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Infra notes 25 and 26 and accompanying text. According to D&E, Omnipoint has delayed transferring the Reading C block license out  xof concern "that such a transfer would trigger the unjust enrichment provisions of Section 1.2111 of the  Sp' x3Commission's rules."Gp^t yOn'ԍWaiver Request at 78.G On June 2, 1999, Omnipoint completed the transfer to the Joint Venture of its  SH 'subsidiary holding the Lancaster E block license.XH t yO ' " ԍOmnipoint PhiladelphiaE. Lancaster E License LLC, FCC Form 603, File No. 0000015053, at 4 (filed June  xD 7, 1999); letter from Stephen E. Holsten, Counsel to D&E Communications, Inc., to Audrey A. Bashkin, Auctions and Industry Analysis Division, Wireless Telecommunications Bureau (August 5, 1999) ("August 5 letter").  S ' "_5. On July 15, 1999, Omnipoint filed an application to transfer control of its subsidiary holding  xthe Lancaster E block license to VoiceStream Wireless Holding Corporation, which would be a transfer" ,-(-(ZZ "  S' xof Omnipoint's negative control of the Joint Venture.dt yOh' " ԍOmnipoint PhiladelphiaE. Lancaster E License, LLC, FCC Form 603, File No. 0000016681, Att. 1 (filed  xD July 15, 1999), incorporating by reference Omnipoint AlbanySchenectadyGlens Falls E License, LLC, FCC Form  x 603, File No. 0000016501, Att. 3 at 17, n.7 (filed July 15, 1999) ("Application [for transfer of control of the  x Lancaster E block license] is for transfer of Omnipoint's negative control of D&E Omnipoint Wireless Joint Venture, L.P., the parent of the licensee."); August 5 letter.d On July 16, 1999, Omnipoint filed an application  S' xto assign its Reading C block license to Cook Inlet/VS GSM II PCS, LLC.xt yO'ԍOmnipoint Reading License, LLC, FCC Form 603, File No. 0000016605 (filed July 16, 1999). D&E and Omnipoint have  xMindicated that, despite Omnipoint's July 1999 applications and provided the Waiver Request is granted,  xOmnipoint still intends to contribute the Reading C block license and the Lancaster E block license to the  S`'Joint Venture.n|`t yO ' " ԍLetter from Richard Rubin and Stephen E. Holsten, Counsel to D&E, and Mark J. Tauber and E. Ashton  x& Johnston, Counsel to Omnipoint, to Amy Zoslov, Chief, Auctions and Industry Analysis Division, Wireless  x Telecommunications Bureau (August 6, 1999) ("August 6 letter"). The Lancaster E block license has already been  {O`' xH transferred to the Joint Venture. See note 23, supra, and accompanying text. Omnipoint and D&E also indicate that,  x should the Waiver Request be granted, Omnipoint will also assign to the Joint Venture its C block licenses for  {O' xZ Harrisburg, Lancaster, and YorkHanover, Pennsylvania, won in Auction No. 22. August 6 letter; see Waiver Request at 8, 10, and 11.n  S' "6. Discussion. D&E states that in July 1998, when Omnipoint filed applications to transfer  xcontrol to the Joint Venture of subsidiaries holding the Lancaster E block and Reading C block licenses,  S' xD&E had already exceeded the Commission's size limitation for small business status.EL t yO'ԍWaiver Request at 7.E Thus, D&E seeks  xa waiver that would allow it to participate as a small business in the Joint Venture so that Omnipoint can  x3transfer to the Joint Venture "certain C block licenses" it obtained using small business bidding credits  SH ' xwithout making an unjust enrichment payment.@H t {O'ԍId. at 1.@ Section 24.712 of the Commission's rules allows C  xblock broadband PCS auction winners that are small businesses and very small businesses to use,  S ' xrespectively, bidding credits of 15 percent and 25 percent to reduce the cost of their winning bids.G nt yO'ԍ47 C.F.R.  24.712.G  xcSection 24.720(b) defines a small business in the C and F blocks as an entity that, together with its  xaffiliates, has had average annual revenues not exceeding $40 million for the preceding three years, and  xdefines a very small business as one that, together with its affiliates, has had average annual gross  SX' xrevenues not exceeding $15 million for the preceding three years.JXt {O!'ԍId.  24.720(b).J Under Section 1.2111(d), a licensee  xxthat used a bidding credit during an auction and, during the first five years of the initial license term, seeks  xxto assign or transfer control of its license to an entity that does not meet the eligibility criteria for the same  xbidding credit, will be required to reimburse the Government a sum of money that, depending upon the  xsize of the transferee and the time of the transfer, could equal as much as the full amount of the bidding",-(-(ZZx"  S'credit plus interest.^t {Oh' "# ԍId.  1.2111(d); see id.  24.712(c); see also Amendment of Part 1 of the Commission's Rules  {O2' x Competitive Bidding Procedures, WT Docket No. 9782, Third Report and Order and Second Further Notice of  {O'Proposed Rule Making, 13 FCC Rcd 374, 40607, paras. 5253 (1998).  "[7. In order to obtain the requested waiver, D&E must show that either "(i) [t]he underlying  xpurpose of the rule(s) would not be served or would be frustrated by application to the instant case, and  xthat a grant of the requested waiver would be in the public interest; or (ii) [i]n view of unique or unusual  xfactual circumstances of the instant case, application of the rule(s) would be inequitable, unduly  S' xburdensome or contrary to the public interest, or the applicant has no reasonable alternative."  t {O ' " ԍ47 C.F.R.  1.925. D&E relies on Section 24.819 of the Rules, see Waiver Request at 2 and n.5, which was superseded by Section 1.925 on February 12, 1999. 63 Fed. Reg. 68,904 (December 14, 1998).  D&E offers some rather unpersuasive arguments related to both prongs of this requirement.  "8. To satisfy the first prong of the waiver standard, D&E asserts that applying the rules at issue  xtin this case would not serve their underlying purpose. The Commission's entrepreneurs' block bidding  xVcredit rules are intended "to encourage large companies to invest in designated entities and to assist  S ' xdesignated entities without large investors to overcome the additional hurdle presented by auctions."! Ht {O' "+ ԍImplementation of Section 309(j) of the Communications Act Competitive Bidding, Fifth Report and  {O'Order, FCC 94178, 9 FCC Rcd 5532, 5539, para. 15 (1994) ("Fifth Report and Order"). The  x purpose of the entrepreneurs' block unjust enrichment bidding credit rules is "[t]o ensure that bidding  xcredits benefit the parties to whom they are directed" and "to help promote the longterm holding of  S ' xplicenses by those parties receiving bidding credits."N" t {O'ԍId. at 5591, para. 134.N D&E argues, however, that "the Commission  x7recognized that there might be circumstances which would justify a waiver of its unjust enrichment rules  SX' x7and, in fact, stated that licensees may request waivers of its unjust enrichment rules."E#X6 t yO.'ԍWaiver Request at 9.E In support, D&E  S0'quotes from the Commission's Part 1 Order:  JXWhile certain FCC rules contain restrictions on the transfer of licenses acquired through  the use of designated entity provisions for the statutory purpose of assuring license  0dissemination among a wide variety of applicants including designated entities, licensees  Sj'may request a waiver of such rules.$^j t {O ' " ԍId. at n.26, quoting Amendment of Part 1 of the Commission's Rules Competitive Bidding Proceeding,  {O!' x. WT Docket No. 9782, Order, Memorandum Opinion and Order and Notice of Proposed Rule Making, 12 FCC Rcd  {Od"'5686, 569596, para. 13 (1997) ("Part 1 Order") (footnote omitted).   "9. As a threshold matter, we note that D&E lacks standing to request a waiver of the unjust  xenrichment bidding credit rules. Only Omnipoint, the sole party transferring an entrepreneurs' block  xlicense to the Joint Venture, would incur liability for an unjust enrichment payment and have standing to  S' x3request a waiver of Section 1.2111(d). In addition, D&E has misinterpreted the Commission's Part 1"$,-(-(ZZ"  S' x^Order. The rest of the quoted paragraph reveals that the Commission was speaking not of waiving unjust  xenrichment obligations but rather of waiving the restrictions on license transfers to nondesignated entities.  x7Moreover, the Commission made clear that, if such license transfer waivers are granted, licensees will be expected to make the unjust enrichment payments required by the rules:  XFor example, upon a showing supported by an affidavit, that the licensee is in financial  distress, the Commission will consider granting a waiver of the transfer restrictions  S' Xprovided that such transaction is otherwise in the public interest. Under these  circumstances, if a license is transferred to an entity that would not qualify for designated  entity provisions, or that would qualify for less favorable designated entity provisions, the  `unjust enrichment provisions set forth in Section 1.2111 of the Commission's rules or  SL ' ,servicespecific rules would apply. In summary, commercial lenders and equipment  vendors have adequate assurances from the Commission that in most situations of  S ' dfinancial distress, licenses can be transferred as a "going concern," subject, of course, to  Kthe rights of the Commission to the payments of obligations created under the  S ' Commission's rules (including unjust enrichment payments), the license conditions, the  S 'promissory note, and the security agreement.% t {O'ԍPart 1 Order, 12 FCC Rcd at 569596, para. 13 (1997) (footnotes omitted, emphasis added).   " 10. D&E additionally points out that its size exceeds the $40 million limit for small businesses  S' xonly slightly and only because it grew "in the normal course of business."F&Zt yO 'ԍWaiver Request at 10.F Accordingly, D&E contends  xthat allowing the transfer of C block licenses to the Joint Venture without the imposition of unjust  xenrichment obligations would facilitate "not a sale to a large company, but rather a competitive  S'collaboration between two small companies.":'t {O$'ԍId.:  "R 11. D&E has not outlined a situation where adherence to the Commission's small business size  xand bidding credit eligibility rules would undermine their underlying purpose or where deviating from the  xrules would be in the public interest. Our denial of the waiver request would not prohibit the transfer of  xQlicenses to the Joint Venture. Rather, it would ensure that bidding credits are used only by entities eligible  xRfor them. Application of the rules in this case would achieve the precise goal envisioned by the  S' x Commission, and would serve the public interest.U(\|t {O' "& ԍWe note that the Commission adopted its unjust enrichment rules at the direction of Congress, see 47 U.S.C.  {Oh ' xx  309(j)(3)(C),(4)(E), denominating them "strict repayment penalties." Fifth Report and Order, 9 FCC Rcd at 5591, para. 134.U Accordingly, we decline to waive, under the first  x prong of the waiver standard, our small business size, bidding credit eligibility, and unjust enrichment  S2'rules .P)"2t yOr$' "p ԍThe Commission recently rejected Omnipoint's request for waiver of the Commission's small business size  x standards for purposes of Omnipoint's eligibility for very small business bidding credits in Auction No. 22.  x| Amendment of Commission's Rules Regarding Installment Payment Financing for Personal Communications Services  {O&' x (PCS) Licenses, WT Docket No. 9782, Memorandum Opinion and Order, FCC 99335 (released November 8, 1999),"&(,-(-(&"  {O' x aff'g Letter from Amy J. Zoslov, Chief, Auctions and Industry Analysis Division, Wireless Telecommunications Bureau, to Mark J. Tauber, Counsel for Omnipoint Corporation, DA 99332 (February 12, 1999).P"2"),-(-(ZZd"Ԍ "ԙ 12. D&E also argues, under the second prong of the waiver standard, that its waiver request  xshould be granted based on unique factual circumstances. D&E claims that, at the time it transferred its  xlicenses to the Joint Venture, it "was a small business by virtue of having retained such status as a result  xof having participated in the original C [b]lock auction as PCS One and having selected full amnesty for  S`' xits C [b]lock Lancaster, PA BTA PCS license which it had held as a small business."X*`"t yO"'ԍWaiver Request at 5 (footnote omitted).X This claim is  x/incorrect. The Commission evaluates an entity's status as a small business at the time the relevant  x*application is filed; the election made by a C block licensee makes no difference as to its status as a small  S' xVbusiness.+&t {O: ' " ԍ47 C.F.R.  24.839(a)(2); see id.  1.2110(m), 1.2111(d), and 24.720(b) and (f); see also Amendment of  x the Commission's Rules Regarding Installment Payment Financing for Personal Communications Services (PCS)  {O ' xg Licenses, Fourth Report and Order, FCC 98176, 13 FCC Rcd 15,743, 15,768, para. 47 (1998) ("C Block Fourth  {O'Report and Order"). In this case, D&E's status as a small business must be evaluated as of July 1998 when  xOmnipoint filed its application to transfer control of its Reading C block license to the Joint Venture. In  xMits Waiver Request, D&E admits that for the applicable years 19951997, D&E's average annual gross  Sp' x/revenues, along with those of its affiliates, were $44.6 million,E,pt yO'ԍWaiver Request at 7.E or $4.6 million beyond the limit to  xqualify as a small business with regard to C and F block PCS licenses. Accordingly, at the time  S 'Omnipoint filed its application for transfer of control, D&E did not qualify as a small business.-" 0 t yO' " ԍAs D&E acknowledges, Omnipoint, in its application to transfer control to the Joint Venture of the Reading  x* C block license, inaccurately states that "all of the entities listed in this application qualify as small businesses,"  x Omnipoint Reading License, LLC, FCC Form 604, File No. 50531CWTC98, Ex. 1 at B. (filed July 30, 1998)  {OH'(Reading C block license); see Waiver Request at 7.  " 13. D&E also contends that it "lost its status as a small business" because of Commission  S ' xdelays..Z t yOb' " ԍWaiver Request at 67. This contention appears to contradict D&E's previous assertion that it qualified as  xQ a small business as of July 1998 when Omnipoint applied to transfer control to the Joint Venture of its subsidiary  {O'holding the disaggregated Reading C block license. See id. at 5. D&E argues that it and Omnipoint could not "realistically" apply to transfer control of their  xlicenses to the Joint Venture without first making their C block elections and that, while waiting for the  SX' xtwice postponed election date, D&E grew too large to qualify as a small business.B/X<t {O4!'ԍId. at 67.B Yet D&E concedes  xthat for 19941996, the years applicable to the original January 15, 1998 election date, its average annual  S' x*gross revenues, along with those of its affiliates, were $40.7 million,F0t {Ov$'ԍId. at 7, n.18.F or $700,000 in excess of the small  x^business ceiling. Thus, while we are not persuaded that postponement of the C block election date would  xQconstitute a sufficient basis for waiving the small business size standard in any case, the issue in this case is moot."`0,-(-(ZZ;"Ԍ "lԙ 14. D&E further maintains that, because it returned its only C block license to the Commission  x&pursuant to the pure amnesty option, it lost its eligibility under Section 24.839(a) of the Commission's  S' xrules to obtain another C block license as a small business entrepreneur.@1t {O'ԍId. at 6.@ D&E apparently misunderstands  xthis rule. Section 24.839(a) generally restricts transfers of a C or F block license during the first five  S`' xgyears of the initial license term to an entity that qualifies as an entrepreneurQ2`Zt {OZ'ԍSee 47 C.F.R.  24.709.Q or that holds other C or F  S8' xblock licenses that it acquired while qualifying as an entrepreneur.J38t {O 'ԍId.  24.839(a).J An entity's eligibility as an  xentrepreneur to acquire a C block license under Section 24.839(a) is not affected by its failure to qualify  xas a small business. D&E is similarly misguided in its belief that its election of the pure amnesty option  x&affected its C block small business status. In finalizing the rules for Auction No. 22, the Commission  xkemphasized that eligibility for small business status would be determined solely according to an applicant's  Sp'financial qualifications as of the Auction No. 22 shortform application deadline.4p~t {O'ԍSee C Block Fourth Report and Order, 13 FCC Rcd. at 15,768, para. 47.  S ' "15. D&E also maintains that operating as the Joint Venture is essential for it and Omnipoint to  xcompete successfully against cellular incumbents and to survive in the central Pennsylvania market, and  S ' x&D&E asserts that unjust enrichment payments would compromise the Joint Venture's viability.I5 t yO'ԍWaiver Request at 1112.I This  xtjustification is insufficient for the requested waiver. As stated earlier, D&E lacks standing to request a  xMwaiver of Omnipoint's unjust enrichment payment obligation. Moreover, as the Commission indicated  SX' xpin the Part 1 Order, even when the financial distress of a licensee is so severe that the Commission  xchooses to allow the transfer of the licensee's entrepreneurs' block license to a nondesignated entity, the  S ' xCommission will require the payment of any applicable unjust enrichment obligation.6 t {OJ'ԍPart 1 Order, 12 FCC Rcd at 569596, para. 13 (footnotes omitted, emphasis added). We therefore  xdecline to waive, under the second prong of the waiver standard, our small business size, bidding credit  S'eligibility, and unjust enrichment rules ."2 6,-(-(ZZ^"  S' "c16. Ordering Clauses. For the reasons set forth above, IT IS ORDERED that D&E's request  xfor waiver of Sections 24.712, 24.720(b)(1), 1.2111(d), and 24.839(a) of the Commission's rules IS HEREBY DENIED.  S`' "17. This action is taken pursuant to delegated authority under Section 0.331 of the Commission's rules, 47 C.F.R.  0.331. ` `  FEDERAL COMMUNICATIONS COMMISSION ` `  Amy J. Zoslov ` `  Chief, Auctions and Industry Analysis Division ` `  Wireless Telecommunications Bureau