J.K. Commissioner California Public Utilities Commission ...Revenue Capabilities • Motion...

Catherine J.K. Sandoval

Commissioner California Public Utilities Commission

505 Van Ness Avenue, San Francisco, California, 94102 (415) 703‐3700

February 1, 2015 Via Electronic Filing Marlene H. Dortch Secretary Federal Communications Commission 445 12th Street SW Washington, DC 20554 Re: Notice of Ex Parte Communication: Protecting and Promoting the Open Internet, GN Docket No. 14‐28; Framework for Broadband Internet Services, GN Docket No. 10‐127

I am writing to inform the FCC and participants in the FCC proceeding on Protecting and

Promoting the Open Internet of a public meeting and conference held by the Federal‐State Joint

Conference on Advanced Services on November 19, 2014, hosted at the California Public Utilities

Commission. The agenda for the conference is available at this link:

http://www.cpuc.ca.gov/PUC/aboutus/Commissioners/Sandoval/events/11192014_CommAct706Conf.h

and is copied below.

The Federal‐State Joint Conference on Advanced Services serves as a forum for ongoing dialogue among the FCC, state regulators, and local and regional entities regarding the deployment of advanced communications capabilities and related issues. The conference was held on November 19, 2014, immediately following the meeting of the National Association of Regulatory Utility Commissioners Convention in San Francisco (November 17‐19).

The panels are relevant to the Open Internet proceeding as they discuss Innovative Internet

Uses and the Open Internet; the FCC's Open Internet Proposals, Section 706, the Communications Act,

and the Role of the States, and; Internet Access and Adoption Programs and Strategies. Also attached

are the power points and presentations submitted for the conference. The streaming video for the

conference is available at this link:

http://www.californiaadmin.com/cgi‐bin/cali/cpuc_view.cgi?name=CPUC_PM111914&part=1

Federal‐State Joint Conference on Advanced Services (Communications Act Section 706 Conference)

November 19, 2014 1:00 pm to 5:30 pm

California Public Utilities Commission 505 Van Ness Avenue,

San Francisco, CA 94102

Members: Federal-State Joint Conference on Advanced Services

Jessica Rosenworcel, Federal Chair, FCC Commissioner Tom Wheeler, FCC Commissioner Mignon Clyburn, FCC Commissioner Ajit Pai, FCC Commissioner Michael O’Rielly, FCC Commissioner Catherine J.K. Sandoval, State Policy Chair, Commissioner, California Public Utilities Commission Betty Ann Kane, D.C. Public Service Commission Gregg Sayre, New York Public Service Commission Nominated by NARUC: Paul Kjellander, Idaho Public Service Commission Nominated by NARUC: Lynn Slaby, Commissioner, Ohio Public Utilities Commission

AGENDA

1:00‐1:15 Welcome and Opening Comments from the Federal and State 706 Conference Members

1:15‐2:30 Panel on Innovative Internet Uses and the Open Internet o Moderator: Betty Ann Kane, Chair, Public Service Commission, Washington, D.C. o Sandra K. Goeken Miles, CEO, GoGreen LED; Chairwoman of the Board, Polybrite o Pat Lanthier, Principal, Rivera/Lanthier o Mark Nagel, Executive Director Marketing, AT&T Foundry o Jonathan Stern, Vice President, Fusion Network, an ABC‐Univision Joint Venture o Danielle Vigil‐Masten, Chair Hoopa Valley Tribal Council; Joseph Arthur, Hoopa Valley

Tribe; Patrick Jackson, Broadband Representative, Hoopa Valley Tribe o Sunne Wright McPeak, Director, California Emerging Technology Fund o David E. Young, Vice President, Verizon Public Policy

2:30‐3:45 Panel on the FCC's Open Internet Proposals, Section 706, the Communications Act, and the Role of the States

o Moderator: Catherine J.K. Sandoval, Commissioner, California Public Utilities Commission

o Charles Davidson, New York Law School, Director, Advanced Communications Law and Policy Institute

o Rob Frieden, Penn State University, Pioneers Chair and Professor of Telecommunications Law

o Allen Hammond IV, Santa Clara University School of Law, Phil and Bobbie Sanfilippo Chair and Professor of Law; Director, Law and Public Policy Program at SCU's Center for Science, Technology, and Society; Director, Broadband Institute of California

o Michael Katz, U.C. Berkeley, Professor, Department of Economics, Sarin Chair in Strategy and Leadership; Director, Center for Telecommunications and Digital Convergence

o Gregory Rosston, Stanford University, Professor of Economics; Deputy Director, Stanford Institute for Economic Policy Research and Public Policy

o Jim Tuthill, UC Berkeley School of Law, Adjunct Professor o Christopher S. Yoo, University of Pennsylvania Law School, John H. Chestnut Professor of

Law and Founding Director, Center for Technology, Innovation and Competition 3:55‐5:15 Panel on Internet Access and Adoption Programs and Strategies

o Moderator: Gregg Sayre, Commissioner, New York Public Service Commission o Robert Osborn, California Public Utilities Commission, Broadband, Policy & Analysis

Branch o Larry Ortega, Director, One Million New Internet Users o Olga Talamante, Director, Chicana/Latina Foundation o Regina Costa, Telecommunications Director, The Utility Reform Network o Nicol Turner‐Lee, Vice‐President, Chief Research and Policy Officer, Minority Media &

Telecommunications Council o Rick Cimerman, Vice‐President, National Cable Television Association o Jaime Fink, Chief Product Officer and Co‐Founder, Mimosa o Allison Ellis, Vice President, Regulatory Affairs, Frontier Communications o Sarah DeYoung, Executive Director, California Assn. of Competitive Telecomm.

Companies

Thanks to the State members of the Federal‐State Joint Conference on Advanced Services who

presided at and helped organize the conference. Special thanks to the speakers, to the attendees, and

those watching via the web for their participation in and contributions to this important conference on

fulfilling the mandate to the states and the FCC to promote Internet access and deployment. The State

Members of the Federal‐State Joint Conference on Advanced Services and conference speakers

commend this conference record for the Commission’s consideration as it analyzes federal rules to

promote Internet access and deployment consistent with the directive to the FCC and State

Commissions in Section 706 of the Communications Act.

Sincerely,

/s/

Catherine J.K. Sandoval Commissioner California Public Utilities Commission and State Chair, Federal‐State Conference on Advanced Services

Fusion IS A NEWS, POP CULTURE & SATIRE TV & DIGITAL NETWORK

HISPANIC MILLENNIALS THE TWO BIGGEST DEMOGRAPHIC WAVES

SINCE THE BABY BOOM

Never has the US been more diverse. .

• ¼of Millennials are Hispanic. ½ of all Hispanics are Millennial. The majority of Hispanics are under the age of 35 (median age = 27). Since 2011, the majority of US births have been diverse

• Source: US Census 2012 & Nielsen 2013 Universe Estimates

⅓ of the US by 2050. (132M)

• 1 in 6 Americans is now Hispanic. • Millennials (P18-34) will become a majority • minority during the next presidential term. • 40% (5M) of net new US households over • the next decade will be Hispanic. • Hispanics will represent $1.5T in spending • power by 2015. • Source: Nielsen NPM, % of P2+ UEs 10/15/13, TV

Universe Estimates. US Census 2012. Selig Center Spending Power Projections

Hispanic TV Universe Estimate Trend

84% of Hispanic Homes Receive Cable or Satellite Today

• Hispanics actually drove the majority (53%) of cable subscription

• growth in the US over the last five years. Hispanic cable • penetration is up 5% since 2008, digital cable being the

greatest • source of growth in recent years (+57%).

• Source: 2013 estimates from The Cable • Advertising Bureau: • http://thecab.tv/hispanics-and-cable.php

Hispanics lead device adoption. • Over 6M Hispanic Millennials live with in-home

• DVR access today.

• A majority (⅔) of Hispanic Millennials live in • game console homes. 70% of them have high speed connectivity at home.

• Hispanics are not only the ethnicity/race most likely to own smartphones, but Over 4M Hispanic Millennials have acquired

• tablets over the past three years.

• Sources: Nielsen NPOWER Universe Estimate Report. P18-34, Q4 2013. 8

For first time in history, the US population spent more time on smartphones during the day than in

front of the tube, or 151 minutes versus 147 minutes. Hispanics lead this transformation 2014

• Hispanic PUTs are in decline since 2012. • Consumer internet video traffic is on the rise, • though, and will represent 69% of all traffic by 2017. • Hispanics are 21% of US smartphone video • consumers, almost 2X (12%) their share of TV • users.

• Sources: Millward Brown 2014. Nielsen Cross-Platform Report, Q3 2013, Based on Total US Hispanic Population,

• Persons 2+ for TV and Online (Total), 13+ for Mobile. Nielsen Cross-Platform Report, Q4 2014. Cisco Visual • Networking Index: Forecast and Methodology, 2012–2017.

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11/2

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1419

Section 706, Title II and the Role of the States; The Open Internet Promotes Critical Infrastructure

Safety, Reliability, and Just and Reasonable Rates

Catherine J.K. Sandoval Commissioner

California Public Utilities Commission State Chair, Federal State Joint Conference on

Advanced Services

November 19, 2014 Meeting of the Federal-State Joint Conference on Advanced Service at the

California Public Utilities Commission

State Regulatory Functions Relevant to Section 706

• States perform key regulatory functions:

o Many states License carriers and register wireless

carriers o Oversee compliance with 911/e911, public safety

and other laws, rules, and standards. o Designate Eligible Telecom Carriers o Protect Consumers, take and investigate complaints o Conduct rulemakings that include hearings, fact-

finding, and public participation o Section 706 Conference Survey Highlighted State role

in consumer complaints and ongoing importance of that role as Technology Changes

NARUC Telecom Principles for the 21st Century

• NARUC’s principles for Telecom Regulation in the 21st Century, unanimously adopted November 2013:

• Eight key areas for Telecom Regulation:

• 1) Consumer protection; • 2) Network reliability and public safety; • 3) Competition; • 4) Interconnection; • 5) Universal Service; • 6) Regulatory diversity; • 7) Evidence-based decision making, and • 8) Broadband access, affordability, and adoption

State Public Utilities Commissions Regulate a range of services that use the internet: o Telecom Services o Energy including Electricity, Natural Gas, and

Renewables o Water o In some states: • Rail safety and Rail Crossings • Transportation including transportation

network carriers • Grain silos

o Some states like California have funds that

promote Internet access to communities, for Rural Health Clinics, Schools, and Community Based Organizations such as California’s Advanced Services Fund and Teleconnect Fund

Safe, Reliable Service at Just and Reasonable rates.

• Electric, Gas, Water, Telephone and other utilities have a statutory duty to provide Safe, Reliable Service at Just and Reasonable rates.

• Mission of State Public Utilities and Public Service

Commissions is to ensure that utilities provide Safe, Reliable Services at Just & Reasonable Rates

• The Open Internet is critical to support the Safety, Reliability, and Just and Reasonable Rates mission

An Open Internet Achieves Energy and Water Efficiency and Sustainability

• The Internet is used by regulatory agencies, utilities, public safety providers and agencies, suppliers, academia, and the public to achieve mission critical goals such as: o Enhance Reliability and Safety of Critical

Infrastructure oAchieve Energy Efficiency o Reduce Greenhouse Gas Reduction o Forestall Climate Change oAvoid Building Fossil Fuel Plants

Utilities are designated as Critical Infrastructure by Presidential Executive Order

• My written Ex Parte comments filed with the FCC in the Open Internet Proceeding highlight the importance of the Open Internet to a range of utility services from electricity to natural gas to water & communications

• Utilities are designated as Critical Infrastructure by President Obama’s Executive Order

• The Internet is critical to Safety, Reliability and Just and Reasonable Rates

• Example: Critical role of the Internet in Water management and use, especially important in a drought

The Open Internet Protects Public Safety and Enables Efficiencies

• The Internet enables demand response communications to better manage energy resources, help prevent power blackouts, forestall the need to build fossil-fueled power plants, and promote environmental sustainability.

• Fire fighters and public safety agencies use Internet connections to large Geographical Information Services (GIS) files with many data layers to track fire perimeters, wind and lightning, order helicopters and reinforcements, coordinate evacuations, identify hospitals with available beds as indicated by Internet-enabled “Smart Hospital Beds,” and to respond to emergencies.

The Open Internet Promotes Safety and Efficiency

• The Internet has enabled new and efficient ways to improve gas pipeline leak detection

• Picarro was born of the Open Internet and has revolutionized gas pipeline leak detection

• Picarro was invented in Santa Clara, California • Originally designed for biomethane industry • Methane emission readings connected to computer • Inventor realized his Internet-enabled device detected

gas pipeline leaks • Mapped it through Google Earth to create usable maps • Conducted pilot with PG&E • The CPUC in PG&E’s General Rate Case adopted in July

2014 authorized use of Picarro technology for Gas Pipeline Leak Detection

Open Internet Dramatically Improved Gas Pipeline Leak in Detection

• Picarro information is very readable • Uses tablet devices held by workers in the field • Puts readings into leak classifications, ranging from

the most serious Grade 1 (requiring immediate attention), to Grade 2 and Grade 3 to prioritize work

• Picarro technology is 1,000 times more sensitive than traditional leak detection

• This program improved public safety, increased efficiency, reduced costs

• Open Internet led to win-win for public safety

The Open Internet Promotes Sustainability

• Reducing gas leaks, a source of methane emissions, reduces Greenhouse Gases

• Reducing gas leaks helps forestall climate change

• More effective use of resources

• Protects people and the environment

The Open Internet Promotes Safety

• August 2014 Napa earthquake occurred • Earthquake registered 6.0 on Richter Scale • Quickly deployed Picarro technology to identify

leaks. • Did leak survey in an afternoon that could not have

been done in months or maybe years • The Open Internet enhances public safety • The Open Internet is Critical to State and Federal

Regulatory Roles to Protect Public Safety

Open Internet Is Critical to Universal Service Programs • Lifeline

o Offers Access to Data and Voice Communications o Program Administration relies on the Internet to verify

enrollment eligibility o Enables competition and consumer choice

• Connect America Fund

o Rural Broadband Experiments: Carriers must provide data as well as voice

• Speech Generating Devices, California program o Enables people with Parkinson’s and a variety of

diseases and disorders that affect the ability to speak to use speech generating devices including specially equipped tablets to communicate

o Transformative for those people, their families, health care providers, and for society

Internet Users are Speakers/Content Creators

• The Hoopa Tribe in California uses the Internet to teach their youth to create Video Games as a means of learning the Hoopa language and telling the Hoopa story

• A person using a speech Generating Device is a content creator

• Content creators/edge providers are speakers who use the Internet to transmit speech.

Content Creators and Edge providers are Speakers

• Who are Content creators and edge providers?

• Content creators and edge providers include : o Youth communicating in their native language

about their history such as the Hoopa Tribe’s youth through their project to create video games in the Hoopa language

o A disabled person using a Speech Generating Device

o A utility designated as critical infrastructure o A regulator o The public

• Public and constitutional values of speech

Section 706 of the Telecommunications Act of 1996

• Section 706 of the Telecommunications Act of 1996, Codified as 47 USC § 1302 provides:

• The Commission and each State commission with regulatory jurisdiction over telecommunications services shall encourage the deployment on a reasonable and timely basis of advanced telecommunications capability to all Americans (including, in particular, elementary and secondary schools and classrooms) by utilizing, in a manner consistent with the public interest, convenience, and necessity, price cap regulation, regulatory forbearance, measures that promote competition in the local telecommunications market, or other regulating methods that remove barriers to infrastructure investment

Recommendation • Adopt Regulatory rules that recognize the role of critical

infrastructure, and the statutory duty to provide safe, reliable service at just and reasonable rates

• I testified in my individual capacity as a CPUC Commissioner, and a constitutional officer of the State of California, at a public forum on the Open Internet on September 24, 2014 convened by Congresswoman Matsui, with FCC Commissioners Clyburn and Rosenworcel also presiding.

• As stated in that testimony, I recommend that the FCC Adopt rules to protect and promote the Open Internet consistent with both Section 706 of the Telecommunications Act and Title II of the Communications Act with forbearance and a light regulatory touch.

Fed

eral

-Sta

te J

oin

t C

onfe

ren

ce o

nA

dva

nce

d T

elec

omm

un

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s Se

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Pan

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FC

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Op

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Pro

pos

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Se

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n 7

06, t

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Com

mu

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an

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Cal

ifor

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Pu

blic

Uti

litie

s C

omm

issi

on

San

Fra

nci

sco,

CA

(N

ov. 1

9, 2

014)

©R

ob F

ried

en, P

ion

eers

Ch

air

and

Pro

fess

or o

f T

elec

omm

un

icat

ion

s an

d L

awP

enn

Sta

te U

niv

ersi

tyrm

f5@

psu

.ed

uW

eb s

ite

: htt

p:/

/w

ww

.per

son

al.p

su.e

du

/fa

cult

y/r/

m/

rmf5

/B

log

site

: htt

p:/

/te

lefr

ied

en.b

logs

pot

.com

/

2

Th

e M

ain

Poi

nts

Sec

706

of th

e Te

leco

mm

unic

atio

ns A

ct o

f 199

6 sp

ecifi

es th

at th

e FC

C an

d st

ate

publ

ic ut

ility

com

miss

ions

hav

e a

join

t miss

ion

to p

rom

ote

affo

rdab

le an

d w

idely

av

ailab

le br

oadb

and

acce

ss.

Stat

e Pu

blic

Util

ity C

omm

issio

ns (“

PUCs

”) c

an h

elp th

e FC

C in

bot

h as

sess

ing

the

viab

ility

of b

road

band

acc

ess a

s well

as d

evisi

ng st

rate

gies

for a

batin

g in

adeq

uacie

s, pa

rticu

larly

for u

nder

serv

ed c

onst

ituen

cies

.

Whi

le th

e D

.C. C

ircui

t Cou

rt of

App

eals

inva

lidat

ed th

e FC

C’s o

pen

Inte

rnet

rules

as

unl

awfu

lly im

posin

g co

mm

on c

arrie

r dut

ies,

the

cour

t aff

irmed

the

Com

miss

ion’

s au

thor

ity to

impl

emen

t Sec

. 706

.

Unl

ike

Plain

Old

Tel

epho

ne S

ervi

ce (“

POTS

”), b

road

band

has

subs

tant

ially

div

erse

ch

arac

teris

tics,

cost

ele

men

ts, f

eatu

res,

serv

ices

and

con

sum

er re

quire

men

ts.

3

Th

e M

ain

Poi

nts

(co

nt.

)

Ther

e is

no si

ngle

, “pl

ain v

anill

a” se

rvic

e, no

r is t

here

a si

ngle

mea

sure

of

“tel

eden

sity.”

Whi

le u

nive

rsal

serv

ice

stra

tegy

for P

OTS

app

ropr

iatel

y co

ncen

trate

d on

supp

ly-

side

stim

ulat

ion

and

cost

subs

idies

, opt

imal

broa

dban

d st

rate

gies

requ

ire su

bsta

ntial

co

nsid

erat

ion

of d

eman

d-sid

e fa

ctor

s suc

h as

way

s to

prom

ote

digi

tal l

itera

cy.

Popu

latio

n de

nsity

is o

nly

one

of se

vera

l fac

tors

aff

ectin

g th

e co

st o

f bro

adba

nd

serv

ice.

4

Th

e 70

6 M

and

ate

Sec.

706(

a) c

odifi

ed a

t 47

U.S

.C. 1

302(

a),

spec

ifies

a jo

int f

eder

al/st

ate

miss

ion

to:

“enc

oura

ge th

e de

ploy

men

t on

a re

ason

able

and

tim

ely

basis

of a

dvan

ced

tele

com

mun

icat

ions

cap

abili

ty to

all

Am

eric

ans (

incl

udin

g, in

par

ticul

ar, e

lem

enta

ry

and

seco

ndar

y sc

hool

s and

clas

sroo

ms)

by

utili

zing

, in

a m

anne

r con

siste

nt w

ith

the

publ

ic in

tere

st, c

onve

nien

ce, a

nd n

eces

sity,

pric

e ca

p re

gulat

ion,

regu

lator

y fo

rbea

ranc

e, m

easu

res t

hat p

rom

ote

com

petit

ion

in th

e lo

cal t

elec

omm

unic

atio

ns

mar

ket,

or o

ther

regu

latin

g m

etho

ds th

at re

mov

e ba

rrier

s to

infr

astru

ctur

e in

vest

men

t.”

The

Act

def

ines

adv

ance

d te

leco

mm

unic

atio

ns c

apab

ility

as:

“hig

h-sp

eed,

switc

hed,

bro

adba

nd te

leco

mm

unic

atio

ns c

apab

ility

that

ena

bles

use

rs

to o

rigin

ate

and

rece

ive

high

-qua

lity

voic

e, da

ta, g

raph

ics,

and

vide

o te

leco

mm

unic

atio

ns u

sing

any

tech

nolo

gy.”

Sec.

706(

b) re

quire

s the

FCC

to m

ake

an a

nnua

l det

erm

inat

ion

“whe

ther

adv

ance

d te

leco

mm

unic

atio

ns c

apab

ility

is b

eing

dep

loye

d to

all

Am

eric

ans i

n a

reas

onab

le

and

timely

fash

ion.

” If

not

, the

Com

miss

ion

“sha

ll ta

ke im

med

iate

actio

n to

ac

cele

rate

dep

loym

ent o

f suc

h ca

pabi

lity

by re

mov

ing

barr

iers

to in

fras

truct

ure

inve

stm

ent a

nd b

y pr

omot

ing

com

petit

ion

in th

e te

leco

mm

unic

atio

ns m

arke

t.”

5

Th

e 70

6 M

and

ate

(con

t.)

The

FCC

has a

mpl

e fle

xibi

lity

in b

oth

the

asse

ssm

ent p

roce

ss a

nd in

dev

ising

stra

tegi

es fo

r re

med

ying

impe

dim

ents

. It

has n

o ob

ligat

ion

to e

mph

asiz

e bi

t tra

nsm

issio

n sp

eeds

, or a

ny

singl

e ev

aluat

ive

crite

rion.

Beca

use

mea

surin

g bi

t rat

e sp

eeds

pro

vide

s a q

uant

itativ

e st

atist

ic, w

hich

the

FCC

can

calcu

late

with

relat

ive

ease

, the

Com

miss

ion

has e

mph

asiz

ed th

is cr

iterio

n.

The

FCC

shou

ld u

se a

mor

e gr

anul

ar a

sses

smen

t with

em

phas

is on

affo

rdab

ility

, eas

e of

ac

cess

and

adop

tion

rate

s.

The

FCC

has v

astly

impr

oved

its s

tatis

tical

com

pilat

ion

of a

vaila

ble

bit t

rans

miss

ion

spee

ds,

but s

till l

arge

ly ig

nore

s qua

litat

ive

fact

ors.

For

exa

mpl

e th

e Co

mm

issio

n gl

adly

note

s the

av

ailab

ility

of t

erre

stria

l and

sate

llite

wire

less o

ptio

ns w

ithou

t con

sider

ing

the

impa

ct o

f dat

a ca

ps, i

nitia

l equ

ipm

ent c

osts

, sig

nal l

aten

cy, c

ost p

er m

egab

yte,

etc.

Polit

ics in

fluen

ce w

heth

er, h

ow a

nd w

hen

the

FCC

crea

tes a

thre

shol

d fo

r def

inin

g su

cces

s in

achi

evin

g Se

c. 70

6 go

als.

Doe

s the

FCC

dec

lare

vict

ory

whe

n m

ore

than

100

mill

ion

hous

ehol

ds h

ave

acce

ss to

act

ual (

not a

dver

tised

) spe

eds o

f 100

meg

abits

per

seco

nd

(“m

bps”

) and

all

hous

ehol

ds h

ave

least

4 m

bps d

owns

tream

and

1 m

bps u

pstre

am?

Arg

uabl

y th

e FC

C do

es n

ot e

ngag

e in

“m

issio

n cr

eep”

if it

raise

s the

bar

, but

doi

ng so

may

cr

eate

regu

lator

y un

certa

inty

and

disi

ncen

tives

for p

rivat

e ca

rrier

inve

stm

ent i

n ne

xt

gene

ratio

n ne

twor

ks.

6

Rec

omm

end

ed C

rite

ria

for

Eva

luat

ing

Pro

gres

sTh

e FC

C an

d st

ate

PUCs

can

ass

ess p

rogr

ess i

n th

e PO

TS u

nive

rsal

serv

ice m

issio

n by

mea

surin

g te

lede

nsity

, e.g

., nu

mbe

r of l

ines

per

100

resid

ents

. W

ith o

nly

1 se

rvic

e at

issu

e, re

gulat

ors

prim

arily

use

subs

idies

to d

efra

y ca

rrier

s’ hi

gher

cos

ts in

serv

ing

the

hint

erlan

d an

d re

duce

te

lepho

ne se

rvice

rate

s for

qua

lifyin

g su

bscr

iber

s.

An

accu

rate

ass

essm

ent o

f bro

adba

nd p

rogr

ess r

equi

res m

easu

ring

man

y fa

ctor

s tha

t affe

ct th

e av

ailab

ility

and

cos

t of s

pecif

ic br

oadb

and

serv

ices.

Sou

rce:

Ale

x M

cKen

zie,

Wha

t Int

erne

t Spe

ed D

o Y

ou R

eall

y N

eed

(F

eb. 2

9, 2

012)

; ava

ilab

le a

t: h

ttp:

//un

brea

k-it

.com

/201

2/02

/wha

t-sp

eed-

do-y

ou-n

eed/

.

Sup

ply

-Sid

e B

road

ban

d S

trat

egie

s

Gov

ernm

ent i

ssue

s a v

ision

stat

emen

t (lik

e th

e N

atio

nal B

road

band

Plan

) pre

cede

d or

follo

wed

by

outre

ach

via

wor

ksho

ps, c

onsu

ltatio

ns a

nd h

earin

gs.

Dire

ct su

bsid

izat

ion

(from

the

gene

ral t

reas

ury,

or su

rcha

rges

on

tele

com

serv

ices

); E

xam

ples

inclu

de: u

nive

rsal

serv

ice fu

ndin

g pr

ogra

ms;

fund

ing

for r

esea

rch

and

deve

lopm

ent;

gran

ts fo

r tes

t and

dem

onst

ratio

n pr

ojec

ts; t

otal

or p

artia

l fin

ancin

g of

lo

cal a

nd re

gion

al pr

ojec

ts; l

oan

guar

ante

es; t

ax c

redi

ts; f

ree

or b

elow

cos

t acc

ess t

o pu

blic

righ

ts o

f way

and

land

; and

free

or b

elow

mar

ket r

ate

acce

ss to

spec

trum

.

Best

pra

ctic

es in

clud

e: te

chno

logy

neu

tralit

y in

gra

nts;

fund

ing

com

mun

ity-

supp

orte

d pr

ojec

ts ra

ther

than

spec

ifyin

g a

fixed

list

of e

xist

ing

carr

ier se

rvice

s; ca

ppin

g go

vern

men

t pro

ject

fund

ing

to a

per

cent

age

of to

tal c

ost;

emph

asiz

ing

one-

time

proj

ect f

undi

ng ra

ther

than

recu

rrin

g di

scou

nts;

prom

otin

g in

nova

tion

and

crea

tivity

in p

roje

cts b

y su

ppor

ting

use

of te

chno

logi

es w

ith g

reat

er e

ffic

ienc

y an

d lo

wer

recu

rrin

g co

sts;

enco

urag

ing

com

petit

ion

amon

g pr

ovid

ers b

y au

ctio

ning

off

su

bsid

y ac

cess

; and

ben

chm

arki

ng, m

appi

ng a

nd tr

acki

ng m

arke

t pen

etra

tion.

7

Dem

and

-Sid

e B

road

ban

d S

trat

egie

s

Publ

ic an

d pr

ivat

e se

ctor

dig

ital l

itera

cy c

ampa

igns

, e.g

., lo

anin

g or

subs

idiz

ing

the

cost

of a

com

pute

r and

supp

ortin

g co

mpu

ter t

rain

ing.

Gov

ernm

ents

pro

mot

e cr

eatio

n an

d co

nsum

ptio

n of

dig

ital c

onte

nt.

Regu

lator

s est

ablis

h qu

asi-c

omm

on c

arrie

r int

erco

nnec

tion

oblig

atio

ns.

Regu

lator

s im

pose

net

wor

k ne

utra

lity

oblig

atio

ns o

n IS

Ps.

Gov

ernm

ent a

genc

ies p

rom

ote

broa

dban

d us

e as

an

early

ado

pter

and

pro

vide

r of

elec

troni

c se

rvic

es.

Stat

e an

d fe

dera

l tax

and

oth

er fi

nanc

ial in

cent

ives

for d

eman

d ag

greg

atio

n by

pr

ivat

e us

ers.

8

Sec.

706

an

d O

pen

In

tern

et R

equ

irem

ents

Des

pite

two

appe

llate

cou

rt re

vers

als, t

he F

CC h

as st

arte

d an

othe

r am

bitio

us c

ampa

ign

to e

stab

lish

open

Inte

rnet

rule

s now

larg

ely

base

d on

Sec

. 706

.

The

FCC

now

bel

ieve

s Sec

. 706

pro

vide

s dire

ct st

atut

ory

auth

ority

to re

quire

ISP

trans

pare

ncy

and

disc

losu

re o

f spe

cializ

ed n

etw

orki

ng se

rvice

s. T

he C

omm

issio

n als

o w

ants

to re

-impo

se a

pro

hibi

tion

on d

iscrim

inat

ion

and

bloc

king

of l

awfu

l con

tent

.

The

FCC

broa

dly

just

ifies

the

need

for r

egul

ator

y in

terv

entio

n ba

sed

on th

e in

cent

ive

and

abili

ty o

f ISP

s to

limit

Inte

rnet

ope

nnes

s in

way

s tha

t ham

per t

he a

bilit

y of

the

Inte

rnet

eco

syst

em to

spur

inno

vatio

n, c

ompe

titio

n, fr

ee e

xpre

ssio

n an

d in

fras

truct

ure

inve

stm

ent.

The

Com

miss

ion

rem

inds

read

ers t

hat t

he “

D.C

. Circ

uit f

ound

that

the

Com

miss

ion

‘adeq

uate

ly su

ppor

ted

and

expl

ained

’ tha

t abs

ent o

pen

Inte

rnet

rules

, ‘br

oadb

and

prov

ider

s rep

rese

nt a

thre

at to

Inte

rnet

ope

nnes

s and

cou

ld a

ct in

way

s tha

t wou

ld

ultim

atel

y in

hibi

t the

spee

d an

d ex

tent

of f

utur

e br

oadb

and

depl

oym

ent.’

”

9

Con

clu

sion

s an

d R

ecom

men

dat

ion

s

Fede

ral-S

tate

“Jo

int B

oard

s” h

ave

perf

orm

ed a

majo

r ser

vice

to th

e na

tion

by

forg

ing

wor

kabl

e co

mpr

omise

s on

man

y ch

allen

ging

tele

com

mun

icat

ions

issu

es.

The

Fede

ral-S

tate

Join

t Con

fere

nce

on A

dvan

ced

Tele

com

mun

icat

ions

Ser

vice

s has

cle

ar st

atut

ory

auth

ority

to a

ssist

the

FCC

in a

sses

sing

whe

ther

acc

essib

le an

d af

ford

able

broa

dban

d ac

cess

exi

sts.

It c

an h

ighl

ight

whe

ther

par

ticul

ar c

onst

ituen

cies

, suc

h as

the

elde

rly, p

oor,

triba

l an

d m

ilita

ry b

ase

resid

ents

and

peo

ple

lacki

ng se

cond

ary

and

abov

e ed

ucat

ion

cred

entia

ls re

main

und

erse

rved

.

The

Conf

eren

ce c

an id

entif

y su

pply

-sid

e an

d de

man

d sid

e co

nstra

ints

that

con

tinue

to

exi

st, d

espi

te e

vide

nce

of g

reat

pro

gres

s in

over

all m

arke

t pen

etra

tion.

It c

an p

rovi

de m

uch

need

ed e

mph

asis

on d

eman

d-sid

e st

imul

atio

n ac

hiev

ed

thro

ugh

com

pute

r and

dig

ital l

itera

cy c

ampa

igns

that

can

per

suad

e ha

rd to

reac

h an

d co

nvin

ce c

onst

ituen

cies

abo

ut th

e co

mpe

lling

valu

e in

Inte

rnet

acc

ess.

10

Exis

tin

g T

itle

II

Reg

ula

tion

of

Cel

lula

r S

ervi

ce is

th

e R

igh

t M

odel

for

Bro

adb

and

Jam

es P

. Tu

thill

Adj

unct

Pro

fess

or,

Uni

vers

ity o

f Cal

iforn

ia,

Ber

kele

y, S

choo

l of

Law

N

ovem

ber

19,

2014

Cel

lula

r S

ervi

ce i

s a

“Com

mon

C

arri

er”

Ser

vice

Cel

lula

r se

rvic

es a

re “

Com

mer

cial

Mob

ile R

adio

Ser

vice

s”:

CM

RS

CM

RS s

ervi

ces

are

Title

II

Com

mon

Car

rier

se

rvic

es u

nder

the

Com

mun

icat

ions

Act

Sta

tes

have

aut

hority

to

prot

ect

user

s an

d co

nsum

ers

Title

II

regu

latio

n of

cel

lula

r ha

s no

t hu

rt e

ither

in

vest

men

t or

inno

vatio

nFC

C s

houl

d ad

opt

this

mod

el o

f “l

ite”

Title

II

regu

latio

n fo

r br

oadb

and

2Ja

mes

P.

Tuth

ill,

Adj

unct

Pro

fess

or,

Uni

vers

ity o

f Cal

iforn

ia,

Ber

kele

y, S

choo

l of

Law

The

Com

mu

nic

atio

ns

Act

Cla

ssif

ies

Mob

ile S

ervi

ce P

rovi

der

s as

C

omm

on C

arri

ers

47 U

SC §

332

(c):

Reg

ulat

ory

trea

tmen

t of

m

obile

ser

vice

s:Com

mon

car

rier

tre

atm

ent

of c

omm

erci

al

mob

ile s

ervi

ces:

“A p

erso

n en

gage

d in

the

pro

visi

on o

f a

serv

ice

that

is a

com

mer

cial

mob

ile s

ervi

ce

shal

l...b

e tr

eate

d as

a c

omm

on c

arrier

for

pu

rpos

es o

f th

is c

hapt

er..

..”

3Ja

mes

P.

Tuth

ill,

Adj

unct

Pro

fess

or,

Uni

vers

ity o

f Cal

iforn

ia,

Ber

kele

y, S

choo

l of

Law

The

Com

mu

nic

atio

ns

Act

Cla

ssif

ies

Mob

ile S

ervi

ce P

rovi

der

s as

C

omm

on C

arri

ers

Com

mis

sion

has

aut

hority

to

forb

ear

from

ap

plic

atio

n of

pro

visi

ons

of T

itle

IIBot

h un

der

Sec

tion

332

and

Sec

tion

10

No

rate

reg

ulat

ion—

the

only

rea

l bur

dens

ome

part

of

Title

II

His

torica

lly a

n es

sent

ial p

art

of c

omm

on c

arriag

e:Set

ting

“jus

t an

d re

ason

able

” ra

tes

And

a c

ritic

al is

sue

in d

efin

ing

“com

mon

car

riag

e” t

hat

the

cour

t in

Ver

izon

faile

d to

add

ress

4Ja

mes

P.

Tuth

ill,

Adj

unct

Pro

fess

or,

Uni

vers

ity o

f Cal

iforn

ia,

Ber

kele

y, S

choo

l of

Law

The

Com

mu

nic

atio

ns

Act

Cla

ssif

ies

Mob

ile S

ervi

ce P

rovi

der

s as

C

omm

on C

arri

ers

App

ly S

ectio

ns 2

01,

202

and

208

of T

itle

II

“The

se f

unda

men

tal p

rovi

sion

s co

llect

ivel

y fo

rbid

un

reas

onab

le d

enia

ls o

f se

rvic

e an

d ot

her

unju

st

or u

nrea

sona

ble

prac

tices

, an

d al

low

the

Com

mis

sion

to

enfo

rce

the

proh

ibiti

on.”

Aus

tin S

chlic

k, G

ener

al C

ouns

el,

FCC,

May

6,

2010

5Ja

mes

P.

Tuth

ill,

Adj

unct

Pro

fess

or,

Uni

vers

ity o

f Cal

iforn

ia,

Ber

kele

y, S

choo

l of

Law

The

Com

mu

nic

atio

ns

Act

Cla

ssif

ies

Mob

ile S

ervi

ce P

rovi

der

s as

C

omm

on C

arri

ers

Sta

tes

pree

mpt

ed f

rom

set

ting

rate

s

But

sta

tes

may

reg

ulat

e “.

..th

e ot

her

term

s an

d co

nditi

ons

of c

omm

erci

al m

obile

ser

vice

s.”

Sig

nific

ant

role

of

stat

es f

or c

onsu

mer

pro

tect

ion

6Ja

mes

P.

Tuth

ill,

Adj

unct

Pro

fess

or,

Uni

vers

ity o

f Cal

iforn

ia,

Ber

kele

y, S

choo

l of

Law

The

Com

mu

nic

atio

ns

Act

Cla

ssif

ies

Mob

ile S

ervi

ce P

rovi

der

s as

C

omm

on C

arri

ers

Mob

ile S

ervi

ces

mod

el o

f “l

ite”

Title

II

regu

latio

n to

geth

er w

ith S

ectio

n 70

6 gi

ves

Com

mis

sion

the

righ

t ba

lanc

e of

aut

hority

for

the

reg

ulat

ion

and

prom

otio

n of

bro

adba

nd

7Ja

mes

P.

Tuth

ill,

Adj

unct

Pro

fess

or,

Uni

vers

ity o

f Cal

iforn

ia,

Ber

kele

y, S

choo

l of

Law

The

Com

mu

nic

atio

ns

Act

Cla

ssif

ies

Mob

ile S

ervi

ce P

rovi

der

s as

C

omm

on C

arri

ers

Com

mis

sion

has

aut

hority

to

recl

assi

fy

broa

dban

d fr

om a

n In

form

atio

n Ser

vice

to

a Te

leco

mm

unic

atio

n Ser

vice

It’s

a p

olic

y de

cisi

onSix

jus

tices

in B

rand

Xde

cisi

on a

ckno

wle

dged

cl

assi

ficat

ion

of a

ser

vice

is a

pol

icy

call

for

the

Com

mis

sion

Com

mis

sion

can

cha

nge

polic

y w

here

it a

ckno

wle

dges

it

is d

oing

so

and

its r

easo

ns a

re r

atio

nale

: FC

C v

. Fo

x Te

levi

sion

Sta

tions

, In

c.,

129

S. C

t. 1

800

(200

9)

8Ja

mes

P.

Tuth

ill,

Adj

unct

Pro

fess

or,

Uni

vers

ity o

f Cal

iforn

ia,

Ber

kele

y, S

choo

l of

Law

“Lit

e” C

omm

on c

arri

er r

egu

lati

on

has

not

har

med

Cel

lula

r

In 1

995

in it

s fir

st r

epor

t to

Con

gres

s on

mob

ile

serv

ices

the

Com

mis

sion

sta

ted

that

the

re w

ere

appr

oxim

atel

y 25

mill

ion

cellu

lar

subs

crib

ers.

In it

s 16

thre

port

to

Con

gres

s in

Mar

ch o

f 20

13

the

Com

mis

sion

sai

d th

ere

wer

e 29

8.3

mill

ion

subs

crib

ers

to m

obile

tel

epho

ne o

r vo

ice

serv

ices

.

9Ja

mes

P.

Tuth

ill,

Adj

unct

Pro

fess

or,

Uni

vers

ity o

f Cal

iforn

ia,

Ber

kele

y, S

choo

l of

Law

FCC

Est

imat

ed T

otal

Mob

ile

Wir

eles

s C

onn

ecti

ons

10Ja

mes

P.

Tuth

ill,

Adj

unct

Pro

fess

or,

Uni

vers

ity o

f Cal

iforn

ia,

Ber

kele

y, S

choo

l of

Law

Con

nec

ted

Dev

ices

(m

illio

ns)

2001

128.

520

0214

1.8

2003

160.

620

0418

4.7

2005

213.

020

0624

1.8

2007

263.

020

0827

9.6

2009

290.

720

1030

1.8

2011

317.

3

“Lit

e” C

omm

on c

arri

er r

egu

lati

on

has

not

har

med

Cel

lula

r an

d w

ill w

ork

for

bro

adb

and

In 2

001

Tom

Tau

ke,

Verizo

n’s

Sen

ior

VP

for

Publ

ic P

olic

y to

ld C

ongr

ess

that

the

for

bear

ance

fr

amew

ork

“pro

duce

d w

hat

is a

rgua

bly

one

of t

he

grea

test

suc

cess

es in

thi

s in

dust

ry in

the

last

tw

enty

yea

rs-t

he g

row

th o

f w

irel

ess

serv

ices

.”Th

e W

irel

ess

fram

ewor

k w

ill w

ork

for

broa

dban

d In

tern

et s

ervi

ces

too.

11Ja

mes

P.

Tuth

ill,

Adj

unct

Pro

fess

or,

Uni

vers

ity o

f Cal

iforn

ia,

Ber

kele

y, S

choo

l of

Law