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FCC, 77 F.3d 1399 (D.C.Cir.) cert. denied, 117 S.Ct. 81 (1996);  yO' x Application of Nationwide Wireless Network Corp. for a Nationwide Authorization in the Narrowband Personal  {O'Communications Service, Memorandum Opinion and Order on remand, 13 FCC Rcd 12,914 (1998).   S' e 3.` ` At about the same time the Commission granted SkyTel's pioneer's preference license,  xSkyTel acquired two additional nationwide narrowband PCS licenses at auction for a total of $127.5  xmillion. SkyTel paid $47.5 million for the license that is the subject of this Order: 50/12.5 kHz paired  xxspectrum at 901.7750901.7875 MHz and 930.50930.55 MHz (Station KNKV208). SkyTel also paid $80  xmillion for the following license: 50/50 kHz paired spectrum at 901.20901.25 MHz and 940.20940.25  xMHz (Station KNKV205). Presently, Skytel provides twoway messaging service on a nationwide basis  xoperating on Station KNKV205. However, SkyTel at this time has not established service on the license  xxthat is the subject of its modification request. The fiveyear construction benchmark for these nationwide  Sp'licenses is September 1999.Xp( yO' "8 ԍSection 24.103(a) of the Commission's rules states that "[n]ationwide narrowband PCS licensees shall  xH construct base stations that provide coverage to a composite area of 750,000 square kilometers or serve 37.5 percent of the U.S. population within five years of initial license grant date." 47 C.F.R. 24.103(a).   S ' e 94.` ` On December 14, 1998, SkyTel filed its modification request, seeking to remove the  x930.50930.55 MHz band (50 kHz) of its nationwide narrowband PCS license KNKV208 and replace it  xwith the 940.75940.80 MHz band spectrum (also 50 kHz). The end result would be that license  xZKNKV208 would remain as a paired 50/12.5 kHz license, but would be paired as 940/901 MHz instead  xIof its original 930/901 MHz. SkyTel would then have two channels at 940/901 MHz. Further, the  xCommission would still have 50 kHz of unpaired spectrum that would be subject to a future auction, but it would be at 930.50930.55 MHz instead of 940.75940.80.   S' e 5.` ` SkyTel contends that granting its request would serve the public interest because operating  xits nationwide system on two 901/940 MHz channels will result in lower @consumer costs and greater  S' xservice offerings to the public.R( yO'ԍSkyTel Modification Request at 2.R @SkyTel also contends that 930 MHz and 940 MHz spectrum are entirely  Sh' xtfungible, and the change in authorizations will not harm any party.:h0 ( {O8'ԍId.: SkyTel further argues that grant of  xits request is appropriate in light of the complicated and long history associated with its efforts involving  S' x}the pioneer's preference.: ( {Oz"'ԍId.: Finally, SkyTel requests prompt action on its request since the additional  xfrequency is necessary in the larger markets because of capacity constraints, and that considerable lead  xDtime is required by vendors in order to finalize development of equipment necessary to permit use of both  S'frequencies efficiently.@ T ( {O&'ԍId. at 3.@ "x ,>(>(ZZ"Ԍ S' e 7.` ` On December 23, 1998, SkyTel's modification request was placed on public notice for  S' xcomment., Z( {O@' "y ԍPublic Notice, DA 982585, released December 23, 1998 ("Wireless Telecommunications Bureau seeks  x Comment on a Request for Modification of a Nationwide Narrowband PCS license filed by Skytel Communications, Inc.")., Three parties filed comments in response to SkyTel's modification request. Arch  xCommunications, Inc. (Arch) supports SkyTel's request because it states that allowing the exchange would  xserve the public interest by creating greater spectrum efficiencies in the narrowband PCS service which  S`' x<ultimately benefit consumers.k `( yO'#X\  P6G;ɒP#эArch Comments at 1.k Arch also states that no other party will be harmed by the grant of  S8' xSkyTel's request.g 8z( {OR '#X\  P6G;ɒP#эId. at 4.g Arch further contends that equipment for narrowband PCS service operates on 930  S' xMHz through 940 MHz.a  ( {O '#X\  P6G;ɒP#эId.a Thus, Arch states the value of narrowband PCS spectrum is the same regardless  S' xof whether the spectrum is in the 930 MHz or 940 MHz band.a( {O&'#X\  P6G;ɒP#эId.a Arch finally contends that grant of  xSkyTel's request supports the Commission's goal of increasing the flexibility of spectrum use by the  S' xlicensee.i0 ( {Oh'#X\  P6G;ɒP#эId. at 45.i Paging Network, Inc. (PageNet) also supports SkyTel's request, contending that grant of the  xtrequest serves the public interest because CMRS carriers need significant flexibility to bring innovation  SH ' xand quality services to the public.oH ( yO'#X\  P6G;ɒP#эPageNet Comments at 2. o PageNet further states that grant of the request would promote the  S ' xtype of flexibility that is necessary for growth and effective competition in the CMRS marketplace.i R ( {O'#X\  P6G;ɒP#эId. at 23.i  xPageNet notes that WCS licensees have the freedom to innovate and implement new services when the  xpublic demands because licensees are permitted to use the spectrum for virtually any wireless service they  S ' xmay devise, and have a tenyear substantial service build-out requirement.g ( {O,'#X\  P6G;ɒP#эId. at 3.g PageNet contends that the  xCommission should allow CMRS licensees significant flexibility to quickly and easily meet the change  SX' x3in public demand due to innovative new services.bXv( {On '#X\  P6G;ɒP#эId. b Finally, PageNet believes that regulatory flexibility  S0'may take many forms, including a request to exchange spectrum.i0( {O"'#X\  P6G;ɒP#эId. at 34.i  S' e 8.` ` AirTouch states that, because it believes licensees should be accorded maximum flexibility  xto utilize spectrum in ways that serve the public interest, it has no conceptual problem with SkyTel's",>(>(ZZ"  S' xrequest.u( yOh'#X\  P6G;ɒP#эAirTouch Comments at 1.u However, AirTouch contends that SkyTel's request is a proposal to reconfigure the narrowband  S' xPCS channel plan since a grant of the SkyTel request will result in two new narrowband PCS channels  xthat do not currently exist in section 24.129 of the Commission's rules. AirTouch explains that SkyTel's  S' xrequest will also eliminate two narrowband PCS channels in section 24.129.iX( {O'#X\  P6G;ɒP#эId. at 23.i Thus, AirTouch argues that  xQthe relief requested by SkyTel requires a Commission rulemaking proceeding because spectrum allocation  xissues of this nature are routinely handled by a Commission rulemaking. AirTouch further contends that  xSkyTel's request will have an effect on the overall allocation issues in a pending rulemaking proceeding  xin which the configuration of narrowband spectrum is an issue because commenters were unaware that  xSkyTel was going to relinquish an unpaired 50 kHz nationwide PCS channel when comment was sought  S' x&on the issue of whether the Commission should allocate additional nationwide and regional channels.^( {O" ' " #X\  P6G;ɒP#эId. at 56 (citing Amendment of the Commission's Rules to Establish New Personal Communications  {O ' x Services, Narrowband PCS, GEN Docket No. 90314, Report and Order and Further Notice of Proposed Rulemaking,  {O'12 FCC Rcd 12,972 (1997) (Narrowband PCS Further Notice).   xFinally, AirTouch contends that the Commission must consider the implications of SkyTel's request on  xMany treaties the United States has with Canada or Mexico on the 901902, 930931, and 940941 MHz  S 'channels.i ( {O'#X\  P6G;ɒP#эId. at 67.i   S ' e 9.` ` SkyTel, in response to AirTouch's contention that its request must be accomplished in the  xcontext of a rulemaking proceeding, states that the frequency it seeks to include in its license is allocated  xtfor mobile PCS use on a nationwide basis, and that it intends to use this frequency consistent with this  SX' x3allocation.mX( yO'#X\  P6G;ɒP#эSkyTel Comments at 2.m Thus, SkyTel claims that, at most, it needs a waiver of section 24.129(a), and that such  xwaivers to use frequencies for other than the assigned use can be granted where: (1) the existing frequency  xallocation is not suited to accommodate the applicant's requirements; (2) the frequency requested is  xunderutilized; (3) the proposed frequency use will not be detrimental to assigned users; and (4) the grant  S' xof the waiver will serve the public interest.a2 ( {O'#X\  P6G;ɒP#эId.a SkyTel contends that the Commission could waive section  S' x24.129(a) because it has satisfied these four requirements.a ( {O'#X\  P6G;ɒP#эId.a SkyTel states that the initiation of a notice  Sh' xand comment rulemaking on this matter would be of no utility from a due process perspective since the  S@' xDCommission provided notice and an opportunity to comment on its request.g@V ( {O6#'#X\  P6G;ɒP#эId. at 3.g SkyTel further argues that,  xcontrary to AirTouch's claim, the allocation of narrowband PCS nationwide frequencies is not at issue in  S' xGen. Docket No. 90314.a( {Ox&'#X\  P6G;ɒP#эId.a Finally, SkyTel believes that its proposal will have no material impact on any  xexisting international protocols, and has no objection to the Commission's consideration of the"z,>(>(ZZe"  S'international protocols on its request.a( {Oh'#X\  P6G;ɒP#эId.a  S' FIII. DISCUSSION ă  S`' e 10.` ` SkyTel styles its application as a request for a license modification. Because grant of the  xrequest would result in a designation of spectrum inconsistent with section 24.129 of the Commission's  S' xrules, we consider this a request for waiver of our rules.kZ( yO ' " ԍSection 24.129 of the Commission's rules outlines the allocation of narrowband PCS frequencies.  x Specifically, the following frequencies are allocated to channel eight: 930.50930.55 and 901.7750901.7875 MHz,  xk and the following frequency is allocated to channel nine: 940.75940.80 MHz. However, grant of SkyTel's request  x* changes the frequency allocation of channel eight to consist of frequencies 940.75940.80 and 901.7750901.7875 MHz, and channel nine to consist of frequency 930.50930.55. k A waiver of our rules applicable to public  xxmobile services is appropriate when a party demonstrates either (1) that the underlying purpose of the rule  xwould not be served or would be frustrated by application to the instant case, and that grant of a waiver  xwould be in the public interest, or (2) in view of unique or unusual factual circumstances to the instant  xxcase, application of the rule(s) would be inequitable, unduly burdensome or contrary to the public interest,  SH ' xor the applicant has no reasonable alternative. H ( {O' " ԍ47 C.F.R  1.925(b)(3);  see also WAIT Radio v. FCC, 418 F.2d 1153 (D.C. Cir. 1969), cert. denied, 409 U.S. 1027 (1972). On the record presented in this proceeding, we find that  xthe unusual facts and circumstances in this instance warrant a waiver of section 24.129 of the Commission's rules in order to avoid a result that is contrary to the public interest.  S ' e '11.` ` We find that a number of factors are present that justify a waiver permitting this frequency  xexchange. First, the spectrum being returned and the spectrum being sought in this frequency exchange  xQare allocated for the identical service, nationwide narrowband PCS. Second, the spectrum being returned  xQand the spectrum being sought are of the same bandwidth (50 kHz). Third, we find that spectrum on the  xV930 MHz band and spectrum on the 940 MHz band are virtually identical in terms of (1) regulatory  xflexibility; (2) propagation characteristics of the spectrum; and (3) potential encumbrances of the spectrum.  x"Specifically, the rules governing both bands are identical; thus, any type of narrowband service or  xxcoverage can be achieved on either band. Further, the propagation characteristics of the spectrum are the  Sh' xsame, i.e., for a given amount of power, you will receive approximately the same coverage. Because the  xphysical properties of the spectrum are substantially the same and these bands are adjacent to one another,  xthere is no apparent advantage of one band over the other. Moreover, there are no encumbrances on either  S' xQband and the potential sources of cochannel or adjacent interference are nearly identical.B!Xd ( yO ' "8 ԍWe note that neither of the nationwide narrowband 930 MHz or 940 MHz channels are subject to any  x encumbrances that would result in either band being more valuable, such as restrictions that would result from treaties with Mexico or Canada. B Indeed, based  xon the similarity between the 930 MHz and 940 MHz bands, we find that it is immaterial whether we  xauction channel nine of section 24.129(a) of the Commission's rules as a 930 MHz or 940 MHz license.  xFinally, we note that the auction for this spectrum is not imminent, so this exchange will not cause any disruption in planning for the auction by either Commission staff or potential bidders. "( !,>(>(ZZq"Ԍ S' e 12.` ` Finally, we believe that allowing SkyTel to operate its nationwide narrowband PCS  xservice on two 940/901 MHz channels rather than on one 940/901 MHz channel and one 930/901 MHz  S' xZchannel would serve the public interest. Skytel acquired two nationwide narrowband PCS channels at  xauction in 1994. Although several other licensees who acquired nationwide narrowband spectrum at the  S`' xsame time as SkyTel have yet to launch their nationwide narrowband PCS systems,5"$`( yO' "p ԍAs of June 1998, only three companies (SkyTel, PageNet, and CONXUS) have launched narrowband PCS  {O' x service. See In the Matter of Implementation of Section 6002(B) of the Omnibus Budget Reconciliation Act of 1993,  x Annual Report and Analysis of Competitive Market Conditions with Respect to Commercial Mobile Services, FCC  {O"'9891, Third Report, 13 FCC Rcd 19,746, 19,798 (1998) (Third Annual CMRS Competition Report).5 SkyTel has  xestablished a nationwide system, providing a specialized twoway and guaranteed text messaging service  S' xto its customers throughout the U.S.N#( yOd 'ԍSkyTel Comments at 1. N According to SkyTel, it currently provides coverage to  S' xQapproximately 72 percent of the U.S. population.@$D( {O 'ԍId. at 2.@ In short, SkyTel has taken certain of its spectrum and  xxutilized it productively to the benefit of consumers. Its nationwide system currently operates on a license  S' xDthat consists of paired 50/50 kHz spectrum at 940/901 MHz.:%( {O'ԍId.: However, because of capacity constraints  xon this channel, SkyTel states that it needs to expand its nationwide system, specifically in the larger  SH ' xurban areas.A&H h ( {OP'ԍId. at 2. A While we recognize that SkyTel can meet these capacity constraints by utilizing its paired  x930/901 MHz channel that is the subject of this request, we are persuaded that SkyTel will be able to  x7operate its system on two 940/901 MHz channels more efficiently than on one 940/901 MHz channel and  xone 930/901 MHz channel, especially in high demand areas. We find that it is reasonable to assume that  x these efficiencies will result in cost economies that will translate into lower prices and greater service  xofferings to the public. We also find that operating on two 940/901 MHz channels likely will result in  xhigher quality service for customers because the end user devices need only interoperate with one  xgfrequency. Therefore, the unusual facts and circumstances warrant a waiver of section 24.129 of the Commission's rules in order to avoid a result that is contrary to the public interest.   S' DIV. CONCLUSION ă  "q13. We conclude that a waiver of section 24.129 of the Commission's rules to allow the  S@' x&frequency exchange requested by SkyTel is warranted because of the public interest benefits that will  xresult from allowing this frequency exchange, and also because SkyTel's request involves an exchange  x7of spectrum in which the spectrum being returned and the spectrum being requested are allocated for the  xVsame service and are of the same bandwidth, the spectrum on the 930 MHz and 940 MHz bands is substantially similar, and the other reasons discussed in this Order.  SP' 1V. ORDERING CLAUSE ă  S' e ,14.` ` Accordingly, IT IS ORDERED, on our own motion, pursuant to sections 4(i) of the  xCommunications Act of 1934, as amended, 47 U.S.C.  154(i), and Sections 1.3 and 1.925 of the" &,>(>(ZZ+"  xCommission's rules, 47 C.F.R.  1.3, 1.925, that a waiver of Section 24.129 of the Commission's rules IS GRANTED.  S' e `15.` ` IT IS FURTHER ORDERED that the request to modify nationwide narrowband PCS  xlicense KNKV208 filed by SkyTel Communications, Inc. to change the frequency authorization from  x901.775901.7875 MHz and 930.5930.55 MHz to 901.775901.7875 MHz and 940.75940.80 MHz IS GRANTED.  S' e 18.` ` This action is taken under delegated authority pursuant to Section 0.331 of the Commission's Rules, 47 C.F.R.  0.331. ` `  hhCqFEDERAL COMMUNICATIONS COMMISSION ` `  hhCqSteven E. Weingarten ` `  hhCqChief, Commercial Wireless Division ` `  hhCqWireless Telecommunications Bureau