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(1) (a) (i) 1) a)dK+b70t _5xŗ+tq12 2FKK?^102_5(_>7Default Paragraph Font5dK+b70t _5xŗ+tw3w4#PP##PP#"i~'^09FSS999Sq+9+/SSSSSSSSSS99qqqSggnxggxx9In]nxgxgS]xgg]]?/?FS9SSISI/SS//I/xSSSS??/SInII?C/CZ9+ZF999+999999S9S/gSgSgSgSgSnnIgIgIgIgI9/9/9/9/nSxSxSxSxSxSxSxSxS]IgSxSxSxS]IxSgSgSgSgSnInInZnIxdgIgIgIgIxSxSxSxZxSxZxS9/9S999SSZZnI]/]<]9]5]/nSanSnSxSxSng?g?g?S?S?S?ZZ]<]/]FxSxSxSxSxSxSn]Z]?]?]?xS]9nSS?]9]Sd+SS8%8WuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuddddddddddddddddddddddddddddddddddddddddN\4  pG;(7jC:,ynXj\  P6G;XP)7nC:,d6Nhez7H?RdW,d\  P6G;Pz-X80,S|X9 xOG;2 t K",^WfxfffNfNTTTfrfTfffTTTfrT<fNfffNfffffffTfTfTfTfTfTffffTxffTfffrrr~TfrfNd6dWxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxxNllf T`Z`Zff,gg,&,l,l,f,Z",,,&,"i~'^0?]SS999S]+9+/SSSSSSSSSS99]]]Snnnxnnx?Sngxxgxn]gxnngg9/9]S9SSISI9S]//S/]SSS??/]InSI?9%9]9+]]999+999999S9S/nSnSnSnSnSxnInInInInI?/?/?/?/x]xSxSxSxSx]x]x]x]gInSxSxSxSgIxSgSnSnSnSnInIn]nIx{nInInInIxSxSxSx]xS]]?/?S?9?S]]]nSg/gWg9g?g/x]ux]x]xSxSxn?n?n?]?]?]?]]gZg/g]x]x]x]x]x]x]ng]g?g?g?xSg9x]]?g9gS{+SS8/8WuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuddddddddddddddddddddddddddddddddddddddddN-School District 267 Petition for Waiver (filed July 8, 1998) (District 267 Petition). have submitted petitions for waiver of the designations  X-of their districts as urban under section 54.505(b)(3) of the Commission's rules.| {O-ԍ 47 C.F.R.  54.505(b)(3). See also 47 C.F.R.  54.5 (defining "rural area" for purposes of universal service support). The designation of a school or library as urban or rural partially determines the universal service  X-discount for which it is eligible.bp | {O-ԍ See 47 U.S.C.  54.505(b)(3) and 54.505(c).b In this Order, we conclude that the seven school districts have not demonstrated good cause to justify a waiver. Accordingly, we deny each of the  X-seven petitions.#X\  P6G;ɒP##Xj\  P6G;ynXP##Xj\  P6G;ynXP# #Xj\  P6G;ynXP#  Xh-II. xBACKGROUND  X:-x 2.` ` The Communications Act of 1934, as amended ("the Act" ), requires the  X#- Commission, with respect to interstate services, and the states, with respect to intrastate services, to establish a discount on designated services provided to eligible schools and"  0*((PP|"  X-libraries.F yOy-ԍ 47 U.S.C.  254(h)(1)(B).F Section 254(h)(1)(B) provides that the discount must be an amount that is "appropriate and necessary to ensure affordable access to and use of " the services designated  X-eligible for support.FX yO-ԍ 47 U.S.C.  254(h)(1)(B).F Moreover, the Act requires that the discount take into account the principles set forth in section 254(b)(5) and mandated in section 254(d) that the federal  X-universal service support mechanisms be "specific, predictable, and sufficient."R yO= -ԍ 47 U.S.C.  254(b)(5) and 254(d).R  Xv- x 3.` ` In the Universal Service Order, the Commission adopted the recommendation of the FederalState Joint Board on Universal Service (Joint Board) that all eligible schools and libraries should receive discounts of between 20 percent and 90 percent on all eligible  X3-services.[ 3x {O\-ԍ Federal-State Joint Board on Universal Service, CC Docket No. 96-45, Report and Order, 12 FCC Rcd  {O&-8776, 9035 (1997), as corrected by Federal-State Joint Board on Universal Service, Errata, CC Docket No.  {O-96-45, FCC 97-157 (rel. June 4, 1997), appeal pending in Texas Office of Public Utility Counsel v. FCC and  {O-USA, No. 97-60421 (5th Cir. 1997); Federal-State Joint Board on Universal Service, Order on Reconsideration, CC Docket No. 96-45, 12 FCC Rcd 10095 (rel. July 10, 1997); Changes to the Board of Directors of the National Exchange Carrier Association Inc., Federal-State Joint Board on Universal Service, CC Docket Nos.  {O-97-21, 96-45, Report and Order and Second Order on Reconsideration, 12 FCC Rcd 18400 (1997), as corrected by Federal-State Joint Board on Universal Service, Errata, CC Docket No. 96-45, DA 97-2477 (rel. Dec. 3, 1997); Changes to the Board of Directors of the National Exchange Carrier Association Inc., Federal-State Joint  {On-Board on Universal Service, CC Docket Nos. 97-21, 96-45, Order on Reconsideration, Second Report and Order  {O8-and Further Notice of Proposed Rulemaking, 12 FCC Rcd 12444 (1997); Federal-State Joint Board on Universal  {O-Service, CC Docket Nos. 96-45, 97-160, Third Report and Order, 12 FCC Rcd 22485 (1997), as corrected by  {O-Federal-State Joint Board on Universal Service, Erratum, CC Docket Nos. 96-45 and 97-160 (rel. Oct. 15, 1997); Changes to the Board of Directors of the National Exchange Carrier Association, Inc., Federal-State Joint Board  {O^-on Universal Service, CC Docket No. 97-21, Report and Order and Second Order on Reconsideration in CC  {O(-Docket 97-21, 12 FCC Rcd 22423 (1997); Federal-State Joint Board on Universal Service, CC Docket No. 96-24,  {O-Third Order on Reconsideration, 12 FCC Rcd 22801 (1997); Federal-State Joint Board on Universal Service, Access Charge Reform, Price Cap Performance Review for Local Exchange Carriers, Transport Rate Structure  {O-and Pricing, End User Common Line Charge, CC Docket Nos. 96-45, 96-262, 94-1, 91-213, 95-72, Fourth  {ON-Order on Reconsideration, 13 FCC Rcd 5318 (1997), as corrected by Federal-State Joint Board on Universal  {O-Service, Errata, CC Docket Nos. 96-45, 96-262, 94-1, 91-213, 95-72, DA 98-158 (rel. Jan 29, 1998), appeal  {O-pending in Alenco Communications, Inc., et al. v. FCC and USA, No. 98-60213 (5th Cir. 1998); Federal-State  {O -Joint Board on Universal Service, Fifth Order on Reconsideration and Fourth Report and Order in CC Docket  {Ov!-No. 96-45, FCC 98-120 (rel. June 22, 1998); Federal-State Joint Board on Universal Service, Order and Order  {O@"-on Reconsideration, CC Docket No. 96-45, FCC 98-160 (rel. July 17, 1998).  See also 47 U.S.C.  54.505(c).[ As is illustrated in the discount matrix reproduced in Appendix A, the level of discount is determined primarily by level of economic disadvantage, with some schools and libraries receiving an additional incremental discount by virtue of location in a rural area. The Commission directed the administrator to classify schools and libraries as urban or rural in accordance with definitions adopted by the Department of Health and Human Services'" 0*''PP "  X-Office of Rural Health Policy (ORHP/HHS).R {Oy-ԍ See 47 C.F.R.  54.505(b)(3). R ORHP/HHS uses the Office of Management and Budget's (OMB) Metropolitan Statistical Area (MSA) designation of metropolitan and nonmetropolitan counties (or county equivalents), adjusted by the most currently available  X-Goldsmith Modification, which identifies rural areas within large metropolitan counties. Z {O-ԍ Universal Service Order, 12 FCC Rcd at 9042, para. 504. See also 47 U.S.C.  54.505(b)(3). The Commission adopted this approach because it represented the least administratively burdensome approach for schools and libraries to determine eligibility for the additional incremental discount and because it was consistent with the approach adopted with respect to  X_-health care in the Universal Service Order.k _ {O -ԍ Universal Service Order, 12 FCC Rcd at 904243, para. 505..k  X3-x4.` ` Seven school districts, one located in Kansas and the remainder located in Maine, filed petitions for waiver based on the urban designation assigned to their districts under Commission rules and asked that their districts be classified as rural for purposes of  X -receiving universal service support.)  ~ {O-ԍ See River Valley Petition; District No. 6 Petition; Old Orchard Beach Petition; Long Island Petition;  {O-School Union 87 Petition; District No. 60 Petition; and District 267 Petition.) On February 13, 1998, the Common Carrier Bureau  X -(Bureau) released a Public Notice seeking comment on four of those petitions. $  {Ob-ԍ Four School Districts in Maine Seek Waiver of UrbanRural Designation, CC Docket No. 9645, Public  {O,-Notice, DA 98291 (rel. Feb. 13, 1998). Three additional school districts subsequently filed similar petitions. Parties had an opportunity to comment on those petitions pursuant to section 1.45 of the Commission's rules. 47 C.F.R.  1.45. No comments were received in response to the Public Notice.  X -  X-III. xPOSITION OF PARTIES  Xd-x5.` ` The River Valley School District of Turner, Maine contends that it should be granted a waiver of its urban designation because the towns of Greene and Turner are small  X6-rural communities, with separate government structures and school systems#X\  P6G;ɒP#. 6 S {O-Ѝ River Valley Petition at 1. #Xj\  P6G;ynXP##X\  P6G;ɒP#Ī#Xj\  P6G;ynXP#  X-x6.` ` Maine School Administrative District No. 6 of Bar Mills, Maine contends that the four towns of Buxton, Hollis, Limington, and Standish should be granted a waiver of their  X-urban designation because of their small size and low population.#Xj\  P6G;ynXP# The District further asserts that the towns have no industrial base, public transportation system, public water, or"X 0*''PP" municipal sewerage. In addition, the towns "depend on county sheriffs for public safety,"  X-have only a "small municipal police force," and have allvolunteer fire departments. {Ob-Ѝ #Xj\  P6G;ynXP##X\  P6G;ɒP#District No. 6 Petition at 1. #Xj\  P6G;ynXP#  X-x7.` ` The Old Orchard Beach School Department of Old Orchard Beach, Maine contends that it should be granted a waiver of its urban designation because it is "a small  X-coastal community of 7,500 people" and it is "not tied to any major metropolitan area."#X\  P6G;ɒP#  Xv-#Xj\  P6G;ynXP#Moreover, Old Orchard Beach states that the fact that it requires a toll call to telephone  X_-Portland, the largest metropolitan area in Maine, further supports the district's "rural" status.#X\  P6G;ɒP#_ZS {OI -ԍ #Xj\  P6G;ynXP##X\  P6G;ɒP#Old Orchard Beach Petition at 1.#Xj\  P6G;ynXP##Xj\  P6G;ynXP#  X1-x8.` ` The Long Island School District and the Long Island Community Library, both of Long Island, Maine contend that they should be granted a waiver of the urban designation  X -of their town#X\  P6G;ɒP##Xj\  P6G;ynXP# because the island community has less than 200 year round citizens, no  X -established yearround business, and the island is quite small (three miles by one mile).#X\  P6G;ɒP##Xj\  P6G;ynXP# The city of Portland is an hour away by ferry and, although the city does have a wellequipped  X -library, it is difficult to access because of a limited ferry schedule#X\  P6G;ɒP#. S {O:-ԍ #X\  P6G;ɒP# Long Island Petition at 1.#Xj\  P6G;ynXP#ј#Xj\  P6G;ynXP#  X-x9.` ` School Union 87 of Orono, Maine, contends that it should be granted a waiver  Xy-of its urban designation #X\  P6G;ɒP##Xj\  P6G;ynXP#because the town has a #Xj\  P6G;ynXP#population of 2,011, a single kindergarten through eighth grade school building with a population of 195, and a kindergarten through twelfth grade school population of 282. Moreover, School Union 87 asserts that, because the community is too small to support a high school, the town's secondary school students are sent to other area high schools. School Union 87 also contends that its community  X-government and municipal services are independent.#Xj\  P6G;ynXP##X\  P6G;ɒP#~S {O-ԍ #Xj\  P6G;ynXP##X\  P6G;ɒP# School Union 87 Petition at 1.#Xj\  P6G;ynXP##Xj\  P6G;ynXP#  X-x10.` ` Maine School Administrative District No. 60, of North Berwick, Maine asserts  X-that the town of Berwick should be granted a waiver of its urban designation #X\  P6G;ɒP##Xj\  P6G;ynXP#because #X\  P6G;ɒP##Xj\  P6G;ynXP#it is  X-"selfsufficient," having its own municipal government and services.#X\  P6G;ɒP##X\  P6G;ɒP# #Xj\  P6G;ynXP#Moreover, Berwick has a  X-population of 6,140 and occupies only 40 square miles.#X\  P6G;ɒP##Xj\  P6G;ynXP# The District contends that other cities within Maine having larger and more dense populations are classified as rural, and argue that  Xe-the designation of Berwick as urban is derived from its close proximity to Portland.#X\  P6G;ɒP#eS {O#-ԍ #Xj\  P6G;ynXP##X\  P6G;ɒP# District No. 60 Petition 12.#Xj\  P6G;ynXP##Xj\  P6G;ynXP#  X7-x11.` ` The Unified School District 267, representing the Renwick Public Schools of  X -Andale, Kansas, contends that it should be granted a waiver of its urban designation #X\  P6G;ɒP##Xj\  P6G;ynXP#because," 0*''PP>"  X-except for the fact that it is located in the same county as Wichita, #Xj\  P6G;ynXP#it meets the United States  X-Census Bureau's criteria for "ruralness."#X\  P6G;ɒP##Xj\  P6G;ynXP# District 267 also contends that its community meets the definition of "rural farm" because 50% of the households in Renwick have sold over  X-$1000 of agricultural products in 1989.#X\  P6G;ɒP##Xj\  P6G;ynXP# Moreover, District 267 cites its size and the distance between schools as additional factors supporting its petition, stating that the intent of a higher universal service discount for schools located in rural areas is to provide financial assistance to those areas where costs are greater because of the need to connect computers over long  X_-distances.#X\  P6G;ɒP#r_S {O-ԍ #X\  P6G;ɒP# District 267 Petition at 1.r  XH-#Xj\  P6G;ynXP#  X1-IV.xDISCUSSION   X -x12.` ` Generally, the Commission's rules may be waived for good cause shown.= Z yO-ԍ 47 C.F.R.  1.3.= As noted by the Court of Appeals for the D.C. Circuit, however, agency rules are presumed  X -valid, and "an applicant for waiver faces a high hurdle even at the starting gate."#X\  P6G;ɒP##Xj\  P6G;ynXP#  {Op-ԍ #X\  P6G;ɒP# WAIT Radio v. FCC, 418 F.2d 1153 (D.C. Cir. 1969), cert. denied, 409 U.S. 1027 (1972) (WAIT Radio). #Xj\  P6G;ynXP#The Commission may exercise its discretion to waive a rule where the particular facts make strict  X -compliance inconsistent with the public interest. | {O-ԍ Northeast Cellular Telephone Co. v. FCC, 897 F.2d 1164 (D.C. Cir. 1990) (Northeast Cellular ). In addition, the Commission may take into account considerations of hardship, equity, or more effective implementation of overall policy  Xy-on an individual basis.My {O8-ԍ WAIT Radio, 418 F.2d at 1157.M Waiver is, therefore, appropriate if special circumstances warrant a deviation from the general rule, and such deviation would better serve the public interest than  XK-strict adherence to the general rule.UK {O-ԍ Northeast Cellular, 897 F.2d at 1166.U#X\  P6G;ɒP##Xj\  P6G;ynXP# The test for whether the abovementioned petitioners may be granted a waiver, therefore, is whether they have shown such special circumstances that warrant deviation from the designations of their districts as urban. We conclude that each of the districts listed above has failed to make that showing.  X-x13.` ` The classification of a school or library as rural or urban under Commission rules is a twopart process. First, a school or library must determine whether it is located in a  X-metropolitan (urban) county, as defined by the MSA lists published by OMB.#X\  P6G;ɒP#"2 S {Ol#-ԍ #X\  P6G;ɒP# 47 C.F.R.  54.505(b)(3)(ii). See Universal Service Order, 12 FCC Rcd at 9114, para. 647 n. 1698 (stating that OMB, with assistance from the Bureau of Census, designates counties as metropolitan or nonmetropolitan in character based on the size of the largest urban aggregation in a county and patterns of commuting between counties).#Xj\  P6G;ynXP# Second, if it"0*''PPp" is located in a metropolitan county, a school or library may nevertheless be classified as rural if its location falls within one of the rural pockets within metropolitan counties identified by  X-the Goldsmith Modification list used by ORHP/HHS.#X\  P6G;ɒP#ZS {O*-ԍ #X\  P6G;ɒP#47 C.F.R.  54.505(b)(3)(ii). See Universal Service Order, 12 FCC Rcd at 9115, para. 647 n. 1700 (stating that the Goldsmith Modification identifies small town and opencountry parts of large metropolitan counties by census tract or blocknumbered area, as defined by the Bureau of Census).#Xj\  P6G;ynXP# The Commission found that adopting the MSA/Goldsmith Modification approach to classifying schools and libraries for purposes of the universal service support mechanism was consistent with the Joint Board's recommendation to make the method for determining the additional incremental discount "calibrate the cost of service in a `reasonable, practical, and minimally burdensome  X_-manner.'"_ {O -ԍ Universal Service Order, 12 FCC Rcd at 9042, para. 504 (citing FederalState Joint Board on Universal  {O -Service, CC Docket No. 9645, Recommended Decision, 12 FCC Rcd 87, 372 (1996)). A significant benefit of adopting the MSA/Goldsmith approach was to provide a clear and certain standard for determining whether an entity is rural. The petitioners have not challenged that method for classifying whether a school or library is rural.  X -x14.` ` Schools and libraries in the seven school districts will benefit from universal service support, regardless of whether their classification is urban or rural. Eligible schools and libraries in the seven school districts at issue are qualified for discounts, ranging from 20  X -percent to 90 percent, determined by economic need as well as location in a rural area.#Xj\  P6G;ynXP#mZ F {O-ԍ #X\  P6G;ɒP#See Universal Service Order, 12 FCC Rcd at 9050, para. 520 (adopting discount matrix showing discounts ranging from 20 to 90 percent fulfills statutory obligation to ensure schools and libraries receive supported services at rates less than those charged to other parties).m#X\  P6G;ɒP# #Xj\  P6G;ynXP# It is only the additional incremental discount that would be added if they were designated rural for which the schools and libraries in the seven school districts will not qualify. In fact, schools and libraries eligible for an 80 percent or 90 percent discount based on economic need will  Xb-receive that level of discount whether they are urban or rural.bh  {O{-ԍ See Universal Service Order, 12 FCC Rcd at 9050, para. 520. See also Appendix A. We conclude, therefore, that the seven petitions for waiver fail to meet the "good cause" standard because the petitioners have not demonstrated that, absent a waiver, the discount matrix will not provide discount  X-rates that are "specific, predictable and sufficient."M  {O-ԍ See 47 U.S.C.  254(b)(5).M The evidence submitted by the seven  X-school districts, including size of the population,;  {OC"-ԍ See River Valley Petition at 1; District No. 6 Petition at 1; Old Orchard Beach Petition at 1; Long Island  {O #-Petition at 1; School Union 87 Petition at 1; District No. 60 Petition at 1; District 267 Petition at 1.; physical size of the district or town,  {O$-ԍ See District No. 6 Petition at 1; Old Orchard Beach Petition at 1; Long Island Petition at 1; District No.  {Oi%-60 Petition at 1."D 0*''PP"  X-governmental structure,! {Oy-ԍ See District No. 6 Petition at 1; School Union 87 Petition at 1; District No. 60 Petition at 1; River Valley  {OC-Petition at 1. and fulfillment of other criteria for "ruralness"O"$ {O-ԍ See District 267 Petition at 1.O does not  X-demonstrate that a waiver of our rule is justified.#X\  P6G;ɒP# #Xj\  P6G;ynXP# #Xj\  P6G;ynXP#Accordingly, we find that the evidentiary showing presented by the seven school districts does not establish the "special circumstances" that would justify a waiver of the Commission's general rule.  X-x15.` ` We also note that the waiver standard is a difficult one to meet and, in situations such as those presented in the seven petitions, where we must maintain universal  X_-service support mechanisms that are "specific, predictable, and sufficient,"#X\  P6G;ɒP##_S yO -ԍ#X\  P6G;ɒP# 47 U.S.C  254(b)(5).#x6X@`7X@#ѐ#Xj\  P6G;ynXP# we must consider carefully the consequences of making exceptions to rules designed to provide predictability. The Commission set forth clear guidelines for determining whether, and to what extent,  X -schools and libraries are eligible for discounts.#X\  P6G;ɒP#$\ FS yO-ԍ #X\  P6G;ɒP# For example, the Commission adopted the discount matrix for determining the discount rate for which a  {O-school or library is eligible, based on two factors: economic need and location in a rural area. See Universal  {O-Service Order, 12 FCC Rcd at 9050, para. 520. #Xj\  P6G;ynXP# In considering these petitions for waiver, therefore, we must take into account the impact on universal service if other school districts in the United States requested similar relief for nonrural communities in their states that have rural characteristics. We conclude that granting the seven petitions for waiver would undermine the Commission's method for ensuring that universal service support mechanisms  X -are "specific, predictable and sufficient."#X\  P6G;ɒP#t% j S {O-ԍ#X\  P6G;ɒP# See 47 U.S.C.  254(b)(5). t#Xj\  P6G;ynXP#  Xy-x16.` ` It is THEREFORE ORDERED, pursuant to section 4(i) of the Communications Act of 1934, as amended, 47 U.S.C.  154(i) and sections 0.91, 0.291, and 1.3 of the Commission's rules, 47 C.F.R.  0.91, 0.291, and 1.3, that each of the abovelisted requests for waiver ARE DENIED. x` ` FEDERAL COMMUNICATIONS COMMISSION x x` ` Lisa M. Zaina x` ` Acting Deputy Chief, Common Carrier Bureau "| %0*''PP"  X-) APPENDIX A  X-YUNIVERSAL SERVICE DISCOUNT MATRIX FOR SCHOOLS AND LIBRARIES ă  X-l 12 FCC Rcd at 9050 ă Y ddx !ddx| 8# Y  c H "SCHOOLS AND LIBRARIES DISCOUNT MATRIX  H DISCOUNT LEVELc  H " HOW DISADVANTAGED?xh urban discount (%) rural discount (%) C  *YY "% of students eligible for national school lunch program I (estimated % of US schools in category) *  * C q   *hYY #  < 1] h  3] h"20] h""25q  q    hhYY #119h  31h"40h""50q  q  ]  hhYY #.2034?h  19?h"50?h""60q  q   hhYY #.3549h  15h"60h""70q  q  ? hhYY #.5074!h  16!h"80!h""80q     hYY #75100  16"90""90  ! sKx#\  P6G; dP#