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INTRODUCTION ă  X4 ( (1. ` ` On June 13, 1997, Pacific Bell filed a petition for Expedited Waiver of Section  X4 !336.380 of the Commission's rules" {O:' xR ԍSee Pacific Bell's Petition for Expedited Waiver of Section 36.380 of the Commission's Rules (Petition), filed June 13, 1997. that prescribe the procedures incumbent local exchange carriers  !(LECs) use to allocate Other Billing and Collecting (OB&C) expenses between the intrastate and  X4 !interstate jurisdictions.G"" yOf'ԍ47 C.F.R.  36.380.G On June 30, 1997, the Commission issued a Public Notice soliciting  X|4 !comment on Pacific Bell's Petition.|" {O' x ԍSee Pacific Bell Files Petition for Expedited Waiver of Section 36.380 of the Commission's Rules, Public  {O 'Notice, DA 971359 (rel. June 30, 1997). No comments were filed. For the reasons set forth below, we deny Pacific Bell's Petition.  X 4g\ II. BACKGROUND ă  X4 ( 2. ` ` Incumbent LECs incur OB&C expenses by preparing and rendering end user  !}customer bills for themselves as well as interexchange carriers (IXCs). They also incur OB&C  !expenses by accounting for revenues generated by those bills. Prior to 1986, incumbent LECs" ,))ZZ"  X4 !recovered OB&C expenses through interstate access charges.e {Oy' x ԍMTS and WATS Market Structure, CC Docket No. 7872, Phase I, Third Report and Order, 93 F.C.C. 2d 241 (1983). In 1986, the Commission  X4 !detariffed interstate billing and collecting services."e {O' x ԍSee Detariffing of Billing and Collection Services, 102 FCC 2d 1150 (1986), recon. denied, 1 FCC Rcd 445 (1986). As a result, most OB&C expenses are  X4 !yallocated to nonregulated activitiesM|e {O'ԍSee 47 C.F.R. Part 64.M and recovered from IXCs through untariffed charges for  !Rbilling and collection services provided by incumbent LECs. The exception to this rule is the  !cost of billing and collecting the federal subscriber line charge (SLC). Pursuant to our Part 69  X4rules, this regulated OB&C cost is recovered through the common line access rate element.e {OL ' x ԍSee 47 C.F.R.  69.407(a). The SLC is a perline charge that allows an incumbent LEC to recover a  yO'portion of its interstate nontraffic sensitive loop costs.   X_4 ( S3. ` ` On February 3, 1997, the Commission issued an order modifying the way in which  XH4 !8carriers separate regulated OB&C costs between the intrastate and interstate jurisdictions.yHh e {Oa' x ԍAmendment of Part 36 of the Commission's Rules and Establishment of a Joint Board, Recommended  {O+' !x Decision, 11 FCC Rcd 12543 (rel. Sept. 27, 1996)(Recommended Decision); Report and Order, FCC 9730 (rel. Feb.  {O' !; 3, 1997) (Report and Order). Jurisdictional separations is the third step in a fourstep regulatory process that begins  ! with an incumbent local exchange carrier's accounting system and ends with the establishment of tariffed rates for  !@ the incumbent LEC's interstate and intrastate regulated services. After carriers record their costs into Part 32  ! accounts, and those costs are divided between regulated and nonregulated activities in accordance with Part 64, Part  ! 36 requires carriers to separate the regulated costs between the intrastate and interstate jurisdictions. This process  !b is known as "jurisdictional separations." After costs flow through Part 36, carriers apportion the interstate regulated  ! costs among the interexchange services and rate elements that form the cost basis for their exchange access tariffs. For carriers subject to rateorreturn, this apportionment is performed in accordance with Part 69.y  !Specifically, the Commission adopted the Joint Board's recommendation that the OB&C expenses  !}subject to the separations rules be divided equally among three services: interstate toll; intrastate  X 4 !/toll; and local exchange.  e yO' x ԍPreviously, the jurisdictional allocations were based on a combination of user counts and toll message volumes. Under the new rule, two thirds of the OB&C expenses are allocated  !/to the state jurisdiction and one third is allocated to the interstate jurisdiction. In cases in which  !+an incumbent LEC provides no interstate billing and collecting for any IXC, the Commission  !"adopted the Joint Board's recommendation to automatically reduce the interstate assignment of  X 4OB&C expenses to five percent to cover the cost of billing the SLC.] ^e {O#'ԍSee Report and Order at para. 1.] " ,-(-(ZZ"  X44  III. PACIFIC BELL'S PETITION FOR WAIVER ă  X4 (  4.` ` Pacific Bell argues that it is uniquely and adversely affected by the new OB&C  !allocation rules because of the calling patterns in its service area and regulation in the state of  X4 !California. e {O'ԍSee Pacific Bell's Petition at 5.  See also Pacific Bell Ex Parte filed November 5, 1997. Specifically, Pacific Bell argues that its ratio of interstate billed messages to total  !8billed messages is smaller than that of other companies because of the large traffic volumes  !Ebetween the numerous major metropolitan areas within its California operation. Pacific Bell  !alleges that because of the large intrastate traffic volumes, implementation of the new separations  !rules would have an extremely adverse impact on Pacific Bell. It states that its interstate  !_allocation of OB&C costs would increase from 7% to 33%. Pacific Bell further argues that  !theses rules would shift approximately $54 million of OB&C costs to the interstate jurisdiction,  !of which $13 million is allocated to interstate access charges and $41 million is allocated to the  X 4 !detariffed Billing and Collection category in Part 69.X Ze {O'ԍSee Pacific Bell's Petition at 3.X Pacific Bell alleges that this increase is  !Iparticularly burdensome because to recover its full costs, it must dramatically increase prices to  !its nontariffed billing customers, many of whom have negotiated longterm pricing agreements  X4 !that can not be altered for several years.? e {O-'ԍId at 7.? Therefore, Pacific Bell argues that the additional $41  !million will have to be recovered by a very small percentage of its third party billing and  Xb4collection customers, leading these carriers to look elsewhere for billing and collection service.:b~e {O'ԍId.:  X44 ( 5.` ` Furthermore, Pacific Bell alleges that its unique circumstances are aggravated by  !+rules established by the California Public Utilities Commission (CPUC) requiring mandatory  X4 !"adjustments to state price cap rates to reflect Part 36 rule changes.?e {O'ԍId at 5.? It argues that, as a result  !of the new OB&C allocation rules, the CPUC requires Pacific Bell to reduce permanently its  !intrastate rates to reflect the shift in costs to the interstate jurisdiction. Pacific Bell also notes  !that the CPUC's rules do not provide for service specific adjustments due to separations changes  !pbut, instead, distribute price reductions among exchange, toll services and access via surcharges  X4 !based on a proportionate share of revenue.MXe yO"' x ԍAs Pacific Bell explains in its Ex Parte filing, 65% of any reduction in the intrastate revenue requirement  !} is distributed to local service, 25% of any reduction is distributed to users of toll services and only 10% is distributed to access services.M Therefore, Pacific Bell argues that, as a result of  !California's unique regulations, IXCs will be responsible for shouldering 100% of the revenue"| ,-(-(ZZ"  !requirement increase in the interstate jurisdiction but will only receive a small share of the  X4benefits associated with the mandatory intrastate price reductions.We {Ob'ԍSee Pacific Bell's Exparte at 2.W  X4 ( 6.` ` In addition to its Petition for Waiver, Pacific Bell concurrently sought an increase  !to its price cap indexes to reflect the change in the OB&C allocation in its 1997 annual access  X4tariff filing.Ze yO' x ԍ Pacific Bell, 1997 Annual Access Charge Tariff Filing, Transmittal No. 1921, Vol. 11, PCI Revisions (filed June 16, 1997) at 34.  X_' Xc(#dIV. DISCUSSION ă  X14 ( v7.` ` A petition for waiver of the Commission's rules may be granted for good cause  X 4 !_shown.u e {O}'ԍSee Section 1.3 of the Commission's Rules, 47 C.F.R.  1.3.u The Commission may exercise its discretion to waive a rule where particular facts  X 4 !would make strict compliance inconsistent with the public interest. De {O'ԍNortheast Cellular Tel. Co. v. FCC, 897 F.2d 1164 (D.C. Cir. 1990) (Northeast Cellular). The Court of Appeals for  !Vthe D.C. Circuit has stated that a waiver may permit a more rigorous adherence to an effective  !regulation by allowing the agency to take into account considerations of hardship, equity, or more  !Ieffective implementation of overall policy on an individualized basis, while also emphasizing that  X 4 !"[a]n applicant for waiver faces a high hurdle even at the starting gate." e {O.' x ԍWAIT Radio v. FCC, 418 F.2d 1153, 1157, 1159 (D.C. Cir. 1969), cert. denied, 409 U.S. 1027 (1972)  {O'(WAIT Radio). In WAIT Radio, the  !9court explained that "[t]he very essence of a waiver is the assumed validity of the  X{4 !generalrule..."C{2 e {O^'ԍId. at 1158.C Waiver is thus appropriate if special circumstances warrant a deviation from  !_the general rule and such deviation will better serve the public interest than adherence to the  XM4 !pgeneral rule._M e {O'ԍSee Northeast Cellular, 897 F.2d at 116._ Therefore, the test for whether Pacific Bell may be granted a waiver is whether  !it has shown special circumstances such as individualized hardship or inequity that warrants deviation from our new OB&C allocation rules.  X4 ( X8.` ` We deny Pacific Bell's request for waiver of the new OB&C jurisdictional  !separations rules because we find that Pacific Bell has not shown, through reliable data, that it  !Vis uniquely affected and will be unduly burdened by the new rules. In response to Pacific Bell's  X4 !NPetition and its request to increase its price cap indexes by $13 million,OV e {O&'ԍSee supra at paras. 4,6.O the Commission",-(-(ZZ("  !Iinitiated an investigation to determine whether the revenue impact of the new OB&C allocation  X4 !Vrules would, in fact, increase Pacific Bell's total interstate revenue requirement by $54 million.-e {Ob' x ԍSee 1997 Annual Access Tariff Filings, CC Docket No. 97149, Order Designating Issues for Investigation,  {O,'Memorandum Opinion and Order on Reconsideration, 12 FCC Rcd 11417 (Com. Car. Bur., rel. July 28, 1997).-  !The investigation indicated that Pacific Bell incorrectly computed its interstate factor by  ! miscounting its billed toll messages and miscounting the number of users of message toll  X4 !service.$e {Oy' xI ԍ See 1997 Annual Access tariff Filings, CC Docket No. 97149, Memorandum Opinion and Order, FCC 97 {OC '403 (rel. Dec. 1, 1997) at paras. 155156, 171 (Memorandum Opinion and Order). Revised submissions by Pacific Bell also produced unexplained anomalies and data  X4 !problems that cast doubt on the reliability of Pacific Bell's argument.e yO ' x ԍFor example, Pacific Bell originally argued that California's unique calling pattern produced an unusually  ! low interstate share of billed toll messages of approximately 4%, then revised that figure to approximately 14%.  !D Upon investigation, 1996 traffic data submitted by Pacific Bell indicated that the interstate share of its completed  ! originating toll calls in California was 35.5%, more than double the revised interstate share that it reported for billed  ! toll messages. We recognize that this figure includes calls completed by IXCs, which likely billed some portion  ! of their toll calls on their own. We therefore adjusted the 35.5% share of originating toll calls downward by 23.5%,  ! an average percentage by which the 1996 interstate billed message share of other RBOCs are below their interstate  ! shares for completed originating toll calls. The resulting allocation factor of 27.2% was still significantly above the revised 14% submitted by Pacific Bell.  Because Pacific Bell  !yfailed to explain these anomalies adequately or provide required information, the Commission  !concluded that it could not reasonably rely on any of the data submitted in support of Pacific  XH4 ![Bell's argument.qHP e {OI'ԍSee Memorandum Opinion and Order at paras. 158, 171.q Without reliable data, Pacific Bell's Petition for Waiver of the OB&C  !allocation rules leaves its underlying arguments largely unsupported. We, therefore, find no merit  !in Pacific Bell's allegation that the new OB&C rules dramatically increase prices to its nontariffed billing customers because the data submitted by Pacific Bell is inherently unreliable.  X 4 ( 9.` ` Furthermore, we find that the CPUC's regulations do not create unique  !circumstances supporting a waiver of the new OB&C rules. In fact, we find the CPUC's  !regulations requiring a reduction in state price cap indices to reflect a reduction in intrastate  !allocation factors to be sound regulatory policy that not only reinforces fundamental principles  Xy4 !of cost recovery, but is common practice in other state jurisdictions.^ye {O ' x[ ԍ See e.g., New Jersey Bell Telephone Company, Docket No. T092030358, 143 P.U.R. 4th 297 (1993);  {O ' !7 Citizens Utility Board v. Illinois Bell Telephone Company, Docket No. 9302390, 156 P.U.R. 4th 121 (1994); New  {O!'England Telephone and Telegraph Company, Docket No. 94123, 162 P.U.R. 4th 38 (1995). The CPUC's requirement  !that separations rule changes are reflected in state rates ensures that carriers do not recover the  !same costs in both the interstate and intrastate jurisdictions. This fundamental principle of cost"K,-(-(ZZ"  !urecovery is one of the primary reasons why carriers are required to perform jurisdictional  X4separations. e {Ob' x ԍSee Jurisdictional Separations Reform and Referral to the FederalState Joint Board, Notice of Proposed  {O,'Rulemaking, CC Docket No. 80286, (rel. October 7, 1997) at para. 3.   X4 ( 10.` ` In addition, any adverse impact the new OB&C rules may have on smaller IXCs  !and their customers is largely mitigated by the availability of alternative providers of billing and  X4 !collection services.BZ$e yOb ' x ԍPacific Bell argues that the revenue shift produced by the new OB&C allocation rules will likely cause a  {O* ' ! number of small IXC customers to look elsewhere for billing and collection service. See Pacific Bell's Petition at 7.B Moreover, the Commission previously has addressed the claim that IXCs  !would stop using Pacific Bell as a billing agent simply because of the increase in the interstate  X_4 !allocation of OB&C costs. As the Commission noted in its Report and Order adopting the new  !OB&C rules, "IXC's must bill their customers in some manner...[and] sharing the OB&C  !_expense with the incumbent LECs, rather than bearing the entire billing expense themselves,  X 4 !<would continue to be an attractive option for costconscious and highly competitive IXCs."T  Fe {O'ԍReport and Order at para. 11.T In  !response to concerns raised by incumbent LECs that they would not be able to recover the  !increased OB&C expenses, the Commission adopted the Joint Board's reasoning that incumbent  !pLECs could renegotiate contracts with IXCs, and that any losses incumbent LECs might endure  !"as a result of the onethird allocation to the interstate jurisdiction would cause only a temporary  X 4 !decline in the profitability of some incumbent LECs' billing operations.L! e {O2'ԍId. at paras. 11, 13.L Therefore, given the  !hlikelihood that costconscious IXC's will not want to shoulder the entire cost of billing and  !collection services, plus the temporary nature of any potential loss in billing revenues, we find  ! Pacific Bell's argument that it will not be able to recover the increased OB&C expenses allocated to the interstate jurisdiction unpersuasive. "j !,-(-(ZZ"  X'Xc (#lIV. ORDERING CLAUSE ă  X4 ( 911. ` ` Accordingly, IT IS ORDERED that, pursuant to sections 4(i), 219 and 220 of the  !Communications Act of 1934, as amended, 47 U.S.C.  154(i), 219 and 220, Pacific Bell's Petition for Expedited Waiver is denied. ` `  ,hh]FEDERAL COMMUNICATIONS COMMISSION ` `  ,hh]A. Richard Metzger, Jr.  X 4` `  ,hh]Chief, Common Carrier Bureauxx X` hp x (#%'0*,.8135@8: