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(1) (a) (i) 1) a)E:*#8_>/ENEq "5^88Goo&CCNu8C88oooooooooo88uuuo˅z8dozz888^oCoodoo8oo--d-ooooCd8oddddC4Cu8CCCCPCnzoooooȲdoooo88888888ooooooooodoozodoooooddooooooooPzCzCC8zdoȽdNF8koCzoooooJIoCoC--CCoCCoo-CCCNCnnuPsuoos88Goo&CCNu8C88oooooooooo88uuuo˅z8dozz888^oCoodoo8oo--d-ooooCd8oddddC4Cu-oCooCȅC--CCFoCdC8Coooo4oCJouCnPnCCCsk8CCIozȐ8888uzoooooodoooo8888ooooooonzoooodo"5^!!+CCkP((/F!(!!CCCCCCCCCC!!FFFCzPPWWPI]W!^CBXdX^% xEsQXX 0(X3h0*f9 xQhXlX 1(XRh19 xyQh.y.G8*X<G4  pQ7PC2XXP\  P6QXP2S, yO- X (D X-{  #XP PXP#Federal Communications Commission`(#DA 98166 ă  yxdddy (    v3 Before the Federal Communications Commission  yO Washington, D.C. 20554 ă  XX-#XP PXP#  XA-In the Matter of hh@hpp) x` `  hh@hpp)  X-Sandwich Isles Communications, Inc.@hpp)AAD 9782 x` `  hh@hpp)  X-Petition For Waiver of Section 36.611 of the hpp)  X-Commission's Rules and Request for Clarificationhpp) x` `  hh@hpp  xx 0(#(#X  X -; #XP\  P6QXP#ORDER #XP\  P6QXP#у  X[ -} Adopted: February 3, 1998 Released: February 3, 1998  XD - By the Chief, Accounting and Audits Division:  X-K I. INTRODUCTION ă  I. A. 1. a.(1)(a) i) a) I. 1. 1. a.(1)(a) i) a)  X-  x1. On July 8, 1997, Sandwich Isles Communications, Inc. ("Sandwich Isles") filed a  xpetition requesting a waiver of Section 36.611 of the Commission's rules to enable it to receive  X- xhigh cost loop support immediately.o  yO-  ЍxSandwich Isles Communications, Inc., Petition for Waiver, AAD 9782 (July 8, 1997). On July 14, 1997,  xithe Accounting and Audits Division ("Division") released a public notice soliciting comments on the petition for  {O- xwaiver. Public Notice, 12 FCC Rcd 6876 (Com. Car. Bur. 1997). Comments were filed by the National Exchange  xiCarrier Association ("NECA"). Reply comments were filed by the National Telephone Cooperative Association  xi("NTCA") and Sandwich Isles. On September 15, 1997, GTE Hawaiian Telephone Company, Inc. ("GTE") filed  xa Petition to Accept LateFiled Comments and an Opposition to Sandwich Isles' Petition for Waiver and Request for  xClarification and Affidavit in Support of Opposition. On September 24, 1997, Sandwich Isles filed a Notification  x<of Intent to File Reply and on October 2, 1997, Sandwich Isles filed a Reply to GTE's LateFiled Comments and Opposition. o Sandwich Isles also seeks clarification or, to the extent  xnecessary, waiver of the definition of "incumbent local exchange carrier" ("incumbent LEC") for  x<the purpose of application of Part 69 rules and for calculation of high cost loop support to ensure  xthat its activities in providing initial service to unserved areas is accorded appropriate regulatory treatment. In this Order, we grant in part and deny in part the petition, as explained below.  X-x` ` g II. BACKGROUND ă x  X-  x2. In 1984, the Commission established high cost support mechanisms to promote the  X- xnationwide availability of telephone service at reasonable rates. {O&-ԍxSee generally, Amendment of Part 67 of the Commission's Rules and Establishment of a Joint Board, CC Docket No. 80286, 96 FCC 2d 781 (1984). Specifically, high cost loop  xsupport allows incumbent LECs with high local loop costs to allocate an additional portion of  xthose costs to the interstate jurisdiction, enabling the state jurisdictions to establish lower local" ,))ZZ"  X- xexchange rates in study areas receiving such assistance.C {Oy-ԍxId. C Under these rules, a carrier's high cost  xloop support is based on the relationship of its historical loop cost to the national average  X-historical loop cost.QZ {O-ԍxSee 47 C.F.R.  36.611.Q  X-  Nx3. In the Universal Service Order released on May 8, 1997, the Commission established  x[new federal universal service support mechanisms consistent with the Communications Act of  Xx- x1934, as amended.x {O -ԍxSee FederalState Joint Board on Universal Service, Report and Order, 12 FCC Rcd 8776 at  308 (May  {O -8, 1997) ("Universal Service Order"). Under the new federal universal service support mechanisms, support for  x<high cost areas will be based upon forwardlooking economic cost mechanisms. Thus, a carrier's  xsupport will be based on the forwardlooking economic cost of providing the supported services  xMto a service area. Nonrural incumbent LECs will receive support based on forwardlooking  x=economic costs beginning January 1, 1999; rural incumbent LECs will begin to receive support  X - x[based on forwardlooking economic costs no earlier than January 1, 2001.; H {O-ԍxId. ; Until an incumbent  xLEC's high cost loop support is based on forwardlooking economic costs, its support will continue to be based on historical cost data.  X -  x4. In accordance with Sections 36.611 and 36.612 of the Commission's rules, on July 31  X- xNof each year, incumbent LECs submit to NECA loop cost data for the prior year.` {O-ԍxSee 47 C.F.R.  36.611 and 36.612.` NECA  xcompiles and analyzes this data to determine the average cost per loop for each incumbent LEC  xyas well as the nationwide average cost per loop. Each incumbent LEC's high cost loop support  xyamount for the following year is based upon the relationship between its average cost per loop  xand the nationwide average cost per loop. Because the loop cost data is not submitted by carriers  xuntil seven months after the end of a calendar year and because NECA requires time to compile  xand analyze the data, support is not provided generally to carriers until two years after costs are  X-incurred.*Xl  yO -ԍxFor example, on June 30, 1996, incumbent LECs submitted 1995 loop cost data which was used to determine their 1997 high cost loop support. Thus, there is a twoyear lag between when costs are incurred (1995) and receipt of high cost support (1997).* This lag can be less than two years if quarterly updates are filed.R   {O.#-ԍxSee 47 C.F.R.  36.612. R " ,N(N(ZZ"  X-x` ` hh  III. PETITION AND COMMENTS ă  X-  X<   x5.  Petition.  Sandwich Isles is a new telephone company seeking to provide telephone  X< xexchange service to rural customers in a previously unserved area.?  yO5-ԍxPetition at 2.?  Sandwich Isles states that  x\it will provide service to approximately 4,700 customers over the next five years. On May 9,  x1995, Sandwich Isles received a license from the Department of Hawaiian Home Lands  Xx- x("DHHL")G xX yO -ԍxThe DHHL is a State agency created by a Federal statue in 1921 and was made part of Hawaii's State Constitution when Hawaii was granted Statehood in 1959. The Hawaii Homes Commission Act set aside approximately 200,000 acres of the ceded public lands for homesteading by native Hawaiians and granted the DHHL jurisdiction over these lands. The DHHL has exclusive statutory control of and responsibility for the  yO -management of lands in the State of Hawaii designated as Hawaiian Home Lands. Petition at 4. G for the construction and operation of a telecommunications network on Hawaiian  xHome Lands ("HHL") throughout Hawaii. On November 14, 1997, the Hawaii Public Utilities  xCommission ("Hawaii Commission") authorized Sandwich Isles to provide interLATA and  X3- xintrastate telecommunications services within and between the HHL throughout Hawaii. 3 {O-ԍxSee Hawaii Public Utilities Commission, Order No. 16078, Docket No. 960026, dated November 14, 1997.  xSandwich Isles states that over the next 10 to 15 years it will initiate service to unserved portions  X - xof HHL on the Islands of Oahu, Hawaii, Maui, Kahoolawe, Lanai, Molokai, and Kauai.?  b  yO-ԍxPetition at 5.?  x.Sandwich Isles states that it initiated local exchange service on December 2, 1997, through the  X -services of a wireless carrier.  yOz-ԍxLetter from Sylvia Lesse, Kraskin & Lesse, to Magalie Roman Salas, Secretary, FCC, dated January 6,  yOB-1998.  X -  !x6. Sandwich Isles  seeks a waiver of Section 36.611 to permit it to receive high cost loop  xsupport based on current costs, and to direct NECA to begin making high cost loop support  X{- xpayments to Sandwich Isles immediately.A{J  yOv-ԍxPetition at 23.A Sandwich Isles proposes to submit to NECA a rolling  xannualized average of current costs, which would be subject to trueup adjustments quarterly  XM- xjbased on actual costs.AM {O!-ԍxId. at 11.A Sandwich Isles states that this methodology previously has been met  X6- xwith Commission approval.*6l {OS$-ԍxId. See Border to Border Communications, Inc., Petition for Waiver of Sections 36.611 and 36.612 of  {O%-the Commission's Rules, Memorandum Opinion and Order, 10 FCC Rcd 5055 (1995) ("Border to Border").* Sandwich Isles states that, although initial high cost loop support  x<payments would be based on projections, the projections would be updated quarterly with actual  xjcost data. Thus, reliance on projected cost data would be diminished, and ultimately high cost",N(N(ZZd"  X- x=loop support payments for the initial year of operation would be based solely on actual cost.F yOy-ԍxPetition at 11.F  X-  x7. Sandwich Isles argues that application of the Commission's rules in this instance would  xbe contrary to the public interest because it would deny high cost loop support to a new company  X- x.proposing to provide initial service to a rural area.@X {O-ԍxId. at 8.@ Sandwich Isles states that failure to grant  X- xLa waiver would result in substantial increases in local rates.@ {O( -ԍxId. at 9.@ Sandwich Isles also asserts that  x-increased local rates would discourage subscription to local telephone service and jeopardize the  xyfuture availability of service, a result antithetic to the goals of universal service policies. Thus,  xSandwich Isles contends that the primary principle underlying Section 36.611the promotion of  xnationwide availability of telephone service at reasonable rates by assisting incumbent LECs  X -operating in high cost areaswould be frustrated without the grant of the requested waiver.@ | {OG-ԍxId. at 8.@  X -  x8. To enable the provision of service, Sandwich Isles also seeks clarification or, to the  xextent necessary, waiver of the definition of "incumbent LEC" to ensure that the treatment of  xSandwich Isles is consistent with that of other similarly situated carriers. In addition, Sandwich  x0Isles states the Commission should clarify and confirm that Sandwich Isles is eligible to  X-participate in NECA under Part 69 rules.A {OO-ԍxId. at 12.A  Xb<  0x9.  Comments. NECA and NTCA support Sandwich Isles' Petition. NECA states that  xthe methodology proposed by Sandwich Isles is administratively feasible and can be incorporated  X5- xin NECA's current high cost loop support reporting mechanisms.D5 yO-ԍxNECA comments at 3.D NTCA states that grant of this  xwaiver is clearly in the public interest and consistent with the underlying goal of universal  X-service.D0  yO-ԍxNTCA comments at 2.D  X-x` `  IV. DISCUSSION ă x  X-  "  x 10. Waiver of Commission rules is appropriate only if special circumstances warrant  X- xmdeviation from the general rule and such a deviation will serve the public interest.  {O&-ԍxNortheast Cellular Tel. Co. v. FCC, 897 F.2d 1164, 1166 (D.C. Cir. 1990);  see also WAIT Radio v.  {O&-FCC, 418 F.2d 1153, 1159 (D.C. Cir. 1969); 47 C.F.R.  1.3.#x@ bX@# Further, the",N(N(ZZ"  xwaiver generally must be consistent with the principles underlying the rule for which a waiver  X- xNis requested. {Ob-ԍxCity of Angels Broadcasting Inc. v. FCC, 745 F.2d 656, 66263 (D.C. Cir. 1984).Č In previous proceedings, the Division granted waivers of Section 36.611  xpermitting Border to Border Communications, Inc. ("Border to Border") and South Park  x\Telephone Company ("South Park") to receive high cost loop support without delay, using  xprojected costs rather than the required historical costs. We permitted immediate access to high  xcost support because the carriers were offering to serve previously unserved areas which would  Xv- xhave likely remained without service if these carriers were unable to provide service.0vZ {O -ԍxSee Border to Border, supra note 17. See also South Park Telephone Company, Petition for Waiver of  {OK -Sections 36.611 and 36.612 of the Commission's Rules, Order, DA 972730 (December 31, 1997). 0 In these  xjproceedings, we found compelling reasons to permit immediate high cost loop support for new  xMcarriers providing service to unserved areas. In these proceedings, we also concluded that  xdenying immediate high cost loop support could have the unintended effect of discouraging  xservice in unserved, remote areas, thereby frustrating the Commission's goal of promoting universal service at reasonable rates.  X -  x 11. Sandwich Isles' circumstances are sufficiently similar to warrant the same treatment  xas Border to Border and South Park. Because Sandwich Isles will provide service to previously  xunserved areas, we find that the special circumstances warranting the grant of a waiver of the  xZCommission's rules are present and that it is in the public interest to grant Sandwich Isles' request  xfor a waiver of Section 36.611 of the Commission's rules. Therefore, we grant Sandwich Isles  xa waiver of Section 36.611 of the Commission's rules to the extent necessary to permit it to  xreceive high cost loop support for the period January 1, 1998 through December 31, 1999 based  xinitially on projected costs followed by quarterly trueups using actual costs. Payments beginning  xin the year 2000 will be based on the historic data on which high cost loop support traditionally  X- xis calculated and in accordance with the rules adopted in the Universal Service Order. Support  xpayments, however, are contingent on Sandwich Isles satisfying the eligibility requirements  X- xspecified in Section 214(e) of the Act.Z {OA-ԍxSee 47 U.S.C.  214(e).Z Finally, because this Order provides the final regulatory  X-approval necessary for Sandwich Isles to initiate service, we make it effective upon release.  X-  x 12. Sandwich Isles initiated service on December 2, 1997. Sandwich Isles proposes to  x receive support for the period December 2, 1997 to December 31, 1997 based on annualized  xZprojected costs. High cost loop support payments are traditionally calculated based on 12month  x[calendar year historic operating results. Calculating initial high cost loop support based on an  xannualization of operating data from December 2, 1997 to December 31, 1997 does not provide  x/an adequate basis upon which to compute high cost loop support because of the potential  xvolatility of annualizing based on 30 days of operations and because of the potentially higher  xoperating costs in the initial 30day period due to higher costs associated with initiating service.  xWe, thus, deny Sandwich Isles' request for a waiver to allow it to receive high cost loop support  X -for the period December 2, 1997 to December 31, 1997. " H,N(N(ZZ"Ԍ  {ԙx 13. We also find it reasonable that Sandwich Isles participate in NECA pools and tariffs.  x=Participation in NECA will allow Sandwich Isles to avoid the costs of filing and maintaining its  xown companyspecific interstate tariffs. The cost of preparing companyspecific tariffs could be  xexcessive for a company with relatively few customers. In addition, because Sandwich Isles  xplans to make large capital investments to initiate service, its companyspecific rates would likely  X- xbe extremely high.? yO-ԍxPetition at 7.? Therefore, it is in the public interest to permit Sandwich Isles and its  xpotential customers to benefit from both the cost savings and lower rates available through NECA  x<participation. Having reached this conclusion, we now address the specific waivers necessary to allow it to participate in the NECA tariffs and pools.  X -  x 14. T o be a member of NECA and to participate in its tariffs, it must be a "telephone  X - xcompany," as defined in Part 69 of the Commission's rules.Q X {O -ԍxSee 47 C.F.R.  69.601.Q Part 69 defines a "telephone  X - xcompany" as an incumbent LEC as defined in Section 251(h) of the Act.I  yO-ԍx47 C.F.R.  69.2(hh).I Furthermore, Section  xy36.611 of the Commission's rules, which governs the submission of data to NECA for purposes  X - xof calculating high cost loop support, only applies to incumbent LECs.Q z {O-ԍxSee 47 C.F.R.  36.611.Q Section 251(h)(1) of  xthe Communications Act states that an "incumbent LEC" is a provider of telephone exchange  X- xservice and a member of NECA on the date of enactment of the 1996 Act.U!  {OM-ԍxSee 47 U.S.C.  251(h)(1). U The section also  x[provides that a successor or assign of an incumbent LEC is also an incumbent LEC. Sandwich  xzIsles is a new carrier initiating service to an unserved area. It is not a member of NECA, and  xit is neither a successor nor assign of an incumbent LEC. Sandwich Isles, therefore, does not meet the statutory definition of incumbent LEC. x  X-  ^x15. When the Commission revised Sections 36.611 and 69.2 to require that telephone  xcompanies be incumbent LECs to participate in NECA tariffs and pools and to file data pursuant  X- xzto Section 36.611, the Commission did not specifically provide for companies that come into  xexistence after the enactment of the 1996 Act and that serve previously unserved areas. The  xpurpose of the incumbent LEC restriction in Section 36.611 is to distinguish competitive LECs  xfrom incumbent LECs for purposes of calculating universal service support, not to impose  xinterconnection requirements. Sandwich Isles will be the sole provider of service to the area;  Xe- xzthus, it is not a competitive LEC. As a rural telephone company,""e {O$-ԍxSee 47 U.S.C.  153(37). Under this section "the term 'rural telephone company' means a local exchange carrier operating entity to the extent that such entity... provides telephone exchange service, including exchange access, to fewer than 50,000 access lines...." Sandwich Isles will satisfy this criterion and, therefore, it is a rural telephone company. Sandwich Isles is exempt"e ",N(N(ZZ"  X- xyfrom the interconnection requirements in Section 251(c) until the company receives a bona fide  xrequest for interconnection, services, or network elements, and the Hawaii Commission  x<determines that such request is not unduly economically burdensome, is technically feasible, and  X- xyis consistent with Section 254 of the Act.N# {O6-ԍxSee 47 U.S.C.  251.N Accordingly, we find that the purposes underlying  xthe incumbent LEC requirements in Parts 36 and 69 of the Commission's rules are not applicable  xto Sandwich Isles' request to receive high cost loop support and to participate in NECA. We  xMtherefore waive the incumbent LEC requirements of Part 36 and Part 69 of the Commission's  xrules for Sandwich Isles. This waiver permits Sandwich Isles to become a member of NECA and  x=to participate in NECA pools and tariffs, but does not affect Sandwich Isles' obligations under  xzSection 251. Furthermore, for regulatory purposes we will recognize Sandwich Isles' service  X -territory in Hawaii as a study area.$\ Z {O' -ԍxSee Request for Clarification filed by the National Exchange Carrier Association, Inc., Memorandum  {O -Opinion and Order, 11 FCC Rcd 8646 at  9 (1996) (establishing that a study area waiver is not required where a separately incorporated company is establishing a study area for previously unserved territory).  X -  | x 16. We also address in this Order a petition submitted by GTE 32 days after the filing  xdeadline. In its Petition to Accept LateFiled Comments, GTE asserts that its late filing is  xattributable to disruption resulting from the promotion of critical senior GTE personnel at a time  xwhen, in addition to this proceeding, GTE was involved in other substantial litigation and  xregulatory proceedings before the Commission, the Hawaii Commission, and the Hawaii Supreme  xCourt. GTE states that the Commission has found good cause for acceptance and consideration  xof latefiled comments where the party filing the late comments "was involved in substantial  XM- xlitigation" (citing In re Complaint of Syracuse Peace Council, 2 FCC Rcd 5043, 5060 n. 53  x(1987). In the Syracuse Peace Council case, the Commission did accept the American Civil  xLiberties Union's ("ACLU") Motion for Leave to File Comments OutofTime because it was  xinvolved in other substantial litigation. ACLU, however, filed its comments only seven days  X- xlate. Generally, it is not Commission policy to accept latefiled comments.%(~ {O"-ԍxSee AT&T Communications, Revisions to Tariff FCC No. 12, 6 FCC Rcd 5261, Commission denied  {O-comments that were filed 32 days late; AT&T Communications, Revisions to Tariff FCC No. 12, 6 FCC Rcd  {O-5272, Commission denied comments that were filed 49 days late; AT&T Communications, Revisions to Tariff  {O-FCC No. 12, 6 FCC Rcd 6654, Commission denied comments that were filed 14 days late. Therefore, the  xPetition to Accept LateFiled Comments filed by GTE Hawaiian Telephone Company, Inc. on September 15, 1997, is denied.  X-  X-x` ` 6 V. ORDERING CLAUSES ă  Xi-  |x17. Accordingly, IT IS ORDERED, pursuant to Sections 1, 4(i), 5(c), 201, 202, 218220,  xand 254 of the Communications Act of 1934, as amended, 47 U.S.C.  151, 154(i), 155(c), 201,  x202, 218220, 254, and Sections 0.91, 0.291, and 1.3 of the Commission's rules, 47 C.F.R.   x0.91, 0.291, and 1.3, that the Petition of Sandwich Isles Communications, Inc. for waiver of"$n %,N(N(ZZz"  xSection 36.611 and 69.601 of the Commission's rules, 47 C.F.R.  36.611, 69.601, IS GRANTED to the extent discussed in this Order and otherwise IS DENIED.  X-  x18. IT IS FURTHER ORDERED, pursuant to Sections 1, 4(i), 5(c), 201, 202, 218220,  xand 254 of the Communications Act of 1934, as amended, 47 U.S.C.  151, 154(i), 155(c), 201,  x>202, 218220, 254, and Sections 0.91, 0.291 and 1.727 of the Commission's rules, 47 C.F.R.   x0.91, 0.291 and 1.727 of the Commission's rules, 47 C.F.R.  0.91, 0.291 and 1.727 that the  xj"Petition to Accept LateFiled Comments" filed by GTE Hawaiian Telephone Company, Inc. on September 15, 1997, IS DENIED. x` `  hhFEDERAL COMMUNICATIONS COMMISSION x` ` hh@ x` `   x` `  hhKenneth P. Moran x` `  hhChief, Accounting and Audits Division x` `  hh