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AEI Press, 1998).#x6X@`7X@# illustrates the enormous penalty that consumers pay when universal service is supported by taxes and fees on a usagesensitive basis. For example, for every dollar collected on fees assessed on longdistance service, such as access charges, consumers lose more than two dollars in welfare."#f0*(($"ԌxThe solution is not to broaden the tax base because a broadened tax base, no matter how defined, will still impose usagesensitive fees. Instead, consumer would be much better off with a fixed assessment, such as a perline charge. This assessment could distinguish between business and residential customers. xThere is ample legal precedent for a federal perline charge. The current SLC and PICC are assessed per line. There are several other reasons to use a perline charge, which I outline below. x  Y1- xA. Fees must be in exchange for service. The FCC has the authority to levee fees, not taxes. For a payment to be a fee, there should be something tangible received in exchange. We should therefore define precisely those services and conditions that telecommunications carriers (as the direct contributors to universal service) and consumers (as the indirect contributors to universal service) receive from the federal government and the FCC in particular. xI believe that carriers and consumers do receive something from the FCC. In particular, the FCC administers or is responsible for:  YL-xa.` ` Numbering system or addressability of telecommunications;  Y5-xb.` ` Ensuring access to an interstate telecommunications network;  Y-xc.` ` Ensuring access to an interstate telecommunications network with nodes that have been expanded as the result of universal service (to highcost areas and lowincome households); and (#`  Y-xd.` ` For carriers, a centralized system for the determination of payments. xThere may be other services that the FCC performs, but any service that the FCC provides, I believe, is fixed in cost and is not usage sensitive. That is, the service that the FCC provides a carrier or a customer is the same whether a customer is making a oneminute or a onehour interstate call. Consequently, any fee structure that the FCC might consider for universal service should be fixed for the sake of consistency with the fixity of the service provided. Moreover, any usagesensitive charge from the FCC, to the extent services provided are not usage sensitive, runs the risk of being a tax.  Y- xB. Federal fees should be consistent with the law. The federal government and the FCC cannot tax intrastate services. Moreover, the FCC has little or no authority to place universal service fees on entities that do not provide telecommunications services. Primary responsibility rests with telecommunications carriers, the same population that may become eligible carriers.  Yj$- xC. Fees should be consistent with technology. A rational universal service fee must not only avoid being a tax, but it should also avoid being inconsistent with technology and market developments. Telecommunications markets are evolving rapidly with multiple services available to consumers. Some of these services are provided by telecommunications"&'0*((P(" carriers subject to universal service fees; some services are available from other services. Consumers have opportunities to avoid usagesensitive fees by selecting service providers that are not technically telecommunications carriers. To the extent a universal service fee structure is inefficient, it will artificially accelerate the migration of traffic away from telecommunications carriers. xFuture technologies are even more incongruent with usage sensitive access fees. Telecommunications networks may well develop into predominantly packetswitched networks in which line access is not a particularly relevant concept. Within these packetswitched networks, determining what is interstate and what is not, and determining the identity and purpose of traffic, are impossible tasks.  X - xD. A federal per line fee would ease the universal service burden over time and  Y -allow for an easier transition. The number of lines has been growing rapidly in recent years. Thus, a flat per line universal service fee would produce increasing revenues every year. If we held the amount of federal universal service subsidy fixed at current levels, the burden that each subscriber carries would decrease each year. In addition, the Commission could consider phasing in the flat fee to take advantage of the growth in the number of lines. Moreover, a flat fee should reduce usage rates, thereby expanding demand for usagesensitive services, increasing carrier revenues, and ultimately reducing requirements for universal service support.  Y-  X- IV.xConclusion  Y-x The need to adopt a federal model necessarily means that the Commission is heading down one of three paths, none of which I could support. xFirst, the Commission might not use the model to size or to distribute universal service funding. This is the path I would recommend, and to which I would ask then why do we need to officially adopt a model today and maintain it in the future. This exercise would beV%Ben an unfortunate use of the Commissions time and resources. xSecond, the Commission could use the model to size and distribute the universal service funds but also fulfill its commitment to hold the states harmless. Such actions, however, would thereby create a larger total federal universal service subsidy. Then I would ask why the rural carriers have not also had the opportunity to gain a larger share of support. xThird, and most likely, the Commission will limit its hold V%B ԩ V%B harmless promise to the current explicit universal service fund, using the model to size and distribute the new high cost fund and to justify a net reduction in the current federal subsidy flow. In light of this agency's statutory mandate to preserve existing universal service and its own promise to Congress that it would hold the states harmless, I would object to such an attempt. "$'0*((P("ԌxUltimately, today's Commission action only begs the greater question of the allocation of universal service support between the federal and state jurisdictions, raising more questions about the Commission's direction than it provides answers.  ?<#x6X@`7X@#