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For the previous year, 1996, total reported U.S. domestic telecommunications service"0*&&qq"  X-revenues for all carriers with any interstate revenues were $222.3 billion.X yOy-ԍXx#X\  P6G;IP#This figure includes combined local service, interstate and intrastate access service and long distance service revenues. Source: Trends in Telephone Service, Industry Analysis Division, Common Carrier  yO -Bureau, Federal Communications Commission, February 1998, table 17.1 at p. 78.#MP6X@`7 ^k@#(#Ƶ The combined revenue for Loral/Orion for 1997 is less than one percent of $222.3 billion. This calculation overstates Loral/Orion's share of the domestic telecommunications market, since not all of their revenue is derived from domestic operations. Thus, Loral/Orion's share of the domestic telecommunications market is below the one percent and does not raise competitive concerns.  X-  X_-x 11.` ` Orion is a relatively new entrant in the international telecommunications  XH-marketplace,H {O -ԍXxFor a detailed discussion of our Separate Systems Policy, see Establishment of Satellite Systems  {O -Providing International Communications, 101 FCC 2d 1046 (1985), recon., 61 R.R.2d 649 (1986),  {Ou-further recon., 1 FCC Rcd 439 (1986). See also In the Matter of the Commission's Regulatory Policies  {O?-Governing Domestic Fixed Satellites and Separate International Satellite Systems, 11 FCC Rcd 2429 (1996).(# a market in which our concerns with concentration have historically focused on  X1-the market shares of Comsat, INTELSAT and its affiliates.+X1 yO-ԍXxHistorically, INTELSAT and its signatories (Comsat in the U.S.) have been the major providers of international voice, video and data services using satellites. Only recently have independent satellite systems begun to provide these services.(#+ The Commission recently established a new policy framework that allows nonU.S. licensed satellites into the U.S.  X -market.j\  {Ot-ԍXxSee In the Matter of the Commission's Regulatory Policies to Allow NonU.S. Licensed Space Stations  {O>-to Provide Domestic and International Satellite Service in the United States, IB Docket No. 96111,  yO-FCC 97399 (released November 26, 1997) ("WTO Order").(#j This new framework creates substantial incentives and opportunities for facilitating  X -a more competitive global satellite services market.Y  {O-ԍXxSee WTO Order at  10. (#Y We have received applications from foreignlicensed systems requesting authority to provide international and domestic service. We anticipate that there will be multiple regional and global players and that competition will be increasingly robust.  Xy-x 12.` ` Under the circumstances noted above, we find that the merger raises no concerns about substantial harm to competition in the United States. Loral Ltd. and Orion serve substantially different and distinct markets. Although neither party is precluded from entering the other's market, Loral Ltd. has remained primarily a domestic service provider  X-while Orion principally serves the international telecommunications marketplace . x  X-x 13.` ` In addition, based on the uncontradicted statements of the applicants, the"v0*&&qq" combined Loral/Orion entity should accrue benefits from this transaction, including reduced transaction costs to the end users of the satellite services and substantial efficiencies in the  X-consolidation of combined resources.X  yOK-ԍXxOrion/Loral Ltd. Petition at 9.(#X In the absence of any evidence to the contrary,   we accept the parties' position that the combination of Loral Ltd. and Orion will create opportunities for economies of both scale and scope. As a result of the merger, customers may be able to secure a broader range of valueadded services, both domestic and  Xv-international, from a single source. Additionally, the merger will permit the production of those services more efficiently by permitting a combination of operational, marketing, and administrative resources and functions across the range of existing and proposed Loral Ltd. and Orion business. Further, the new Loral/Orion entity should be better poised to compete  X -in the global satellite services market. Given that there are no substantial concerns regarding harm to competition resulting from this transaction, these stated benefits are sufficient to establish that authorization of this transaction would serve the public interest.  X -x  14.  ` `   CutO  ff Rules. Both Loral Ltd. and Orion have several satellite applications pending in various space station "processing groups." These processing rounds were established pursuant to public notices in which the Commission established filing deadlines for  Xy-applications to be considered simultaneously.!yX {O-ԍXxSee   Public Notice,  Applications Accepted for Filing; CutOff Established for Additional Space Station  {OL-Applications and Letters of Intent in the 3651.4 GHz Frequency Band, DA971551, Report No. SPB {O-89 (July 22, 1997); Public Notice,  CutOff Established for Additional Space Station Applications, Letters  {O-of Intent, and Amendments to Pending Applications in the 2 GHz Frequency Band,  DA971550, Report  yO-No. SPB88 (July 22, 1997) .  (#ƅ Applications filed after a cutoff date are not entitled to comparative consideration with applications filed by the deadline.  X4-x15.` ` Section 25.116(c) of the Commission's rules provides generally that if a pending application is amended by a "major amendment" after a cutoff date, the application will be considered to be a newly filed application. This means the application will lose its  X-status in the processing group.J" yO-ԍx47 C.F.R.  25.116(c).J Section 25.116(b)(3) specifies that an amendment to an application will be considered "major" if it involves a "substantial change in beneficial ownership or control of an applicant such that the change would require the filing of a prior  X-assignment or transfer application."T# yO!-ԍx47 C.F.R.  25.116(c)(2). T The rule allows for an exception to this policy, however, where the amendment reflects a change in ownership found by the Commission to be in the public interest and for which a requested exemption from the "cutoff" date is"|0 #0*&&qq"  X-granted.M$ yOy-ԍx47 C.F.R.  25.116(c)(2).M  X-x16.` ` Both Loral and Orion recognize that the proposed transfer of control constitutes a major amendment involving a significant change in ownership of Orion. In the application, Loral/Orion request prior Commission authorization to transfer control of facilities licensed to Orion. They also request us to waive the cutoff dates with respect to their pending applications, preserving the status of these applications in their respective processing groups.  X_-#Xj\  P6G;3XP#  XH-x17.` ` In previous decisions in which the International Bureau granted an exemption to the cutoff rules, the Bureau considered two factors: (1) whether the proposed transaction had a legitimate business purpose; and (2) whether the change in ownership otherwise served  X -the public interest.s% X {O -ԍXxSee, e.g., In the Matter of Satellite CD Radio. Inc. Request for a Declaratory Ruling for Further  {O-Exemption Pursuant to 47 C.F.R. 25.116(c)(2), 12 FCC Rcd 8359 (International Bureau 1997)(granting  {O-a waiver of the cutoff date to allow a public offering);  In the Matter of the Application of Starsys  {Oj-Global Positioning, Inc., 11 FCC Rcd 1237 (International Bureau 1995)(granting a waiver of the cutoff  {O4-date to allow GE Americom to acquire a controlling interest in Starsys);  Applications for Consent to  {O-Transfer Control of Hughes Communications, Inc. to General Motors Corporation, Mimeo No. 0885, (Com. Car. Bur. 1985)(granting a waiver of the cutoff date for Hughes's pending mobile satellite  {O-service application); see also Airsignal International Inc., 81 F.C.C. 2d 472 (1980)(granting AirSignal's request for an exemption to a cutoff rule virtually identical to the one pertaining to satellites).(#s  X -x18.` ` With respect to the first factor, Loral Ltd. has articulated a clearly defined and legitimate business purpose for its merger with Orion to "strengthen its financial resources" by consolidating Orion's ongoing and primarily international satellite service business with Loral Ltd.'s primarily domestic business. The merger in turn, would enhance Loral Ltd.'s ability to compete globally. In addition to the pending applications, the merger involves satellites already licensed. As such, we find that the merger serves an "independent business  XK-purpose, and is not primarily for the purpose of acquiring pending applications."y&K6  {O2-ԍXxSee Airsignal International Inc., 81 F.C.C. 2d 472 (1980).(#y  X-x19.` ` With respect to the second factor, for the reasons discussed above, we find that the public interest would be served by approving the proposed transaction. Consequently, we will exempt these pending applications from our cutoff rules, and will continue to consider  X-Loral Ltd. and Orion's applications concurrently with others in the processing groups.'  yOQ#-ԍXxThe Loral/Orion applications, of course, will be subject to the relevant rules in connection with a particular service.(# Pursuant to Section 1.65 of the Commission's rules, Loral Ltd. and Orion will be required to" '0*&&qqq" amend the applications that each has pending to reflect the transaction approved by this  X-order.M( yOb-ԍXx47 C.F.R.  1.65.(#M  X-x` `  X-0 Conclusion ĐTP  X-x20.` ` Upon review of the aforementioned application, we find that pursuant to the Communications Act of 1934, as amended, grant of this application will serve the public interest, convenience, and necessity.  X1-`  pX Ordering Clauses ĐTP  X -x21. Accordingly, IT IS ORDERED that File Nos.1SATTC98(5); 2SATTC98(3); 3SATTC98; 46DSETC98(32); 47DSETC98(16); 48DSETC98; E970023; 49DSETC98(3); 50DSETC98(2); ITC97610TC ARE GRANTED.  X -x22. ` ` IT IS FURTHER ORDERED that pursuant to Section 1.65 of the Commission's Rules, 47 C.F.R.  1.65, Loral Ltd. and Orion are afforded thirty days from the date of the release of this Order to amend all applications to reflect the new ownership structure approved in this Order.  X4-ppXXx23.` ` This Order is issued pursuant to Section 0.261 of the Commissions rules on delegated authority, 47 C.F.R.  0.261, and is effective upon release. p` Xx` ` @FEDERAL COMMUNICATIONS COMMISSION ` ` x` ` @Regina M. Keeney x` ` @Chief, International Bureau  X -#Xj\  P6G;3XP#  X -   x x x "# X(0*&&qqe""Ԍ J