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(1) (a) i) a)4 =(O4WGl *O4q Leventhal6@6wwLeventhal, Senter & Lerman Doc Style*O4ÿUVGl.EQ    #XN\  PXP#a1DAKBt*3  S'1.` ` a3DAK2r 9a4DAKDefault Paragraph FoDefault Paragraph Font11#XXz PQXP##Iz PQP#head1 #'d#2p}wC@ #toc 1toc 1` hp x (#!(#B!(#B` hp x (#2&Dbtoc 2toc 2` hp x (#` !(#B` !(#B` hp x (#toc 3toc 3` hp x (#` !(# ` !(# ` hp x (#toc 4toc 4` hp x (# !(#  !(# ` hp x (#toc 5toc 5` hp x (#h!(# h!(# ` hp x (#2vFdtoc 6toc 6` hp x (#!(#!(#` hp x (#toc 7toc 7 toc 8toc 8` hp x (#!(#!(#` hp x (#toc 9toc 9` hp x (#!(#B!(#B` hp x (#2vindex 1index 1` hp x (#` !(# ` !(# ` hp x (#index 2index 2` hp x (#` !(#B` !(#B` hp x (#toatoa` hp x (#!(# !(# ` hp x (#captioncaption 2l^"5Z_Equation Caption_Equation Caption <?xxx,ix6X@`7X@ 67wC8,ObXw5 P7XP2CJ,OX? p7XT2a=5,%&a\  P6G;&P U.y=D,V/&y? p7&VP:% ,%J:\  P6G;JP <R&HHH,>K,H6X@`7h@Wy.X80,%X\  P6G;P \X0_=5,5&_*f9 xr G;&X\Y{,W80,50W*f9 xr G;X?xxx,Lx `7XS2e=5,Y&e4  pG;&\Q9% ,5z*J9*f9 xr G;JX S'D9 S4 #&J\  P6Q&P#Federal Communications Commission DA 99 387 ĺbP#&a\  P6G;&P# Before the  Federal Communications Commission  S'\"2Washington, D.C. 20554 ă  S8'#&a\  P6G;&P#In Re Petition of hhC) ` `  hhC)  S'STAR Telecommunications, Inc.hhC)qppFile No. ISP98PDR36 X&g 6 ` `  hhC)  S'For Declaratory Ruling Regarding anhhC)  Sp'Alternative Accounting RatehhC)  SH 'Arrangement for Service between thehhC)  S 'United States and JapanhhC)  S 'I  DECLARATORY RULING AND ORDER ă  S ' Adopted: February 24, 1999  Released: February 26, 1999 By the Chief, Telecommunications Division:  S'1.` ` On August 6, 1998, STAR Telecommunications, Inc. ("STAR"), filed a Petition for Declaratory Ruling pursuant to 64.1002 of the Commission's Rules seeking a ruling that the alternative settlements arrangement it negotiated with International Digital Communications, Inc. ("IDC") for services between the United States and Japan is consistent with the public interest and,  S@'therefore, should be approved.sh@^ O4ԍ#X\  P6G;P#` ` STAR Telecommunications' Petition for Declaratory Ruling to Implement an Alternative ` ` Settlement Arrangement for International Switched Services with International Digital ` ` Communications, Inc., Japan, File No. ISP98PDR366 (filed August 6, 1998).s Specifically, STAR seeks approval of an agreement to pay IDC a basic settlement rate of less than 15 cents per minute, which is the benchmark rate for Japan under the  S'Benchmark Order,G^ O4ԍ#X\  P6G;P#` ` See International Settlement Rates, Report and Order, 12 FCC Rcd 19806 (1997) (Benchmark  {O`'` ` Order) aff'd. subnom., Cable and Wireless v. FCC, No. 971612 (D.C. Cir., January 12, 1999). G and a different rate for service from STAR that IDC transmits to mobile service carriers for termination in Japan. STAR is committed to transmitting a minimum volume of traffic to IDC in the course of each one year period. IDC will not transmit any traffic to STAR for termination in the United States. For the reasons stated below, STAR's alternative settlement arrangement with IDC is approved.  S'  2.` ` STAR's Petition was placed on public notice on August 26, 1998.yb^ O#4ԍ#X\  P6G;P#` ` Public Notice, DA 981700. y On September 16, 1998, LDDS WorldCom (later MCI WorldCom) filed a petition in opposition to STAR's Petition requesting that the Commission deny STAR's request on the grounds that no cost justification has"0*((TT"  S'been provided in support of the difference in the settlement rate for mobile service.ĝ Oh4ԍ#X\  P6G;P#` ` LDDS WorldCom, Re: STAR Telecommunications Alternative Settlement Rate Proposal, File ` ` No. ISP98PDR366, (filed September 16, 1998). On September  S'28, 1998, STAR responded to the opposition filed by MCI WorldCom.0ĝ O4ԍ#X\  P6G;P#` ` STAR Telecommunications, Inc., Re: STAR Telecommunications, Inc. Alternative Settlement ` ` Rate Proposal, File No. ISP98PDR366 (filed September 28, 1998).  S'3.` ` International communications service markets are changing rapidly as a growing number of national markets begin to open, new carriers enter the global arena, a wider range of services are offered to consumers, and technology advances. As competition emerges in national markets, adherence to historic settlements procedures for international service between the United States and such markets can impede the future development of competitive market conditions. To  S'facilitate the development of competitive markets, the Commission adopted a policy in its Flexibility  S'Orderh O4ԍ` ` #W*f9 xr G; 0X#Fourth Report & Order on Regulation of International Accounting Rates, # X\  P6G;P#11 FCC Rcd 20063  {O'` ` (1997) (Flexibility Order).  that allows U.S. carriers to negotiate settlement arrangements with foreign carriers that depart  St'from the traditional International Settlements Policy (ISP) tĝ O4 e  ԍ#X\  P6G;P#` ` The ISP requires uniform accounting rates, uniform terms for the sharing of tolls, and uniform  e ~ ` ` settlement rates among U.S. carriers providing the same service to the same foreign point. The  {O'` ` ISP also requires that U.S. carriers accept only their proportionate share of return traffic. See  {O' e  ` ` Implementation of Uniform Settlement Policy for Parallel International Communications Routes,  {OJ'` ` 51 Fed. Reg. 4736 (1986) (ISP Order); Reconsideration, 2 FCC Rcd 1118 (1987); Further  {O'` ` Reconsideration, 3 FCC Rcd 1614 (1988). In 1991, the Commission reformed the ISP to  {O'` ` encourage and facilitate accounting rate reductions by U.S. carriers. See Regulation of  {O'` ` International Accounting Rates, 6 FCC 3553 (1991) (Phase I Report & Order);  {Or' e  ` ` Reconsideration, 7 FCC Rcd 8049 (1992).  See Regulation of International Accounting Rates, 7  {O<'` ` FCC Rcd 8040 (Phase II Second Report & Order and Second Further Notice of Proposed  {O'` ` Rulemaking). In 1996, the Commission codified the proportionate return policy. See  {O'` ` Flexibility Order. The Commission's Rules also require a U.S. carrier to file with the ` ` Commission a notification letter, modification request, or petition for declaratory ruling, as ` ` appropriate, if it seeks to change the accounting rate with a foreign carrier. (47 C.F.R. ` ` 43.51(d)(2)).  under certain conditions. Permitting departures from historic settlement procedures was intended to further open international markets by encouraging U.S. carriers to seek market solutions to terminating international traffic rather than  S 'continuing to rely on administrative, nonmarket determined settlement arrangements. The Flexibility  S 'Order provided that U.S. carriers could negotiate arrangements that depart from the ISP with all carriers in another country if that country passes the Commission's effective competitive opportunities  S '(ECO) test adopted in the Foreign Carrier Entry Order.% ĝ O#4 e  ԍ#X\  P6G;P#` ` Market Entry and Regulation of Foreign Affiliated Entities, Report and Order, FCC 95475, 11  {O$'` ` FCC Rcd 3873 (1995) (Foreign Carrier Entry Order).%  Sb'"b0*&&TT"Ԍ S'4.` ` The Commission subsequently modified this threshold standard for permitting  S'alternative settlement arrangements in the Foreign Carrier Participation Order.} jh M@4ԍ#X\  P6G;P#` ` Rules and Policies on Foreign Participation in the U.S. Telecommunications Market, Report  {O'` ` and Order and Order on Reconsideration, FCC 97398, 12 FCC Rcd 23891 (1997) (Foreign  {O'` ` Carrier Participation Order). } Where a foreign carrier provides service in a country that is a member of the World Trade Organization (WTO) Basic Telecommunications Agreement, the Commission adopted a rebuttable presumption that an alternative  Sb'settlement agreement would be permitted. bĝ O4ԍ#X\  P6G;P#` ` See Foreign Carrier Participation Order at 302. This presumption can be rebutted by a showing that the foreign carrier involved in the alternative settlement arrangement is not subject to competition from multiple facilitiesbased carriers capable of terminating international traffic and serving existing  S'customers in the foreign market.m ĝ O$ 4ԍ#X\  P6G;P#` ` Id. at 307.m The Commission noted that multiple facilitiesbased carriers in a foreign market would be an indication that U.S. carriers could safely negotiate alternative settlement arrangements without a concern about the exercise of market power against U.S. carriers in settlement  Sr'negotiations. The Commission retained the safeguards against the exercise of monopoly power that it  SJ 'adopted in the Flexibility Order, e.g. (i) any arrangements between affiliated carriers or involving nonequity joint ventures would have to be filed with the Commission and be publicly available, and (ii) arrangements affecting more than 25 percent of the U.S. outbound or U.S. inbound traffic on a  S 'particular route cannot contain unreasonably discriminatory terms or conditions.m :ĝ O4ԍ#X\  P6G;P#` ` Id. at 308.m The Commission also stated that an alternative settlement arrangement could be approved, even where the presumption  S 'in favor of flexibility can be rebutted, if a U.S. carrier seeking approval of such an arrangement demonstrates that a deviation from the ISP will promote marketoriented pricing and competition while  S4'precluding an abuse of market power by the foreign carrier.m 4ĝ O4ԍ#X\  P6G;P#` ` Id. at 309.m  S'5.` ` MCI WorldCom argues that the Commission should deny STAR's Petition because STAR fails to provide a cost justification for the difference between the settlement rates for wireline service and mobile service. MCI WorldCom, however, fails to present evidence to rebut the presumption in favor of flexibility. As STAR notes in its Petition, Japan is a WTO member country. Multiple facilitiesbased carriers provide international communications service in Japan, including KDD and Japan Telecom in addition to IDC. STAR stipulates that it is not affiliated with IDC nor are the two carriers involved in a nonequity joint venture affecting the provision of basic communications  S'service on this route. STAR also states that IDC is a nondominant carrier in Japan and estimates that less than two percent of the service from Japan to the United States will be covered by the alternative settlement arrangement it has negotiated with IDC.  X&g ",z 0*&&TTd"  S' X&g 6.` ` In the Flexibility Order, the Commission noted that where an alternative settlement arrangement does not trigger the safeguards in that order, the Commission's review generally will  S'focus on whether the criteria for allowing flexibility have been satisfied.ĝ O4ԍ` ` #W*f9 xr G; 0X#Flexibility Order # X\  P6G;P#at 59. The Commission, however, reserved the right to review, and, if necessary, reject the terms and conditions of all alternative settlement arrangements to ensure that they meet the Commission's policy objectives of achieving marketdetermined terms and conditions of payment that approximate competitive levels and will not have a significant adverse impact on U.S. net settlement payments and resulting traffic volumes. Taking these criteria into account, we find no reason to deny STAR's Petition.  S'7.` ` Although MCI WorldCom correctly notes that STAR has not provided information about the costs to terminate wireline service and mobile service that would justify the difference  SJ 'between the two settlement rates, our Flexibility Order does not necessarily require the same rate for these services. Our previous orders under the ISP have discouraged different rates for different IMTS  S 'service categories unless these differences can be justified on the basis of different costs,86 hĝ O4 e  ԍ#X\  P6G;P#` ` See, e.g., AT&T and MCI, Memorandum Opinion and Order, 5 FCC Rcd 4618 (1990); AT&T,  {O'` ` Memorandum Opinion and Order, 7 FCC Rcd 2186 (1992); AT&T and MCI, Memorandum  {O'` ` Opinion, Order and Authorization, 8 FCC Rcd 3901 (1993); and AT&T, MCI, and Sprint, (#(# {Op'` ` Memorandum Opinion, Order and Authorization, 9 FCC Rcd 6942 (1994). 8 but the  S 'purpose of the Flexibility Order is to encourage departures from traditional settlement arrangements, particularly in competitive market situations. If we continue to apply the same standards to flexible settlement arrangements as we have applied to traditional arrangements, U.S. carriers might be less inclined to negotiate different types of termination arrangements. Such a result could thwart our policy to encourage U.S. carriers to enter into interconnection arrangements with foreign carriers that reflect market forces rather than regulatory rules. In STAR's case, it has negotiated an arrangement with IDC in which both carriers agree that different rates will be used to terminate wireline and mobile service, and at a lower level than IDC has with other U.S. carriers.  Sn'8.` ` We, therefore, deny MCI WorldCom's request to deny STAR's Petition for Declaratory Ruling. MCI WorldCom has failed to rebut the presumption in favor of the alternative settlement arrangement between STAR and IDC. We further find that STAR's proposal will promote marketoriented pricing and competition, while not posing the threat of an abuse of market power by IDC. Moreover, we note that the proposed settlement rate of less than 15 cents complies with the  S'benchmark rate established in our Benchmark Order for U.S. carriers on the U.S.Japan route. We therefore find that STAR's alternative settlement arrangement with IDC serves the public interest.  S0'9.` ` Accordingly, it is ORDERED that STAR's alternative settlement arrangement with IDC for services to Japan, File No. ISP97PDR366, being found consistent with the Commission's  S'Flexibility Order and Foreign Carrier Participation Order and in the public interest, is therefore GRANTED.  Sj'10.` ` It is further ORDERED that MCI WorldCom's Petition to Deny STAR's Petition for Declaratory Ruling is DENIED."Bf0*&&TT*"Ԍ S'ԙ11.` ` This Order is issued under Section 0.261 of the Commission's rules and is effective immediately. Petitions for reconsideration under Section 1.106 or applications for review under Section 1.115 of the Commission's rules may be filed within 30 days of the date of public notice of this Order (see Section 1.4(b)(2) of the Commission's rules). ` `  hhCqFEDERAL COMMUNICATIONS COMMISSION ` `  hhCqRebecca Arbogast ` `  hhCqChief, Telecommunications Division