Connect America Fund; High-Cost Universal Service Support, 26269-26277 [2013-10565]
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Federal Register / Vol. 78, No. 87 / Monday, May 6, 2013 / Rules and Regulations
chapter shall file data with the
Administrator, the Commission, and the
relevant state commissions no later than
June 30, 2012, for the first year, and on
the date it files its annual access tariff
filing with the Commission, in
subsequent years, establishing the
amount of the Price Cap Carrier’s
eligible CAF ICC funding during the
upcoming funding period pursuant to
§ 51.915 of this chapter. The amount
shall include any true-ups, pursuant to
§ 51.915 of this chapter, associated with
an earlier funding period.
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(d) * * *
(1) A Rate-of-Return Carrier seeking
CAF ICC support shall file data with the
Administrator, the Commission, and the
relevant state commissions no later than
June 30, 2012, for the first year, and on
the date it files its annual access tariff
filing with the Commission, in
subsequent years, establishing the Rateof-Return Carrier’s projected eligibility
for CAF ICC funding during the
upcoming funding period pursuant to
§ 51.917 of this chapter. The projected
amount shall include any true-ups,
pursuant to § 51.917 of this chapter,
associated with an earlier funding
period.
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■ 7. Amend § 54.901 by revising
paragraphs (c) introductory text and
(c)(2) to read as follows:
§ 54.901 Calculation of Interstate Common
Line Support.
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(c) Beginning January 1, 2012, for
purposes of calculating the amount of
Interstate Common Line Support
determined pursuant to paragraph (a) of
this section that a non-price cap carrier
may receive, the corporate operations
expense allocated to the Common Line
Revenue Requirement, pursuant to
§ 69.409 of this chapter, shall be limited
to the lesser of:
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(2) The portion of the monthly perloop amount computed pursuant to
§ 36.621(a)(4)(iii) of this chapter that
would be allocated to the interstate
Common Line Revenue Requirement
pursuant to § 69.409 of this chapter.
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PART 69—ACCESS CHARGES
8. The authority citation for part 69
continues to read as follows:
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Authority: 47 U.S.C. 154, 201, 202, 203,
205, 218, 220, 254, 403.
§ 69.306
Central office equipment (COE).
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(d) * * *
(2) Until June 30, 2012, for non-price
cap local exchange carriers, line-side
port costs shall be assigned to the
Common Line rate element. Such
amount shall be determined after any
local switching support has been
removed from the interstate Local
Switching revenue requirement. Nonprice cap local exchange carriers may
use thirty percent of the interstate Local
Switching revenue requirement, minus
any local switching support, as a proxy
for allocating line port costs to the
Common Line category.
(3) Beginning July 1, 2012, a non-price
cap local exchange carrier shall assign
line-side port costs to the Common Line
rate element equal to the amount of lineside port costs it shifted in its 2011
projected Interstate Switched Access
Revenue Requirement.
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10. Amend § 69.415 by revising
paragraphs (b) and (c) introductory text
and adding paragraph (d) to read as
follows:
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§ 69.415 Reallocation of certain transport
expenses.
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(b) Until June 30, 2012, the amount to
be reallocated is limited to the total
revenues recovered through the
interconnection charge assessed
pursuant to § 69.124 for the 12–month
period ending June 30, 2001.
(c) Until June 30, 2012, the
reallocation of the amount in paragraph
(b) of this section shall be based on each
access element’s projected revenue
requirement divided by the total
revenue requirement of all the access
elements, provided that:
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(d) Beginning July 1, 2012, the
amount of the Transport
Interconnection Charges to be
reallocated to each category shall be
equal to the amount of Transport
Interconnection Charge costs the nonprice cap local exchange carrier was
projected to shift to each category in
projecting its 2011 Interstate Switched
Access Revenue Requirement.
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[FR Doc. 2013–10562 Filed 5–3–13; 8:45 am]
BILLING CODE 6712–01–P
9. Amend § 69.306 by revising
paragraph (d)(2) and adding paragraph
(d)(3) to read as follows:
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26269
FEDERAL COMMUNICATIONS
COMMISSION
47 CFR Part 54
[WC Docket Nos. 10–90, 05–337; DA 13–
807]
Connect America Fund; High-Cost
Universal Service Support
Federal Communications
Commission.
ACTION: Final rule.
AGENCY:
In this document, the Federal
Communications Commission
(Commission) primarily addresses the
model platform, which is the basic
framework for the model consisting of
key assumptions about the design of the
network and network engineering. The
Commission also addresses certain
framework issues relating to inputs.
DATES: Effective June 5, 2013.
FOR FURTHER INFORMATION CONTACT:
Katie King, Wireline Competition
Bureau, (202) 418–7491 or TTY: (202)
418–0484.
SUPPLEMENTARY INFORMATION: This is a
summary of the Commission’s Report
and Order in WC Docket Nos. 10–90,
05–337; DA 13–807, adopted on April
22, 2013 and released on April 22, 2013.
The full text of this document is
available for public inspection during
regular business hours in the FCC
Reference Center, Room CY–A257, 445
12th Street SW., Washington, DC 20554.
Or at the following Internet address:
https://hraunfoss.fcc.gov/edocs_public/
attachmatch/DA-13-807A1.pdf.
SUMMARY:
I. Introduction
1. In the USF/ICC Transformation
Order, 76 FR 73830, November 29, 2011,
the Commission comprehensively
reformed and modernized the universal
service and intercarrier compensation
systems to maintain voice service and
extend broadband-capable
infrastructure. As part of the reform, the
Commission adopted a framework for
providing support to areas served by
price cap carriers known as Phase II of
the Connect America Fund. An
estimated eighty-five percent of the
approximately 6.3 million locations in
the nation that lack access today to
terrestrial fixed broadband at or above
the Commission’s broadband speed
benchmark live in areas served by price
cap carriers. The Connect America Fund
will maintain voice service and expand
broadband availability to millions of
unserved Americans living in these
areas within the next five years, and
aims to close this gap entirely within a
decade. Through Phase II, the
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Commission introduced targeted,
efficient support for broadband-capable
networks in these unserved rural areas
as part of its efforts to close the ruralrural divide and direct funding to parts
of rural America where it is most
needed. Specifically, the Commission
will provide support through ‘‘a
combination of competitive bidding and
a new forward-looking model of the cost
of constructing modern multi-purpose
networks.’’ Using the cost model to
‘‘estimate the support necessary to serve
areas where costs are above a specified
benchmark, but below a second
‘extremely high-cost’ benchmark,’’ the
Commission will offer each price cap
local exchange carrier (LEC) ‘‘a modelderived support amount [for a period of
five years] in exchange for a
commitment to serve all locations in its
service territory in a state that, based on
the model, fall within the high-cost
range and are not served by an
competing, unsubsidized provider.’’
2. The Commission delegated to the
Wireline Competition Bureau (Bureau)
‘‘the task of selecting a specific
engineering cost model and associated
inputs that meet the criteria specified’’
by the Commission. Consistent with the
approach taken by the Commission
when it implemented a forward-looking
model known as the High-Cost Proxy
Model (HCPM) to determine support
amounts for non-rural carriers in the
wake of the implementation of the
Telecommunications Act of 1996, the
Bureau’s plan is to adopt a model to
estimate forward-looking costs in two
separate orders. In this first order, we
primarily address the model platform,
which is the basic framework for the
model consisting of key assumptions
about the design of the network and
network engineering. We also address
certain framework issues relating to
inputs.
II. Discussion
3. This order focuses on the platform
components of the cost-to-serve module.
As detailed below, and consistent with
the approach previously taken by the
Commission in adopting its prior
forward-looking model for universal
service support, we adopt a model
platform that will allow the Bureau to
estimate the full average monthly cost of
operating and maintaining an efficient,
modern network. Specifically, the
model will begin by estimating all
capital and operating expenses
associated with a modern network.
Those variously-timed expenditures
will be converted to an average monthly
cost, as described below. Because
providers’ support will be based on this
average cost for five years, while many
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components of an actual network have
much longer lives, using this average
cost approach will not compensate
providers for the full cost of a network
within the five year Phase II timeframe.
It will, however, estimate the cost of
providing service in the way that best
approximates the discipline of a
competitive market.
4. The average costs will be based on
an efficient modern network, rather than
a less efficient legacy network
supplemented with incremental
upgrades over time. That is, consistent
with the Commission’s directive to
adopt a ‘‘forward-looking’’ approach, we
will model the costs as if all providers
were able to claim the efficiency
advantages of a modern green-field
build, rather than attempt to model
costs of upgrades and inefficiencies
associated with maintaining and
upgrading legacy networks piecemeal (a
‘‘brown-field’’ approach). Although
some commenters have argued that a
‘‘brown-field’’ approach would result in
lower modeled costs, we find that this
is only because the various brown-field
estimates in the record have each
improperly excluded certain costs.
5. Following the assumption of a
maximally efficient modern network,
modeled costs will be based on an IPbased FTTP network of a wireline
telecommunications provider, capable
of providing both voice and broadband.
Customer locations, both residential and
business, will be placed in individual
census blocks, and a network topology
will be constructed to serve all of those
locations. Consistent with the
Commission’s approach when it
developed the HCPM in the 1990s, the
model will calculate necessary
interoffice transport (i.e., middle mile),
which, in a modern network, would
connect all central offices with internet
gateways. The model will provide the
capability to vary certain input values
relating to the cost of construction based
on physical geography within a given
state. Costs will be calculated on a
census block level.
6. Although a large number of
important decisions regarding input
values and other issues remain,
preliminary estimates based on the
current version of the CAM suggest that
this better calibrated approach results in
more reliable cost estimates of an
efficient provider. Using the platform
decisions adopted in this Report and
Order, we estimate that per-location
costs for the highest cost areas (those
potentially available for Phase II
funding) are roughly 20–25 percent
lower in the current version of the CAM
than in the cost model submitted by the
ABC Coalition prior to the
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Commission’s adoption of the USF/ICC
Transformation Order. The work done
to date thus has modified aspects of the
CQBAT model that led to an
overstatement of the costs of providing
broadband-capable infrastructure in
Phase II areas.
A. Threshold Model Design/Platform
Issues
1. General Approach to Cost Estimation
7. Consistent with Commission
precedent, the model platform that we
adopt today will calculate a levelized
cost that represents an estimate of the
average monthly forward-looking cost of
an efficient provider. Those costs
include both capital and operating
expenses. Recovery for each asset class,
for example, poles, conduit, etc., will be
spread out evenly over the useful life of
the asset class according to empirical
estimates of the rate at which elements
of the asset class are retired. Costs will
be levelized to produce a constant
monthly cost throughout the life of each
asset, which in many cases may exceed
20 years or more. Because a significant
driver of network costs are assets with
an accounting lifetime of 20 years or
more, such as loop plant, the levelized
cost calculated by the model will
provide recovery for only a portion of
the cost of the network over the fiveyear term of Phase II. In other words, as
discussed more fully below, the model
platform will calculate costs assuming
that the supported network will retain
significant value at the end of the fiveyear term of Phase II support.
2. Network Design
8. In the USF/ICC Transformation
Order, the Commission delegated to the
Bureau the authority to select the
specific engineering cost model,
including the modeled network
architecture. The Commission indicated
that the Bureau’s ‘‘ultimate choice of a
greenfield or brownfield model, the
modeled architecture, and the costs and
inputs of that model should ensure that
the public interest obligations are
achieved as cost-effectively as possible.’’
9. In the Model Design PN, 77 FR
38804, June 29, 2012, the Bureau sought
comment on, among other things, the
choice of a green-field or brown-field
model; whether the model should
estimate the costs of FTTP or Digital
Subscriber Line (DSL) (including Fiberto-the-Node (FTTN)) technology; and
what terminal value to assign to the
modeled network (e.g., book value or
zero value). The Bureau also sought
comment on whether the model should
estimate the total costs of serving the
entire service area so that shared costs
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may be distributed between areas that
are eligible and ineligible for support, or
estimate only the standalone costs of
areas eligible for support; how shared
network costs should be distributed to
the census-block (or smaller) area; and
whether the model should calculate
support for areas to which broadband
has already been deployed or only for
unserved areas.
10. As discussed below, we conclude
that the Connect America Cost Model
will be a green-field FTTP model with
the terminal value of the network at the
end of the five-year term determined by
the book value of the assets. As
explained in the Model Design PN, the
issues of network technology (e.g., FTTP
or DSL), design (green-field or brownfield) and terminal value (e.g., book
value or zero value) are interrelated. We
conclude that using a green-field FTTP
model paired with book value is the best
choice for estimating the most efficient
forward-looking cost of providing
service over a voice and broadbandcapable wireline network in price cap
areas.
a. Green-field vs. Brown-field
11. We find that using a green-field
model is more appropriate than using a
brown-field model, for three principle
reasons. First, a green-field model is
consistent with Commission precedent,
including the USF/ICC Transformation
Order. Second, a green-field model
provides an estimate of costs that
creates appropriate incentives to
invest—that is, it best approximates the
discipline provided by a competitive
market. And finally, a green-field model
can be implemented in a straightforward
and timely manner. Contrary to some
commenters’ assertions, we conclude
that a green-field model does not overcompensate providers. Indeed, a
levelized green-field approach is likely
to result in no more support than a
properly calculated levelized brownfield approach because it approximates
the average long-run cost of an efficient
modern network optimized for voice
and broadband, rather than the average
long-run cost of a less efficient legacy
voice network plus broadband upgrades.
12. First, a green-field approach is
consistent with Commission’s
determination in the USF/ICC
Transformation Order in that it would
use a forward-looking cost model to
identify price cap areas eligible for
Connect America Phase II support, as
well as other Commission precedent. A
green-field approach is forward-looking
because it estimates the cost of the
ongoing provision of specific services by
developing a hypothetical efficient,
modern network to calculate the
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minimum cost of providing such
services now and in the future, given
current technology and input costs. It
does not take into account historic costs
or whether the carrier historically
recovered its earlier investments in the
existing network, other than what is
provided through the monthly levelized
cost stream going forward.
13. A green-field model is consistent
with the approach taken by the
Commission in developing and adopting
its previous voice cost model, the
HCPM. Even though legacy voice
networks existed throughout the nation
at that time, often including lessefficient older technologies or
inefficient network routing, the
Commission concluded that the
appropriate way to determine support
was to estimate the cost of an efficient
modern network to provide voice
service, assuming only the existence of
incumbent central offices and current
wire centers (referred to as the
‘‘scorched node’’ approach). Consistent
with this longstanding precedent, the
green-field approach we adopt will
calculate (1) the minimum, levelized
cost of a voice and broadband-capable
network today, using current, rather
than historic, technologies and prices,
and (2) the minimum costs of continued
provision of voice and broadband
services on that network, including the
costs of maintaining the network’s
capabilities in each year going forward.
14. Second, consistent with
longstanding Commission precedent, we
adopt a green-field approach because it
estimates costs in a manner that
provides appropriate forward-looking
incentives to invest. A forward-looking
approach to cost modeling does not ask
whether or to what extent carriers’ have
recovered their costs from past
investments. Instead, a forward-looking
model calculates costs at a level
expected to recover all network costs
over the long term, accounting for
investment risk and anticipated
demand, comparable to a market with
sustainable competition. In such a
regulatory environment, recipients of
support should receive appropriate
forward-looking compensation for risks
that are intended to mimic the risks that
competitive firms face in markets where
subsidies are not provided.
15. We are not persuaded by the
argument that using a green-field model
for Connect America Phase II will overcompensate the price cap carriers over
a five-year period because the actual
replacement costs incurred over the
next five years may in some instances be
less than the green-field levelized cost.
The Commission previously has
concluded that forward-looking
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economic costs—not actual costs—are
the proper framework for determining
universal service support, and the
Commission specifically directed the
Bureau to use a forward-looking
approach in the USF/ICC
Transformation Order. Moreover,
whether an individual price cap carrier
would actually spend more or less than
model-determined support over the
course of the five-year term will depend
on where the individual price cap
carriers that make a state-level
commitment are in their respective
investment cycles. Carriers have made
and must continue to make investments
that last substantially longer than five
years, incurring costs that do not, yearby-year, match their revenues (even for
the case of commercially-viable
investments). Those carriers that must
undertake a relatively high level of asset
replacement may therefore face higher
costs than the modeled costs. Others
will face lower costs. Allowing monthly
recovery of the model’s levelized cost
means, on average, all carriers will earn
an amount that would allow them to
maintain the specified levels of service
going forward over the longer term.
16. Indeed, a green-field model may
calculate costs lower than actual costs
because it may overstate the degree to
which carriers are able, in practice, to
optimize their network. Carriers do not
have the luxury of building their
networks from the ground up to meet
today’s demand. Rather, they augment
their networks piecemeal, with each
upgrade subject to past investment
decisions that may not always have
been based on accurate forecasts of
demand and technology developments.
Consistent with Commission precedent
in adopting a green-field model to
estimate the forward-looking cost of
voice service, we find that, on balance,
the green-field approach should provide
a reasonable overall approximation of
costs for Phase II implementation.
17. Third, a forward-looking greenfield approach can be implemented in a
straightforward and timely manner,
allowing the fastest possible
deployment of new broadband in price
cap territories. Each version of the CAM
released to date contains the capability
to estimate the costs of a green-field
FTTP network. Moreover, the ABC
Coalition previously submitted into the
record of this proceeding more than a
year ago a green-field model. As a result,
the public and Bureau staff have had
ample opportunity to analyze the
attributes and the usefulness of a greenfield model for implementing the
Commission’s universal service policies.
These submissions build on a
substantial history of use of green-field
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models in a variety of regulatory
contexts. In contrast, as discussed in
more detail below, we are not satisfied
that any version of the CAM has yet
provided a reasonable way of estimating
brown-field costs. We therefore
conclude that adopting a green-field
model platform now, so that parties can
focus their attention on input values,
will facilitate the timely conclusion of
the Phase II cost model development
process, and thereby accelerate the
deployment of broadband-capable
networks to unserved Americans.
18. In contrast to a green-field
approach, there are significant
drawbacks to a brown-field approach.
First, notwithstanding arguments to the
contrary, a brown-field approach is not
entirely forward-looking. It represents a
hybrid approach that falls between a
true forward-looking approach, which a
green-field model approximates, and a
historic cost approach. A brown-field
approach assumes existing
infrastructure as of a point in time and
adds the ongoing costs of this
infrastructure to the cost of additional
network upgrades necessary to provide
a desired set of services in the future. As
an example, existing fiber transport,
and/or the last few thousand feet of
copper terminating at an end-user
location, could potentially be used to
supply voice and broadband service. For
these portions of the network, a brownfield approach would estimate costs
based on the existing network facilities,
rather than on a modern, efficient
network.
19. Second, there would be serious
practical hurdles to overcome before we
could implement such an approach. The
Bureau considered two possible ways to
implement a brown-field approach: one
that identifies those assets actually in
place, and then considers the
incremental cost of making that existing
network broadband-capable, and
another that produces a hypothetical
model of a voice-only network, and then
considers the incremental cost of adding
broadband capability to that network.
Both approaches raise significant
practical difficulties.
20. The first approach to brown-field
modeling has significant backwardlooking elements not present in a greenfield approach and is substantially more
complicated than a green-field
approach. In particular, this brown-field
approach would require identification
of the specific existing network assets
that are assumed to be retained. Thus,
we would need to develop a model that
accurately represents the existing
network infrastructure and determine
what parts of the existing network can
be used; we then would estimate the
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cost of any incremental upgrades
required to meet the Commission’s
service obligations going forward,
including the costs that would be
necessary going forward to maintain the
entire network’s capabilities. In contrast
to a green-field approach, this brownfield approach would require a
substantial backward-looking exercise
in which those components of the
network that already exist must be
identified and located, and
characterized in terms of their age and
capabilities going forward (e.g., gauge of
copper wire, etc.). Additionally, this
brown-field approach would model the
forward-looking costs of augmenting the
existing network to make it broadbandcapable. In comparison to a green-field
approach, such an exercise would likely
require far more data, because existing
network investments would need to be
catalogued, and it would present a more
complex cost optimization, because the
optimal network would be designed to
account for the elements of the existing
network that would be efficient to keep.
This would be particularly complex,
requiring the Bureau to make decisions
about what assets should be retained,
and what should be replaced.
21. The second approach to brownfield modeling would be to estimate the
green-field cost of the existing network
and then estimate the incremental cost
of making that network fully broadbandcapable. This approach avoids the
difficulties of cataloging existing
network infrastructure, and of having to
optimize taking historical investment
decisions into account, but has the
peculiarity of using a hypothetical
optimized green-field cost model to
estimate the cost of an existing network.
While such an approach would limit the
amount of data that would be required
and would avoid some of the backward
looking nature of the first approach, it
only obliquely meets the ostensible
objective of a brown-field approach,
which is to assume that all existing
infrastructure will be retained, with
upgrades to make that network fully
broadband-capable. In addition, taking
this approach still would require the
Bureau to make a substantial number of
assumptions about the age and quality
of existing assets and therefore
significantly broaden the reasonable
range of outcomes, compared to a greenfield model. The Bureau first would
have to determine which hypothetical
assets are assumed to exist as the
starting point, and then model the
investments required to make that
network capable of supplying
broadband. In contrast, the green-field
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approach requires only modeling a
current generation, modern network.
22. We are not persuaded by ACA’s
argument that a brown-field approach
would result in cost estimates
substantially lower than a green-field
model, and therefore expand the
number of unserved homes that could
receive broadband given the fixed
budget for Phase II. ACA’s attempts to
estimate brown-field costs exclude some
costs that should be included in a
proper brown-field model. In response
to the Model Design PN, ACA argues
that ‘‘the CQBAT model [submitted by
the ABC Coalition] includes
functionality to allow for the modeling
of a brownfield DSL build-out.’’ In fact,
that function in CQBAT simply
eliminated all capital expenditures for
certain network elements, such as
copper loops. ACA acknowledged that
CQBAT did not adequately account for
the operating expenses associated with
the copper portion of the loop, copper
replacement in cases where plant needs
to be replaced, and loop conditioning
costs on a granular level, but argued that
adding these functionalities to the
model should not be difficult.
Subsequently, in October 2012, ACA
filed additional estimates of brown-field
costs based on CQBAT runs under
various scenarios, each of which
excluded certain capital costs, such as
copper loops, necessary for providing
ongoing service from the calculations,
and we find it would be appropriate to
take these costs into account in a brownfield model. Therefore, we are not
persuaded that the calculations
provided by ACA appropriately reflect
the cost estimates of a brown-field
approach, and conclude that ACA does
not provide a reliable estimate of the
number of homes that would become
served by broadband in Phase II.
23. While CAM version 3.0 contains
a feature that attempts to approximate
brown-field costs, we still do not believe
this approach fully corrects the issues
associated with the CQBAT model’s
brown-field approach. This ‘‘brownfield adjustment’’ was intended to
capture the replacement cost of existing
plant as those assets are retired, but not
to capture the cost of existing plant that
is continued to be used to provide the
existing services. That is, the calculation
captures the cost of providing service
when an asset is retired, but not of
providing service until that point. We
therefore conclude that additional costs
would have to be added to this brownfield adjustment to properly take into
account the existing assets necessary to
provide and maintain voice and
broadband services on an ongoing basis.
In fact, we now are convinced that if all
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these costs are properly accounted for,
brown-field modeling should provide
cost estimates no lower than, or
potentially higher than, a green-field
approach.
24. In sum, we find that a green-field
cost approach is the preferable approach
to calculate the cost of a forwardlooking network. It is more consistent
with the Commission’s directive and
prior precedent, and we conclude that
there are no persuasive arguments that
using a green-field approach would
result in overpayments to the price cap
carriers. In contrast, development of a
suitable brown-field model would likely
take a considerable amount of
additional time and delay in
implementation of Connect America
Phase II, because it is a much more
complex undertaking with little
precedent to guide staff efforts.
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b. FTTP
25. We also conclude the best
approach to meet the Commission’s
directive that we adopt a forwardlooking cost model is to estimate the
costs of a FTTP network rather than a
twisted copper pair DSL network. As
explained in the Model Design PN, a
DSL network ‘‘is only forward looking
from the perspective of decisions made
a decade or more in the past,’’ and ‘‘has
higher expected operating expenses and
is more likely to require significant
additional investment to make faster
broadband offerings available.’’
Although some price cap carriers may
choose to extend broadband to unserved
areas in the near term by shortening
copper loops, rather than deploying
FTTP, the most efficient wireline
technology being deployed today in new
builds is FTTP. Network construction
costs are essentially the same whether a
carrier is deploying copper or fiber, but
fiber networks result in significant
savings in outside plant operating costs
over time. If an efficient carrier were to
design a new wireline network today, it
would be an all Internet protocol (IP)
fiber network, not a circuit switched
copper network, because such a network
would be cheaper and more scalable
over time. Indeed, an IP fiber network
would be the appropriate choice for a
wireline network even if there were no
service obligation to extend broadband.
Therefore, FTTP is more consistent with
a forward-looking approach.
c. Methodology for Determining
Terminal Value
26. The model platform that we adopt
today provides capital recovery through
what is termed depreciation. We
conclude that the model should
determine the terminal value of the
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network based on ‘‘book value’’
calculated as the difference between
investment and economic depreciation,
which takes into account the economic
life of the equipment and infrastructure.
Specifically, the model will calculate
book depreciation expense based on
equal-life-group methodologies, using
Gompertz-Makeham survivor (mortality)
curves and projected economic lives.
The model will adjust the survivor
curves, however, so that the average
lifetime of the asset falls within the
range of expected accounting lifetimes
authorized by the Commission. This
approach is consistent with the
methodology used in the Commission’s
previous cost model used to determine
support amounts for the non-rural LECs,
HCPM, and supported in the current
record.
27. In the virtual workshop, the
Bureau sought comment on whether any
of the projected lives used in HCPM are
outdated and should be modified. The
ABC Coalition recommended that the
Bureau uses the same economic lives for
assets as HCPM, while ACS suggested
the Commission’s economic lives are
too long and should be updated. Based
on our review of the record, we now
conclude the model will utilize the
same economic lives for assets as
specified by the Commission previously
when it adopted the HCPM, when
determining the monthly cost of capital
investments. As the ABC Coalition
notes, for more than a decade, these
economic lives for assets have been
widely used in cost models in state
regulatory proceedings. We are
persuaded that it would be
administratively burdensome to
establish new values, which would
unnecessarily delay implementation of
Connect America Phase II. We recognize
that to the extent economic lives are
overstated for particular assets that
would result in a systematic
understatement of costs, but no party
has submitted any evidence in the
record demonstrating that this effect
would result in a material change in
support levels thwarting achievement of
the Commission’s universal service
objectives.
28. As the Bureau explained in the
Model Design PN, the annual cost and
support values are highly dependent on
the terminal value, because the five-year
support period is much shorter than the
average lifetime of all of the asset
classes in the model. At the end of five
years, a FTTP network would have
significant commercial value. Because
estimating commercial value at the end
of the five-year term would require
making a number of assumptions about
the evolution of technology and the
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marketplace, we conclude that using
book value is the best approach. Using
a terminal value of zero, as some parties
advocate, would permit carriers to
recover the entire cost of the network
over five years, and assume the network
had no future commercial value. We
find that to be an unreasonable
assumption and would over-compensate
carriers, so we decline to use a zero
terminal value in CAM.
3. Assigning Shared Network Costs
29. The Commission concluded in the
USF/ICC Transformation Order that it
would use a forward-looking model
capable of determining ‘‘on a census
block or smaller basis, areas that will be
eligible for CAF Phase II support.’’ As a
threshold matter, we conclude that the
model will calculate costs at the census
block level, except in those instances
where a census block is split between
two service providers. The model will
calculate costs at a significantly more
granular level than the Commission’s
prior forward-looking model, HCPM,
which calculated costs at the wire
center level. There are approximately 11
million census blocks, compared to
approximately 20,000 wire centers. We
therefore conclude that calculating costs
at the census block level will be
sufficient to meet the Commission’s
objective of targeting support to high
cost areas.
30. The Commission also concluded
that ‘‘it would be appropriate to exclude
any area served by an unsubsidized
competitor’’ that meets the
Commission’s initial performance
requirements. Most costs in a network
are shared costs. As a result, the method
used to attribute the costs of shared
plant to eligible and ineligible areas and
among census block or smaller areas
will have a significant effect on the
relative cost of serving different areas.
31. In the Model Design PN, the
Bureau asked how shared network costs
should be assigned between eligible and
ineligible areas. Specifically, the Bureau
asked whether costs should be modeled
for the entire service areas and then
allocated between eligible and ineligible
areas or costs should be estimated only
for the eligible areas on a standalone
basis.
32. We conclude that the Connect
America Cost Model will model the
total cost of serving an entire service
territory within a state, rather than
calculating the standalone costs of
serving only eligible census blocks, and
then, as more fully discussed below,
allocate the shared costs between
eligible and ineligible census blocks.
Modeling the costs associated with a
complete network (i.e., including both
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eligible and ineligible census blocks)
and then assigning shared costs between
the eligible and ineligible census blocks
has significant benefits. First, it more
accurately depicts an economically
efficient network and provider. An
economically efficient network would
cover all or most locations in a given
service territory, rather than only
serving a small subset of locations that
lack broadband. Indeed, building a
network to only serve those locations
that lack broadband would likely result
in higher cost estimates for those areas
than otherwise would be the case,
because the service provider would
have to deploy less than optimal routing
to reach those pockets of customers that
are in eligible census blocks. Moreover,
an economically efficient provider
would not generally cede a large
fraction of customers within its service
territory to unsubsidized competitors;
rather, it would seek to compete in
those areas where a positive business
case exists. Modeling the entire network
and then making adjustments to
determine support for particular census
blocks where there is no unsubsidized
competitor is a reasonable way to
proceed. Finally, the Bureau notes that
this approach has broad support in the
record. For these reasons, the Bureau
finds that it is appropriate for the
Connect America Cost Model to model
the total cost of serving the entire state,
not the standalone costs of only serving
eligible census blocks, and then allocate
shared costs between eligible and
ineligible census blocks.
33. In the Model Design PN, the
Bureau also asked how to allocate
shared costs consistent with the
requirement in the USF/ICC
Transformation Order that the model be
capable of determining ‘‘on a census
block or smaller basis, areas that will be
eligible for CAF Phase II support.’’
Shared costs need to be allocated not
only between eligible and ineligible
areas, but among census blocks in
eligible areas so that the costs of serving
each individual census block can be
estimated. The Bureau sought comment
on two potential options: (1) A
subtractive method, in which the model
would estimate only those costs to serve
eligible areas that are over and above the
costs of serving the ineligible areas, and
(2) a pro rata method, in which costs
would be assigned to eligible and
ineligible areas on some pro rata basis
or using some other formula. The
Bureau indicated a general preference
for the subtractive method, but
acknowledged that the computational
complexity of the subtractive method
might make it difficult or impossible to
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implement in practice. Subsequently, as
part of the virtual workshop, the Bureau
sought comment on a possible approach
to the subtractive method.
34. Based on our review of the record
and our development of CAM to date,
we now conclude that the model will
use a pro rata method for assigning
shared costs. The Bureau gave
significant consideration to a subtractive
approach for assigning costs, and there
was support in the record for such an
approach. Ultimately, however, we find
that the computational complexity and
the novelty of the subtractive approach
renders it too difficult to implement.
The cost-causation approach contained
in the current version of CAM (CAM
version 3.0) provides a practical method
of assigning shared costs in a reasonable
manner. Specifically, the model will use
a ‘‘cost causation’’ method that assigns
a fraction of the costs associated with a
shared network facility according to the
relative number of customers in each
area using the facility. Using cost
causation to allocate costs is consistent
with the current High-Cost Proxy
Model, the model submitted by the ABC
Coalition and the National Broadband
Plan modeling. For that reason, the
Bureau concludes that the costcausation approach for sharing costs
between eligible and ineligible census
blocks is appropriate for use in the
Connect America Cost Model.
4. Calculation of Costs for Price Cap
Carriers’ Currently Served Locations
35. We conclude the model platform
will estimate the costs of serving
locations irrespective of whether they
are currently provided broadband by the
ILEC. We find that this approach is
consistent with the Commission’s goals
and directives in the USF/ICC
Transformation Order. While the
Commission sought to ‘‘extend[]
broadband to millions of unserved
locations,’’ it also recognized the
importance of ‘‘sustaining existing voice
and broadband services.’’ We therefore
reject the Joint Michigan Competitors’
claim that the model should exclude
broadband-served areas because the
Commission’s focus is on deploying
broadband to unserved areas, and ACA’s
claim that broadband-served areas
should only receive ongoing support for
maintenance and operational
expenses—not for capital expenses.
36. We will presume, consistent with
the Commission’s direction and
predictive judgment, that locations that
exceed a specified cost benchmark,
which will be determined in a future
order, will require support on an
ongoing basis based on the total
levelized cost of sustaining existing
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voice and broadband services at
reasonable end-user rates. As we noted
in the Model Design PN, carriers may
have deployed broadband in certain
areas based on past universal service
support and intercarrier compensation
revenues. Even where carriers may have
deployed broadband to fulfill merger
commitments, because they received
another source of funding, or for other
reasons, such carriers still may require
funding to sustain the previous
broadband deployment. And as we
explained above, providing support for
only maintenance and operational
expenses would not cover the entire
cost of sustaining service.
37. Moreover, treating locations
currently served by the incumbent
differently from completely unserved
locations is inconsistent with a using a
green-field approach to estimate the
costs of an efficient modern network
optimized for voice and broadband.
Treating served and unserved locations
differently would require modeling
actual historical network deployment,
rather than an efficient forward-looking
network. This is functionally similar to
the first approach to brown-field
modeling, which would require an
extensive data collection, while
unnecessarily delaying implementation
of Phase II.
38. Accordingly, we reject
commenters’ claims that areas already
served by broadband do not require
ongoing support, (or only require
limited ongoing support), and we
conclude that the model will include
and calculate ongoing support for highcost locations above the cost benchmark
that are both served and unserved by
broadband. We note that this is
consistent with the Commission’s
approach when it adopted HCPM; it
calculated the cost of an efficient
provider to provide voice service
throughout the territory of a non-rural
LEC, even though those LECs already
provided voice.
5. Treatment of Non-Contiguous United
States
39. The Commission has ‘‘direct[ed]
the [Bureau] to consider the unique
circumstances of [Alaska, Hawaii,
Puerto Rico, the U.S. Virgin Islands and
Northern Marianas Islands] when
adopting a cost model.’’ The
Commission further directed the Bureau
to determine whether the cost model
provides sufficient support to these
areas, and if, in the Bureau’s
determination, the model does not
provide these areas with sufficient
support, the Commission granted the
Bureau the discretion to ‘‘maintain
existing support levels, as modified in
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this Order, to any affected price cap
carrier, without exceeding the overall
budget of $1.8 billion per year for price
cap areas.’’ The Bureau has sought
comment to further develop the record
on these two options for areas outside
the contiguous United States, and the
associated service obligations.
40. The decisions we make herein do
not prejudge whether modifications to
the model platform or input values
should be made with respect to the noncontiguous United States, or support
levels for those areas should be frozen.
We will address those arguments at a
future date.
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B. Customer Locations and Outside
Plant Design
41. As the Commission recognized
when it adopted the model platform for
HCPM, outside plant—namely, the loop
facilities between switches and the
customer premises—constitutes the
largest portion of total network
investment, and the design of outside
plant facilities depends heavily on the
location of customers. Business
customer information is important not
only for locating business customers,
but also for scaling the network
infrastructure to ensure that the costs of
shared resources are appropriately
shared among all users. The placement
of customer locations thus is an
important element of the CAM platform.
1. Customer Locations
42. In the Model Design PN, the
Bureau proposed to use a commercial
data set for residential customer
location data, but also sought comment
on two alternatives: Using official
government census data, which would
provide the number of housing units in
a census block but no geocodes, and
collecting actual customer location data
from providers. For business locations,
the Bureau proposed using government
data from the U.S. Bureau of Labor
Statistics (BLS) Economic Census, but
also sought comment on using
commercial data sources. The Bureau
sought further comment via the CAM
virtual workshop on methods for
determining customer locations.
43. Few commenters offered any
comments about customer locations
data. In the absence of actual geocode
information, the ABC Coalition supports
using a methodology that uses a
combination of data sources to estimate
the number of customer locations by zip
code and then distribute those locations
randomly along roads in the census
block. The only commenter suggesting
an alternative source for customer
location data is the National Association
of State Utility Consumer Advocates
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(NASUCA), which proposed the
Commission obtain E911 databases and
translate the addresses into geocodes
that can be used in the cost model. If the
Commission uses census data, NASUCA
argues that these data should be
augmented by geocoded data provided
by the carriers in census blocks above a
certain size.
44. We adopt a model platform that
will use a combination of commercial
data set (GeoResults Q3 2012) and
census data to determine residential and
business locations. Specifically, the
model will use GeoResults Q3 2012,
which provides an address-based
residential data set of households. To
the extent there are discrepancies
between the location counts from
GeoResults and 2011 census housing
unit estimates, the GeoResults count
will be adjusted upward or downward
to conform to the census, with the
records for the requisite number of
locations to be added or subtracted
selected in a random manner. We
conclude the model also should use
GeoReults for business location data,
because those data are more current and
include more businesses than the BLS
economic census data. GeoResults also
provides a national building file, which
is used to identify buildings that have
both residential and business customers.
The model will use additional data
sources to identify the locations of
community anchor institutions and cell
towers.
45. The CAM will use geocoded
locations wherever possible, and place
locations that cannot be geocoded
randomly along the roads within the
census block. This is an improvement
upon the approach previously taken by
the Commission when it implemented
HCPM. By using geocoded data where
available, the model will estimate with
greater precision the amount of feeder
plant necessary to reach all locations,
which should result in more accurate
cost estimates than the prior forwardlooking cost model utilized by the
Commission, which assigned all
locations randomly along roads using
Topologically Integrated Geographic
Encoding and Referencing (TIGER) data.
46. We find that using these data is
preferable to using E911 data,
supplemented by carrier-provided data,
as suggested by NASUCA. First,
NASUCA does not specifically identify
the E911 database(s) that it contends
should be used. Moreover, an approach
based on E911 databases would
potentially introduce inconsistencies in
the model across states, because each
state and, in many instances depending
on state and local regulations,
individual Public Safety Answering
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Points (PSAPs), are responsible for their
E911 databases, and these databases
differ in methodology, completeness
and accuracy. Using a consistent
methodology throughout the nation will
lessen the likelihood of inconsistencies
in cost estimates among states, which
could skew the relative distribution of
support in unknown ways among the
states.
47. We conclude that it is not feasible
to develop a model platform that
incorporates actual customer locations
for all locations. There is no publicly
available source of nationwide geocoded
location data, and commercial data
sources do not provide geocodes for all
locations. Even if the price cap carriers
provided the Commission with their
geo-coded customer database, or address
list if they do not have geo-coded
customer locations, these data bases
would only include the incumbent local
exchange carriers’ customers and not all
the housing units in the census block.
Doing a mandatory data collection that
collected customer location information
from cable operators and other nonincumbent providers would be a
significant Commission undertaking,
and it would impose burdens on those
providers. Nothing in the record before
us suggests that the incremental
improvement in precision of locations
that would result from such a
mandatory data collection would be
worth the costs in terms of burden on
both the Commission and outside
parties. Accordingly, we conclude that
GeoResults, trued-up with Census data
for residential locations, is the best
source of customer locations because of
the number of locations that are
geocoded. The final model will use the
methodology in CAM version 3.0 for
assigning included locations that cannot
be geocoded along road segments.
2. Clustering
48. We adopt a clustering approach
that uses road-based routing to
determine the maximum size of the
clusters. Once customer locations have
been identified, the model must
determine how to group and serve those
customers in an efficient and
technologically reasonable manner.
Consistent with past Commission
precedent for forward-looking cost
models, the objective is to group
customers into serving areas in an
efficient manner to minimize costs,
while maintaining a specified level of
network performance equality. Like
HCPM, our model platform will design
clusters consistent with engineering
constraints, grouping customers so that
they are no further away than allowed
by network design to deliver services
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meeting the Commission’s performance
requirements. CAM will improve the
approach previously used by the
Commission in HCPM, however, as it
will use road-based routing to determine
the maximum size of the clusters. Thus,
clusters defined by CAM are likely
smaller, but more realistic estimates of
cluster size, resulting in more accurate
cost estimates. By using road segments
in clustering, the CAM model avoids the
problem of having the length of some
loops modeled along roads exceed the
maximum loop length necessary to
provide service meeting specified
standards. The ABC Coalition supported
this approach, and no party objects to
using this clustering methodology for
modeling costs in the contiguous United
States. We conclude that the model will
include the clustering methodology
currently incorporated into CAM
version 3.0.
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3. Routing
49. We adopt the routing methodology
used in CAM, which builds plant along
roads and uses a minimum spanning
tree algorithm. Although HCPM allowed
for minimum spanning-tree
optimization of routes, it did not use the
road network. CAM, on the other hand,
represents an enhancement to the
approach taken by the Commission in
developing a forward-looking model in
the 1990’s, as it lays loop plant along
actual road segments and utilizes a
spanning tree algorithm to find the
lowest cost route to serve all customer
locations along road paths. The ABC
Coalition supported this approach, and
no party objects to using this routing
methodology for modeling costs in the
contiguous United States. We conclude
that the model platform will include the
CAM version 3.0 algorithm for routing
loop plant and feeder network.
4. Sizing Network Facilities
50. We adopt a model platform that
will size network facilities such that
there is sufficient capacity at the time of
peak usage. The model platform
accomplishes this by ensuring that the
size of each link in the network is
sufficient to support peak usage busy
hour offered load, taking into account
subscriber usage capacity (GB/month/
subscriber) as well as throughput
(Mbps) and take-rate. This method is
basically the same approach that was
taken in the National Broadband Plan
modeling. Because voice is the
supported service, the model also takes
into account peak demands associated
with voice service in the sizing
calculations. No party objects to this
general approach to network sizing. The
ABC Coalition agrees that sizing
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broadband facilities based on
throughput required at the time of peak
usage is reasonable, while noting that
the peak demands associated with voice
service should be included in the sizing
calculations if voice capability is to be
added to the model. We will address the
specific input values the model will use
for busy hour under load in a future
order.
C. Switching and Interoffice Facilities
1. Voice Capability
51. In the USF/ICC Transformation
Order, the Commission determined that
‘‘voice telephony service’’ is the service
supported by federal high-cost universal
support. All recipients must offer voice
telephony service. In addition, as a
condition of receiving support, all
recipients must offer broadband service.
52. We adopt a model platform that
estimates the cost of an IP-enabled
network capable of providing voice
service. The cost is modeled on a persubscriber basis and takes into account
the cost of hardware, software, services,
and customer premises equipment to
provide carrier-grade Voice over
Internet Protocol (VoIP) service. No
party objects to this general
methodology for including voice
capability to serve the contiguous
United States, and the ABC Coalition
supports this approach. We conclude
that the appropriate forward-looking
way to model a network today that
provides voice service is to design an
all-IP network. The specific inputs used
to calculate the per-subscriber cost will
be addressed in a future order.
2. Interoffice Facilities
53. We adopt a model platform that
ties central offices to the nearest tandem
location, ties tandems together, and uses
efficient routing paths for all
connections, using information from the
Local Exchange Routing Guide database.
The model platform assumes Ethernetbased fiber connections among wire
centers and between wire centers and
tandem switches, including the use of
wave division multiplexing gateways.
Additionally, the model platform
connects each hierarchy to the nearest
(lowest cost) Internet access point
regardless of ownership. The model
platform also uses routing along roads to
determine the cost of deploying fiber to
make connections, and includes
Broadband Remote Access Services and/
or gateway costs. No party objects to this
general approach for the contiguous
United States, and the ABC Coalition
supports this approach. This is
consistent with the HCPM, which also
included the middle mile costs of
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providing service. We will address cost
inputs related to interoffice transport in
a future order.
D. Framework for Capturing Variations
in Cost
54. As discussed more fully below,
the CAM will utilize differing
assumptions for certain input values
based on three geographic density
zones, and will adjust certain input
values for labor and materials based on
the three-digit zip code.
1. Plant Mix Based on Density Zone
55. The cost of a modern broadband
network varies significantly based on
the type of infrastructure used to deploy
the wires—specifically whether the
wires are underground, buried or aerial.
Most networks rely on all three types of
plant in varying degrees, with the
precise mix of plant dependent on many
factors. A model used to estimate the
costs of deploying a network must
therefore make assumptions regarding
the mix of plant used in the network.
56. We adopt a model that assumes
that each state is made up of three
density zones—urban, suburban, and
rural. For each density zone, the model
will assume a specific plant mix for
each of three different parts of the
network—distribution, feeder, and interoffice transport. As a result, each state
will have a matrix of nine different
density zone/network component
combinations, each of which has its
own mix of underground, buried, and
aerial plant. In addition, the model will
include a nationwide set of plant mixes
for each density zone and network
component, which may be used in any
state for which specific inputs may not
be available.
57. The Bureau concludes that this
methodology will provide sufficiently
granular variation in the mix of plant in
the entire network. We recognize that
the HCPM varied cost by nine density
zones, but no party in the current
proceeding objects to using three
geographic zones. The ABC Coalition
notes there was no variation in the plant
mix between the least dense zones in
HCPM, which together correspond to
the rural zone in the model we are
evaluating.
58. No commenter objected to the
general principle that plant mix should
vary according to density zones, with
different plant mix values in different
areas. Rather, the parties that addressed
this issue argued there should be a
process to document the development of
the specific input values to be used. The
source and specific percentages of plant
mix to be used in the matrix will be
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determined in a future order addressing
inputs.
Business Paperwork Relief Act of 2002,
Public Law 107–198.
2. Material and Labor Cost Adjustments
Based on Location
B. Final Regulatory Flexibility Act
Certification
59. We adopt an approach that
utilizes uniform input values for various
capital costs, with adjustments for
regional variations in labor and material
costs. We conclude that this approach to
development of a forward-looking
model is consistent with past precedent.
In the HCPM Inputs Order, 64 FR 67372,
December 1, 1999, the Commission
determined nationwide default values
are generally more appropriate than
company-specific input values for a
forward-looking model. It noted that the
universal service support mechanism is
‘‘based on the estimated costs that an
efficient carrier would incur to provide
the supported services, rather than on
the specific carrier’s book costs.’’ It
concluded that ‘‘it would be
administratively unworkable to use
company-specific values in the federal
nationwide model.’’ At the same time,
however, the Commission recognized
the desirability of having data that
accurately and objectively reflect
‘‘variations in forward-looking costs
based on objective criteria,’’ and it
stated that it was open to additional
modifications of inputs in the future.
Thus, although the Commission did not
adjust costs for regional variation in
adopting HCPM, it expressly recognized
that a forward-looking model could
appropriately recognize variations in
cost.
60. Our forward-looking model will
use regional cost adjustment factors to
capture variation in labor and materials
costs by three-digit ZIP codes. Those
regional adjustments are based on data
obtained from a national survey of the
costs of construction in various areas of
the United States by R.S. Means. The
ABC Coalition supports this approach of
using nationwide average values with
regional adjustments, noting that the
R.S. Means data is widely recognized
and used in numerous contexts. No
party objected to the use of this
methodology for areas in the contiguous
United States.
62. The Regulatory Flexibility Act of
1980, as amended (RFA), requires that a
regulatory flexibility analysis be
prepared for rulemaking proceedings,
unless the agency certifies that ‘‘the rule
will not have a significant economic
impact on a substantial number of small
entities.’’ The RFA generally defines
‘‘small entity’’ as having the same
meaning as the terms ‘‘small business,’’
‘‘small organization,’’ and ‘‘small
governmental jurisdiction.’’ In addition,
the term ‘‘small business’’ has the same
meaning as the term ‘‘small business
concern’’ under the Small Business Act.
A small business concern is one which:
(1) Is independently owned and
operated; (2) is not dominant in its field
of operation; and (3) satisfies any
additional criteria established by the
Small Business Administration (SBA).
63. In this Report and Order, we adopt
a model platform for the Connect
America Phase II cost model that will
calculate a levelized cost that represents
an estimate of the average monthly
forward-looking cost of an efficient
provider. A model platform is the basic
framework for the model consisting of
key assumptions about the design of the
network and network engineering. We
also address certain framework issues
relating to inputs for the model. These
decisions are not anticipated to have a
significant economic impact on small
entities, insofar as the model produces
high-cost support amounts for price cap
carriers and their affiliates that accept
the right of first refusal pursuant to
Connect America Phase II. This is
primarily because most (and perhaps
all) of the affected carriers are not small
entities. Moreover, the decisions made
about the model platform in this Report
and Order are not anticipated to
systematically increase or decrease
support for any particular group of
entities as compared to possible
alternatives discussed in the record.
Therefore, we certify that the decisions
made in this Report and Order will not
have a significant economic impact on
a substantial number of small entities.
The Commission will send a copy of the
Report and Order, including a copy of
this final certification, in a report to
Congress pursuant to the SBREFA. In
addition, the Report and Order and this
certification will be sent to the Chief
Counsel for Advocacy of the SBA, and
will be published in the Federal
Register.
III. Procedural Matters
pmangrum on DSK3VPTVN1PROD with RULES
A. Paperwork Reduction Act
61. This document does not contain
new or modified information collection
requirements subject to the Paperwork
Reduction Act of 1995 (PRA), Public
Law 104–13. In addition, therefore, it
does not contain any new or modified
information collection burden for small
business concerns with fewer than 25
employees, pursuant to the Small
VerDate Mar<15>2010
15:01 May 03, 2013
Jkt 229001
PO 00000
Frm 00045
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26277
C. Congressional Review Act
64. The Commission will send a copy
of this Report and Order to Congress
and the Government Accountability
Office pursuant to the Congressional
Review Act.
IV. Ordering Clauses
65. Accordingly, it is ordered,
pursuant to the authority contained in
sections 1, 2, 4(i), 5, 214, 254, 303(r),
and 403 of the Communications Act of
1934, as amended, and section 706 of
the Telecommunications Act of 1996, 47
U.S.C. 151, 152, 154(i), 155, 214, 254,
303(r), 403, and 1302, sections 0.91,
0.201(d), 1.1, and 1.427 of the
Commission’s rules, 47 CFR 0.91,
0.201(d), 1.1, 1.427, and the delegations
of authority in paragraphs 157, 184, 186,
187, and 192 of the USF/ICC
Transformation Order, FCC 11–161, that
this Report and Order is adopted,
effective thirty (30) days after
publication of the text or summary
thereof in the Federal Register.
Federal Communications Commission.
Carol E. Mattey,
Deputy Chief, Wireline Competition Bureau.
[FR Doc. 2013–10565 Filed 5–3–13; 8:45 am]
BILLING CODE 6712–01–P
DEPARTMENT OF COMMERCE
National Oceanic and Atmospheric
Administration
50 CFR Part 660
[Docket No. 120814338–2711–02]
RIN 0648–BD14
Magnuson-Stevens Act Provisions;
Fisheries Off West Coast States;
Biennial Specifications and
Management Measures; Inseason
Adjustments
National Marine Fisheries
Service (NMFS), National Oceanic and
Atmospheric Administration (NOAA),
Commerce.
ACTION: Final rule; inseason adjustments
to biennial groundfish management
measures.
AGENCY:
This final rule announces
inseason changes to management
measures in the Pacific Coast groundfish
fisheries. This action, which is
authorized by the Pacific Coast
Groundfish Fishery Management Plan
(PCGFMP), is intended to allow
fisheries to access more abundant
groundfish stocks while protecting
overfished and depleted stocks.
SUMMARY:
E:\FR\FM\06MYR1.SGM
06MYR1
Agencies
[Federal Register Volume 78, Number 87 (Monday, May 6, 2013)]
[Rules and Regulations]
[Pages 26269-26277]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: 2013-10565]
-----------------------------------------------------------------------
FEDERAL COMMUNICATIONS COMMISSION
47 CFR Part 54
[WC Docket Nos. 10-90, 05-337; DA 13-807]
Connect America Fund; High-Cost Universal Service Support
AGENCY: Federal Communications Commission.
ACTION: Final rule.
-----------------------------------------------------------------------
SUMMARY: In this document, the Federal Communications Commission
(Commission) primarily addresses the model platform, which is the basic
framework for the model consisting of key assumptions about the design
of the network and network engineering. The Commission also addresses
certain framework issues relating to inputs.
DATES: Effective June 5, 2013.
FOR FURTHER INFORMATION CONTACT: Katie King, Wireline Competition
Bureau, (202) 418-7491 or TTY: (202) 418-0484.
SUPPLEMENTARY INFORMATION: This is a summary of the Commission's Report
and Order in WC Docket Nos. 10-90, 05-337; DA 13-807, adopted on April
22, 2013 and released on April 22, 2013. The full text of this document
is available for public inspection during regular business hours in the
FCC Reference Center, Room CY-A257, 445 12th Street SW., Washington, DC
20554. Or at the following Internet address: https://hraunfoss.fcc.gov/edocs_public/attachmatch/DA-13-807A1.pdf.
I. Introduction
1. In the USF/ICC Transformation Order, 76 FR 73830, November 29,
2011, the Commission comprehensively reformed and modernized the
universal service and intercarrier compensation systems to maintain
voice service and extend broadband-capable infrastructure. As part of
the reform, the Commission adopted a framework for providing support to
areas served by price cap carriers known as Phase II of the Connect
America Fund. An estimated eighty-five percent of the approximately 6.3
million locations in the nation that lack access today to terrestrial
fixed broadband at or above the Commission's broadband speed benchmark
live in areas served by price cap carriers. The Connect America Fund
will maintain voice service and expand broadband availability to
millions of unserved Americans living in these areas within the next
five years, and aims to close this gap entirely within a decade.
Through Phase II, the
[[Page 26270]]
Commission introduced targeted, efficient support for broadband-capable
networks in these unserved rural areas as part of its efforts to close
the rural-rural divide and direct funding to parts of rural America
where it is most needed. Specifically, the Commission will provide
support through ``a combination of competitive bidding and a new
forward-looking model of the cost of constructing modern multi-purpose
networks.'' Using the cost model to ``estimate the support necessary to
serve areas where costs are above a specified benchmark, but below a
second `extremely high-cost' benchmark,'' the Commission will offer
each price cap local exchange carrier (LEC) ``a model-derived support
amount [for a period of five years] in exchange for a commitment to
serve all locations in its service territory in a state that, based on
the model, fall within the high-cost range and are not served by an
competing, unsubsidized provider.''
2. The Commission delegated to the Wireline Competition Bureau
(Bureau) ``the task of selecting a specific engineering cost model and
associated inputs that meet the criteria specified'' by the Commission.
Consistent with the approach taken by the Commission when it
implemented a forward-looking model known as the High-Cost Proxy Model
(HCPM) to determine support amounts for non-rural carriers in the wake
of the implementation of the Telecommunications Act of 1996, the
Bureau's plan is to adopt a model to estimate forward-looking costs in
two separate orders. In this first order, we primarily address the
model platform, which is the basic framework for the model consisting
of key assumptions about the design of the network and network
engineering. We also address certain framework issues relating to
inputs.
II. Discussion
3. This order focuses on the platform components of the cost-to-
serve module. As detailed below, and consistent with the approach
previously taken by the Commission in adopting its prior forward-
looking model for universal service support, we adopt a model platform
that will allow the Bureau to estimate the full average monthly cost of
operating and maintaining an efficient, modern network. Specifically,
the model will begin by estimating all capital and operating expenses
associated with a modern network. Those variously-timed expenditures
will be converted to an average monthly cost, as described below.
Because providers' support will be based on this average cost for five
years, while many components of an actual network have much longer
lives, using this average cost approach will not compensate providers
for the full cost of a network within the five year Phase II timeframe.
It will, however, estimate the cost of providing service in the way
that best approximates the discipline of a competitive market.
4. The average costs will be based on an efficient modern network,
rather than a less efficient legacy network supplemented with
incremental upgrades over time. That is, consistent with the
Commission's directive to adopt a ``forward-looking'' approach, we will
model the costs as if all providers were able to claim the efficiency
advantages of a modern green-field build, rather than attempt to model
costs of upgrades and inefficiencies associated with maintaining and
upgrading legacy networks piecemeal (a ``brown-field'' approach).
Although some commenters have argued that a ``brown-field'' approach
would result in lower modeled costs, we find that this is only because
the various brown-field estimates in the record have each improperly
excluded certain costs.
5. Following the assumption of a maximally efficient modern
network, modeled costs will be based on an IP-based FTTP network of a
wireline telecommunications provider, capable of providing both voice
and broadband. Customer locations, both residential and business, will
be placed in individual census blocks, and a network topology will be
constructed to serve all of those locations. Consistent with the
Commission's approach when it developed the HCPM in the 1990s, the
model will calculate necessary interoffice transport (i.e., middle
mile), which, in a modern network, would connect all central offices
with internet gateways. The model will provide the capability to vary
certain input values relating to the cost of construction based on
physical geography within a given state. Costs will be calculated on a
census block level.
6. Although a large number of important decisions regarding input
values and other issues remain, preliminary estimates based on the
current version of the CAM suggest that this better calibrated approach
results in more reliable cost estimates of an efficient provider. Using
the platform decisions adopted in this Report and Order, we estimate
that per-location costs for the highest cost areas (those potentially
available for Phase II funding) are roughly 20-25 percent lower in the
current version of the CAM than in the cost model submitted by the ABC
Coalition prior to the Commission's adoption of the USF/ICC
Transformation Order. The work done to date thus has modified aspects
of the CQBAT model that led to an overstatement of the costs of
providing broadband-capable infrastructure in Phase II areas.
A. Threshold Model Design/Platform Issues
1. General Approach to Cost Estimation
7. Consistent with Commission precedent, the model platform that we
adopt today will calculate a levelized cost that represents an estimate
of the average monthly forward-looking cost of an efficient provider.
Those costs include both capital and operating expenses. Recovery for
each asset class, for example, poles, conduit, etc., will be spread out
evenly over the useful life of the asset class according to empirical
estimates of the rate at which elements of the asset class are retired.
Costs will be levelized to produce a constant monthly cost throughout
the life of each asset, which in many cases may exceed 20 years or
more. Because a significant driver of network costs are assets with an
accounting lifetime of 20 years or more, such as loop plant, the
levelized cost calculated by the model will provide recovery for only a
portion of the cost of the network over the five-year term of Phase II.
In other words, as discussed more fully below, the model platform will
calculate costs assuming that the supported network will retain
significant value at the end of the five-year term of Phase II support.
2. Network Design
8. In the USF/ICC Transformation Order, the Commission delegated to
the Bureau the authority to select the specific engineering cost model,
including the modeled network architecture. The Commission indicated
that the Bureau's ``ultimate choice of a greenfield or brownfield
model, the modeled architecture, and the costs and inputs of that model
should ensure that the public interest obligations are achieved as
cost-effectively as possible.''
9. In the Model Design PN, 77 FR 38804, June 29, 2012, the Bureau
sought comment on, among other things, the choice of a green-field or
brown-field model; whether the model should estimate the costs of FTTP
or Digital Subscriber Line (DSL) (including Fiber-to-the-Node (FTTN))
technology; and what terminal value to assign to the modeled network
(e.g., book value or zero value). The Bureau also sought comment on
whether the model should estimate the total costs of serving the entire
service area so that shared costs
[[Page 26271]]
may be distributed between areas that are eligible and ineligible for
support, or estimate only the standalone costs of areas eligible for
support; how shared network costs should be distributed to the census-
block (or smaller) area; and whether the model should calculate support
for areas to which broadband has already been deployed or only for
unserved areas.
10. As discussed below, we conclude that the Connect America Cost
Model will be a green-field FTTP model with the terminal value of the
network at the end of the five-year term determined by the book value
of the assets. As explained in the Model Design PN, the issues of
network technology (e.g., FTTP or DSL), design (green-field or brown-
field) and terminal value (e.g., book value or zero value) are
interrelated. We conclude that using a green-field FTTP model paired
with book value is the best choice for estimating the most efficient
forward-looking cost of providing service over a voice and broadband-
capable wireline network in price cap areas.
a. Green-field vs. Brown-field
11. We find that using a green-field model is more appropriate than
using a brown-field model, for three principle reasons. First, a green-
field model is consistent with Commission precedent, including the USF/
ICC Transformation Order. Second, a green-field model provides an
estimate of costs that creates appropriate incentives to invest--that
is, it best approximates the discipline provided by a competitive
market. And finally, a green-field model can be implemented in a
straightforward and timely manner. Contrary to some commenters'
assertions, we conclude that a green-field model does not over-
compensate providers. Indeed, a levelized green-field approach is
likely to result in no more support than a properly calculated
levelized brown-field approach because it approximates the average
long-run cost of an efficient modern network optimized for voice and
broadband, rather than the average long-run cost of a less efficient
legacy voice network plus broadband upgrades.
12. First, a green-field approach is consistent with Commission's
determination in the USF/ICC Transformation Order in that it would use
a forward-looking cost model to identify price cap areas eligible for
Connect America Phase II support, as well as other Commission
precedent. A green-field approach is forward-looking because it
estimates the cost of the ongoing provision of specific services by
developing a hypothetical efficient, modern network to calculate the
minimum cost of providing such services now and in the future, given
current technology and input costs. It does not take into account
historic costs or whether the carrier historically recovered its
earlier investments in the existing network, other than what is
provided through the monthly levelized cost stream going forward.
13. A green-field model is consistent with the approach taken by
the Commission in developing and adopting its previous voice cost
model, the HCPM. Even though legacy voice networks existed throughout
the nation at that time, often including less-efficient older
technologies or inefficient network routing, the Commission concluded
that the appropriate way to determine support was to estimate the cost
of an efficient modern network to provide voice service, assuming only
the existence of incumbent central offices and current wire centers
(referred to as the ``scorched node'' approach). Consistent with this
longstanding precedent, the green-field approach we adopt will
calculate (1) the minimum, levelized cost of a voice and broadband-
capable network today, using current, rather than historic,
technologies and prices, and (2) the minimum costs of continued
provision of voice and broadband services on that network, including
the costs of maintaining the network's capabilities in each year going
forward.
14. Second, consistent with longstanding Commission precedent, we
adopt a green-field approach because it estimates costs in a manner
that provides appropriate forward-looking incentives to invest. A
forward-looking approach to cost modeling does not ask whether or to
what extent carriers' have recovered their costs from past investments.
Instead, a forward-looking model calculates costs at a level expected
to recover all network costs over the long term, accounting for
investment risk and anticipated demand, comparable to a market with
sustainable competition. In such a regulatory environment, recipients
of support should receive appropriate forward-looking compensation for
risks that are intended to mimic the risks that competitive firms face
in markets where subsidies are not provided.
15. We are not persuaded by the argument that using a green-field
model for Connect America Phase II will over-compensate the price cap
carriers over a five-year period because the actual replacement costs
incurred over the next five years may in some instances be less than
the green-field levelized cost. The Commission previously has concluded
that forward-looking economic costs--not actual costs--are the proper
framework for determining universal service support, and the Commission
specifically directed the Bureau to use a forward-looking approach in
the USF/ICC Transformation Order. Moreover, whether an individual price
cap carrier would actually spend more or less than model-determined
support over the course of the five-year term will depend on where the
individual price cap carriers that make a state-level commitment are in
their respective investment cycles. Carriers have made and must
continue to make investments that last substantially longer than five
years, incurring costs that do not, year-by-year, match their revenues
(even for the case of commercially-viable investments). Those carriers
that must undertake a relatively high level of asset replacement may
therefore face higher costs than the modeled costs. Others will face
lower costs. Allowing monthly recovery of the model's levelized cost
means, on average, all carriers will earn an amount that would allow
them to maintain the specified levels of service going forward over the
longer term.
16. Indeed, a green-field model may calculate costs lower than
actual costs because it may overstate the degree to which carriers are
able, in practice, to optimize their network. Carriers do not have the
luxury of building their networks from the ground up to meet today's
demand. Rather, they augment their networks piecemeal, with each
upgrade subject to past investment decisions that may not always have
been based on accurate forecasts of demand and technology developments.
Consistent with Commission precedent in adopting a green-field model to
estimate the forward-looking cost of voice service, we find that, on
balance, the green-field approach should provide a reasonable overall
approximation of costs for Phase II implementation.
17. Third, a forward-looking green-field approach can be
implemented in a straightforward and timely manner, allowing the
fastest possible deployment of new broadband in price cap territories.
Each version of the CAM released to date contains the capability to
estimate the costs of a green-field FTTP network. Moreover, the ABC
Coalition previously submitted into the record of this proceeding more
than a year ago a green-field model. As a result, the public and Bureau
staff have had ample opportunity to analyze the attributes and the
usefulness of a green-field model for implementing the Commission's
universal service policies. These submissions build on a substantial
history of use of green-field
[[Page 26272]]
models in a variety of regulatory contexts. In contrast, as discussed
in more detail below, we are not satisfied that any version of the CAM
has yet provided a reasonable way of estimating brown-field costs. We
therefore conclude that adopting a green-field model platform now, so
that parties can focus their attention on input values, will facilitate
the timely conclusion of the Phase II cost model development process,
and thereby accelerate the deployment of broadband-capable networks to
unserved Americans.
18. In contrast to a green-field approach, there are significant
drawbacks to a brown-field approach. First, notwithstanding arguments
to the contrary, a brown-field approach is not entirely forward-
looking. It represents a hybrid approach that falls between a true
forward-looking approach, which a green-field model approximates, and a
historic cost approach. A brown-field approach assumes existing
infrastructure as of a point in time and adds the ongoing costs of this
infrastructure to the cost of additional network upgrades necessary to
provide a desired set of services in the future. As an example,
existing fiber transport, and/or the last few thousand feet of copper
terminating at an end-user location, could potentially be used to
supply voice and broadband service. For these portions of the network,
a brown-field approach would estimate costs based on the existing
network facilities, rather than on a modern, efficient network.
19. Second, there would be serious practical hurdles to overcome
before we could implement such an approach. The Bureau considered two
possible ways to implement a brown-field approach: one that identifies
those assets actually in place, and then considers the incremental cost
of making that existing network broadband-capable, and another that
produces a hypothetical model of a voice-only network, and then
considers the incremental cost of adding broadband capability to that
network. Both approaches raise significant practical difficulties.
20. The first approach to brown-field modeling has significant
backward-looking elements not present in a green-field approach and is
substantially more complicated than a green-field approach. In
particular, this brown-field approach would require identification of
the specific existing network assets that are assumed to be retained.
Thus, we would need to develop a model that accurately represents the
existing network infrastructure and determine what parts of the
existing network can be used; we then would estimate the cost of any
incremental upgrades required to meet the Commission's service
obligations going forward, including the costs that would be necessary
going forward to maintain the entire network's capabilities. In
contrast to a green-field approach, this brown-field approach would
require a substantial backward-looking exercise in which those
components of the network that already exist must be identified and
located, and characterized in terms of their age and capabilities going
forward (e.g., gauge of copper wire, etc.). Additionally, this brown-
field approach would model the forward-looking costs of augmenting the
existing network to make it broadband-capable. In comparison to a
green-field approach, such an exercise would likely require far more
data, because existing network investments would need to be catalogued,
and it would present a more complex cost optimization, because the
optimal network would be designed to account for the elements of the
existing network that would be efficient to keep. This would be
particularly complex, requiring the Bureau to make decisions about what
assets should be retained, and what should be replaced.
21. The second approach to brown-field modeling would be to
estimate the green-field cost of the existing network and then estimate
the incremental cost of making that network fully broadband-capable.
This approach avoids the difficulties of cataloging existing network
infrastructure, and of having to optimize taking historical investment
decisions into account, but has the peculiarity of using a hypothetical
optimized green-field cost model to estimate the cost of an existing
network. While such an approach would limit the amount of data that
would be required and would avoid some of the backward looking nature
of the first approach, it only obliquely meets the ostensible objective
of a brown-field approach, which is to assume that all existing
infrastructure will be retained, with upgrades to make that network
fully broadband-capable. In addition, taking this approach still would
require the Bureau to make a substantial number of assumptions about
the age and quality of existing assets and therefore significantly
broaden the reasonable range of outcomes, compared to a green-field
model. The Bureau first would have to determine which hypothetical
assets are assumed to exist as the starting point, and then model the
investments required to make that network capable of supplying
broadband. In contrast, the green-field approach requires only modeling
a current generation, modern network.
22. We are not persuaded by ACA's argument that a brown-field
approach would result in cost estimates substantially lower than a
green-field model, and therefore expand the number of unserved homes
that could receive broadband given the fixed budget for Phase II. ACA's
attempts to estimate brown-field costs exclude some costs that should
be included in a proper brown-field model. In response to the Model
Design PN, ACA argues that ``the CQBAT model [submitted by the ABC
Coalition] includes functionality to allow for the modeling of a
brownfield DSL build-out.'' In fact, that function in CQBAT simply
eliminated all capital expenditures for certain network elements, such
as copper loops. ACA acknowledged that CQBAT did not adequately account
for the operating expenses associated with the copper portion of the
loop, copper replacement in cases where plant needs to be replaced, and
loop conditioning costs on a granular level, but argued that adding
these functionalities to the model should not be difficult.
Subsequently, in October 2012, ACA filed additional estimates of brown-
field costs based on CQBAT runs under various scenarios, each of which
excluded certain capital costs, such as copper loops, necessary for
providing ongoing service from the calculations, and we find it would
be appropriate to take these costs into account in a brown-field model.
Therefore, we are not persuaded that the calculations provided by ACA
appropriately reflect the cost estimates of a brown-field approach, and
conclude that ACA does not provide a reliable estimate of the number of
homes that would become served by broadband in Phase II.
23. While CAM version 3.0 contains a feature that attempts to
approximate brown-field costs, we still do not believe this approach
fully corrects the issues associated with the CQBAT model's brown-field
approach. This ``brown-field adjustment'' was intended to capture the
replacement cost of existing plant as those assets are retired, but not
to capture the cost of existing plant that is continued to be used to
provide the existing services. That is, the calculation captures the
cost of providing service when an asset is retired, but not of
providing service until that point. We therefore conclude that
additional costs would have to be added to this brown-field adjustment
to properly take into account the existing assets necessary to provide
and maintain voice and broadband services on an ongoing basis. In fact,
we now are convinced that if all
[[Page 26273]]
these costs are properly accounted for, brown-field modeling should
provide cost estimates no lower than, or potentially higher than, a
green-field approach.
24. In sum, we find that a green-field cost approach is the
preferable approach to calculate the cost of a forward-looking network.
It is more consistent with the Commission's directive and prior
precedent, and we conclude that there are no persuasive arguments that
using a green-field approach would result in overpayments to the price
cap carriers. In contrast, development of a suitable brown-field model
would likely take a considerable amount of additional time and delay in
implementation of Connect America Phase II, because it is a much more
complex undertaking with little precedent to guide staff efforts.
b. FTTP
25. We also conclude the best approach to meet the Commission's
directive that we adopt a forward-looking cost model is to estimate the
costs of a FTTP network rather than a twisted copper pair DSL network.
As explained in the Model Design PN, a DSL network ``is only forward
looking from the perspective of decisions made a decade or more in the
past,'' and ``has higher expected operating expenses and is more likely
to require significant additional investment to make faster broadband
offerings available.'' Although some price cap carriers may choose to
extend broadband to unserved areas in the near term by shortening
copper loops, rather than deploying FTTP, the most efficient wireline
technology being deployed today in new builds is FTTP. Network
construction costs are essentially the same whether a carrier is
deploying copper or fiber, but fiber networks result in significant
savings in outside plant operating costs over time. If an efficient
carrier were to design a new wireline network today, it would be an all
Internet protocol (IP) fiber network, not a circuit switched copper
network, because such a network would be cheaper and more scalable over
time. Indeed, an IP fiber network would be the appropriate choice for a
wireline network even if there were no service obligation to extend
broadband. Therefore, FTTP is more consistent with a forward-looking
approach.
c. Methodology for Determining Terminal Value
26. The model platform that we adopt today provides capital
recovery through what is termed depreciation. We conclude that the
model should determine the terminal value of the network based on
``book value'' calculated as the difference between investment and
economic depreciation, which takes into account the economic life of
the equipment and infrastructure. Specifically, the model will
calculate book depreciation expense based on equal-life-group
methodologies, using Gompertz-Makeham survivor (mortality) curves and
projected economic lives. The model will adjust the survivor curves,
however, so that the average lifetime of the asset falls within the
range of expected accounting lifetimes authorized by the Commission.
This approach is consistent with the methodology used in the
Commission's previous cost model used to determine support amounts for
the non-rural LECs, HCPM, and supported in the current record.
27. In the virtual workshop, the Bureau sought comment on whether
any of the projected lives used in HCPM are outdated and should be
modified. The ABC Coalition recommended that the Bureau uses the same
economic lives for assets as HCPM, while ACS suggested the Commission's
economic lives are too long and should be updated. Based on our review
of the record, we now conclude the model will utilize the same economic
lives for assets as specified by the Commission previously when it
adopted the HCPM, when determining the monthly cost of capital
investments. As the ABC Coalition notes, for more than a decade, these
economic lives for assets have been widely used in cost models in state
regulatory proceedings. We are persuaded that it would be
administratively burdensome to establish new values, which would
unnecessarily delay implementation of Connect America Phase II. We
recognize that to the extent economic lives are overstated for
particular assets that would result in a systematic understatement of
costs, but no party has submitted any evidence in the record
demonstrating that this effect would result in a material change in
support levels thwarting achievement of the Commission's universal
service objectives.
28. As the Bureau explained in the Model Design PN, the annual cost
and support values are highly dependent on the terminal value, because
the five-year support period is much shorter than the average lifetime
of all of the asset classes in the model. At the end of five years, a
FTTP network would have significant commercial value. Because
estimating commercial value at the end of the five-year term would
require making a number of assumptions about the evolution of
technology and the marketplace, we conclude that using book value is
the best approach. Using a terminal value of zero, as some parties
advocate, would permit carriers to recover the entire cost of the
network over five years, and assume the network had no future
commercial value. We find that to be an unreasonable assumption and
would over-compensate carriers, so we decline to use a zero terminal
value in CAM.
3. Assigning Shared Network Costs
29. The Commission concluded in the USF/ICC Transformation Order
that it would use a forward-looking model capable of determining ``on a
census block or smaller basis, areas that will be eligible for CAF
Phase II support.'' As a threshold matter, we conclude that the model
will calculate costs at the census block level, except in those
instances where a census block is split between two service providers.
The model will calculate costs at a significantly more granular level
than the Commission's prior forward-looking model, HCPM, which
calculated costs at the wire center level. There are approximately 11
million census blocks, compared to approximately 20,000 wire centers.
We therefore conclude that calculating costs at the census block level
will be sufficient to meet the Commission's objective of targeting
support to high cost areas.
30. The Commission also concluded that ``it would be appropriate to
exclude any area served by an unsubsidized competitor'' that meets the
Commission's initial performance requirements. Most costs in a network
are shared costs. As a result, the method used to attribute the costs
of shared plant to eligible and ineligible areas and among census block
or smaller areas will have a significant effect on the relative cost of
serving different areas.
31. In the Model Design PN, the Bureau asked how shared network
costs should be assigned between eligible and ineligible areas.
Specifically, the Bureau asked whether costs should be modeled for the
entire service areas and then allocated between eligible and ineligible
areas or costs should be estimated only for the eligible areas on a
standalone basis.
32. We conclude that the Connect America Cost Model will model the
total cost of serving an entire service territory within a state,
rather than calculating the standalone costs of serving only eligible
census blocks, and then, as more fully discussed below, allocate the
shared costs between eligible and ineligible census blocks. Modeling
the costs associated with a complete network (i.e., including both
[[Page 26274]]
eligible and ineligible census blocks) and then assigning shared costs
between the eligible and ineligible census blocks has significant
benefits. First, it more accurately depicts an economically efficient
network and provider. An economically efficient network would cover all
or most locations in a given service territory, rather than only
serving a small subset of locations that lack broadband. Indeed,
building a network to only serve those locations that lack broadband
would likely result in higher cost estimates for those areas than
otherwise would be the case, because the service provider would have to
deploy less than optimal routing to reach those pockets of customers
that are in eligible census blocks. Moreover, an economically efficient
provider would not generally cede a large fraction of customers within
its service territory to unsubsidized competitors; rather, it would
seek to compete in those areas where a positive business case exists.
Modeling the entire network and then making adjustments to determine
support for particular census blocks where there is no unsubsidized
competitor is a reasonable way to proceed. Finally, the Bureau notes
that this approach has broad support in the record. For these reasons,
the Bureau finds that it is appropriate for the Connect America Cost
Model to model the total cost of serving the entire state, not the
standalone costs of only serving eligible census blocks, and then
allocate shared costs between eligible and ineligible census blocks.
33. In the Model Design PN, the Bureau also asked how to allocate
shared costs consistent with the requirement in the USF/ICC
Transformation Order that the model be capable of determining ``on a
census block or smaller basis, areas that will be eligible for CAF
Phase II support.'' Shared costs need to be allocated not only between
eligible and ineligible areas, but among census blocks in eligible
areas so that the costs of serving each individual census block can be
estimated. The Bureau sought comment on two potential options: (1) A
subtractive method, in which the model would estimate only those costs
to serve eligible areas that are over and above the costs of serving
the ineligible areas, and (2) a pro rata method, in which costs would
be assigned to eligible and ineligible areas on some pro rata basis or
using some other formula. The Bureau indicated a general preference for
the subtractive method, but acknowledged that the computational
complexity of the subtractive method might make it difficult or
impossible to implement in practice. Subsequently, as part of the
virtual workshop, the Bureau sought comment on a possible approach to
the subtractive method.
34. Based on our review of the record and our development of CAM to
date, we now conclude that the model will use a pro rata method for
assigning shared costs. The Bureau gave significant consideration to a
subtractive approach for assigning costs, and there was support in the
record for such an approach. Ultimately, however, we find that the
computational complexity and the novelty of the subtractive approach
renders it too difficult to implement. The cost-causation approach
contained in the current version of CAM (CAM version 3.0) provides a
practical method of assigning shared costs in a reasonable manner.
Specifically, the model will use a ``cost causation'' method that
assigns a fraction of the costs associated with a shared network
facility according to the relative number of customers in each area
using the facility. Using cost causation to allocate costs is
consistent with the current High-Cost Proxy Model, the model submitted
by the ABC Coalition and the National Broadband Plan modeling. For that
reason, the Bureau concludes that the cost-causation approach for
sharing costs between eligible and ineligible census blocks is
appropriate for use in the Connect America Cost Model.
4. Calculation of Costs for Price Cap Carriers' Currently Served
Locations
35. We conclude the model platform will estimate the costs of
serving locations irrespective of whether they are currently provided
broadband by the ILEC. We find that this approach is consistent with
the Commission's goals and directives in the USF/ICC Transformation
Order. While the Commission sought to ``extend[] broadband to millions
of unserved locations,'' it also recognized the importance of
``sustaining existing voice and broadband services.'' We therefore
reject the Joint Michigan Competitors' claim that the model should
exclude broadband-served areas because the Commission's focus is on
deploying broadband to unserved areas, and ACA's claim that broadband-
served areas should only receive ongoing support for maintenance and
operational expenses--not for capital expenses.
36. We will presume, consistent with the Commission's direction and
predictive judgment, that locations that exceed a specified cost
benchmark, which will be determined in a future order, will require
support on an ongoing basis based on the total levelized cost of
sustaining existing voice and broadband services at reasonable end-user
rates. As we noted in the Model Design PN, carriers may have deployed
broadband in certain areas based on past universal service support and
intercarrier compensation revenues. Even where carriers may have
deployed broadband to fulfill merger commitments, because they received
another source of funding, or for other reasons, such carriers still
may require funding to sustain the previous broadband deployment. And
as we explained above, providing support for only maintenance and
operational expenses would not cover the entire cost of sustaining
service.
37. Moreover, treating locations currently served by the incumbent
differently from completely unserved locations is inconsistent with a
using a green-field approach to estimate the costs of an efficient
modern network optimized for voice and broadband. Treating served and
unserved locations differently would require modeling actual historical
network deployment, rather than an efficient forward-looking network.
This is functionally similar to the first approach to brown-field
modeling, which would require an extensive data collection, while
unnecessarily delaying implementation of Phase II.
38. Accordingly, we reject commenters' claims that areas already
served by broadband do not require ongoing support, (or only require
limited ongoing support), and we conclude that the model will include
and calculate ongoing support for high-cost locations above the cost
benchmark that are both served and unserved by broadband. We note that
this is consistent with the Commission's approach when it adopted HCPM;
it calculated the cost of an efficient provider to provide voice
service throughout the territory of a non-rural LEC, even though those
LECs already provided voice.
5. Treatment of Non-Contiguous United States
39. The Commission has ``direct[ed] the [Bureau] to consider the
unique circumstances of [Alaska, Hawaii, Puerto Rico, the U.S. Virgin
Islands and Northern Marianas Islands] when adopting a cost model.''
The Commission further directed the Bureau to determine whether the
cost model provides sufficient support to these areas, and if, in the
Bureau's determination, the model does not provide these areas with
sufficient support, the Commission granted the Bureau the discretion to
``maintain existing support levels, as modified in
[[Page 26275]]
this Order, to any affected price cap carrier, without exceeding the
overall budget of $1.8 billion per year for price cap areas.'' The
Bureau has sought comment to further develop the record on these two
options for areas outside the contiguous United States, and the
associated service obligations.
40. The decisions we make herein do not prejudge whether
modifications to the model platform or input values should be made with
respect to the non-contiguous United States, or support levels for
those areas should be frozen. We will address those arguments at a
future date.
B. Customer Locations and Outside Plant Design
41. As the Commission recognized when it adopted the model platform
for HCPM, outside plant--namely, the loop facilities between switches
and the customer premises--constitutes the largest portion of total
network investment, and the design of outside plant facilities depends
heavily on the location of customers. Business customer information is
important not only for locating business customers, but also for
scaling the network infrastructure to ensure that the costs of shared
resources are appropriately shared among all users. The placement of
customer locations thus is an important element of the CAM platform.
1. Customer Locations
42. In the Model Design PN, the Bureau proposed to use a commercial
data set for residential customer location data, but also sought
comment on two alternatives: Using official government census data,
which would provide the number of housing units in a census block but
no geocodes, and collecting actual customer location data from
providers. For business locations, the Bureau proposed using government
data from the U.S. Bureau of Labor Statistics (BLS) Economic Census,
but also sought comment on using commercial data sources. The Bureau
sought further comment via the CAM virtual workshop on methods for
determining customer locations.
43. Few commenters offered any comments about customer locations
data. In the absence of actual geocode information, the ABC Coalition
supports using a methodology that uses a combination of data sources to
estimate the number of customer locations by zip code and then
distribute those locations randomly along roads in the census block.
The only commenter suggesting an alternative source for customer
location data is the National Association of State Utility Consumer
Advocates (NASUCA), which proposed the Commission obtain E911 databases
and translate the addresses into geocodes that can be used in the cost
model. If the Commission uses census data, NASUCA argues that these
data should be augmented by geocoded data provided by the carriers in
census blocks above a certain size.
44. We adopt a model platform that will use a combination of
commercial data set (GeoResults Q3 2012) and census data to determine
residential and business locations. Specifically, the model will use
GeoResults Q3 2012, which provides an address-based residential data
set of households. To the extent there are discrepancies between the
location counts from GeoResults and 2011 census housing unit estimates,
the GeoResults count will be adjusted upward or downward to conform to
the census, with the records for the requisite number of locations to
be added or subtracted selected in a random manner. We conclude the
model also should use GeoReults for business location data, because
those data are more current and include more businesses than the BLS
economic census data. GeoResults also provides a national building
file, which is used to identify buildings that have both residential
and business customers. The model will use additional data sources to
identify the locations of community anchor institutions and cell
towers.
45. The CAM will use geocoded locations wherever possible, and
place locations that cannot be geocoded randomly along the roads within
the census block. This is an improvement upon the approach previously
taken by the Commission when it implemented HCPM. By using geocoded
data where available, the model will estimate with greater precision
the amount of feeder plant necessary to reach all locations, which
should result in more accurate cost estimates than the prior forward-
looking cost model utilized by the Commission, which assigned all
locations randomly along roads using Topologically Integrated
Geographic Encoding and Referencing (TIGER) data.
46. We find that using these data is preferable to using E911 data,
supplemented by carrier-provided data, as suggested by NASUCA. First,
NASUCA does not specifically identify the E911 database(s) that it
contends should be used. Moreover, an approach based on E911 databases
would potentially introduce inconsistencies in the model across states,
because each state and, in many instances depending on state and local
regulations, individual Public Safety Answering Points (PSAPs), are
responsible for their E911 databases, and these databases differ in
methodology, completeness and accuracy. Using a consistent methodology
throughout the nation will lessen the likelihood of inconsistencies in
cost estimates among states, which could skew the relative distribution
of support in unknown ways among the states.
47. We conclude that it is not feasible to develop a model platform
that incorporates actual customer locations for all locations. There is
no publicly available source of nationwide geocoded location data, and
commercial data sources do not provide geocodes for all locations. Even
if the price cap carriers provided the Commission with their geo-coded
customer database, or address list if they do not have geo-coded
customer locations, these data bases would only include the incumbent
local exchange carriers' customers and not all the housing units in the
census block. Doing a mandatory data collection that collected customer
location information from cable operators and other non-incumbent
providers would be a significant Commission undertaking, and it would
impose burdens on those providers. Nothing in the record before us
suggests that the incremental improvement in precision of locations
that would result from such a mandatory data collection would be worth
the costs in terms of burden on both the Commission and outside
parties. Accordingly, we conclude that GeoResults, trued-up with Census
data for residential locations, is the best source of customer
locations because of the number of locations that are geocoded. The
final model will use the methodology in CAM version 3.0 for assigning
included locations that cannot be geocoded along road segments.
2. Clustering
48. We adopt a clustering approach that uses road-based routing to
determine the maximum size of the clusters. Once customer locations
have been identified, the model must determine how to group and serve
those customers in an efficient and technologically reasonable manner.
Consistent with past Commission precedent for forward-looking cost
models, the objective is to group customers into serving areas in an
efficient manner to minimize costs, while maintaining a specified level
of network performance equality. Like HCPM, our model platform will
design clusters consistent with engineering constraints, grouping
customers so that they are no further away than allowed by network
design to deliver services
[[Page 26276]]
meeting the Commission's performance requirements. CAM will improve the
approach previously used by the Commission in HCPM, however, as it will
use road-based routing to determine the maximum size of the clusters.
Thus, clusters defined by CAM are likely smaller, but more realistic
estimates of cluster size, resulting in more accurate cost estimates.
By using road segments in clustering, the CAM model avoids the problem
of having the length of some loops modeled along roads exceed the
maximum loop length necessary to provide service meeting specified
standards. The ABC Coalition supported this approach, and no party
objects to using this clustering methodology for modeling costs in the
contiguous United States. We conclude that the model will include the
clustering methodology currently incorporated into CAM version 3.0.
3. Routing
49. We adopt the routing methodology used in CAM, which builds
plant along roads and uses a minimum spanning tree algorithm. Although
HCPM allowed for minimum spanning-tree optimization of routes, it did
not use the road network. CAM, on the other hand, represents an
enhancement to the approach taken by the Commission in developing a
forward-looking model in the 1990's, as it lays loop plant along actual
road segments and utilizes a spanning tree algorithm to find the lowest
cost route to serve all customer locations along road paths. The ABC
Coalition supported this approach, and no party objects to using this
routing methodology for modeling costs in the contiguous United States.
We conclude that the model platform will include the CAM version 3.0
algorithm for routing loop plant and feeder network.
4. Sizing Network Facilities
50. We adopt a model platform that will size network facilities
such that there is sufficient capacity at the time of peak usage. The
model platform accomplishes this by ensuring that the size of each link
in the network is sufficient to support peak usage busy hour offered
load, taking into account subscriber usage capacity (GB/month/
subscriber) as well as throughput (Mbps) and take-rate. This method is
basically the same approach that was taken in the National Broadband
Plan modeling. Because voice is the supported service, the model also
takes into account peak demands associated with voice service in the
sizing calculations. No party objects to this general approach to
network sizing. The ABC Coalition agrees that sizing broadband
facilities based on throughput required at the time of peak usage is
reasonable, while noting that the peak demands associated with voice
service should be included in the sizing calculations if voice
capability is to be added to the model. We will address the specific
input values the model will use for busy hour under load in a future
order.
C. Switching and Interoffice Facilities
1. Voice Capability
51. In the USF/ICC Transformation Order, the Commission determined
that ``voice telephony service'' is the service supported by federal
high-cost universal support. All recipients must offer voice telephony
service. In addition, as a condition of receiving support, all
recipients must offer broadband service.
52. We adopt a model platform that estimates the cost of an IP-
enabled network capable of providing voice service. The cost is modeled
on a per-subscriber basis and takes into account the cost of hardware,
software, services, and customer premises equipment to provide carrier-
grade Voice over Internet Protocol (VoIP) service. No party objects to
this general methodology for including voice capability to serve the
contiguous United States, and the ABC Coalition supports this approach.
We conclude that the appropriate forward-looking way to model a network
today that provides voice service is to design an all-IP network. The
specific inputs used to calculate the per-subscriber cost will be
addressed in a future order.
2. Interoffice Facilities
53. We adopt a model platform that ties central offices to the
nearest tandem location, ties tandems together, and uses efficient
routing paths for all connections, using information from the Local
Exchange Routing Guide database. The model platform assumes Ethernet-
based fiber connections among wire centers and between wire centers and
tandem switches, including the use of wave division multiplexing
gateways. Additionally, the model platform connects each hierarchy to
the nearest (lowest cost) Internet access point regardless of
ownership. The model platform also uses routing along roads to
determine the cost of deploying fiber to make connections, and includes
Broadband Remote Access Services and/or gateway costs. No party objects
to this general approach for the contiguous United States, and the ABC
Coalition supports this approach. This is consistent with the HCPM,
which also included the middle mile costs of providing service. We will
address cost inputs related to interoffice transport in a future order.
D. Framework for Capturing Variations in Cost
54. As discussed more fully below, the CAM will utilize differing
assumptions for certain input values based on three geographic density
zones, and will adjust certain input values for labor and materials
based on the three-digit zip code.
1. Plant Mix Based on Density Zone
55. The cost of a modern broadband network varies significantly
based on the type of infrastructure used to deploy the wires--
specifically whether the wires are underground, buried or aerial. Most
networks rely on all three types of plant in varying degrees, with the
precise mix of plant dependent on many factors. A model used to
estimate the costs of deploying a network must therefore make
assumptions regarding the mix of plant used in the network.
56. We adopt a model that assumes that each state is made up of
three density zones--urban, suburban, and rural. For each density zone,
the model will assume a specific plant mix for each of three different
parts of the network--distribution, feeder, and inter-office transport.
As a result, each state will have a matrix of nine different density
zone/network component combinations, each of which has its own mix of
underground, buried, and aerial plant. In addition, the model will
include a nationwide set of plant mixes for each density zone and
network component, which may be used in any state for which specific
inputs may not be available.
57. The Bureau concludes that this methodology will provide
sufficiently granular variation in the mix of plant in the entire
network. We recognize that the HCPM varied cost by nine density zones,
but no party in the current proceeding objects to using three
geographic zones. The ABC Coalition notes there was no variation in the
plant mix between the least dense zones in HCPM, which together
correspond to the rural zone in the model we are evaluating.
58. No commenter objected to the general principle that plant mix
should vary according to density zones, with different plant mix values
in different areas. Rather, the parties that addressed this issue
argued there should be a process to document the development of the
specific input values to be used. The source and specific percentages
of plant mix to be used in the matrix will be
[[Page 26277]]
determined in a future order addressing inputs.
2. Material and Labor Cost Adjustments Based on Location
59. We adopt an approach that utilizes uniform input values for
various capital costs, with adjustments for regional variations in
labor and material costs. We conclude that this approach to development
of a forward-looking model is consistent with past precedent. In the
HCPM Inputs Order, 64 FR 67372, December 1, 1999, the Commission
determined nationwide default values are generally more appropriate
than company-specific input values for a forward-looking model. It
noted that the universal service support mechanism is ``based on the
estimated costs that an efficient carrier would incur to provide the
supported services, rather than on the specific carrier's book costs.''
It concluded that ``it would be administratively unworkable to use
company-specific values in the federal nationwide model.'' At the same
time, however, the Commission recognized the desirability of having
data that accurately and objectively reflect ``variations in forward-
looking costs based on objective criteria,'' and it stated that it was
open to additional modifications of inputs in the future. Thus,
although the Commission did not adjust costs for regional variation in
adopting HCPM, it expressly recognized that a forward-looking model
could appropriately recognize variations in cost.
60. Our forward-looking model will use regional cost adjustment
factors to capture variation in labor and materials costs by three-
digit ZIP codes. Those regional adjustments are based on data obtained
from a national survey of the costs of construction in various areas of
the United States by R.S. Means. The ABC Coalition supports this
approach of using nationwide average values with regional adjustments,
noting that the R.S. Means data is widely recognized and used in
numerous contexts. No party objected to the use of this methodology for
areas in the contiguous United States.
III. Procedural Matters
A. Paperwork Reduction Act
61. This document does not contain new or modified information
collection requirements subject to the Paperwork Reduction Act of 1995
(PRA), Public Law 104-13. In addition, therefore, it does not contain
any new or modified information collection burden for small business
concerns with fewer than 25 employees, pursuant to the Small Business
Paperwork Relief Act of 2002, Public Law 107-198.
B. Final Regulatory Flexibility Act Certification
62. The Regulatory Flexibility Act of 1980, as amended (RFA),
requires that a regulatory flexibility analysis be prepared for
rulemaking proceedings, unless the agency certifies that ``the rule
will not have a significant economic impact on a substantial number of
small entities.'' The RFA generally defines ``small entity'' as having
the same meaning as the terms ``small business,'' ``small
organization,'' and ``small governmental jurisdiction.'' In addition,
the term ``small business'' has the same meaning as the term ``small
business concern'' under the Small Business Act. A small business
concern is one which: (1) Is independently owned and operated; (2) is
not dominant in its field of operation; and (3) satisfies any
additional criteria established by the Small Business Administration
(SBA).
63. In this Report and Order, we adopt a model platform for the
Connect America Phase II cost model that will calculate a levelized
cost that represents an estimate of the average monthly forward-looking
cost of an efficient provider. A model platform is the basic framework
for the model consisting of key assumptions about the design of the
network and network engineering. We also address certain framework
issues relating to inputs for the model. These decisions are not
anticipated to have a significant economic impact on small entities,
insofar as the model produces high-cost support amounts for price cap
carriers and their affiliates that accept the right of first refusal
pursuant to Connect America Phase II. This is primarily because most
(and perhaps all) of the affected carriers are not small entities.
Moreover, the decisions made about the model platform in this Report
and Order are not anticipated to systematically increase or decrease
support for any particular group of entities as compared to possible
alternatives discussed in the record. Therefore, we certify that the
decisions made in this Report and Order will not have a significant
economic impact on a substantial number of small entities. The
Commission will send a copy of the Report and Order, including a copy
of this final certification, in a report to Congress pursuant to the
SBREFA. In addition, the Report and Order and this certification will
be sent to the Chief Counsel for Advocacy of the SBA, and will be
published in the Federal Register.
C. Congressional Review Act
64. The Commission will send a copy of this Report and Order to
Congress and the Government Accountability Office pursuant to the
Congressional Review Act.
IV. Ordering Clauses
65. Accordingly, it is ordered, pursuant to the authority contained
in sections 1, 2, 4(i), 5, 214, 254, 303(r), and 403 of the
Communications Act of 1934, as amended, and section 706 of the
Telecommunications Act of 1996, 47 U.S.C. 151, 152, 154(i), 155, 214,
254, 303(r), 403, and 1302, sections 0.91, 0.201(d), 1.1, and 1.427 of
the Commission's rules, 47 CFR 0.91, 0.201(d), 1.1, 1.427, and the
delegations of authority in paragraphs 157, 184, 186, 187, and 192 of
the USF/ICC Transformation Order, FCC 11-161, that this Report and
Order is adopted, effective thirty (30) days after publication of the
text or summary thereof in the Federal Register.
Federal Communications Commission.
Carol E. Mattey,
Deputy Chief, Wireline Competition Bureau.
[FR Doc. 2013-10565 Filed 5-3-13; 8:45 am]
BILLING CODE 6712-01-P