Before the Federal Communications Commission Washington, D
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| NOTEREF _Ref445303279 2015 Administration Discussion Draft § 301(a)(2). NOTEREF _Ref445303279 See supra para. 96. NOTEREF _Ref445303279 See supra para. 181. NOTEREF _Ref445303279 Communications Act of 1934, ch. 652, § 605, 48 Stat. 1064, 1103-04. This provision, originally Section 605 of the Act, has been amended several times and now appears in Section 705 of the Act, though it remains codified at 47 U.S.C. § 605. NOTEREF _Ref445303279 47 U.S.C. § 1302. NOTEREF _Ref445303279 47 U.S.C. § 605. NOTEREF _Ref445303279 47 U.S.C. § 201(b) (“The Commission may prescribe such rules and regulations as may be necessary in the public interest to carry out the provisions of this chapter.”); AT&T Corp. v. Iowa Utilities Bd., 525 U.S. 366, 377-78 (1999) (holding that the FCC has rulemaking authority to implement all provisions of the Communications Act of 1934, as amended). See also id. §§ 154(i) (“The Commission may perform any and all acts, make such rules and regulations, and issue such orders, not inconsistent with this chapter, as may be necessary in the execution of its functions.”), 303(r) (directing the Commission to “[m]ake such rules and regulations and prescribe such restrictions and conditions, not inconsistent with law, as may be necessary to carry out the provisions of this chapter.”); Nat’l Cable & Telecomm. Ass’n v. FCC, 555 F.3d 996 (D.C. Cir. 2009) (upholding Commission opt-in rules for CPNI under Section 222). NOTEREF _Ref445303279 Telecommunications Act of 1996, Pub. L. No. 104-104, § 702, 110 Stat. 56. NOTEREF _Ref445303279 1998 CPNI Order, 13 FCC Rcd at 8064, para. 1. NOTEREF _Ref445303279 2015 Open Internet Order, 30 FCC Rcd at 5821, para. 463. NOTEREF _Ref445303279 See, e.g., 1998 CPNI Order, 13 FCC Rcd at 8064, para. 2. NOTEREF _Ref445303279 Id. at 8182-83, paras. 174-175. NOTEREF _Ref445303279 See 2007 CPNI Order, 22 FCC Rcd at 6928-29, paras. 1-2; see 2006 CPNI NPRM, 21 FCC Rcd at 1783-84, paras. 2-4. NOTEREF _Ref445303279 TerraCom NAL, 29 FCC Rcd at 13330-32, paras. 14-20. NOTEREF _Ref445303279 2015 Lifeline Reform Order, 30 FCC Rcd at 7895-96, para. 234 (stating that carriers’ duty to protect customer information “includes all documentation submitted by a consumer or collected by an [eligible telecommunications carrier] to determine a consumer’s eligibility for Lifeline service, as well as all personally identifiable information contained therein”). NOTEREF _Ref445303279 See, e.g., Confidential, Black’s Law Dictionary (10th ed. 2014) (“2. (Of a relationship) based on or characterized by trust and a willingness to impart secrets to the other.”); Confidentiality, id. (“2. The trusting relation between two people who have an especially close bond — as between lawyer and client, guardian and ward, or spouses — with regard to the faith that is placed in the one by the other.”); Confidential, Merriam-Webster, http://www.merriam-webster.com/dictionary/confidential (last visited March 8, 2016) (“trusted with secret or private information”). NOTEREF _Ref445303279 See, e.g., 1998 CPNI Order, 13 FCC Rcd at 8127-28, paras. 86-87; see id. at 8128, para. 87 (“[I]n order to ensure that customers can provide informed approval under Section 222(c)(1), we require that carriers give customers explicit notice of their CPNI rights prior to any solicitation for approval.”). NOTEREF _Ref445303279 47 U.S.C. § 222(a). NOTEREF _Ref445303279 U.S. West v. FCC, 182 F.3d 1224 (10th Cir. 1999). NOTEREF _Ref445303279 Central Hudson Gas & Elec. Corp. v. Pub. Serv. Comm’n of N.Y., 447 U.S 557 (1980). NOTEREF _Ref445303279 See, e.g., 2007 CPNI Order, 22 FCC Rcd at 6931, para. 6, at 6943, para. 27; 2013 CPNI Declaratory Ruling, 28 FCC Rcd at 9615, para. 19, 9618, para. 27 (“We also note that subsection (a)’s obligation to protect customer information is not limited to CPNI that the carrier has obtained or received.”). NOTEREF _Ref445303279 2015 Open Internet Order, 30 FCC Rcd at 5662, para. 141. NOTEREF _Ref445303279 15 U.S.C. § 45(a)(1). NOTEREF _Ref445303279 FCC and FTC, Joint FCC/FTC Policy Statement for the Advertising of Dial-Around and Other Long-Distance Services to Consumers, 65 Fed. Reg. 44053, 44054 (Jul. 17, 2000). NOTEREF _Ref445303279 15 U.S.C. § 45(a)(2). NOTEREF _Ref445303279 47 U.S.C. § 605; see supra note 454. NOTEREF _Ref445303279 47 U.S.C. § 605(a). In 1968, the Omnibus Crime Control and Safe Streets Act added chapter 119 to Title 18 of the United States Code to govern interception of the contents of communications. Pub. L. No. 90-351, § 803, 82 Stat. at 223 (amending Section 605 of the Communications Act of 1934). Chapter 119, referred to as the Wiretap Act, generally prohibits unauthorized interception, use, or disclosure of wire, oral, or electronic communications, including radio communications, and establishes procedures for authorizing law enforcement personnel to engage in such activities. 18 U.S.C. § 2510-2522. At the same time Congress enacted the Wiretap Act, it added the phrase “[e]xcept as authorized by [the Wiretap Act]” to the beginning of the first sentence of Section 705(a) and limited the applicability of the prohibitions in the second through fourth sentences to radio communications. NOTEREF _Ref445303279 47 U.S.C. § 1302(a). NOTEREF _Ref445303279 Id. NOTEREF _Ref445303279 47 U.S.C. § 1302(b). In the latest report issued under Section 706(b), we indeed found that deployment to all Americans was not taking place in a reasonable and timely fashion. See 2016 Broadband Progress Report at 2. NOTEREF _Ref445303279 740 F.3d 623 (2014). NOTEREF _Ref445303279 Id. at 640. NOTEREF _Ref445303279 Id. at 635-42. NOTEREF _Ref445303279 2015 Open Internet Order, 30 FCC Rcd at 5721-24, paras. 275-282. NOTEREF _Ref445303279 47 U.S.C. § 303(b). NOTEREF _Ref445303279 47 U.S.C. § 303(r). NOTEREF _Ref445303279 47 U.S.C. § 316. NOTEREF _Ref445303279 See 2015 Open Internet Order, 30 FCC Rcd at 5725, paras. 285-287; see also CellCo P’ship v. FCC, 700 F.3d 534 (D.C. Cir. 2012). NOTEREF _Ref445303279 47 CFR § 1.1200 et seq. NOTEREF _Ref445303279 See 5 U.S.C. § 603. NOTEREF _Ref445303279 See 5 U.S.C. § 603(a). NOTEREF _Ref445303279 See 44 U.S.C. § 3506(c)(4). NOTEREF _Ref445303279 See 5 U.S.C. § 603. The RFA, see 5 U.S.C. §§ 601-612, has been amended by the Small Business Regulatory Enforcement Fairness Act of 1996 (SBREFA), Pub. L. No. 104-121, Title II, 110 Stat. 857 (1996). NOTEREF _Ref445303279 See 5 U.S.C. § 603(a). NOTEREF _Ref445303279 See id. NOTEREF _Ref445303279 5 U.S.C. § 603(b)(3). NOTEREF _Ref445303279 5 U.S.C. § 601(6). NOTEREF _Ref445303279 5 U.S.C. § 601(3) (incorporating by reference the definition of “small-business concern” in the Small Business Act, 15 U.S.C. § 632). Pursuant to 5 U.S.C. § 601(3), the statutory definition of a small business applies “unless an agency, after consultation with the Office of Advocacy of the Small Business Administration and after opportunity for public comment, establishes one or more definitions of such term which are appropriate to the activities of the agency and publishes such definition(s) in the Federal Register.” NOTEREF _Ref445303279 15 U.S.C. § 632. NOTEREF _Ref445303279 See 5 U.S.C. § 601(3)-(6). NOTEREF _Ref445303279 See SBA, Office of Advocacy, Frequently Asked Questions (2014), https://www.sba.gov/sites/default/files/advocacy/FAQ_March_2014_0.pdf. NOTEREF _Ref445303279 5 U.S.C § 601(4). NOTEREF _Ref445303279 5 U.S.C. § 601(5). NOTEREF _Ref445303279 See SBA, Office of Advocacy, Frequently Asked Questions (2014), https://www.sba.gov/sites/default/files/advocacy/FAQ_March_2014_0.pdf. NOTEREF _Ref445303279 The 2011 Census data for small governmental organizations are not presented based on the size of the population in each organization. As stated above, there were 90,056 local governmental organizations in 2011. As a basis for estimating how many of these 90,056 local organizations were small, in 2011 we note that there were a total of 729 cities and towns (incorporated places and minor civil divisions) with populations over 50,000. See U.S. Census Bureau, American FactFinder, http://factfinder.census.gov/faces/nav/jsf/pages/index.xhtml (last visited March 23, 2016). If we subtract the 729 cities and towns that exceed the 50,000 population threshold, we conclude that approximately 89,327 are small. NOTEREF _Ref445303279 U.S. Census Bureau, 2012 NAICS Definitions, “517110 Wired Telecommunications Carriers,” http://www.census.gov/cgi-bin/sssd/naics/naicsrch?code=517110&search=2012%20NAICS%20Search. NOTEREF _Ref445303279 13 CFR § 121.201, NAICS code 517110. NOTEREF _Ref445303279 U.S. Census Bureau, 2012 NAICS Definitions, “517919 All Other Telecommunications,” http://www.census.gov/cgi-bin/sssd/naics/naicsrch?code=517919&search=2012%20NAICS%20Search. NOTEREF _Ref445303279 13 CFR § 121.201, NAICS code 517919. NOTEREF _Ref445303279 U.S. Census Bureau, 2007 Economic Census, Subject Series: Information, Table 5, “Establishment and Firm Size: Employment Size of Firms for the United States: 2007 NAICS Code 517110” (2010). NOTEREF _Ref445303279 See id. NOTEREF _Ref445303279 U.S. Census Bureau, 2007 Economic Census, Subject Series: Information, “Establishment and Firm Size,” NAICS code 5179191 (2010) (receipts size). NOTEREF _Ref445303279 13 CFR § 121.201, NAICS code 517110. NOTEREF _Ref445303279 U.S. Census Bureau, 2007 Economic Census, Information: Subject Series – Establishment and Firm Size: Table 5, “Employment Size of Firms for the United States: 2007, NAICS Code 517110,” http://factfinder2.census.gov/bkmk/table/1.0/en/ECN/2007_US/51SSSZ1/naics~517110 (last visited July 10, 2015). NOTEREF _Ref445303279 See id. NOTEREF _Ref445303279 13 CFR § 121.201, NAICS code 517110. NOTEREF _Ref445303279 Federal Communications Commission, Wireline Competition Bureau, Industry Analysis and Technology Division, Trends in Telephone Service, tbl. 5.3 (Sept. 2010), https://apps.fcc.gov/edocs_public/attachmatch/DOC-301823A1.pdf (Trends in Telephone Service). NOTEREF _Ref445303279 See id. NOTEREF _Ref445303279 13 CFR § 121.201, NAICS code 517110. NOTEREF _Ref445303279 FCC, Wireline Competition Bureau, Industry Analysis and Technology Division, Trends in Telephone Service, tbl. 5.3 (2010) (Trends in Telephone Service). NOTEREF _Ref445303279 See Trends in Telephone Service at tbl. 5.3. NOTEREF _Ref445303279 See id. NOTEREF _Ref445303279 13 CFR § 121.201, NAICS code 517110. NOTEREF _Ref445303279 See Trends in Telephone Service at tbl.5.3. NOTEREF _Ref445303279 See id. NOTEREF _Ref445303279 See id. NOTEREF _Ref445303279 See id. NOTEREF _Ref445303279 See id. NOTEREF _Ref445303279 5 U.S.C. § 601(3). NOTEREF _Ref445303279 Letter from Jere W. Glover, Chief Counsel for Advocacy, SBA, to William E. Kennard, Chairman, Federal Communications Commission (filed May 27, 1999). The Small Business Act contains a definition of “small business concern,” which the RFA incorporates into its own definition of “small business.” 15 U.S.C. § 632(a); 5 U.S.C. § 601(3). SBA regulations interpret “small business concern” to include the concept of dominance on a national basis. 13 CFR § 121.102(b). NOTEREF _Ref445303279 13 CFR § 121.201, NAICS code 517110. NOTEREF _Ref445303279 Trends in Telephone Service, tbl. 5.3. NOTEREF _Ref445303279 13 CFR § 121.201, NAICS code 517110. NOTEREF _Ref445303279 Trends in Telephone Service, tbl. 5.3. NOTEREF _Ref445303279 See 13 CFR § 121.201, NAICS code 517110. NOTEREF _Ref445303279 See Trends in Telephone Service at tbl. 5.3. NOTEREF _Ref445303279 See id. NOTEREF _Ref445303279 U.S. Census Bureau, 2012 NAICS Definitions, “517210 Wireless Telecommunications Categories (Except Satellite)”; http://www.census.gov/cgi-bin/sssd/naics/naicsrch?code=517210&search=2012%20NAICS%20Search. NOTEREF _Ref445303279 13 CFR § 121.201, NAICS code 517210 (2012 NAICS). The now-superseded, pre-2007 CFR citations were 13 CFR § 121.201, NAICS codes 517211 and 517212 (referring to the 2002 NAICS). NOTEREF _Ref445303279 U.S. Census Bureau, Subject Series: Information, Table 5, “Establishment and Firm Size: Employment Size of Firms for the United States: 2007 NAICS Code 517210” (issued Nov. 2010). NOTEREF _Ref445303279 See id. NOTEREF _Ref445303279 Amendment of the Commission’s Rules to Establish Part 27, the Wireless Communications Service (WCS), Report and Order, 12 FCC Rcd 10785, 10879, para. 194 (1997). NOTEREF _Ref445303279 See Letter from Aida Alvarez, Administrator, SBA, to Amy Zoslov, Chief, Auctions and Industry Analysis Division, Wireless Telecommunications Bureau, FCC (filed Dec. 2, 1998) (Alvarez Letter 1998). NOTEREF _Ref445303279 47 CFR § 2.106; see generally 47 CFR §§ 27.1-27.70. NOTEREF _Ref445303279 13 CFR § 121.201, NAICS code 517210. NOTEREF _Ref445303279 Id. NOTEREF _Ref445303279 Trends in Telephone Service, tbl. 5.3. NOTEREF _Ref445303279 Id. NOTEREF _Ref445303279 See Amendment of Parts 20 and 24 of the Commission’s Rules – Broadband PCS Competitive Bidding and the Commercial Mobile Radio Service Spectrum Cap; Amendment of the Commission’s Cellular/PCS Cross-Ownership Rule, Report and Order, 11 FCC Rcd 7824, 7850-52, paras. 57-60 (1996) (PCS Report and Order); see also 47 CFR § 24.720(b). NOTEREF _Ref445303279 See PCS Report and Order, 11 FCC Rcd at 7852, para. 60. NOTEREF _Ref445303279 See Alvarez Letter 1998. NOTEREF _Ref445303279 See Broadband PCS, D, E and F Block Auction Closes, Public Notice, Doc. No. 89838 (rel. Jan. 14, 1997). NOTEREF _Ref445303279 See C, D, E, and F Block Broadband PCS Auction Closes, Public Notice, 14 FCC Rcd 6688 (WTB 1999). Before Auction No. 22, the Commission established a very small standard for the C Block to match the standard used for F Block. Amendment of the Commission’s Rules Regarding Installment Payment Financing for Personal Communications Services (PCS) Licensees, Fourth Report and Order, 13 FCC Rcd 15743, 15768, para. 46 (1998). NOTEREF _Ref445303279 See C and F Block Broadband PCS Auction Closes; Winning Bidders Announced, Public Notice, 16 FCC Rcd 2339 (2001). NOTEREF _Ref445303279 See Broadband PCS Spectrum Auction Closes; Winning Bidders Announced for Auction No. 58, Public Notice, 20 FCC Rcd 3703 (2005). NOTEREF _Ref445303279 See Auction of Broadband PCS Spectrum Licenses Closes; Winning Bidders Announced for Auction No. 71, Public Notice, 22 FCC Rcd 9247 (2007). NOTEREF _Ref445303279 Id. NOTEREF _Ref445303279 See Auction of AWS-1 and Broadband PCS Licenses Closes; Winning Bidders Announced for Auction 78, Public Notice, 23 FCC Rcd 12749 (WTB 2008). NOTEREF _Ref445303279 Id. NOTEREF _Ref445303279 47 CFR § 90.814(b)(1). NOTEREF _Ref445303279 Id. NOTEREF _Ref445303279 See Letter from Aida Alvarez, Administrator, SBA, to Thomas Sugrue, Chief, Wireless Telecommunications Bureau, Federal Communications Commission (filed Aug. 10, 1999) (Alvarez Letter 1999). NOTEREF _Ref445303279 See Correction to Public Notice DA 96-586 “FCC Announces Winning Bidders in the Auction of 1020 Licenses to Provide 900 MHz SMR in Major Trading Areas,” Public Notice, 18 FCC Rcd 18367 (WTB 1996). NOTEREF _Ref445303279 See Multi-Radio Service Auction Closes, Public Notice, 17 FCC Rcd 1446 (WTB 2002). NOTEREF _Ref445303279 See 800 MHz Specialized Mobile Radio (SMR) Service General Category (851–854 MHz) and Upper Band (861–865 MHz) Auction Closes; Winning Bidders Announced, Public Notice, 15 FCC Rcd 17162 (2000). NOTEREF _Ref445303279 See 800 MHz SMR Service Lower 80 Channels Auction Closes; Winning Bidders Announced, Public Notice, 16 FCC Rcd 1736 (2000). 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