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A. 1. a.(1)(a) i) a)#)a [ PlQ)P# ## b, oT9 #)^ `> XimQ)X#Beginning Legal WordPerfect Learning Guide   v I. A. 1. a.(1)(a) i) a)#)a [ PnQ)P# ## b, oT9 #)^ `> XioQ)X#   Copyright  Portola Systems, Inc. 1987, 1988`e%APage   I. A. 1. a.(1)(a) i) a)#)a [ PpQ)P# ## b, oT9 #)^ `> XiqQ)X#   Page ``e%)Copyright  Portola Systems, Inc. 1987, 1988 20  bdStyle 97=@6FInitial Codes for Intermediate*'Ç.7=.ET KL#)a [ PrQ)P# dn  ## b, oT9 Њ [  I. A. 1. a.(1)(a) i) a)#)a [ PsQ)P# ## b, oT9 #)^ `> XitQ)X#`e%'Intermediate Legal WordPerfect Learning Guide   z I. A. 1. a.(1)(a) i) a)#)a [ PuQ)P# ## b, oT9 #)^ `> XivQ)X#Intermediate Legal WordPerfect Learning Guide   z I. A. 1. a.(1)(a) i) a)#)a [ PwQ)P# ## b, oT9 #)^ `> XixQ)X#   Copyright  Portola Systems, Inc.`e%APage   I. A. 1. a.(1)(a) i) a)#)a [ PyQ)P# ## b, oT9 Update7=@6FInitial Codes for Update Module*'Ç.7=.Ee MN#)a [ P{Q)P# dn  ##  [ b, oT9 ! I. A. 1. a.(1)(a) i) a)#)a [ P|Q)P# ## b, oT9 !#)^ `> Xi}Q)X#`Ye%%Legal WordPerfect 5.0 Update Class Learning Guide   } I. A. 1. a.(1)(a) i) a)#)a [ P~Q)P# ## b, oT9 !#)^ `> XiQ)X#Legal WordPerfect 5.0 Update Class Learning Guide   } I. A. 1. a.(1)(a) i) a)#)a [ PQ)P# ## b, oT9 !#)^ `> XiQ)X#   Copyright  Portola Systems, Inc. 1987, 1988`e%APage   I. 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at 2.7 Thus, Nextel seeks to reclassify its Canadian  xRegion Business channels as SMR channels to (a) incorporate these channels into its commercial SMR  TX4 xsystem=!X n( zP'ԍ Id. at 4.= and (b) accommodate the relocation requirements of upper 200 channel incumbents who are  T04 xsubject to relocation.7"0n( zP'ԍId. at 3.7 Nextel also maintains that the reclassification of the Business channels to  x}commercial SMR use does not affect the availability of channels or flexibility for nonSMR applicants  xbecause Nextel already is licensed for the subject channels which precludes the issuance of new licenses  T4 xin the area.7#n( zP#'ԍId. at 2.7 Finally, Nextel seeks flexibility to use these Canadian Region Business channels primarily  xfor its CMRS system to help it to expand immediately to meet the increasing demand for its digital CMRS  Th4system and secondarily for relocation of an incumbent if it becomes necessary.7$h>n( zPF&'ԍId. at 4.7 "@$,N(N(ZZ"Ԍ T4 e 9. ` ` With regards to its request for waiver of section 90.617(c) of the Commission's Rules,  xVNextel acknowledges that SMR applicants for initial licenses no longer have the opportunity to access  T4 xBusiness or I/LT channels.=%n( xP'ԍWaiver Requests at 2.= However, Nextel asserts that the Commission's Orders concerning the  x/acquisition of these channels by SMR applicants by filing assignment of license or transfer of control  Tb4 xapplications have not been definitive as to whether such acquisitions are permissible.M&bXn( xPZ'ԍSection 90.617(c) Waiver Request at 2M Nextel requests  xythe waiver for several reasons. Those reasons include its desire to obtain the Business channels to  T4 xaccommodate the relocation requirements of PLMRS upper 200 channel incumbents.7'n( zP 'ԍId. at 3.7 Nextel avers that  xthe objective underlying the elimination of intercategory sharing for SMR applicants is not impacted by  xa private channel licensee who wishes to provide commercial services or who wishes to transfer its  T4 xlicenses to a commercial SMR provider in exchange for services from the commercial SMR provider.1(zn( zP'ԍId.1  x"Finally, similar to the Section 90.619(b) Waiver Request, Nextel seeks to use these Business channels  xprimarily in its CMRS system to help it to expand to meet the increasing demand for its digital CMRS.  T" 4 xIt would also use the channels to relocate incumbents as necessary.7)" n( zP'ԍId. at 4.7 Nextel asserts that since April of  x1995, the Southern Company has obtained and converted over 400 Business and I/LT channels to CMRS  T 4 xuse.=* n( xP'ԍWaiver Requests at 3.= Nextel states that it is seeking the same flexibility to respond to marketplace demands and satisfy  T 4the requirements of upper 200 channel incumbents in its licensed EAs.7+ . n( zPx'ԍId. at 3.7  TZ4 e  10.` ` On October 28, 1998, the Bureau sought comment on Nextel's applications and  T24 xgassociated waiver requests.,2 n( zP' x ԍSee Public Notice, 14 FCC Rcd. at 1828. Twentyeight entities submitted comments, 15 entities submitted reply comments, and numerous ex parte comments have been filed. A number of commenters support conditional grant of the waivers only for  T 4 xthe purpose of facilitating relocation of incumbents from the 800 MHz SMR upper 200 channels.-  n( xP' x ԍIndustrial Telecommunications Association (ITA) Comments at 46 (as long as channels are used to relocate  xI private wireless incumbents); Waste Management, Inc. (Waste Management) Comments at 45; Joyce Syverson  x Comments at 34; Alan Hansel Comments at 34; Auto Warehousing Company (Auto Warehousing) Comments at 45. These  x commenters argue that the public interest would be advanced by granting the waiver requests to further"-,N(N(ZZ"  xthe goals of the Commission's new EA licensing and the associated relocation of the upper 200 channel  T4incumbents.x.Xn( xP@' xh ԍITA Comments at 46 (as long as channels are used to relocate private wireless incumbents); Waste  x Management, Inc. (Waste Management) Comments at 45; Joyce Syverson Comments at 34; Alan Hansel  xP'Comments at 34; Auto Warehousing Company (Auto Warehousing) Comments at 45.x  T4 e  11. ` ` Some commenters, such as the Ad Hoc 800 MHz Licensees' Committee (Ad Hoc  xCommittee), support Nextel's request more broadly and argue that the public interest also would be  T84 xserved by allowing the incorporation of PLMRS frequencies in CMRS systems.[/8n( zP 'ԍ See, e.g., Ad Hoc Committee comments at 5. [ Ad Hoc Committee  x3argues that licensees should not be prohibited from making efficient business decisions regarding the use  T4 xof their spectrum.G0zn( xP 'ԍAd Hoc Committee Comments at 4.G Additionally, some commenters interested in entering purchase agreements or  xassignments with Nextel echo the arguments of Ad Hoc Committee and contend that the most efficient  T4and effective use of spectrum is effected by armslength, marketplacedriven decisions.1 n( xPB' x ԍWaste Management Comments at 34; Auto Warehousing Comments at 34; Ray's Electronics Comments at 45.  TH 4 e  12.` ` Nextel, with support from the Ad Hoc Committee, suggests that the waivers may not be  x needed because the intercategory sharing freeze was intended for "new" or "initial" applications and not  T 4 x+assignments of license or transfers of control.t2 b n( zP'ԍNextel Reply Comments at 4; see, e.g., Ad Hoc Committee Comments at 3.t Thus, Nextel asserts, only unlicensed, unassigned  T 4 xZspectrum was subject to the intercategory sharing freeze.I3 n( xPd'ԍNextel Reply Comments at 4. I Nextel continues that if a waiver is necessary,  xEthe intent of the intercategory sharing freeze, which was to halt the influx of intercategory sharing  xapplications, would not be circumvented or compromised by granting the waivers requested in these  TX4 xMapplications.o4X n( zP|'ԍNextel Comments at 14; see also Ad Hoc Committee Comments at 45.o Opposing this argument that the prohibition on intercategory sharing only applies to initial  x/applications, the Boeing Company (Boeing) argues that the Commission made no distinction between  x whether the intercategory sharing prohibition on these PLMRS frequencies were the subject of transfer,  T4 xcassignment or initial application.E5n( xP 'ԍBoeing Company Comments at 4.E Instead, some commenters, such as API, ITA and Boeing, contend  xthat the intercategory sharing freeze or prohibition was implemented to prevent the very conversion of  T4 xPLMRS spectrum that is presented by the instant waiver requests.6n( zP#' x ԍSee, e.g., American Petroleum Institute (API) Comments at 45; ITA Comments at 6; Boeing Comments at 6. These commenters also warn that"6,N(N(ZZH"  T4 xVa waiver would not only result in an unlawful conversion of PLMRS spectrum in this case, but would  T4signal other SMR entities that encroachment on PLMRS spectrum is permissible.m7n( zP@'ԍ See, e.g., ITA Comments at 6; Boeing Comments at 6.m  T4 e $ 13.` ` Still other commenters challenge whether the Nextel waiver requests satisfy the  T`4 x}Commission's waiver standard.8X`Zn( xPZ' xp ԍITA Comments at 78; UTC, The Telecommunications Association (UTC) Comments at 2; MRFAC, Inc.  x3 Comments at 46; PCIA Comments at 24; Small Business in Telecommunications (SBT) Comments at 12; API Comments at 67. ITA argues that Nextel did not satisfy the standard for a rule waiver  xVto the extent these waiver requests are not limited to the relocation of the 800 MHz SMR upper 200  T4 xchannel incumbents.<9zn( xP* 'ԍITA Comments at 78.< UTC also challenges Nextel's satisfaction of the waiver standard. UTC contends  xthat Nextel could facilitate the transaction between the upper 200 channel incumbent and other B/ILT  xlicensees without Nextel becoming a license holder for PLMRS spectrum, and, therefore, reasonable  T4alternatives to a rule waiver exist.B: n( xPB'ԍUTC Comments at 2. B  TH 4 e  14. ` ` Mobex argues that the waivers are contrary to Congress' intent that while licenses  xavailable for a company's internal use should not be auctioned, those licenses available for commercial  T 4 xuse should be auctioned in order to avoid unjust enrichment of commercial licensees.b; n( zP2'ԍMobex Comments at 1;  see, e.g. MRFAC Comments at 4.b Mobex further  xgargues that a grant of these requests would "chill" future auction bidding because of all the bidders in the  xupper 200 auction, only Nextel, through these waivers, had access to additional spectrum for relocation  T 4of incumbents.B< , n( xPL'ԍMobex Comments at 8.B  T04 e 15.` ` Lastly, the Personal Communications Industry Association, Inc. (PCIA) argues that  x"Nextel's waiver requests do not present any unique circumstances and, in fact, are simply requests to  T4 xZdeviate from a rule of general applicability.;= n( xP<'ԍPCIA Comments at 5.; According to PCIA, with support from Boeing and Mobex,  xtthis deviation makes a rulemaking proceeding the appropriate forum to resolve whether the intercategory  T4 x/sharing prohibition should continue.>L n( zP|!' x ԍId; See also Letter from David Alan Nall, Counsel to Boeing, to Magalie R. Salas, Secretary, FCC dated July  xPF"'2, 1999 (Boeing Letter); Mobex Comments at 6, n.10. For its part, Nextel argues that a rulemaking proceeding is not  Th4 x@necessary because the relief it is seeking depends upon rule interpretation, not new law, rights or duties.?hn( xP$' xZ ԍNextel Comments at 910. As stated earlier, Nextel and other commenters assert that the intercategory sharing freeze was applicable only to initial applications, not transfers or assignments.  xNextel contends that permitting conversion of existing B/ILT licenses to commercial use whether for  xtheir own operations or via assignments to commercial operators is merely a rule interpretation because"?,N(N(ZZ"  T4 xthe intercategory sharing prohibition applies only to unused/unlicensed channels.8@n( zPh'ԍId. at 10.8 And, to that end, a  T4new rule or change in a rule is not at issue.1AZn( zP'ԍId.1  T4  T4 e J16. ` ` On June 14, 1999, Nextel proposed a number of conditions for placement on any licenses  T`4 xgranted pursuant to its waiver requests of sections 90.617(c) and 90.619(b).B`n( xP' x ԍLetter from Lawrence R. Krevor, Senior Director Government Affairs, Nextel Communications, Inc. to  zP 'Magalie R. Salas, Secretary, FCC, dated June 14, 1999 (June 14th Ex Parte). Nextel believes these  x conditions would restrain potential trafficking in B/ILT spectrum because the conditions would prevent  xlevasion of the Commission's prohibition on SMR operators obtaining vacant B/ILT spectrum for  T4commercial use through intercategory sharing.7CFn( zP 'ԍId. at 1.7 These proposed conditions are:  T4  e F` ` (a) to return one 800 MHz B/ILT channel for noncommercial use for every two 800  Tp4 xgMHz B/ILT channels licensed for noncommercial use Nextel acquires as a result of any rule waivers of  TH 4sections 90.617(c) and 90.619(b) that it submits by December 4, 2000.9DH n( zP'ԍId. at 34.9  T 4 e ` ` (b) submission of quarterly reports to the FCC verifying compliance with the preceding  T 4condition.7E j n( zP'ԍId. at 3.7  e ` ` (c) geographic parity among the PLMRS channels acquired and incorporated into the  TX4CMRS system and PLMRS channels returned for PLMRS use.7FX n( zP'ԍId. at 4.7  T4 xMSignificantly, Nextel describes how it would satisfy its twoforone swap condition. Nextel provides three  xgtypes of transactions that would satisfy this "swap" condition: (a) "swaps" to migrate PLMRS incumbents  xto B/ILT channels from the upper 200 channels, the lower 80 SMR channels, or the 150 General  xcCategory channels; (b) "swaps" in transactions with PLMRS licensees to obtain upper 200 channels in  xthe SMR spectrumlimited Canadian Border areas; or (c) surrender of licensed frequencies to the PLMRS frequency pools designated for PLMRS use.  T4 e 17. ` ` Nextel states that by imposition of these conditions, it would be able to (a) acquire B/ILT  xchannels solely to "swap" with upper 200 channel B/ILT incumbents as part of the relocation process;  x(b) retune incumbent B/ILT eligibles from the lower 230 SMR channels to B/ILT channels; and (c) enter  xRinto voluntary, arm'slength marketplace decisions with B/ILT licensees to sell their [systems] to a  TP4 xcommercial provider for "cash", digital iDEN service, or a combination thereof.7GP n( zP~''ԍId. at 2.7 Nextel asserts that,"P G,N(N(ZZ"  xthrough the use of "master contracts" with certain large incumbent B/ILT eligibles, it has been attempting  xto rationalize the Commission's intercategory licensing over the past decade by moving commercial  xoperations primarily to the SMR and General Category channels, and noncommercial, private systems  T4 x}to the B/ILT channels.1Hn( zP'ԍId.1 Additionally, Nextel maintains that such conditions would effectively balance  xthe Commission's desire to maintain spectrum for private, noncommercial services with its goals of  x}facilitating marketplacedriven transactions that promote competition among providers of commercial  T4wireless services and facilitate more efficient spectrum use.7IZn( zP 'ԍId. at 3.7  T4 e =18. ` ` On June 28, 1999, ITA opposed the conditions suggested by Nextel.Jn( xPL ' xV ԍLetter from Mark E. Crosby, President/CEO, ITA to Magalie R. Salas, Secretary, FCC, dated June 28, 1999  zP '(June 28th Ex Parte). ITA contends that,  xcontrary to Nextel's assertions, the transactions will not benefit the private wireless industry, but will  xbenefit only Nextel. Specifically, ITA avers that a grant of the waivers with the conditions suggested by  x&Nextel will permit Nextel to aggregate spectrum that has been allocated, not for commercial use, but for  T 4 x&private wireless use a de facto reallocation under the guise of application assignments of authorization.7K Fn( zP'ԍId. at 1.7  xMITA rejects Nextel's argument concerning retuning incumbent B/ILT eligibles from the lower 230 SMR  xchannels to B/ILT channels because the situation of incumbent B/ILT eligibles on the lower 230 SMR  T 4 x3channels is not relevant to waiver requests concerning the upper 200 channels.7L n( zP"'ԍId. at 2.7 ITA further argues that  xlby retuning B/ILT eligibles from the lower 230 SMR channels at this point, Nextel appears to be  TZ4 ximplementing a business plan for the lower 230 channels before these channels have been auctioned.1MZj n( zPd'ԍId.1  xgITA maintains that Nextel should have to mold its plans around existing incumbents just like all the other  T 4 xprospective bidders will have to do.1N  n( zP'ԍId.1 ITA further declares that Nextel cannot use the execution of  xZ"master contracts," which amount to private contractual arrangements, as matters that somehow support  T4the public interest prong of the waiver standard.1O n( zP'ԍId.1  Tj4 e 19. ` ` On July 2, 1999, Boeing responded to Nextel's June 14th Ex Parte, by opposing the grant  xof the waiver requests on three grounds. First, Boeing reasserts that a rulemaking proceeding is the  xappropriate mechanism to consider Nextel's requests because the requests effectively change the  T4 xCommission's Rules.P n( xP%'ԍLetter from David Alan Nall, Counsel to Boeing, to Magalie R. Salas, Secretary, FCC dated July 2, 1999. Specifically, Boeing argues that "[r]ather than attempt to change the controlling" P,N(N(ZZ"  xrule in a rulemaking that would be open to many parties, Nextel has chosen the quiet expediency of the  T4waiver process, with its hitormiss ex parte exchanges and its elastic, 'let's make a deal' character."7Qn( zP@'ԍId. at 3.7  T4 e 20. ` ` Second, Boeing argues that the prohibition on SMR operations in the B/ILT channels  xpreserves access to spectrum for legitimate, eligible private users and should not be overturned for the  T:4 xconvenience of individual parties.9R:Zn( zP4'ԍId. at 12.9 Boeing maintains that the parties to these transactions wish to convert  T4 xga public resource (spectrum that could be equally useful to other private radio licensees) to private gain.7Sn( zP 'ԍId. at 3.7  xBoeing strongly contends that the larger public interest is served by preserving the availability of already  x greatly diminished spectrum for qualified private users. Moreover, Boeing avers that the "two for one"  xZproposal merely standardizes the rate of drain of private radio spectrum into commercial use (by Nextel)  Tr4 xand is counter not only to the plain language of the rule, but to the public policy that generated the  TJ 4language.7TJ ~n( zPh'ԍId. at 4.7  T 4 e 21. ` ` Third, Boeing argues that Nextel has not satisfied the waiver standard.7U n( zP'ԍId. at 2.7 Boeing states  T 4 xthat Nextel has not articulated unique circumstances that would justify a waiver.1V n( zP'ԍId.1 Finally, Boeing notes  x3that a waiver is not necessary for Nextel to relocate private incumbents from various other categories to  T 4 xB/ILT channels if these B/ILT channels are never "integrated into Nextel's network" because the  x Commission's Rules prohibit the operation of SMR systems in B/ILT channels, not assignment of these  T24channels from eligible B/ILT users to other eligible users.7W24 n( zP'ԍId. at 4.7   S4 HIII. DISCUSSION ׃  T4 e 22.` ` The Commission's Rules allow for waiver of specific rule requirements upon certain  Tj4 x/showings.hXj n( xP 'ԍFormerly 47 C.F.R.  90.151 (1998), now 47 C.F.R.  1.925.h Section 1.925 of the Commission's Rules permits a rule waiver if the underlying purpose  xpof the rule(s) would not be served or would be frustrated by application to the instant case, and that a  T4 xgrant of the requested waiver would be in the public interest.IYV n( xP$'ԍ47 C.F.R.  1.925(a)(3).I Alternatively, an applicant's request for  x&waiver may also be granted if in view of the unique or unusual factual circumstances of the instant case,  T4 x}application of the rules would be inequitable, unduly burdensome or contrary to the public interest, or" Y,N(N(ZZe"  T4 xthe applicant has no reasonable alternative.1Zn( zPh'ԍId.1 Additionally, section 1.3 of the Commission's Rules  T4provides authority for a rule waiver upon a showing of good cause.A[Zn( xP'ԍ47 C.F.R.  1.3.A  T4 e  23.` ` Section 90.617(c) of the Commission's Rules lists the channels available for Business  T`4 xapplicants in the 800 MHz band.K\`n( zP'ԍSee 47 C.F.R.  90.617(c).K Additionally, this section states that SMR systems will not be  T84 xauthorized on these frequencies.1]8|n( zPT 'ԍId.1 Section 90.619(b) of the Commission's Rules governs the frequency  T4 x+assignment of 800 MHz channels in the United States/Canadian border area.Y^n( zP 'ԍSee 47 C.F.R.  90.619(b)(7)(iii).Y Similarly, section  x890.619(b)(7)(iii) of the Commission's Rules does not permit the authorization of SMR systems on  T4 xBusiness and I/LT channels.2_n( zP'ԍId. 2 The waivers sought by Nextel would enable it, inter alia, to use Business  T4spectrum to relocate PLMRS and CMRS operators.C`2 n( zPl'ԍSee paras. 69 above.C  TJ 4 e 24.` ` Based on our review of the record in this proceeding we find that Nextel seeks broad  xlrelief to obtain a waiver of the Commission's intercategory sharing prohibition by SMR applicants.  xNextel identifies two distinct purposes for which it seeks this broad relief of the intercategry sharing prohibition relocation and incorporation into its SMR system.  T 4 e `25.` ` We agree that there are some public interest benefits associated with certain of Nextel's  xstated objectives in pursuing the subject waivers. In this connection, we note that several commenters  xstate that Nextel should be granted waivers to facilitate relocation of incumbents from the 800 MHz upper  T 4 x8200 channels.a  n( xPn' x_ ԍAuto Warehousing Comments at 45; Alan Hansel Comments at 34; ITA Comments at 46; Majestic Communications Comments at 4; Motorola, Inc. (Motorola) Comments at 3; Ray's Electronics Comments at 5. Motorola argues that the waivers should be granted where an upper 200 channel  xincumbent seeks to assign its frequencies to Nextel for other spectrum held by Nextel via this proposed  T4 xwaiver request.?bn( xPv!'ԍMotorola Comments at 3.? ITA endorses the waiver requests to the extent of accomplishing relocation of the upper  T4200 channel incumbents.<cn( xP#'ԍITA Comments at 46.<  TB4 e J26.` ` Based on the record before us, we conclude that a conditional waiver designed to facilitate  xgrelocation of 800 MHz SMR upper 200 channel incumbents would serve the public interest. We believe  xthat such waiver would further the Commission's goals in the 800 MHz SMR proceeding by promoting" <c,N(N(ZZ"  T4 xan efficient and effective transition to geographic area licensing.edn( zPh'ԍ800 MHz Report and Order, 11 FCC Rcd. at 1537  141.e We further note that some of these  x@upper 200 channel incumbents may be authorized for CMRS operations on their licensed frequencies to  xythe extent that they are sharing their frequencies on a forprofit basis with other entities. Absent a  x4waiver, they would not be permitted to provide CMRS on the subject frequencies. Given the  xCommission's desire to facilitate a smooth relocation process for such incumbents, we believe that a  x@waiver of section 90.179 of the Commission's Rules under these limited circumstances is warranted. We  x}believe that such a waiver serves the public interest because it facilitates efficient use of spectrum and  xcompliance with relocation rules. To the extent that Nextel's waiver requests are for purposes of  x@relocating 800 MHz SMR upper 200 channel incumbents who are authorized as CMRS, the waivers are  xgranted on the condition that Nextel provide information demonstrating that it has contractual agreements to relocate upper 200 incumbents to such frequencies.  T 4 e 27. ` ` With respect to Nextel's request for a waiver in order to incorporate PLMR frequencies  xMinto its CMRS system, we do not believe that grant of an unconditional waiver is warranted based on the  x@record before us. When the Commission adopted sections 90.617(c) and 90.619(b) of the Commission's  T 4 x@Rules, it sought to preserve PLMRS frequencies for use by those who meet the eligibility criteria.Se Zn( xP'ԍ47 C.F.R.  90.617(c) and 90.619(b).S The  xlintercategory sharing freeze was imposed to halt the influx of applications while the prohibition on  xintercategory sharing (codified in sections 90.617 and 90.619 of the Commission's Rules) was imposed  T04 xto stop the subsequent licensing of PLMRS spectrum for SMR operations.kf0n( zP'ԍ800 MHz Report and Order, 11 FCC Rcd. at 1537  141.k As a result, Commercial  T4 xSMR systems are expressly prohibited from operating on Business and I/LT channels.:g|n( zP$'ԍSee para. 6.: As explained  xabove, this measure was taken to avoid a potential scarcity of radio frequencies for PLMRS uses by  T4 xgstopping the then prevailing practice of incorporating Business and I/LT channels into CMRS systems.dhn( zPf'ԍ800 MHz Report and Order, 11 FCC Rcd. at 1537  141d  xThus, the substance of Nextel's request to use the subject PLMRS channels in its SMR system appears to be at odds with the underlying purpose of sections 90.617(c) and 90.619(b) of the Commission's Rules.  T4 e #28. ` ` We also note that the Land Mobile Communications Council (LMCC) has raised the issue  T4 xlof PLMRS spectrum availability in a pending petition for rulemaking.in( zP0 ' xR ԍAn Allocation of Spectrum for the Private Mobile Radio Services, Petition for Rulemaking, filed by Land Mobile Communications Council (Apr. 22, 1998). In its rulemaking petition  xVLMCC contends that a spectrum shortage crisis emerged in the PLMRS industry because the current  T4 xspectrum allocation environment promotes the development of CMRS at the expense of PLMRS.7j n( zP:$'ԍId. at 7.7 " j,N(N(ZZ"  xMRFAC, ARINC and ITA also point to the diminished spectrum available to PLMRS eligibles for PMRS  T4use and urge protection from further encroachment by CMRS users.Bkn( xP@' x ԍMRFAC Comments at 6 (These channels are increasingly in scarce supply . . . ); ARINC, Inc. Comments  x at 2 (The need for private spectrum is greater today than before . . . ); ITA Comments at 6 (. . . the spectrum  x shortage currently suffered by private wireless users in this dwindling private wireless area could (and would)  zP' x become further problematic). See also API Comments at 23; Boeing Comments at 2 and 6; SBT Comments at 2; UTC Comments at 2.B  T4 e 29. ` ` We note that Nextel, along with other commenters, argues that grant of the requested  T`4 xVwaiver would not undermine the Commission's Rules because the actual PLMRS frequencies available  T:4 xfor authorization would not be affected.l :zn( xPT ' x ԍNextel Comments at 9; Majestic, Inc. Comments at 45; EDW Levy & Co. Comments at 5; Yellow Freight,  x Inc. Comments at 56; Ad Hoc Committee Comments at 3; Pfieffer Electronics Corp. Comments at 2; VASU  x Comments at 56; Sound Systems, Inc. at 5; Waste Management, Inc. Comments at 5; TJ Communications Comments at 2; American Mobile Telecommunications, Inc. Comments at 56. In describing available frequencies, Nextel asserts that there  xis no net change in the frequencies that are available for authorization because the subject spectrum is  T4 xcurrently licensed and therefore "unavailable" to other entities.Cmb n( xP'ԍNextel Comments at 9.C MRFAC, along with other commenters,  T4 xpdisagree with Nextel's assessment.An n( zPV'ԍSee supra note 107.A They argue that the subject spectrum should become part of the  T4spectrum pool if the licensee fails to renew or otherwise loses its authorization.7o n( zP'ԍId.7  TL 4 e m30. ` ` Because we find that it is in the public interest to facilitate the relocation of incumbents  xfrom the upper 200 channels, we will partially grant Nextel's request to immediately use the channels in  xits SMR network until it relocates an incumbent to the channels as long as the channels are used  x predominantly (at least seventyfive percent of the channels involved in the pending waivers) to relocate  xupper 200 incumbents. Consequently, the remaining twentyfive percent of the channels could be used  xin Nextel's SMR network. To avail itself of this conditional waiver grant, Nextel and the respective  T\4 x parties to the transactions must, within sixty days of the release of this Order: (1) certify that the ultimate  xlicensee will be an upper 200 incumbent (the certification should include a brief description of facts  xsupporting the claimed status); (2) identify which of the fiftyfour applications will be used for complete  xrelocation of upper 200 incumbents or predominant relocation of upper 200 incumbents with some  xincorporation into Nextel's SMR network, and which do not meet the relocation conditions; and (3)  xZamend or withdraw the applications in accordance with the certifications and identifications in (1) and (2) above.  T4 e 31. ` ` We decline to address the specific issues raised by the parties with regards to Nextel's  T4 xrequest to incorporate Business channels into its SMR system without relocating incumbents to the  xychannels because we conclude that the practical effect of granting the waiver requests would be to  xMestablish a policy of general applicability regarding PLMR spectrum. It is axiomatic that the Commission"o,N(N(ZZ"  T4 x"must not eviscerate a rule by a waiver.;pZn( zPh' xl ԍSee Riverphone, 3 FCC Rcd. 4690, 4692  12 (1988); see generally WAIT Radio, 418 F.2d at 1159 (Waiver  x procedure "emphatically does not contemplate that an agency must or should tolerate evisceration of a rule by waivers.).; The Commission has been especially reluctant to grant a  xwaiver when to do so would "invite numerous other waiver requests which, if granted, would effectively  T4 x circumvent the Commission's rulemaking function."cqn( zP:'ԍVerilink Corp., 10 FCC Rcd. 8914, 8916  6 (1995).c Moreover, we do not believe that the conditions  xcproposed by Nextel on June 14, 1999 transforms the subject waiver requests into a matter presenting  xMunique or unusual circumstances rather than one raising significant questions about whether a new policy  xshould be established. We believe that a rulemaking is generally a better, fairer, and more effective  xZmethod of implementing a new industrywide policy than is the ad hoc and potentially uneven application  T4 xof conditions in isolated, proceedings affecting a single party.r|n( zP ' xA ԍSee Stockholders of Renaissance Communications Corp. and Tribune Co., 12 FCC Rcd. 11866, 1188788   zP '50 (1997) citing Community Television of Southern California v. Gottfried, 459 U.S. 498, 511 (1983). We further believe that supplementing  xRa rulemaking or other open proceeding would be a "better, fairer, and more effective method" of  T4 xZimplementing a new policy than would the granting of individual waivers.sn( zP'ԍSee Stockholders of Renaissance Communications Corp. and Tribune Co., 12 FCC Rcd. at 1188788  50. We believe these issues have  x4farreaching implications and should be addressed in a rulemaking proceeding instead of in an  xadjudication or waiver proceeding. Thus, we conclude that the most prudent course of action would be  T 4to proceed by rulemaking in this matter rather than by waiver.9t& j n( zP*' x} ԍSee Rulemaking to Amend Parts 1, 2, 21, and 25 of the Commission's Rules to Redesignate the 27.5 29.5  x GHz Frequency Band, to Reallocate the 29.5 30.0 Frequency Band, to Establish Rules and Policies for Local  zP' xI Multipoint Distribution Service and For Fixed Satellite Services, CC Docket No. 92197, Second Report and Order,  zP'Order on Reconsideration, and Fifth Notice of Proposed Rulemaking, 12 FCC Rcd. 12545, 12705  388 (1997).9  T 4 e 32. ` ` We note further that due to the statutory changes made in the 1997 Balanced Budget Act  x(1997 BBA), the Commission is reexamining licensing issues concerning private spectrum operations in  T 4 xthe 800 MHz band, as well as other bands.u" X n( xPx' x& ԍImplementation of Sections 309(j) and 337 of the Communications Act of 1934 as Amended, Promotion of  x Spectrum Efficient Technologies on Certain Part 90 Frequencies and Establishment of Public Service Radio Pool  zP' x in the Private Mobile Frequencies Below 800 MHz, Notice of Proposed Rulemaking, FCC 9952, WT Docket No. 9987, 64 Fed. Reg. 23571 (1999). In light of the open 1997 BBA proceeding, we believe it  x_would be especially problematic to grant the broad waiver sought by Nextel to incorporate PLMR  x<spectrum into its CMRS system at this time. Nextel's proposals, particularly as modified by the types  xof conditions it proposed with recent ex parte submissions, may well have some merit. Nevertheless such  xan approach would represent a change in policy with significant farreaching implications in both the  xICMRS and PMRS industries. Thus, we agree with PCIA and Boeing that a rulemaking proceeding is  xthe appropriate forum to address these issues. Accordingly, we are incorporating the record of this  Th4 xproceeding into the 1997 BBA proceeding and, by Public Notice released simultaneously with the release"hBu,N(N(ZZ"  T4 x"of this Order, we are inviting parties to supplement this record by addressing the issue further in their  T4comments filed in the 1997 BBA docket.vn( zPB' x ԍBBA Supplemental PN. See Appendix C for a listing of the commenters, reply comments and ex partes filed in this waiver proceeding.  T4 e \ 33.` ` Finally, we note that Nextel contends that another licensee, Southern Company, has  xreceived the relief it is requesting without waiver through applications filed since April 1995.  T:4 xSpecifically, Nextel alleges that even though the Bureau's intercategory freeze and then the Commission  T4 xlprohibition on intercategory sharing were in effect, the Bureau's application processing branches_w"n( zP 'ԍSee e.g. Licensing and Technical Analysis Branch._  xZpermitted the Southern Company to obtain and convert over 400 Business and I/LT channels to CMRS  T4 xuse. xn( xP ' x ԍNextel Comments at 89 (Nextel alleges that since the April 1995 intercategory sharing freeze, the Southern Company has obtained over 400 Business/ILT licenses for use in its commercial widearea SMR system . . . ).  Thus, Nextel requests the same accommodation so that it can respond to market demands and  T4 xsatisfy the requirements of the upper 200 channel incumbents.1y n( zPF'ԍId.1 We agree with Boeing, and ITA that  xSMR applicants are no longer able to obtain Business or I/LT channels in the 800 MHz band for CMRS  TJ 4 xoperationsFzJ n( zP'ԍSee paras. 12, 20.F because the Commission eliminated intercategory sharing for SMR applicants in 1995 and  xaffirmed its decision in 1997. In the context of our review of Nextel's allegations against the Southern  xCompany, however, we have reviewed a sampling of the licensing actions Nextel cites and have found  xno specific instances of the issuance of licenses to the Southern Company in violation of the  T 4Commission's prohibition on intercategory sharing by SMR applicants.{ 0 n( xPz' x ԍSpecifically, in the sampling of cases we reviewed, it appears that Southern properly received its channels  x+ as a result of applying for the licenses before the imposition of the intercategory freeze, obtaining extended  x implementation authority for its digital network and building out its SMR system without increasing its geographic  xc footprint. Nextel has presented no specific examples of a case in which the licensing branches granted Southern  x8 a license for which a waiver of the intercategory sharing prohibition was necessary in order to obtain B/ILT channels for SMR use.  TZ4 e !34.` ` In addition, we note that even if we were to learn of licensing actions which were  xVinconsistent with the Commission's Rules or its stated policies, the appropriate course of action would  x@be to consider whether we should take some action with respect to the affected license or licensee rather  xthan have the Bureau continue to misapply Commission Rules and policy. The Commission clearly stated  xits policy with regards to intercategory sharing by SMR applicants in 1995 and again in 1997. A  x3fundamental change to this policy could only be countenanced by the Commission; and, to date, no such  Tj4change has been made.~|&jn( zP$' x ԍSee Jelks v. FCC, 146 F.3d 878, 881 (1998) (a subordinate body like the Division cannot alter a policy set  zP|%' x by the Commission itself), cert. den. 119 S.Ct 1045 (1999); Amor Family Broadcasting Group, v. FCC, 918 F.2d  x 960, 962 (D.C. Cir. 1990) (even if internal inconsistency at a subordinate level were shown, the Commission itself  zP'' x would not be acting inconsistently) citing Homemakers North Shore, Inc. v. Bowen, 832 F.2d 408, 413 (7th Cir."'{,N(N(&"  zP' x 1987); Continental Cellular, 6 FCC Rcd. 6834, 6836, n.25 (1991) (The Commission is not bound to apply a  xPZ'decision issued on delegated authority that is contrary to the Commission's Rules). ~"j"|,N(N(ZZ"Ԍ S4 ÙCIV. CONCLUSION א\  T4 e i"35.` ` We conditionally grant Nextel's waiver requests in two instances: First, in all cases in  xwhich the channels will be used for relocation of upper 200 channel incumbents who are eligible to  x@operate on these channels. Second, we will grant the waiver requests, subject to certain conditions, when  x"Nextel certifies that the channels will be used predominantly for the relocation of upper 200 channel  xincumbents as discussed herein. We conclude that relocating upper 200 channel, Business and I/LT  xlicensees to PLMRS spectrum does not undermine the Commission's Rules prohibiting the licensing of  x8SMR systems on these channels. Further, a conditional grant serves the public interest because it  xfacilitates relocation of the upper 200 channel incumbents and supports conversion from sitebysite licensing to geographic area licensing.  T 4 e O#36. ` ` However, to the extent that Nextel is seeking waivers from the Commission's Rules  xcprincipally for the purpose of expanding its CMRS system by incorporating PLMRS spectrum into its  x commercial SMR operation, those waiver requests are denied. At this juncture, we believe that allowing  xsuch use of PLMRS spectrum in a CMRS system would undermine the Commission's Rules prohibiting  xthe licensing of SMR systems on these channels and would foster encroachment on PLMRS spectrum by  x&CMRS users. However, in light of the policy ramifications at issue, supplemental comment on this issue  T04 x"is being requested in a Public Notice released simultaneously with the release of this Order, which will be made a part of the record in the pending rulemaking on implementation of the Balanced Budget Act.  T4+ V. ORDERING CLAUSE  S ă  Tk4 e 5$37.` ` IT IS ORDERED pursuant to section 4(i) of the Communications Act of 1934, as  xRamended, 47 U.S.C.  154(i) and Section 1.925 of the Commission's Rules, 47 C.F.R.  1.925, the  xMRequests for Waiver filed by Nextel Communications, Inc. between July 10, 1998 and October 13, 1998  T4 xas listed in the Append ices A and B, ARE CONDITIONALLY GRANTED to the extent provided herein and for all other respects DENIED.  T{4 e %38. ` ` This action is taken pursuant to Sections 0.131 and 0.331 of the Commission's Rules, 47 C.F.R.  0.131, 0.331. ` `  hhCqFEDERAL COMMUNICATIONS COMMISSION ` `  hhCq ` `  hhCqKathleen O'Brien Ham  T 4` `  hhCqDeputy Chief, Wireless Telecommunications Bureau "!"|,N(N(ZZ "  T4X APPENDIX A ă  S4 APPLICATIONS PLACED ON PUBLIC NOTICE (DA 982206) ă T ddx !ddxa( ( ( T  X  <   S 4 CALL SIGN/  S4FILE NUMBER <  T 4S TRANSFEROR ă<  T 4 TRANSFEREE ăX  a <  WNVX216R Consolidated Portable Sanitation, Inc./Waste Management, Inc. Nextel of California, Inc. 8  "  WPCZ323) R Yellow Freight, Inc.) R Nextel License Holdings4, Inc.8 8  ""  WPHX888a R William T. Gerrarda R Nextel License Holdings1, Inc.8 8   ""  D111126R AWC Port Services, Inc.R Nextel License Holdings4, Inc.8 8 9  ""  D111127R Matthew Ruckers LTDR Nextel License Holdings4, Inc.8 8 q ""  D111451 R SJR Leasing, Inc. R Nextel License Holdings4, Inc.8 8  ""  D111452AR Radio Link CommunicationsAR Nextel License Holdings4, Inc.8 8  ""  D111453yR Morning JournalyR Nextel License Holdings4, Inc.8 8  ""  D111454R Michael VasuR Nextel License Holdings4, Inc.8 8 Q ""  D111455R Rob T. MillerR Nextel License Holdings4, Inc.8 8  ""  D111456!R Radio Link Communications!R Nextel License Holdings4, Inc.8 8  ""  D111457Y R Morning JournalY R Nextel License Holdings4, Inc.8 8  ""  D111619"R Efficient Sanitation, Inc."R Nextel License Holdings4, Inc.8 8 1! ""  D111620$R  T#4Waste  &*I1   &*I1 Management&*I1 , Inc.$R Nextel License Holdings4, Inc.8 8 i# ""  D111999'R A Auto Sales, Inc.'R Nextel License Holdings4, Inc."'|,N(N(ZZz%($"8 8 % ""  D112401`R Billy Orgel`R Nextel License Holdings1, Inc.8 8  ""  D112405R Barry FranklinR Nextel License Holdings1, Inc.8 8 8 ""  D113016R Federal Express CorporationR Nextel License Holdings4, Inc.8 8 p ""  D113017R Federal Express CorporationR Nextel License Holdings4, Inc.8 `  "R  D113139@ R Federal Express Corporation@ R Nextel of New York, Inc.` 8  R"  D113140 R Theut Concrete Products R Nextel License Holdings4, Inc.8 8 @  ""  D113231 R General Electric Radio Services Corporation" Nextel License Holdings4, Inc.8 8 x  D113232R General Electric Radio Services Corporation" Nextel License Holdings4, Inc.8 8  D113759HR Nextel Communications of the MidAtlantic, Inc. " Nextel Communications of the MidAtlantic, Inc.8 H  "  D113775 D114001 D114002 D1140032 Nextel of New York, Inc. Nextel of New York, Inc. Nextel of New York, Inc. Nextel of New York, Inc.2 Nextel License Holdings4, Inc. Nextel License Holdings4, Inc. Nextel License Holdings4, Inc. Nextel License Holdings4, Inc.H 8   "  D114006R Waste Management of North America, Inc." Nextel of California, Inc.8 8 h ""  D115400R Federal Express CorporationR Nextel License Holdings4, Inc.8 8  ""  D1157018 R Radio Link Communications8 R Nextel License Holdings4, Inc.8 8  ""  D116182p"R Servicar of Michigan, Inc.p"R Nextel License Holdings4, Inc.8 ` ! "R  D116734$R Nextel of New York, Inc.$R Nextel of New York, Inc.` ` H# RR  D116735&R Nextel of New York, Inc.&R Nextel of New York, Inc.` ` $ RR  D116760h'R Nextel of New York, Inc.h'R Nextel of New York, Inc."&|,N(N(ZZ%$"` ` & RR  D116761`R Nextel of New York, Inc.`R Nextel of New York, Inc.` `  RR  D116762R Nextel of New York, Inc.R Nextel of New York, Inc.` ` ` RR  D116763 R Nextel of New York, Inc. R Nextel of New York, Inc.` `  RR  D116764R Nextel of New York, Inc.R Nextel of New York, Inc.` `   RR   T4D116786 R Nextel of New York, Inc.R Nextel of New York, Inc.` `  D116787@R Nextel of New York, Inc.@R Nextel of New York, Inc.` `  D116788 R Nextel of New York, Inc. R Nextel of New York, Inc.` ` @ D116868 R Nextel of New York, Inc. R Nextel of New York, Inc.` `   D116869` R Nextel of New York, Inc.` R Nextel of New York, Inc.` `   D116870 R Nextel of New York, Inc. R Nextel of New York, Inc.` h  `  RI  D120755Py Independence Excavating, Inc.Py Nextel License Holdings4, Inc.h  + I "|,N(N(ZZM4 "  T4X\(#X APPENDIX B  S4$ APPLICATIONS PENDING AS OF DATE OF ORDER ă T !ddxa( ( ( Addxa( ( ( T h  X   <   S 4 CALL SIGN / FILE  S4NUMBER <  S 4 STRANSFEROR ă<  S 4 TRANSFEREE ăX X a <<  WNJA3619l Federal Express Corporation9l Nextel License Holdings4, Inc.X `  <R  D117385q R Nextel of New York, Inc.q R Nextel of New York, Inc.` `  D117386 R Nextel of New York, Inc. R Nextel of New York, Inc.` ` q  D1173871 R Nextel of New York, Inc.1 R Nextel of New York, Inc.` `   D117388 R Nextel of New York, Inc. R Nextel of New York, Inc.` ` 1  D117389R Nextel of New York, Inc.R Nextel of New York, Inc.`     Ry  D126339y Nextel of New York, Inc.y Nextel of New York, Inc.  y"|,N(N(ZZR"  S4 X APPENDIX C  S4  T4COMMENTS , REPLY COMMENTS AND EX PARTE PRESENTATIONS \  Ta4COMMENTS Ad Hoc 800 MHz Licensees' Committee Aeronautical Radio Inc. (ARINC) American Mobile Telecommunications, Inc. American Petroleum Institute Auto Warehousing Company  Tq4The Boeing Company EDW. C. Levy Co. Alan Hansel Industrial Telecommunications Associations (ITA)  T 4MRFAC, Inc. Majestic Communications  T 4Mobex Communications, Inc. Motorola, Inc. Nextel Communications, Inc.  T 4Personal Communications Industry Association, Inc. (PCIA) Pfieffer Electronics Corp. Radio Link Communications Ray's Electronics Repeater Communications Corp. Saga Communication, Inc. Small Business in Telecommunications Sound Systems, Inc. Joyce Syverson TJ Communications  Ty4UTC, The Telecommunications Association VASU Systems Waste Management, Inc. Yellow Services, Inc.  T4REPLY COMMENTS Ad Hoc 800 MHz Licensees' Committee American Mobile Telecommunications, Inc. Auto Warehousing Company Chadmore Wireless Group ITA  T!4MRFAC, Inc. Majestic Communications Pfieffer Electronics Corp. Ray's Electronics Repeater Communications Corp. Sound System, Inc. TJ Communications"&|,N(N(ZZ`%R"ԌYellow Services, Inc. Waste Management, Inc.  T4EX PARTE PRESENTATIONS  T`4The Boeing Company hhCJuly 2, 1999  T84ITA` `  hhCJune 28, 1999  T4Nextel Communications, Inc.hhCJune 14, 1999  T4MFRAC, Inc.` `  hhCMay 26, 1999  T4Equistar Chemicals, LPhhCMay 20, 1999  T4ITA` `  hhCMay 17, 1999  Tp4Nextel Communications, Inc.hhCApril 30, 1999  TH 4Nextel Communications, Inc.hhCApril 15, 1999  T 4Nextel Communications, Inc.hhCMarch 23, 1999  T 4Nextel Communications, Inc.hhCMarch 18, 1999