follows:  X_- Part 20 COMMERCIAL MOBILE RADIO SERVICES 1. The authority citation for Part 20 continues to read as follows: xAuthority: Sections 4, 303, and 332, 48 Stat. 1066, 1092, as amended; 47 U.S.C.  154, 303, and 332, unless otherwise noted. 2. The Table of Contents for Part 20 is revised by adding new text and listings to read as follows:  Xy-  PART 20 COMMERCIAL MOBILE RADIO SERVICES ă B***** 20.12 Resale. 3. Section 20.3 is amended by adding the following definition in alphabetical order to read as follows:  X- Section 20.3 Definitions. *****  XN-Incumbent Wide Area SMR Licensees. Licensees who have obtained extended implementation authorizations in the 800 MHz or 900 MHz service, either by waiver or under Section 90.629 of these rules, and who offer realtime, twoway voice service that is interconnected with the public switched network. ***** " U0*&&aa" 4. New Section 20.12 is added to read as follows:  X- Section 20.12 Resale.  X-x (a) Scope of Section. This Section is applicable only to providers of Broadband Personal Communications Services (Part 24, Subpart E of this chapter), providers of Cellular Radio Telephone Service (Part 22, Subpart H of this chapter), providers of Specialized Mobile Radio Services in the 800 MHz and 900 MHz bands that hold geographic area licenses (included in Part 90, Subpart S of this chapter) and offer realtime, twoway voice service that is interconnected with the public switched network, and Incumbent Wide Area SMR Licensees.  X -  X -x(b) Resale. Each carrier subject to this Section must permit unrestricted resale of its service. This paragraph shall cease to be effective five years after the last group of initial licenses for broadband PCS spectrum in the 18501910 and 19301990 MHz bands is awarded.  Xf- Part 22 PUBLIC MOBILE SERVICES  X8- 1. The authority citation for Part 22 continues to read as follows: xAuthority: Sections 4, 303, and 332, 48 Stat. 1066, 1082, as amended; 47 U.S.C.  154, 303, and 332, unless otherwise noted.  X-  2. Section 22.901 is amended by deleting paragraph (e).