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INTRODUCTION  SH'1.` ` On September 10, 1996, Dumont Telephone Company (Dumont) and its subsidiary Universal Communications, Inc. (Universal) (jointly, Petitioners) filed a petition for waiver of section  S'69.605(c) of the Commission's rules.JŨ yO`'ԍ47 C.F.R.  69.605(c).J That rule defines an average schedule company as a telephone company that was participating in average schedule settlements on December 1, 1982. The waiver would allow Petitioners to have average schedule status. On February 14, 1997, the Accounting and  S'Audits Division (Division),qXŨ yOx'ԍThe Division is now known as the Accounting Safeguards Division.q Common Carrier Bureau issued an order denying the petition for waiver  SX'and requiring the consolidated Dumont/Universal study area to use cost settlements.XŨ {O'ԍSee Petitions for Waivers filed by Alpine Communications, L.C.; ButlerBremer Mutual Telephone Company; Clarksville Telephone Company; Dumont Telephone Company; Grand River Mutual Telephone Corporation; Heartland Telecommunications Company of Iowa; Hickory Tech Corporation; South Central Communications, Inc.; Universal Communications, Inc.; and US West Communications, Inc., AAD 9694,  {O!'Memorandum Opinion and Order, 12 FCC Rcd 2367 (1997) (MO&O). Petitioners filed  S0'a Request for Extraordinary Relief (Request)0Ũ yOl#'ԍPetitioners did not file a petition for reconsideration under section 1.106 of the Commission's rules. seeking relief from the requirement that they convert to"0, 0*''II"  S'cost basis on July 1, 1998.}1 {Oh'ԍThe MO&O granted a limited waiver of section 69.605(c) to allow Petitioners to use average schedule settlements until July 1, 1998. Subsequently, the Division granted a request for stay pending the resolution of  {O'this Request for Extraordinary Relief. See Dumont Telephone Company and Universal Communications, Inc.,  {O'Petition for Waiver of Section 69.605(c) of the Commission's Rules, ASD File No. 9870, Order (rel. June 29, 1998). In this Order we grant the Petitioners' request and permit the waiver of section 69.605(c) of our rules. NII. BACKGROUND  S8'2.` ` Incumbent local exchange carriers (ILECs) that participate in National Exchange Carrier Association (NECA) pools collect interexchange access charges at the rates contained in the tariffs filed by NECA. Each pool participant receives revenues from the pools to recover the cost of  S'providing service plus a pro rata share of the pool's earnings.O~}1 yO 'ԍ47 C.F.R.  69.601612.O NECA pool participants' costs are determined either on the basis of cost studies or average schedule formulas. Average schedule status  Sp'has certain advantages for small ILECs; e.g., average schedule companies are able to avoid certain administrative burdens of performing interstate cost studies.  S '3.` ` Section 69.605(c) provides, in pertinent part, that "a telephone company that was participating in average schedule settlements on December 1, 1982, shall be deemed to be an average  S 'schedule company."J }1 yOX'ԍ47 C.F.R.  69.605(c).J This definition of average schedule company "grandfathered" existing average schedule ILECs but did not allow the creation of new average schedule companies or the conversion of costbased carriers to average schedule status. The Commission has concluded that an unrestricted opportunity for cost companies to convert to average schedule status is likely to operate to the detriment of interstate ratepayers because the conversion may result in inflated interstate revenue  S'requirements.}1 {O 'ԍSee NECA's Proposed Waiver of Section 69.605(c) of the Commission's Rules, CC Docket No. 7872,  {O'Memorandum Opinion and Order, 2 FCC Rcd 3960 (1987). Thus, ILECs may convert from an average schedule company to a cost company, but  S'not from a cost company to an average schedule company without first obtaining a waiver. \ }1 yOT'ԍIn 1987, the Commission granted a request by NECA to allow cost companies serving fewer than 5,000  {O'lines to make a onetime election of average schedule status. See NECA's Proposed Waiver of Section 69.605(c)  {O'of the Commission's Rules, CC Docket No. 7872, Memorandum Opinion and Order, 2 FCC Rcd 3960 (1987).  The definition was designed to limit the use of average schedule formulas to companies that operated as average schedule companies prior to adoption of the rule or that are able to demonstrate compelling circumstances sufficient to warrant a special exception.  S'4.` ` In the MO&O, the Division found that when Universal combines with its affiliate's study area, the majority of the Dumont/Universal consolidated study area would consist of costbased" 0*&&II1"  S'access lines.Y }1 {Oh'ԍMO&O, 12 FCC Rcd at 2375,  18.Y The Division noted that waiver of the Commission rules is appropriate only if special circumstances warrant deviation from the general rule and such deviation will serve the public interest. The Division concluded that Universal had not demonstrated a need for a waiver to have average  S'schedule status.: Z}1 {O'ԍId.: O8III. COST SETTLEMENT WAIVER  S'5.` ` Petitioners argue that the Division applied the policy that if an average schedule company has a new affiliate, and the number of lines acquired by the new affiliate is greater than the 8number of lines served by the existing average schedule company, both the new affiliate and the average schedule company must settle on a cost basis, which is procedurally and substantively flawed, applied inconsistently, and violates the rulemaking requirements of the Administrative Procedures Act  S '(APA).B }1 yO'ԍRequest at 1528.B We disagree. We do not find that the Division applied such a policy in ruling on the waiver request. The definition of average schedule under section 69.605(c) of the Commission's rules requires that the new Dumont/Universal combined study area operate on a cost settlement basis. Petitioners sought a waiver of section 69.605(c) to allow average schedule status instead of cost settlement basis. Waiver of the Commission's rules is appropriate only if special circumstances warrant deviation from  SX'the general rule and such deviation will serve the public interest. X|}1 {Ot'ԍWAIT Radio v. FCC, 418 F.2d 1153, 1159 (D.C. Cir. 1969), cert. denied 409 U.S. 1027 (1972); 47 C.F.R.  1.3. In determining whether the waiver request should be granted the Division was free to consider all factual, legal, and policy issues relevant to the waiver request. It was logical for the Division to consider the number of lines that would be changed to costbased settlement in the context of a policy preference that ILECs settle on a cost basis whenever possible. This was not the development of a new policy, as Petitioners contend, but rather  S'the longstanding policy underlying section 69.605(c). We find no language in the MO&O that the Division established a "rule" that requests for waiver of section 69.605(c) must be granted or denied based on whether a majority of the lines in the new study area were previously part of an average schedule or a costbased study area. The Division considered this an issue in reaching the conclusion that Petitioners failed to demonstrate special circumstances warranting deviation from the general rule,  S'but absent clear language stating the intent to establish a rule or convincing evidence of a de facto rule, we reject Petitioners' argument that the Division established a policy or rule that violates the rulemaking requirements in violation of the APA. Since we do not find that such policy or rule exists, we also reject the Petitioners' arguments that such policy or rule was procedurally and substantively flawed and applied inconsistently.  S'6.` ` Petitioners also contend that the Division's denial of the waiver request is a  S'reinstatement of the "average schedule allornothing rule" at issue in NARUC v. FCC, 737 F.2d 1095" 0*&&II"  S'(D.C.Cir.1984) and ALLTEL v. FCC, 838 F.2d 551 (D.C.Cir.1988).I}1 yOh'ԍRequest at 1822, 2830.I In these two cases the court criticized the Commission for assuming that affiliates of companies operating on a cost basis also  S'possessed the resources to perform cost studies. In the MO&O, the Division did not purport to establish requirements for all Dumont/Universal affiliates, but focussed solely on the Iowa study area in determining that Universal had not demonstrated a need for the waiver. Therefore, we reject  S<'Petitioners' argument that the Division's decision was inconsistent with NARUC and ALLTEL.  S'7.` ` In addition, Petitioners' argue that the Division failed to consider that Dumont serves  S'659 access lines and Universal serves 885 access lines, a total of only 1,544 access lines.AX}1 yO 'ԍRequest at 510.A Petitioners  S'also argue that neither Dumont nor Universal had been on a cost basis,}1 yO& 'ԍDumont was an average schedule company; Universal purchased its exchange from US West, a price caps company. Request at 9. and that cost studies would cost approximately $50,000 to $70,000 per year in recurring costs and approximately $13,000 in  SN 'nonrecurring costs for the initial conversion to cost settlements.@N @}1 yO.'ԍRequest at 67.@ According to Petitioners, these expenses would be a wholly unwarranted penalty imposed on rural LECs and contrary to the mandate imposed by the Telecommunications Act of 1996 (1996 Act) to provide a national policy framework  S 'for accelerating advanced telecommunications technologies and services to all Americans.B }1 yOF'ԍRequest at 1114.B We note initially that the primary basis for granting a waiver must be a demonstration of special circumstances. Waivers are not meant to serve primarily as a means of promoting a policy goal and the failure to grant a waiver is not contrary to the mandate of the 1996 Act. Moreover, no party is entitled to a rule waiver; thus, denial of a waiver cannot be a penalty. Nonetheless, we are persuaded that a deviation from the general rule is warranted due to the small size of the combined companies and the high estimated cost to complete cost studies. The Commission has explained that the definition of "average schedule" in section 69.605 was premised on a policy determination that exchange carriers with the financial resources and expertise to conduct cost studies without undue hardship should be required to  Sn'measure the actual costs they incur in providing interstate service.n` }1 yOn'ԍMTS and WATS Market Structure: Average Schedule Companies, CC Docket No. 7872, Phase 1,  {O6'Memorandum Opinion and Order, 2 FCC Rcd 6642 (1987). In addition, the definition in section 69.605(c) also serves to prevent an increase in the number of lines subject to average schedule treatment. Our action in this case is based on the policy preference that ILECs settle on a cost basis whenever possible without undue hardship. " 0*&&II>"Ԍ S'8.` ` Under section 1.3 of the Commission's rules, we are required to grant waivers if good  S'cause therefor is shown.D}1 yO@'ԍ47 C.F.R.  1.3.D As interpreted by the courts, this requires that the petitioner demonstrate that special circumstances warrant a deviation from the general rule and that such deviation will serve  S'the public interest.X}1 yO'ԍNortheast Cellular Tel. Co. v. FCC, 897 F.2d 1164, 1166 (D.C.Cir 1990); WAIT Radio v. FCC, 418  {OH'F.2d 1153, 1159 (D.C. Cir. 1969), cert. denied 409 U.S. 1027 (1972); 47 C.F.R.  1.3. Special circumstances include demonstration of individual hardship or inequity. For example, the Commission has held that the high cost of completing a cost study relative to the  S8'small size of a carrier established the special circumstances warranting a waiver of section 69.605(c).8}1 yO 'ԍWilderness Valley Telephone Company, Inc., Petition for Waiver of Sections 69.605(c) and 69.3(e)(11)  {OR 'of the Commission's Rules, Order, 13 FCC Rcd 4511 (1998). Based on the facts and assumptions described by the Petitioners that Dumont serves 659 access lines and Universal serves 885 access lines, a total of only 1,544 access lines, and that cost studies would cost approximately $50,000 to $70,000 per year in recurring costs and approximately $13,000 in nonrecurring costs we believe that Dumont/Universal should be allowed to settle with NECA on an average schedule basis. The high cost of completing a cost study relative to the small size of Dumont/Universal establishes the special circumstances that warrant granting Petitioners' request for a waiver of Commission's rules. Therefore, we find that Petitioners' request for average schedule status should be granted. <IV. ORDERING CLAUSE  SX'9.` ` Accordingly, IT IS ORDERED, pursuant to sections 1, 4(i), 5(c), 201, 202, 205, and 218220 of the Communications Act of 1934, as amended, 47 U.S.C.  151, 154(i), 155(c), 201, 202, 205, and 218220, and sections 1.3, 0.91, and 0.291 of the Commission's rules, 47 C.F.R.  1.3, 0.91, and 0.291, that the Request for Extraordinary Relief filed by Dumont Telephone Company and its subsidiary Universal Communications, Inc. is granted and the petition of Dumont Telephone Company and its subsidiary Universal Communications, Inc. for waiver of section 69.605(c) of the Commission's rules, 47 C.F.R.  69.605(c), IS GRANTED. ` `  hhCFEDERAL COMMUNICATIONS COMMISSION ` `  hhCKenneth P. Moran ` `  hhCChief, Accounting Safeguards Division