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pQ&90J=.X3L&J*f9 xQ&X :P,%XJ,\  P6QJP;I(!X,(\  P6Q,P<{,C8*X3VC*f9 xQX=y.D81XRD\  P@QPl1K=.XXj &K9 xyQ&2 bRR"5^.Gf\\3==\h.=.3\\\\\\\\\\==hhh\zzzzzG\zppzfpzzpp=3=h\=\\Q\Q=\f33\3f\\\GG3fQz\QG@(@h.====I=\\z\z\z\z\z\zQzQzQzQzQG3G3G3G3f\\\\ffffpQz\\\\pQ\p\z\z\z\zQzQzQzQzQ\\\ffI\G\G=G\\\fGN@.\\G\\\\\\17\7\7==\\\==\\=\=7N=ddoIih\\i.Gf\\3==\h.=.3\\\\\\\\\\==hhh\zzzzzG\zppzfpzzpp=3=h\=\\Q\Q=\f33\3f\\\GG3fQz\QG@(@h=\\\\=f===\\@\=G=p.G\\\\(\=1\o=\Id77=i\.=77\\zzzzzzzzzzzGGGGhpp\\\\\\\QQQQQ3333\f\\\\\d\ffffQ\ X-  r X- {  #XP\  P6QXP#Federal Communications Commission`(# FCC 97369 ă  yxdddy  X- X > r X J #C\  P6Q/P#Before the b Federal Communications Commission  yOTWashington, D.C. 20554 #XP\  P6QXP#у  Xb-q/#XP\  P6QXP# I#i #&I\  P6Q &P# I#i  h) Px` `  hh@h)  S#- X In the Matter ofTh)  S-Th)  S-Bell Atlantic Mobile Systems, Inc. andTh)ppFile Nos. 00762CLAL195  S-NYNEX Mobile Communications CompanyTh)ppthrough 00803CLAL195; 00804  S-Th)ppCLTC195 through 00816CLTC  S[ -Th)pp195; 00817CLAL195 through  S3 -Th)pp00824CLAL195; and 00825CL  S -Th)ppTC195 through 00843CLTC195  S -Th)  S -Th)  SC-  MEMORANDUM OPINION AND ORDER TP  S-  X` hp x (#%'0*,.8135@8:[t {O- ky#C\  P6Q/P#эxSee, e.g., 47 U.S.C.  201 (a) ("It shall be the duty of every common carrier engaged in interstate or foreign  xcommunication by wire or radio to furnish such communication service upon reasonable request . . . "); 47 U.S.C.   201 (b) ("All charges, practices, classifications, and regulations for and in connection with such communication  service, shall be just and reasonable . . . "); 47 U.S.C.  202 (a) ("It shall be unlawful for any common carrier to make  any unjust or unreasonable discrimination in charges, practices, classifications, regulations, facilities, or services . . . "). are sufficient to prevent any anticompetitive conduct by" '0*$$CCk " Cellco involving roaming. x 12. The only new circumstance that appears to have resulted from the transfer is that now Cellco controls Aside and Bside systems in several immediately adjacent markets. While the ownership of Aside and Bside systems in adjacent markets appears to be unprecedented, individual  S8-companies have controlled nearby Aside and Bside systems for years without any findings of anticompetitive abuses. Comcast does not allege, much less show, that anticompetitive misconduct is more likely with adjacent Aside and Bside licenses than was possible with those simply located  S-nearby. We also note that, in the more than two years since the Order was released, Comcast has not brought to our attention in this proceeding any misconduct by Cellco concerning roaming either in Cellco's adjacent Aside and Bside markets or elsewhere. Without more, we conclude that Comcast is  SL -raising only ephemeral possibilities, not probabilities, of anticompetitive misconduct. x 13. Comcast is also mistaken in its claim that it is raising a question of fact concerning  S -roaming.{( [t {Od -#C\  P6Q/P#эxSee supra notes 12, 24.{ The substantial and material facts are not in dispute: Cellco now has interests in Aside and Bside licenses in nearby markets and, in several cases, in adjacent markets. The inferences and conclusions about what Cellco will now do with Aside and Bside licenses in adjacent markets are  S\-what is in dispute. In the face of all the countervailing factors we discuss in this Section, Comcast's  S4-speculation about anticompetitive effects does not amount to a showing that the Bureau's Order was  S-prima facie inconsistent with the public interest.g)[t {O0-#C\  P6Q/P#эxId.g  S- x 14. Comcast's assertion that a Commission rulemaking concerning roaming indicates that anticompetitive abuses by Cellco are probable is misguided. Rulemakings may be convened to revisit existing policies in light of changed circumstances. Our rulemaking concerning roaming was begun to consider expanding our preexisting roaming requirements to account for changed circumstances since  S -adoption of our original roaming rules.*^ [t {O-  d #C\  P6Q/P#эxSecond Notice of Proposed Rulemaking, 10 FCC Rcd 10666, 1068810694, 4559 (1995); Second  {O- kReport and Order and Third Notice of Proposed Rulemaking, 11 FCC Rcd 9462 (1996). Comcast  {Oh-participated actively in this rulemaking. See 11 FCC Rcd 9462, 9468, 947576,  9, 23. These changed circumstances include technological developments, the licensing of broadband PCS, and the emergence of interconnected SMR systems as  S-possible competitors to cellular systems.+:[t S-ԍx#C\  P6Q/P#Id.#XP\  P6QXP#ш The existence of a rulemaking does not indicate that the transfer that created Cellco is likely to lead to increased anticompetitive activity.  S- x15. In light of Comcast's failure to demonstrate with specificity the likely occurrence of any  S0-anticompetitive abuses concerning roaming as a result of the transfer, or even to explain the incentive that Cellco would have to engage in such abuses, we affirm the Bureau's finding that the rulemaking process is the proper forum for Comcast's general concerns about roaming. Likewise, the complaint"+0*$$CC=" process under Section 208 of the Act is the proper forum to raise any future anticompetitive abuses by  S-Cellco.,~[t {O@- k!#C\  P6Q/P#эxSee Order, 10 FCC Rcd at 1338083,  37, 41; see also, e.g., McCaw, 9 FCC Rcd at 588081 ("The  wCommission has adequate regulatory authority through our complaint process to address the types of concerns raised  {O- by commenters without the need for additional special rules or conditions"), 588586, 590708, 83, 133; Contel  {O- Corp., Memorandum Opinion & Order, 6 FCC Rcd 1003, 1005, 22 (1991) ("We need not address in detail AACD's  zcomments . . . because the merger will not affect whatever relief it may be entitled to, if any, through the  JCommission's complaint processes. . . . [R]egardless of whether Contel ASC is found liable or not in any complaint proceeding, our analysis of the anticompetitive implications of the merger would not be impacted").#C\  P6Q/P# Matters affecting the industry as a whole and misdeeds whose occurrence is based upon mere speculation are better considered in rulemakings than in specific licensing proceedings. In the  S-latter, they may serve only to complicate and delay transactions that will benefit the public.-[t {O6 - k#C\  P6Q/P#эxSee, e.g., SBC, 56 F.3d at 1491 (Upholding the Commission's refusal to impose equal access duties on a  cellular carrier in a license transfer proceeding in part because "the Commission is currently addressing in a separate  {O - rulemaking the question whether it should require all cellular carriers to provide equal access").  See also Hale v.  {O - wFCC, 425 F.2d 556 (D.C. Cir. 1970); Plough Broadcasting, Inc., Memorandum Opinion and Order, 70 FCC 2d 683 (1978). Likewise, we dismiss as unnecessary and unsupported Comcast's general requests that the Commission conduct a detailed investigation of Cellco's business plans to ascertain whether structural separation  S-and other protections are necessary to protect competition.d. [t yOt-#C\  P6Q/P#э xReply at 8.d Without a showing that specific or anticompetitive abuses will result from the transfer, no investigation is necessary.  S- x 16. Finally, Comcast argues that as a result of the Bureau's Order Cellco has reduced its  Sr-roaming rates./rT [t {Of-#C\  P6Q/P#эxId. at 5.#XP\  P6QXP#ю We do not agree that a reduction in roaming rates shows anticompetitive behavior. Generally, lower prices are a product of improved competition that benefits consumers. Our statutory  S" -duty is to protect efficient competition, not competitors.0" [t {O-#C\  P6Q/P#эxSBC, 56 F.3d at 149192 and cases cited therein.  S - " x00*$$CC "Ԍ S- b}III. OMISSION OF CERTAIN ORDERING CLAUSES IN THE ORDER ׃  S-x17. Contentions of the Parties. Comcast also alleges that the Order improperly allows Cellco  S-to hold interests in two licenses in the same markets, in violation of Section 22.942 of our rules.1X[t yO- k#C\  P6Q/P##C\  P6Q/P#э xSection 22.942, 47 C.F.R. 22.942, provides that "no person may have a direct or indirect ownership interest  in licensees for both channel blocks [Aside and Bside] in overlapping cellular geographic service areas, unless such interests pose no substantial threat to competition."  Sc-Comcast states that the ordering clauses of the Order erroneously required divestitures of only four of the ten markets in which, before the transfer, BAMS and NYNEX Mobile held both cellular licenses  S-(or interests in them).n2[t yO - k#C\  P6Q/P#эxApplication at 7. The four are NYNEX Mobile's interest in the Bside license in Pittsfield, Massachusetts,  yOe -and BAMS's Aside licenses in Providence and Newport, Rhode Island, and New Bedford, Massachusetts.#K\  P@Q P#n Comcast argues that the Order erroneously omitted requiring either that BAMS divest the Aside licenses it controls or that NYNEX Mobile divest the "minority interests" in  S-the Bside licenses that it holds through an entity named Springwich Cellular in six markets.3@[t yO- k#C\  P6Q/P#э xThese six markets are Bridgeport, Hartford, New Haven, New London, and Windham, Connecticut, and  yOo-Springfield, Massachusetts.#C\  P6Q/P#  Sw- x18. In its Opposition, Cellco responds that the Bureau's Order noted in paragraphs 5 and 6 both that Bell Atlantic and NYNEX had committed to divest interests in all ten markets in question,  S) -and that the Bureau expected that those divestitures would be accomplished.4) [t yOa-#C\  P6Q/P##C\  P6Q/P#э xOpposition at 4. Furthermore, Cellco alleges the issue is moot, because when Bell Atlantic and NYNEX transferred their respective interests to Cellco on July 1, 1995, they divested either an Aside or a Bside interest in each of the ten markets.  Sa-x19. Discussion. The Bureau's omission of six ordering clauses requiring the divestiture of  S9-certain markets was an inadvertent error. The Order did state that Bell Atlantic and NYNEX had committed to divest either the Aside or Bside cellular interests in all ten markets and the Bureau  S-expected that those divestitures would be accomplished.5( [t {O-#C\  P6Q/P#э xOrder, 10 FCC Rcd at 1336970, 5.#C\  P6Q/P#ѳ Indeed, all the divestitures were accomplished in full, eliminating all overlapping interests. We find that Comcast has, as before, noted  S-a technical error in the Bureau's Order that is now moot.  Su-  SM-<  IV. REGIONAL OR NATIONAL GEOGRAPHIC MARKET T  S-TP x20.  Contentions of the Parties. In the Order, the Bureau declined to find a regional or" 50*$$CC%"  S-national geographic market as a result of the transfer.6[t {Oh-#C\  P6Q/P#эxId. at 13374, 20.#C\  P6Q/P#ћ According to Comcast, the Bureau made little effort to ascertain whether Cellco would be operating on a regional or national basis and ignored  S-Comcast's evidence of just such types of conduct.y7Z[t yO-#C\  P6Q/P#эxApplication at 6 n.7; Reply at 7.y Specifically, Comcast argues that the overriding goal of the BAMSNYNEX merger is to (i) sell its product on a regional or national basis; (ii) adopt a national centralized management structure; (iii) set rates on a national basis; (iv) sell a large percentage of portable units as opposed to carbound units; and (v) offer widespread subscription to regional or national service options. This, according to Comcast, is exactly the type of conduct that the Bureau in  S-the Order stated would demonstrate that Cellco was operating in a regional or nationwide market.a8[t {Or -#C\  P6Q/P#эxId.a  S-Comcast also maintains that the Order ignores Cellco's publicly revealed plans to integrate cellular systems and develop advanced intelligent networks and circuit and packetswitched data transmission services to be deployed "over larger territory." Comcast further asserts that these actions are the types  SL -of conduct that the Order specified would raise anticompetitive concerns and would have "antitrust  S& -consequences."{9& |[t yOB-#C\  P6Q/P#э xApplication at 6 n.9; Reply at 7.{  S - x21.  Discussion. Comcast has misread the Bureau's Order. The Order noted Comcast's implication that the relevant geographic market (for purposes of analyzing the competitive effects of  S -the transfer) was regional. Nevertheless, the Bureau concluded that the Commissionlicensed areas in which BAMS and NYNEX Mobile provided cellular service were the relevant geographic markets in  S8-which to analyze the competitive effects of the transfer.:"8 [t {O- ky#C\  P6Q/P#эxOrder, 10 FCC Rcd at 13374,  18, 20 ("The fact that one or more of the providers operates many systems  Jor has a national brand name may help or hurt its sales, but does not increase the area in which nonroaming service  iis available to customers, the number of providers vying for any customer's business in any one place, or the way  yO>-customers consume service").  S-x22. Further, the Order did not state that evidence demonstrating a regional or national  S-geographic market would show that the transfer would cause anticompetitive effects.; [t {OX-#C\  P6Q/P#эxOrder, 10 FCC Rcd at 1337313375,  1721. Instead, the  S-Order declined to make any finding regarding regional or national geographic markets on the record before it and indicated that more substantive showings supporting the finding of a regional or  SL-geographic market may be presented in future cases.<L [t {Ot"-#C\  P6Q/P#эxOrder, 10 FCC Rcd at 1337413375,  20. Moreover, we find no merit to Comcast's claim that Cellco's plans to capture regional economies would raise anticompetitive concerns and have"$ <0*$$CCb"  S-antitrust consequences.n=[t yOh-#C\  P6Q/P#эxApplication at 6, n.9.n If sufficient evidence were presented, we do not foreclose a finding of anticompetitive conduct in a regional or national market. However, based on the record before us, Comcast has failed to support such a finding.  S- T׃  V. BELL ATLANTIC'S ALLEGEDLY ANTICOMPETITIVE ACTSאTP  S- x23. Contentions of the Parties. Comcast raises before us, as it did before the Bureau, allegations of four anticompetitive acts by both Bell Atlantic (BAMS's ultimate parent company) and BAMS. The four alleged acts in question consisted of: (1) Bell Atlantic denying Comcast access to a directory database as promptly as it offered access to BAMS; (2) Bell Atlantic foreclosing Comcast from advertising in Veteran's Stadium in Philadelphia; (3) Bell Atlantic inviting Comcast to participate in a personal numbering trial only on very short notice; and (4) BAMS forcing Comcast to turn off a  S -cellular service tower in the Spectrum Arena in Philadelphia.> X[t {O-#C\  P6Q/P#эxOrder, 10 FCC Rcd at 1337713378,  2629. Comcast alleges that the Bureau had sufficient evidence in the record to conclude that these acts demonstrate Bell Atlantic's ability to  S -leverage its monopoly power improperly to discriminate against nonaffiliated cellular operators.? [t yOZ-#C\  P6Q/P#эxApplication at 10.#K\  P@Q P#ё  S -Comcast maintains that this evidence amounted to a prima facie showing that grant of the transfer was  S -not in the public interest.@ z[t {O-#C\  P6Q/P#эxId. at 12.#K\  P@Q P#я  S2-x24. Based on these allegations, Comcast argues that the threat of Bell Atlantic leveraging its  S -local landline monopoly power into wireless markets is real.A  [t {O-#C\  P6Q/P#эxId. at 1314.#K\  P@Q P#ђ Comcast maintains that a complaint  S-filed under Section 208B[t yO - kj#C\  P6Q/P#эx47 U.S.C.  208 ("Any person, any body politic or municipal organization . . . complaining of anything done  or omitted to be done by any common carrier subject to this Act . . . may apply to said Commission by petition which  shall briefly state the facts, whereupon a statement of the complaint thus made shall be forwarded by the Commission  to such common carrier, who shall be called upon to satisfy the complaint or to answer the same in writing within a reasonable time . . . "). of the Communications Act is not the correct remedy for such alleged  S-abuses.CN [t {O-#C\  P6Q/P#эxApplication at 1011.#K\  P@Q P#Ѡ Comcast also objects to the Order's implication that any misconduct by BAMS should not be  S-considered because, if it did occur, it would occur regardless of the transfer.jD[t {O:"-#C\  P6Q/P#э xId. at 10.j x  SB-x25. In its Opposition, Cellco states that the Bureau correctly dismissed these charges, noting"B D0*$$CC" that (1) Comcast raised local exchange carrier issues and not cellular issues, and (2) Comcast did not  S-raise any questions as to Cellco's qualifications.kE[t yO@-#C\  P6Q/P#э xOpposition at 11.k Cellco also denies Comcast's characterization of the  S-facts of all four incidents.pFX[t yO-#C\  P6Q/P#эxReply Comments at 1820.p Cellco maintains that, if Comcast is seeking new rules to prevent such alleged "leveraging" by a landline telephone company, it should ask for a rulemaking. Furthermore, Cellco alleges that, if Comcast wants to charge Bell Atlantic with violating existing rules, it should file a complaint.  S-   x26. Discussion. We agree with the Bureau's analysis of Comcast's four allegations and with the Bureau's decision about them. The Bureau found that the conduct alleged does not implicate any specific Commission rule and therefore was to be evaluated under the range of relevant nonFCC  Sp-misconduct set out in Character Qualifications and Character Qualifications Modification.Gp[t {O -#C\  P6Q/P#эxOrder at 10 FCC Rcd at 13379,  33.#XP\  P6QXP#ѫ The acts alleged by Comcast are not adjudicated violations of any antitrust or other law protecting competition. Therefore, there is no legal basis upon which to include the alleged acts as weighing against a finding that Cellco is qualified to be a Commission licensee under Section 309. Consequently, the assignments and transfers of control of the BAMS and NYNEX Mobile cellular licenses to Cellco  S -meet the public interest test of Section 310(d) and its competitive component.H z[t {O-#C\  P6Q/P#э xId. at 1337980, 34. The small number of acts by Bell Atlantic and BAMS, even if they occurred as Comcast alleges, do not rise to the level of a showing that the transfer may harm competition as a whole or frustrate any Commission policy. We also agree with the Bureau that Comcast complains about conduct that may be the kind of vigorous  S -competition in which competitors may engage.I  [t {O-#C\  P6Q/P#эxId. at 13380 & n.56, 36 & n.56. In addition, as stated by the Bureau, our complaint  S-processes are available to remedy individual acts that violate the Act and our rules.6J[t {O - k#C\  P6Q/P#э xOrder, 10 FCC Rcd at 1338213383,  37. See Indianapolis Tel. Co. v. Indiana Bell Tel. Co., Inc., 1 FCC  yO-Rcd 228  10 (1986).#C\  P6Q/P#6 We believe the  S-proper fora for adjudicating claims of isolated misconduct are the Section 208 complaint process and  S-the antitrust courts, not a license transfer proceeding.yK [t {O,- k#C\  P6Q/P#э xSee Contel, Inc., 6 FCC Rcd 1003, 1005 (1991); Communications Satellite Corp. 65 RR2d 1354, 1356 (1988);  {O-General Electric Co., 3 FCC Rcd 2803 (CCB 1988); Craig O. McCaw, 9 FCC Rcd 5836 (1994).#XP\  P6QXP#y We will promptly and appropriately address any complaints of anticompetitive conduct within our prescribed complaint process.  S- x27. Most important, the Bureau properly concluded that Comcast has neither alleged nor shown that such acts (assuming again that they occurred and were anticompetitive) are either likely to" T K0*$$CCC" be repeated more often after the transfer than they were before, or that they are likely to be more severe in effect after the transfer than they were before. For the Bureau and the Commission to apply  S-this standard in license transfer proceedings is not "chilling."oL[t yO-#C\  P6Q/P#эxApplication at iii, 10.o On the contrary, the Order properly limits the scope of the competitive analysis in such proceedings to changes that will occur as a result  Sb-of the transfer in question.M\bX[t {OZ- kk#C\  P6Q/P#эxSee supra, n. 69. In particular, the Order is consistent with the antitrust laws relating to mergers, chiefly  {O$- ,Section 7 of the Clayton Act. Order at 13373, n. 9. The Bureau properly exercised its discretion not to invoke its Clayton Act authority in this proceeding.   S-x28. Finally, Comcast is mistaken in comparing the present case to our decision in McCaw,  S-where we imposed conditions to protect against anticompetitive abuses.uN|[t yO -#C\  P6Q/P#эxApplication at 1011 at n.19.u The conditions we imposed  S-there were to minimize the risks of anticompetitive effects that arose for the first time as a result of the  S-transfer.O [t {OJ-#C\  P6Q/P#эxSee, e.g., McCaw, 9 FCC Rcd at 5871, 56.ģ Here, on the contrary, Comcast is complaining about alleged conduct that predates the transfer. Even assuming that the conduct in question were anticompetitive, Comcast has neither claimed nor shown that, if it is repeated posttransfer, it will occur more often or be more severe in  S& -effect as a result of the transfer.P& [t {Od-#C\  P6Q/P#эxPacific Telesis Group, 12 FCC Rcd 2624, 2644 and 2650,  42, 57.   S - VI. CONCLUSION T  S^-TPx 29. We find that the Bureau properly evaluated and granted the applications of NYNEX Mobile Communications Company and Bell Atlantic Mobile Systems, Inc., to transfer control of eightytwo cellular radio licenses to Cellco. The central fact remains that, in each cellular market involved, there were and will remain fully independent and competing Aside and Bside carriers. The errors in the Order caused no substantive harm or confusion, and one was cured at consummation of the transfer. The Bureau properly found, in addition, that the transfer would result in procompetitive  Sn-efficiencies and economies that would not be achievable without the transfer.Qn0 [t {O>-#C\  P6Q/P#эxOrder, 10 FCC Rcd at 1338485, 46. Comcast does not challenge this finding. We find, as the Bureau did, that these effects will benefit competition, consumers, and the public interest. For the reasons discussed above, we deny Comcast's Application for Review.  S- " Q0*$$CC"Ԍ S-VII. ORDERING CLAUSE אTP x30. ACCORDINGLY, IT IS ORDERED pursuant to Sections 4(i) and 310(d) of the Communications Act, as amended, 47 U.S.C.  154(i) and 310(d) and Section 1.115 of the Commission's rules, 47 C.F.R.  1.115, that the Application for Review of the Wireless  S8-Telecommunications Bureau's May 19, 1995 Order filed by Comcast Cellular Communications, Inc. IS DENIED. x` `  hhFEDERAL COMMUNICATIONS COMMISSION x` `  hhWilliam F. Caton x` `  hhActing Secretary