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Petition for Waiver of Section 69.605(c) of the Commission's Rules, Report and  {N4Order, 8 FCC Rcd 8723 (1993) (waiver granted for National Utilities, which had 2,350 access lines, and Bettles, which had 50 access lines); Papago Tribal Utility Authority Petition for Waiver of Section  {N469.605(c) of the Commission's Rules, Memorandum Opinion and Order, 2 FCC Rcd 6631 (1987) (waiver granted to small company serving fewer than 400 lines in a 700 square mile area and lacking operational expertise). Finally, to ensure a smooth settlement process, we have granted section 69.605(c) waivers to average schedule companies that have acquired another company, and we allowed the combined companies to merge into  Q 4one average schedule study area.. q {NA4ԍBPS, 12 FCC Rcd at 13825,  11. See, e.g., Petition for Waivers Filed by Baltic Telecom  {N 4Cooperative, Inc. et al., AAD No. 9695, Memorandum Opinion and Order, 12 FCC Rcd 2433 (1997);  {N4Petitions for Waiver Filed by Accent Communications, et al., AAD No. 95124, Memorandum Opinion and  {N4Order, 11 FCC Rcd 11513 (1996). In these situations, we have attached three conditions to minimize the impact of the conversion and reduce the incentive to manipulate Commission rules: waiver recipients must (1) report to NECA on a combined basis for interstate average schedule and USF purposes, and receive distributions on that basis as a consolidated company; (2) convert to cost-based settlement status if an average schedule affiliate in that study area converts to cost-based settlements, or elects section 61.39 treatment; and (3) maintain common control over average schedule affiliates, so that average schedule status terminates when any of the affiliates are sold, transferred, or otherwise  {N$4assigned. See BPS, 12 FCC Rcd at 13825,  11. We have always intended for these conditions to ensure that the waivers will not result in unintended effects on the petitioners' interstate revenue  {N%4requirements or result in an administrative burden on the Commission or NECA. Id. " 0*''PP "Ԍ Q4ԙ5.` ` In its waiver petition, HTC sought a waiver of section 69.605(c) of the Commission's rules to allow its new study area, consisting of 1,330 access lines currently served by Amana Colonies Telephone Company (Amana), a subsidiary of HTC, combined with 12,527 access lines acquired by Heartland from US West, to operate on an average  Q`4schedule basis. At the time of the petition, Amana was an average schedule company,B`q {M4ԍApplication at 5.Bք whereas the 11 additional exchanges purchased from US West, serving 12,527 access lines,  R4were under price cap regulation and thus operating on a cost basis.1YXq {N 4ԍId. Price cap companies are those ILECs that receive compensation for the use of their facilities originating and terminating interstate telecommunications services on the basis of the Commission's price cap rules. 47 C.F.R.  61.4161.49.1 In the MO&O, the Division found that, when Heartland combines with its affiliate's study area, the majority of  Q4the consolidated study area would consist of costbased access lines.Yyq {N 4ԍMO&O, 12 FCC Rcd at 2375,  18.Y Our rules permit an ILEC to convert from average schedule status to cost basis, but not from a cost company to average schedule basis. The Division, concluding that the parties had not demonstrated a need for a waiver, required the consolidated HTC/Heartland study area to use cost  Q! 4settlements with the NECA pools.V! q {N4ԍId. at 237576,  1819.V  Q 46.` ` Petitioners argue that the Division's denial of the waiver request was based upon a new 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 number of lines served by the existing average schedule company, both the new affiliate and the average schedule company must settle on a cost basis. Petitioners argue that this new policy is procedurally and substantively flawed, applied inconsistently, and violates the rulemaking requirements of the  Q4Administrative Procedures Act (APA).Eq {M4ԍApplication at 619.E  S4H III. DISCUSSION ă  QC47.` ` We note at the outset that the Division did not apply a new 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 combined study area operate on a cost settlement basis. Petitioners sought a waiver of section 69.605(c) to allow them to operate the consolidated study area on an average schedule basis instead of cost settlement basis. Waiver of the Commission's rules is appropriate if founded on a general standard or if special circumstances warrant deviation from the general rule and such deviation will serve"S+ 0*''PPh"  Q4the public interest.q {Nh4ԍWAIT 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. The Commission has not established a general standard and, thus, in determining whether the waiver request should be granted, the Division was free to consider  R4all factual, legal, and policy issues relevant to the waiver request. As we noted in BPS, a policy in favor of reducing administrative burdens does not outweigh the Commission's public interest obligation to protect interstate ratepayers or eliminate the requirement for  Q94unique circumstances to justify the waiver.@Z9!q {N4ԍIn BPS, we also noted that several hundred exchange carriers serving fewer lines than BPS (3,373 access lines) successfully operate on costbased status despite the additional administrative  {N 4burdens. BPS, 12 FCC Rcd at 13827,  16. @ It was logical for the Division to consider the number of lines that would be changed to average schedule settlement in the context of a policy preference that ILECs settle on a cost basis whenever possible. In this case, only 1,330 access lines (served by Amana) out of the total of 13,857 access lines in the consolidated study area had originally been on an average schedule basis. The remaining 12,527 access  Rq4lines, i.e., approximately 90 percent, were under price cap regulation and operating on a cost basis. The Division's analysis was not the development of a new policy, as Petitioners contend; rather, the Division merely applied the Commission's longstanding policy underlying section 69.605(c). We find that the Division did not establish 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. Absent clear language stating the intent to establish a rule or  RZ4convincing evidence of a de facto rule, we reject Petitioners' argument that the Division established a policy or rule that violates the rulemaking requirements of the APA. Because we find that the Division did not establish a new policy or rule, we need not address the Petitioners' arguments that this new policy or rule was procedurally and substantively flawed  Q4and applied inconsistently.ECq {M4ԍApplication at 617.E  Rk48.` ` Petitioners contend that, in BEK, the Division granted waiver requests to Dickey Rural Communications, Inc. (Dickey Rural) and Turtle Mountain Communications, Inc. (Turtle Mountain), two companies that also added exchanges acquired from US West to  Q4average schedule affiliates, and the Commission should treat HTC similarly.q {Ng4ԍApplication at 78 (citing BEK Communications I, Inc., et al., Memorandum Opinion and Order, 11  {N0 4FCC Rcd 10855 (1996) (BEK)). We note that the circumstances presented by Dickey Rural and Turtle Mountain are distinguishable from those in the case before us. Significantly, Dickey Rural and Turtle Mountain were much smaller than Heartland; neither served more than 7,400 customers approximately half as many lines as the consolidated HTC/Heartland study area after acquiring the exchanges  Q,4from US West.t,- q {N%4ԍBEK, 11 FCC Rcd at 10871,  36. See below para. 11.t Heartland, on the other hand, consists of 12,527 access lines already on a", 0*''PP+" cost basis which will be combined with Amana's 1,330 average schedule access lines. As explained below, the HTC study area has more than three times as many loops as the mean  Q4average schedule company.Lq {N4ԍSee infra., para. 11.L As stated above, our rule is that an ILEC may convert from an average schedule company to a cost company, but not from a cost company to an average schedule company without demonstrating compelling circumstances sufficient to warrant a  R84special exception. In BEK, the Division considered all factual, legal, and policy issues relevant to the waiver request and concluded that the petitioners warranted an exception to  R4the rule. The ruling in BEK does not compel us to grant the Petitioners' waiver request.  Q49.` ` Petitioners also contend that the Division's denial of the waiver request is a  Rr4reinstatement of the "average schedule allornothing rule" at issue in NARUC v. FCC, 737  RK 4F.2d 1095 (D.C.Cir. 1984) and ALLTEL v. FCC, 838 F.2d 551 (D.C.Cir. 1988).K Yq {MD 4ԍApplication at 812, 1719. Petitioners contend that the "average schedule allornothing rule" was a rule which required all affiliated companies to be average schedule companies or all affiliated companies to be cost settlement companies, and that if an average schedule company were affiliated with a cost settlement company, the average settlement company must convert to a cost settlement  {Nd4status. Id. at 9. We disagree. In those two cases, the court criticized the Commission for assuming that affiliates of companies operating on a cost basis also possessed the resources to perform cost studies. We find that  R 4in the MO&O, the Division did not purport to establish requirements for all HTC affiliates, but focussed solely on the Iowa study area in determining that HTC had not demonstrated a need for the waiver. Moreover, as discussed below, in connection with HTC's application for review there has been no demonstration by HTC of undue financial burden from implementation of the accounting changes nor will there be a discernible impact on HTC subscribers from such implementation. We, therefore, reject Petitioners' argument that the  R4Division's decision was inconsistent with NARUC and ALLTEL.  Q4 10.` ` In addition, Petitioners argue that the Division failed to consider that cost studies would cost approximately $80,000 per year or $6.39 per access line and that this  QF4expense would have an adverse impact on Heartland and its subscribers.MF q {M4ԍApplication at 1617, 1922.M Petitioners contend that the requirement to perform cost studies would be contrary to the Commission's  Q4policy of reducing burdens on telephone companies and minimizing regulatory costs.Fq {M0 4ԍApplication at 1617.F 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 for accelerating advanced  QV4telecommunications technologies and services to all Americans.FV* q {M %4ԍApplication at 1920.F ". 0*''PPE"Ԍ Q4 11.` ` The cost study expense provided by Petitioners is not supported by any  Q4itemization or explanation to enable us to evaluate the credibility of that figure.Xq {M@4ԍBased on our experience, we believe the figure of $80,000 is high even for an initial cost study. We note that subsequent updates to the cost studies generally cost significantly less than the initial cost study.  For example, we do not know whether the estimate is based on the time company personnel or an outside consultant would spend preparing the cost study. Petitioners have failed to provide a description of the tasks for the cost study and an estimate of time for each task. In seeking a waiver, Petitioners assumed the burden of presenting credible evidence of special circumstances. General arguments and unsupported factual representations do not satisfy that requirement. We note that the mean number of loops per average schedule company is 4,500, which is far smaller than the HTC study area; 550 of the 578 average schedule companies (95 percent) have fewer than 14,000 loops and 546 (94 percent) have fewer than  Qp413,000 loops.pq {N 4ԍSee Universal Service Fund 1998 Submission of 1997 Study Results by the National Exchange Carrier Association, Inc., October 1, 1998. The large majority of study areas with 13,000 or more lines the size of HTC's Iowa study area operate on a cost basis. We also note that a great deal of the cost information already exists because the majority of the Petitioners' access lines (12,527 out of a total of 13,857, or 90 percent) were, prior to acquisition by HTC, part of the US West costbased study area in Iowa. US West has been required under the Commission's rules to keep its property and accounting records in a manner that would facilitate development of the information needed by applicants for annual cost studies.  Q04 12.` ` Furthermore, we disagree with Petitioners' argument that HTC's subscribers would be adversely affected by the cost of the initial cost study. Carriers may assign the  Q4entire cost of the initial cost study to the interstate jurisdiction.l [Aq {N4ԍSee MTS and WATS Market Structure: Average Schedule Companies, Memorandum Opinion and  {N4Order, 3 FCC Rcd 834, 841 & n.25 (1986); NECA's Proposed Revisions to the Average Schedules,  {NS4Memorandum Opinion and Order, 5 FCC Rcd 4068, 4079 & n.107 (1990).l This cost is recovered in accordance with the NECA pooling processes through access charges paid by interexchange carriers across the entire country. Thus, there is no discernible impact to HTC's subscribers  Qh4insofar as the initial cost study is concerned.  Q4 13.` ` We also disagree with Petitioners' argument that the denial of the waiver is an unwarranted penalty and contrary to the mandate of the 1996 Act. As explained above, the rule that prohibits costbased carriers from converting to average schedule treatment protects interexchange carriers and their customers from unreasonable rate increases. Petitioners have failed to show how this is contrary to the policies underlying the 1996 Act. Furthermore, having failed to provide evidentiary support for their allegations that enforcement of the rule will cause them undue financial burden, Petitioners' argument that they are being "penalized" by the rule must fail. "d 0*''PP"Ԍ Q4 14.` ` In conclusion, waiver of the Commission's rules is appropriate only if special circumstances warrant deviation from the general rule and such deviation will serve the public interest. In seeking a waiver, Petitioners assumed the burden of presenting credible evidence of special circumstances. We find that Petitioners' circumstances 12,527 access lines already on a cost basis which will be combined with 1,330 average schedule access lines do not warrant a waiver of our rules. Petitioners have failed to show that compliance with section 69.605(c) of the Commission's rules would cause undue hardship. Accordingly, we conclude that Petitioners have not demonstrated special circumstances warranting waiver of section 69.605(c). We therefore affirm the Division's denial of HTC's petition for waiver of section 69.605(c) of the Commission's rules.  SH 4, IV. ORDERING CLAUSE ă  Q 415.` ` Accordingly, IT IS ORDERED, pursuant to sections 1, 4(i), 5(c), and 201 of the Communications Act of 1934, as amended, 47 U.S.C.  151, 154(i), 155(c), and 201, that the Application for Review filed by Hickory Tech Corporation and its subsidiary Heartland "  0*''PP " Telecommunications Company of Iowa is DENIED and the petition of Hickory Tech Corporation and its subsidiary Heartland Telecommunications Company of Iowa for waiver of section 69.605(c) of the Commission's rules, 47 C.F.R.  69.605(c), IS DENIED. ` `  hhCFEDERAL COMMUNICATIONS COMMISSION ` `  hhCMagalie Roman 'A.  Salas ` `  hhCSecretary