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Petition for Waiver of h)  X[ -Sections 61.41(c)(2), 69.3(e)(6), and 69.3(g)(2)h)  XD -of the Commission's Ruleshh@h)  X-T  X-~ MEMORANDUM OPINION AND ORDER TP  X- f Adopted: September 15, 1998 Released: September 15, 1998 ă  X` hp x (#%'0*,.8135@8:#C\  P6Q/P#эx47 C.F.R. 36 app. (defining "study area"). See MTS and WATS Market Structure, Amendment of Part  {O- x,67 of the Commission's Rules and Establishment of a Joint Board, Recommended Decision and Order, 49 Fed. Reg.  {Os-   48325 (Dec. 12, 1984) ("1984 Joint Board Recommended Decision"); id., Decision and Order, 50 Fed. Reg. 939 (Jan.  {O=-  8, 1985) ("1985 Order Adopting Recommendation"); see also Amendment of Part 36 of the Commission's Rules and  {O-  -Establishment of a Joint Board, Notice of Proposed Rulemaking, 5 FCC Rcd 5974 (Oct. 10, 1990) ("Study Area  {O-Notice"). and an incumbent LEC must apply to the Commission for a waiver of the study area boundary if it wishes to sell or purchase an  X -exchange. x4. Universal service support currently is awarded to carriers based on the average cost  Xy-of providing service throughout the carrier's study area. The Commission's Universal Service  Xd-Order altered the method used to determine the distribution of universal service support for  XO-buyers of high cost exchanges.^O  {O-  ԍxSee FederalState Joint Board on Universal Service, CC Docket No. 9645, Report and Order, 12 FCC Rcd  {O- x8776, 9002, 905462, 913945 (1997) (Universal Service Order), as corrected by FederalState Joint Board on  {OZ -Universal Service, Errata, CC Docket No. 9645, FCC 97157 (rel. June 4, 1997). In the Universal Service Order, the Commission recognized that "[u]ntil support for all carriers is based on a forwardlooking economic cost methodology, . . . potential universal service support payments may influence unduly a carrier's decision to  X -purchase exchanges from other carriers."p  {O$-ԍxUniversal Service Order, 12 FCC Rcd 8942,  308.p To discourage carriers from transferring exchanges merely to increase universal service support, the Commission concluded that a "carrier making a binding commitment on or after May 7, 1997 to purchase a high cost exchange should"~,N(N(ZZ"  X-receive the same level of support . . . as the seller received prior to the sale.": {Oy-ԍxId.: For example, if a rural carrier acquires an exchange from another rural carrier, the acquired lines will  X-continue to receive the perline support that the selling company received prior to the sale.:Z {O-ԍxId.: Eventually, support for all carriers will be based on a forwardlooking economic cost methodology allowing carriers to receive support for all highcost exchanges, including exchanges acquired from other carriers, based on the forwardlooking economic cost  Xv-methodology .: v {O -ԍxId.: x5. Ameritech Wisconsin, an incumbent LEC that currently serves 2,135,407 access lines in Wisconsin, proposes to sell 19 exchanges that serve approximately 85,000 access  X -lines in northern and central Wisconsin.  ~ {OI-  ԍxPetition at 1. See also NECA Universal Service Fund 1997 Submission of 1996 Study Results filed October 1, 1997. Ameritech Wisconsin seeks a waiver of the rule freezing study area boundaries to allow it to remove these exchanges from its study area. Kendall, a whollyowned subsidiary of Pacific Telecom, Inc. ("PTI"), is an incumbent LEC  X -that currently serves 586 access lines in Wisconsin.   yO^-  \ԍxPTI is a whollyowned subsidiary of Century Telephone Enterprises, Inc., which owns a total of ten local telephone companies operating in Wisconsin. Petition at 3. Kendall seeks a waiver of the rule freezing study area boundaries to allow the addition of the 19 exchanges to its existing study  X -area. 0  yO-#C\  P6Q/P##C\  P6Q/P#эxPetition at 1. x6. The petitioners state that the transfer of the 19 exchanges from Ameritech Wisconsin to Kendall will promote the public interest because it will provide the customers in the affected exchanges with additional and improved services from a carrier that specializes  X4-in meeting the communications needs of rural and small urban communities.A 4  {O-ԍxId. at 10.A Kendall is planning additional infrastructure investment and service upgrades in the purchased exchanges, such as offering longdistance service and introducing voice mail and local  X-Internet dialup access.AR  {O#-ԍxId. at 11.A Finally, the petitioners assert that under the Commission's Universal  X-Service Order, Kendall is entitled to receive only the same amount of high cost assistance for  X-the 19 exchanges that Ameritech Wisconsin received before the transfer.v {OZ'-ԍxUniversal Service Order, 12 FCC Rcd 8942,  308.v Ameritech"v,N(N(ZZ" Wisconsin states that it receives no support from the high cost fund, and therefore, Kendall does not expect to receive any such support for the 19 exchanges after it acquires them.  X- x7. Waiver of a Commission rule is appropriate only if special circumstances warrant  X-deviation from the general rule and such a deviation will serve the public interest.> {O-  p#C\  P6Q/P#эx47 C.F.R.  1.3.  Northeast Cellular Tel. Co. v. FCC, 897 F.2d 1164, 1166 (D.C. Cir. 1990);  see also  {O-WAIT Radio v. FCC, 418 F.2d 1153, 1159 (D.C. Cir. 1969). > In evaluating petitions seeking a waiver of the rule freezing study area boundaries, the Commission employs a threeprong standard: first, the change in study area boundaries must  X_-not adversely affect the universal service fund; |_$ {O4 -  #C\  P6Q/P#эUSF PROCEDURE USF RULE xSee 1984 Joint Board Recommended Decision, supra note 4,  66. The Commission created the universal  {O - xservice fund to preserve and promote universal service. See Amendment of Part 67 of the Commission's Rules and  {O - xEstablishment of a Joint Board, Decision and Order, 96 FCC 2d 781 (1984). The universal service fund allows  xincumbent LECs with high local loop plant costs to allocate a portion of those costs to the interstate jurisdiction, thus  {OZ- xKenabling the states to establish lower local exchange rates in study areas receiving such assistance. See 47 C.F.R.  36.631. | second, no state commission having  XH-regulatory authority over the exchanges to be transferred may oppose the transfer; and third,  X1-the transfer must be in the public interest.^1 {O-  #C\  P6Q/P#эxSee US WEST Communications, Inc., and Eagle Telecommunications, Inc., Petition for Waiver of the  {OP- xDefinition of "Study Area" Contained in Part 36, AppendixGlossary of the Commission's Rules, Memorandum  {O-Opinion and Order, 10 FCC Rcd 1771,  5 (1995) ("US WESTEagle Study Area Order"). x8. The transfer of exchanges from Ameritech Wisconsin to Kendall meets each of the requirements of the threeprong test established by the Commission. First, the transfer will  X -not affect universal service support.  Under the Universal Service Order, Kendall is entitled to receive only the same amount of high cost support for the purchased exchanges that Ameritech Wisconsin received before the transfer, which in this case is no support. Second,  X-the Public Service Commission of Wisconsin does not object to the requested waivers.H  {O -  #C\  P6Q/P##X\  P6G;/P#эxSee Letter from, Lynda L. Door, Secretary to the Public Service Commission of Wisconsin, to A. Richard  yO-Metzger, Jr., FCC, dated May 11, 1998.H Third, grant of the requested study area waivers will promote the public interest. Kendall plans to upgrade facilities and improve customer service in the acquired exchanges. Thus, the petitioners have demonstrated that the customers in these exchanges will likely be well served  X6-by Kendall.6$ yO "-#C\  P6Q/P##C\  P6Q/P#эxPetition at 10. In summary, we find that the threeprong standard for granting study area waivers has been met in this instance and that the waiver requests should be granted.  X- ",N(N(ZZ"  X-B. Price Caps Waiver  X-  X-   x 9.  Section 61.41 of the Commission's rules provides that, when a cost company  yOK-  ]ԍxCost companies are those incumbent LECs that receive compensation for the use of their facilities in  xjoriginating and terminating telecommunications services on the basis of their actual costs. Although Kendall  xhcurrently is an average schedule company, it states that it intends to convert to a cost company simultaneously with the closing of the purchase of the 19 exchanges.  X-acquires a price cap company,X yO -  #C\  P6Q/P#эxPrice cap companies are those incumbent LECs that receive compensation for the use of their facilities  xJoriginating and terminating interstate telecommunications services on the basis of the Commission's price cap rules.  yO -47 C.F.R.  61.4161.49.#Xw PE37XP#ѹ the acquiring company, and any incumbent LEC with which  X-it is affiliated, shall become subject to price cap regulation within a year of the transaction. {O% -  \#C P/P#эx47 C.F.R.  61.41(c). See Policy and Rules Concerning Rates for Dominant Carriers, Second Report and  {O - xOrder, 5 FCC Rcd 6786, 6821 (1990), Erratum, 5 FCC Rcd 7664 (Com. Car. Bur. 1990) ("LEC Price Cap Order"),  {O- xmodified on recon., Order on Reconsideration, 6 FCC Rcd 2637 (1991) ("LEC Price Cap Reconsideration Order"),  {O- x-aff'd sub nom. National Rural Telecom Ass'n v. FCC, 988 F.2d 174 (D.C. Cir. 1993), petitions for further recon.  {OM- xdismissed, 6 FCC Rcd 7482 (1991), further modification on recon., Amendments of Part 69 of the Commission's   Rules Relating to the Creation of Access Charge Subelements for Open Network Architecture, Policy and Rules  {O-  Concerning Rates for Dominant Carriers, Report and Order and Order on Further Reconsideration and Supplemental  {O-  -Notice of Proposed Rulemaking, 6 FCC Rcd 4524 (1991) ("ONA Part 69 Order"), further recon., Memorandum  {Os-Opinion and Order on Second Further Reconsideration, 7 FCC Rcd 5235 (1992). The Commission stated that this "allornothing" rule applies not only to the acquisition of an  Xv-entire incumbent LEC but also to the acquisition of part of a study area.\v {O-  #C P/P#эxSee LEC Price Cap Reconsideration Order, supra note 23,  149 n. 207. The Commission explained that,  xif these two types of acquisitions were not treated the same under the allor nothing rule, a carrier could avoid the  {Oi-rule by selling all but one of its exchanges. Id. Ameritech  X_-Wisconsin is a price cap company; hence, absent a waiver, Kendall's acquisition of Ameritech  XH-Wisconsin exchanges would normally obligate Kendall to become subject to price cap regulation. xPCI10. The Commission nonetheless recognized that a narrow waiver of section 61.41(c)(2) might be justified if efficiencies created by the purchase and sale of a few exchanges outweigh the threat that the transfer is designed to, or does, thwart the  X -Commission's rules.|  {OC!-  .#C P/P#эxSee LEC Price Cap Reconsideration Order, supra note 23,  148. The Commission explained that the rules  xunder section 61.41(c)(2) are intended to address a concern regarding mergers and acquisitions involving price cap  xcompanies. Absent these rules, an incumbent LEC may attempt to "game the system" by switching back and forth  xbetween rateofreturn regulation and price cap regulation. For example, a price cap company may have incentive  xto increase earnings by opting out of price cap regulation, building up a large rate base under rateofreturn regulation  {O-%- xso as to raise rates and, then, after returning to price caps, cutting costs back to an efficient level. Id.  149, note 207.   Such a waiver would not be granted unconditionally, however. Rather, the Commission has held that waivers would be granted subject to the condition that the" ,N(N(ZZ "  X-selling price cap company make a downward adjustment to its price cap indices to reflect the  X-change in its study area.e& {Ob-  =#C P/P#эxSee Price Cap Performance Review for Local Exchange Carriers, First Report and Order, 10 FCC Rcd 8961,  {O,- x910405,  328, 910506  330 (1995) ("LEC Price Cap Review Order"). The Price Cap Indices, which are the upper  xbounds for rates that comply with price cap regulation, are calculated pursuant to a formula specified in the  {O-Commission's rules for price cap carriers. See 47 C.F.R.  61.45.e That adjustment is needed to remove the effects of the transferred exchanges from rates that have been based, in whole or in part, upon the inclusion of those  X-exchanges in the study areas subject to price cap regulation. {O" -#C P/P#эxSee LEC Price Cap Review Order, supra note 26,  330.      X- x11. Kendall seeks a waiver of section 61.41(c)(2) so that it may continue to operate as  Xv-a rateofreturn incumbent LEC, rather than a price cap incumbent LEC. A primary purpose of section 61.41(c)(2) is to prevent gaming by shifting back and forth between price cap regulation and rateofreturn regulation. There is not any evidence or allegation that either party is pursuing this exchange as a means to circumvent the Commission's rules. Moreover, requiring Ameritech Wisconsin to make an exogenous cost reduction eliminates inappropriate incentives to sell highcost areas, and so gives additional protection against gaming. We therefore find there is good cause to grant Kendall a waiver to permit it to remain under rateofreturn regulation after acquiring the exchanges that currently are under price cap regulation. This waiver is subject to the condition that Ameritech Wisconsin shall make a downward adjustment to its price cap indices to reflect the removal of the 19 exchanges from its  X-Wisconsin study area.1H yO-  ԍxAmeritech Wisconsin estimates that the downward adjustment in its price cap index will be approximately  {OQ-$1.2 million. See Letter from Julian P. Gehman, Mayer, Brown & Platt, to Adrian Wright, FCC, dated July 14, 1998.1  Xb- C. Waiver of Section 69.3(e)(6)   "x12. Kendall seeks a waiver of section 69.3(e)(6) of the Commission's rules. That rule  xrequires that any company electing to participate in a nonNECA tariff must notify NECA of  xksuch election no later than December 31 of the year preceding such action. Kendall seeks a  xwaiver in order to participate in a nonNECA traffic sensitive tariff upon consummation of the  xltransaction. Kendall proposes to withdraw from the NECA traffic sensitive pools and to  X- xparticipate in the Telephone Utilities Exchange Carriers Association~ {O!-#C P/P#эxSee supra note 1.~ traffic sensitive pools  X- xcoincident with its acquisition of the 19 exchanges.g4  yO#-#C P/P#эxPetition at 16.g The petitioners state that granting the  x\waiver will produce administrative efficiencies for Kendall and will not adversely impact the  X|- xNECA traffic sensitive pool.b|  {O&-#C P/P#эxId. b In addition, Kendall states that it has contacted NECA regarding"|V ,N(N(ZZ2"  xyits intention to withdraw from the NECA traffic sensitive pool coincident with its acquisition of  x.the 19 exchanges. Kendall states that NECA expressed no objection to Kendall's withdrawing  X- xfrom the NECA traffic sensitive tariff.  {OK-#C P/P#эxSee Letter from Perry Goldschein, NECA, to Adrian Wright, FCC, dated July 15, 1998. 0 NECA confirmed that it did not object to Kendall  X- xwithdrawing its 586 access lines from the NECA trafficsensitive pool.:!Z {O-ԍxId.: NECA further stated  xkthat the withdrawal would not have a significant impact on NECA's calculation of its traffic  X- xsensitive revenue requirement and should not prejudice NECA or any pool member.:" {O* -ԍxId.: We  x<conclude that there is good cause to grant Kendall a waiver of section 69.3(e)(6) because NECA's traffic sensitive pool will not be adversely affected.  X1- D. Waiver of Section 69.3(g)(2)   x13. Kendall also seeks a waiver of section 69.3(g)(2) of the Commission's rules. Under  xsection 69.3(g)(2), a NECA common line tariff participant that is a party to an acquisition may  xinclude telephone properties it acquires in the NECA common line tariff, provided that the net  x.addition of common lines to NECA tariff resulting from the transaction does not exceed 50,000  xaccess lines and provided further that if any of the common lines involved in the acquisition are  xreturned to the NECA common line tariff then all of them must be returned. Kendall proposes  x[to comply with the second requirement of the rule, but needs a waiver of the 50,000 access line  xjcap in order to do so. Kendall states that it wants to include all of its access lines in the NECA  XK- x[common line tariff.@#K~ yOz-ԍxPetition at 17.@ Kendall argues that the 50,000 access line cap was intended to be waived  xMin the case of mergers or acquisitions that would not have an adverse impact on the overall  X-common line pooling structure.$ yO-  ԍxAmendment of Part 69 of the Commission's Rules Relating to the Common Line Pool Status of Local  {O-Exchange Carriers Involved in Mergers or Acquisitions, Report and Order, 5 FCC Rcd 231 (1989).   x14. Kendall asserts that no entity will experience a significant increase in its universal  xyservice obligations if this waiver is granted, because the impact on the revenue requirement for  xthe NECA common line pool is expected to be insignificant. Kendall states that, based on  xcurrent NECA pooling data and projected demand and cost data, Kendall's acquisition of the 19  x=exchanges would produce an impact on the common line pool revenue requirement of no more  X|- xthan 0.07%.@%|h  yO$-ԍxPetition at 21.@ Kendall states that it has informed NECA of its intent to return all of its lines to  xthe common line pool, and NECA has indicated that it anticipates that any impact on the pool"e %,N(N(ZZ1"  X- xwould be insignificant.:& {Oy-ԍxId.: NECA confirmed that it does not object to Kendall adding all of the  X- xaccess lines it is acquiring from Ameritech Wisconsin to the NECA common line tariff.'Z {O-ԍxSee also Letter from Perry Goldschein, NECA, to Adrian Wright, FCC, dated July 16, 1998. 0 NECA  xfurther stated that such inclusion should not have a substantial adverse effect of the NECA  X- xcommon line pool on other LECs.:( {OX-ԍxId.: We conclude that there is good cause to grant Kendall a  X- xywaiver of section 69.3(g)(2) because NECA's common line pool will not be adversely affected,I)~ {O -ԍxId.` ` I  x0and there will be no significant increase in the longterm support or transitional support  Xv-obligations of the remaining nonpooling LECs.F*v yO7-ԍxPetition at 20.F  XH-  III. ORDERING CLAUSES ă x15. Accordingly, IT IS ORDERED, pursuant to sections 1, 4(i), 5(c), 201 and 202 of the Communications Act of 1934, as amended, 47 U.S.C.  151, 154(i), 155(c), 201 and 202, and sections 0.91, 0.291, and 1.3 of the Commission's rules, 47 C.F.R.  0.91, 0.291, and 1.3, that the petition of Kendall Telephone, Inc. and Wisconsin Bell, Inc. for waiver of Part 36, Appendix-Glossary, of the Commission's rules, 47 C.F.R. Part 36 AppendixGlossary IS GRANTED. x16. IT IS FURTHER ORDERED, pursuant to sections 1, 4(i), 5(c), 201 and 202 of the Communications Act of 1934, as amended, 47 U.S.C.  151, 154(i), 155(c), 201 and 202, and sections 0.91, 0.291, and 1.3 of the Commission's rules, 47 C.F.R.  0.91, 0.291, and 1.3, that the petition of Kendall Telephone, Inc. for waiver of sections 61.41(c)(2), 69.3(e)(6), and 69.3(g)(2) of the Commission's rules, 47 C.F.R.  61.41(c)(2), 69.3(e)(6), and 69.3(g)(2) ARE GRANTED. x17. IT IS FURTHER ORDERED, pursuant to sections 1, 4(i), 5(c), 201 and 202 of the Communications Act of 1934, as amended, 47 U.S.C.  151, 154(i), 155(c), 201 and 202, and sections 0.91, 0.291, 1.3, and 61.43 of the Commission's rules, 47 C.F.R.  0.91, 0.291, 1.3, and 61.43, that Ameritech Wisconsin SHALL ADJUST its price cap indices as discussed in paragraph 11 above, to reflect in its annual price cap filing, cost changes resulting from this transaction."e*,N(N(ZZ" x18. IT IS FURTHER ORDERED, pursuant to sections 1, 4(i), 5(c), 201 and 202 of the Communications Act of 1934, as amended, 47 U.S.C.  151, 154(i), 155(c), 201 and 202, and sections 0.91, 0.291, and 1.3 of the Commission's rules, 47.C.F.R.  0.91, 0.291, and 1.3, that this Order IS EFFECTIVE IMMEDIATELY UPON RELEASE.  x` `  hhFEDERAL COMMUNICATIONS COMMISSION  X - x` `  hhLisa S. Gelb x` `  hhChief, Accounting Policy Division x` `  hhCommon Carrier Bureau@@  @xx#Xj PXP#у