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31406 Federal Register / Vol. 70, No.

104 / Wednesday, June 1, 2005 / Proposed Rules

Federal Communications Commission. (voice), or e-mail Lisa.Boehley@fcc.gov. Initial Paperwork Reduction Act of
Cheryl L. Callahan, For additional information concerning 1995 Analysis
Assistant Chief, Wireline Competition Bureau, the PRA information collection This FNPRM contains proposed
Telecommunications Access Policy Division. requirements contained in this information collection requirements.
[FR Doc. 05–10659 Filed 5–31–05; 8:45 am] document, contact Leslie Smith at (202) The Commission, as part of its
BILLING CODE 6712–01–P 418–0217, or via the Internet at continuing effort to reduce paperwork
Leslie.Smith@fcc.gov. burdens, invites the general public and
the Office of Management and Budget
FEDERAL COMMUNICATIONS SUPPLEMENTARY INFORMATION: This (OMB) to comment on the information
COMMISSION Further Notice of Proposed Rulemaking collection requirements contained in
(FNPRM), Rules and Regulations this FNPRM, as required by the
47 CFR Part 64 Implementing Minimum Customer Paperwork Reduction Act of 1995,
[CG Docket No. 02–386; FCC 05–29] Account Record Exchange Obligations Public Law 104–13. Public and agency
on All Local and Interexchange Carriers, comments are due August 1, 2005.
Rules and Regulations Implementing CG Docket No. 02–386, FCC 05–29, Comments should address: (a)
Minimum Customer Account Record contains proposed information Whether the proposed collection of
Exchange Obligations on All Local and collection requirements subject to the information is necessary for the proper
Interexchange Carriers PRA of 1995, Public Law 104–13. It will performance of the functions of the
AGENCY: Federal Communications be submitted to the Office of Commission, including whether the
Commission. Management and Budget (OMB) for information shall have practical utility;
review under section 3507(d) of the (b) the accuracy of the Commission’s
ACTION: Proposed rule.
PRA. OMB, the general public, and burden estimates; (c) ways to enhance
SUMMARY: In this document, the other Federal agencies are invited to the quality, utility, and clarity of the
Commission seeks comment on issues comment on the proposed information information collected; and (d) ways to
relating to the exchange of customer collection requirements contained in minimize the burden of the collection of
account information between Local this proceeding. information on the respondents,
Exchange Carriers. The Commission including the use of automated
This is a summary of the collection techniques or other forms of
specifically questions whether we Commission’s FNPRM, adopted
should require all local service information technology. In addition,
February 10, 2005, and released pursuant to the Small Business
providers to participate in the exchange
February 25, 2005. Comments may be Paperwork Relief Act of 2002, Public
of customer account information and if
filed using the Commission’s Electronic Law 107–198, see 44 U.S.C. 3506(c)(4),
so, what information local service
providers should be required to supply. Comment Filing System (ECFS) or by we seek specific comment on how we
In addition, in this document the filing paper copies. See Electronic Filing might ‘‘further reduce the information
Commission seeks comment broadly on of Documents in Rulemaking collection burden for small business
the interplay between the state rules and Proceedings, 63 FR 24121, May 1, 1998. concerns with fewer than 25
any federal rules we might adopt in this Comments filed through the ECFS can employees.’’
area. be sent as an electronic file via the OMB Control Number: 3060–xxxx.
Internet to http://www.fcc.gov/e-file/ Title: Rules and Regulations
DATES: Comments are due on or before
ecfs.html. Implementing Minimum Customer
July 18, 2005, and reply comments are
Copies of this document and any Account Record Exchange Obligations
due August 1, 2005. Written comments
on All Local and Interexchange Carriers,
on the proposed information subsequently filed documents in this
CG Docket No. 02–386, Further Notice
collection(s) must be submitted by the matter will be available for public
of Proposed Rulemaking (FNPRM), FCC
public, Office of Management and inspection and copying during regular 05–29.
Budget (OMB), and other interested business hours at the FCC Reference Form Number: N/A.
parties on or before August 1, 2005. Information Center, Portals II, 445 12th Type of Review: New collection.
ADDRESSES: Federal Communications Street, SW., Room CY–A257, Respondents: Business or other for-
Commission, 445 12th Street, SW., Washington, DC 20554. The complete profit entities.
Washington, DC 20554. In addition to text of this decision may be purchased Number of Respondents: 1,873; 60
filing comments with the Secretary, a from the Commission’s duplicating responses per year.
copy of any comments on the contractor, Best Copy and Printing, Inc. Estimated Time per Response: 0.25
Paperwork Reduction Act (PRA) (BCPI), Portals II, 445 12th Street, SW., hours.
information collection requirements Room CY–B402, Washington, DC 20554. Frequency of Responses: On occasion
contained herein should be submitted to Customers may contact BCPI, Inc. at and annual reporting requirements.
Leslie Smith, Federal Communications their Web site: http://www.bcpiweb.com Total Annual Burden: 28,095 hours.
Commission, Room 1–C804, 445 12th or call 1–800–378–3160. To request Total Annual Cost: $210,713.
Street, SW., Washington, DC 20554, or materials in accessible formats for Privacy Impact Assessment: No.
via the Internet to Leslie.Smith@fcc.gov, people with disabilities (Braille, large Needs and Uses: On February 25,
and to Kristy L. LaLonde, OMB Desk 2005, the FCC released a Further Notice
print, electronic files, audio format),
Officer, Room 10234 NEOB, 725 17th of Proposed Rulemaking, Rules and
send an e-mail to fcc504@fcc.gov or call
Street, NW., Washington, DC 20503, via Regulations Implementing Minimum
the Internet to the Consumer & Governmental Affairs
Bureau at (202) 418–0530 (voice) or Customer Account Record Exchange
Kristy_L._LaLonde@omb.eop.gov, or via Obligations on All Local and
fax at (202) 395–5167. (202) 418–0432 (TTY). This document
Interexchange Carriers (FNPRM), which
can also be downloaded in Word and
FOR FURTHER INFORMATION CONTACT: Lisa seeks comment on whether the
Portable Document Format (PDF) at:
Boehley, Consumer & Governmental Commission should require all local
Affairs Bureau at (202) 418–7395 http://www.fcc.gov/cgb/pol. service providers to participate in the

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Federal Register / Vol. 70, No. 104 / Wednesday, June 1, 2005 / Proposed Rules 31407

exchange of customer account subject to the § 271 requirements fail to the policies and rules proposed in this
information when a customer switches exchange information in a uniform FNPRM. Written public comments are
from one local service provider to manner or to provide complete and requested on this IRFA. Comments must
another. The Commission is considering timely information, thereby delaying the be identified as responses to the
the adoption of rules governing customer’s switch in service. FNPRM. The Commission will send a
information exchanges between local Specifically, particular local service copy of the FNPRM, including this
service providers. The Commission is providers describe a problem with ‘‘old’’ IRFA, to the Chief Counsel for Advocacy
taking this step in response to concerns local service providers not responding of the Small Business Administration.
that have been brought to its attention to customer service record requests in a See 5 U.S.C. 603(a). In addition, this
by particular local service providers. In timely or consistent manner. Customers, FNPRM and the IRFA (or summaries
particular, local service providers in turn, who expect service transitions thereof) will be published in the Federal
complain of the failure on the part of to occur seamlessly and in a timely Register.
certain providers to transmit basic fashion, are confused about the source
Need for, and Objectives of, the
customer account information when a of the delay, frustrated, and often give
Proposed Rules
customer changes from one local service up on the desired change. In addition,
provider to another. The comments ATIS OBF’s recent action to develop The Commission determined that the
suggest that mandatory information local service migration guidelines and to record in this proceeding demonstrates
exchanges in these situations may help outline standards for the exchange of that basic customer account information
to ensure that customer migrations from customer service record information that carriers require to ensure accurate
one local service provider to another suggests that the industry as a whole billing of end user customers and to
will take place seamlessly and without recognizes the need for uniform execute end user customer requests in a
undue delay. Mandatory information standards in connection with local-to- timely manner is not being provided by
exchanges also may help to ensure the local carrier changes. The FNPRM seeks all LECs and by all IXCs. This can
accuracy of customer bills for local comment on the issues identified in the inhibit customers’ ability to move
telephone service and may assist the record of the CARE proceeding seamlessly from one carrier to another,
Commission and state commissions in regarding LEC-to-LEC communications and can result in substantial increases
their enforcement proceedings related to and on whether mandating the exchange in unbillable calls and customer
billing-related consumer complaints. of customer account information among complaints. Therefore, the Commission
We note that, in the FNPRM, the LECs will reduce the problems adopted new rules to facilitate the
Commission has not proposed specific identified therein, including double exchange of customer account
rules detailing the precise billing, delays in migration, and information between LECs and IXCs to
circumstances in which information confusion on the part of consumers ensure those consumers’ phone service
exchanges may be required. If the concerning their local service accounts. bills are accurate and that their carrier
Commission determines to adopt such The Commission also requests comment selection requests are honored and
rules, however, we anticipate that they on the exchange of ‘‘line level’’ executed without undue delay.
will contain information collection information, such as working telephone The record suggests that local service
requirements, within the meaning of the number, current preferred interexchange providers experience many of the same
PRA. carrier and freeze status, along with difficulties with access to customer
calling features such as toll blocking account information as described by
Synopsis Joint Petitioners, and that the sharing of
and call forwarding. In addition, the
In this Further Notice of Proposed Commission seeks comment broadly on necessary customer information is not
Rulemaking (FNPRM), the Commission the interplay between the state rules and limited to changes involving
seeks comment on the exchange of any federal rules we might adopt in the presubscribed IXCs. It appears that with
information between Local Exchange area of end user migrations between the increase in competition and churn
Carriers (LECs). We specifically ask facilities-based providers. We ask that in the local market, coupled with the
whether the Commission should require carriers identify problems specific to advent of local number portability, the
all local service providers to participate LEC-to-LEC exchanges that might failure to exchange information in a
in the exchange of customer account warrant adopting standards for uniform or timely manner may result in
information and if so, what information timeliness. If so, we ask commenters to an increase in customer migrations from
local service providers should be describe what those standards for LEC to LEC that are not seamless.
required to supply. A significant timeliness should be. Finally, the Therefore, the FNPRM seeks comment
number of commenters recognize that FNPRM seeks comment on ways to on the exchange of information between
the sharing of customer account minimize the burdens on small LECs and asks whether the Commission
information is necessary for service businesses. should require that all local service
changes involving presubscribed providers participate in the exchange of
Interexchange Carriers (IXCs). Certain Initial Regulatory Flexibility Analysis customer account information. We seek
local service providers argue that the (IRFA)
comment specifically on whether
exchange of end user account As required by the Regulatory mandating the exchange of customer
information between local service Flexibility Act of 1980, as amended account information among LECs will
providers is equally critical when a (RFA), (see 5 U.S.C. 603. The RFA, see reduce the problems identified by
customer is switching local service. As 5 U.S.C. 601–612, has been amended by commenters, including double billing,
an incumbent LEC subject to § 271 the Small Business Regulatory delays in migration, and consumer
obligations, one such commenter Enforcement Fairness Act of 1996 confusion about their service.
indicates that it already is required to (SBREFA), Public Law Number 104–
provide timely customer account 121, Title II, 110 Statute 857 (1996)), the Legal Basis
information to a requesting CLEC that Commission has prepared this present The legal basis for any action that may
has acquired a new customer. However, Initial Regulatory Flexibility Analysis be taken pursuant to this FNPRM is
a similar obligation on CLECs does not (IRFA) of the possible significant contained in §§ 1, 4(i), 4(j), 201, 202,
exist. Many local service providers not economic impact on small entities by 206–208, 222, and 258 of the

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31408 Federal Register / Vol. 70, No. 104 / Wednesday, June 1, 2005 / Proposed Rules

Communications Act of 1934, as business concern’’ to include the Local Resellers. The SBA has
amended, 47 U.S.C. 151, 154(i), 154(j), concept of dominance on a national developed a specific size standard for
201, 202, 206–208, 222, and 258, and basis. 13 CFR 121.102(b)). We have small businesses within the category of
§ 1.421 and 1.429 of the Commission’s therefore included small incumbent Telecommunications Resellers. Under
rules, 47 CFR 1.421 and 1.429. LECs in this RFA analysis, although we that standard, such a business is small
emphasize that this RFA action has no if it has 1,500 or fewer employees (See
Description and Estimate of the Number
effect on the Commission’s analyses and 13 CFR 121.201, NAICS code 517310).
of Small Entities to Which the Proposed
determinations in other, non-RFA According to the FCC’s Telephone
Rules Will Apply
contexts. Trends Report data, 127 companies
The RFA directs agencies to provide Incumbent Local Exchange Carriers. reported that they were engaged in the
a description of and, where feasible, an Neither the Commission nor the SBA provision of local resale services (See
estimate of the number of small entities has developed a small business size Telephone Trends Report, Table 5.3). Of
that may be affected by the proposed standard for providers of incumbent these 127 companies, an estimated 121
rules, if adopted. (See 5 U.S.C. local exchange services. The closest have 1,500 or fewer employees, and six
603(b)(3)). The RFA generally defines applicable size standard under the SBA have more than 1,500 employees.
the term ‘‘small entity’’ as having the rules is for Wired Telecommunications Consequently, the Commission
same meaning as the terms ‘‘small Carriers. Under that standard, such a estimates that the majority of local
business,’’ ‘‘small organization,’’ and business is small if it has 1,500 or fewer resellers may be affected by the rules.
‘‘small governmental jurisdiction.’’ (See employees (13 CFR 121.201, NAICS Toll Resellers. The SBA has
5 U.S.C. 601(6)). In addition, the term code 517110). According to the FCC’s developed a specific size standard for
‘‘small business’’ has the same meaning Telephone Trends Report data, 1,310 small businesses within the category of
as the term ‘‘small business concern’’ incumbent local exchange carriers Telecommunications Resellers. Under
under section 3 of the Small Business reported that they were engaged in the that SBA definition, such a business is
Act. (See 5 U.S.C. 601(3) (incorporating provision of local exchange services small if it has 1,500 or fewer employees
by reference the definition of ‘‘small (FCC, Wireline Competition Bureau, (See 13 CFR 121.201, NAICS code
business concern’’ in the Small Business Industry Analysis and Technology 517310). According to the FCC’s
Act, 15 U.S.C. 632). Pursuant to 5 U.S.C. Division, Trends in Telephone Service, Telephone Trends Report data, 645
601(3), the statutory definition of a at Table 5.3, p. 5–5 (May 2004) companies reported that they were
small business applies ‘‘unless an (Telephone Trends Report). This source engaged in the provision of toll resale
agency, after consultation with the uses data that are current as of October services. (See Telephone Trends Report,
Office of Advocacy of the Small 22, 2003. Of these 1,310 carriers, an Table 5.3). Of these 645 companies, an
Business Administration and after estimated 1,025 have 1,500 or fewer estimated 619 have 1,500 or fewer
opportunity for public comment, employees and 285 have more than employees, and 26 have more than
establishes one or more definitions of 1,500 employees. Consequently, the 1,500 employees. Consequently, the
such term which are appropriate to the Commission estimates that the majority Commission estimates that a majority of
activities of the agency and publishes of providers of local exchange service toll resellers may be affected by the
such definitions(s) in the Federal are small entitles that may be affected rules.
Register.’’) Under the Small Business by the rules and policies adopted Interexchange Carriers. Neither the
Act, a ‘‘small business concern’’ is one herein. Commission nor the SBA has developed
that: (1) Is independently owned and Competitive Local Exchange Carriers a specific size standard for small entities
operated; (2) is not dominant in its field and Competitive Access Providers. specifically applicable to providers of
of operation; and (3) satisfies any Neither the Commission nor the SBA interexchange services. The closest
additional criteria established by the has developed specific small business applicable size standard under the SBA
Small Business Administration (SBA). size standards for providers of rules is for Wired Telecommunications
(See 15 U.S.C. 632). competitive local exchange services or Carriers. Under that standard, such a
We have included small incumbent competitive access providers (CAPs). business is small if it has 1,500 or fewer
LECs in this RFA analysis. As noted The closest applicable size standard employees. (See 13 CFR 121.201, NAICS
above, a ‘‘small business’’ under the under the SBA rules is for Wired code 517110). According to the FCC’s
RFA is one that, inter alia, meets the Telecommunications Carriers. Under Telephone Trends Report data, 281
pertinent small business size standard that standard, such a business is small carriers reported that their primary
(e.g., a wireline telecommunications if it has 1,500 or fewer employees (See telecommunications service activity was
business having 1,500 or fewer 13 CFR 121.201, NAICS code 517110). the provision of interexchange services.
employees), and ‘‘is not dominant in its According to the FCC’s Telephone (See Telephone Trends Report, Table
field of operation.’’ (See 13 CFR Trends Report data, 563 companies 5.3). Of these 281 carriers, an estimated
121.201, NAICS code 517110). The reported that they were engaged in the 254 have 1,500 or fewer employees, and
SBA’s Office of Advocacy contends that, provision of either competitive access 27 have more than 1,500 employees.
for RFA purposes, small incumbent provider services or competitive local Consequently, we estimate that a
LECs are not dominant in their field of exchange carrier services. (See majority of interexchange carriers may
operation because any such dominance Telephone Trends Report, Table 5.3. be affected by the rules.
is not ‘‘national’’ in scope. (See Letter The data are grouped together in the Operator Service Providers. Neither
from Jere W. Glover, Chief Counsel for Telephone Trends Report). Of these 563 the Commission nor the SBA has
Advocacy, SBA, to Chairman William E. companies, an estimated 472 have 1,500 developed a size standard for small
Kennard, FCC (May 27, 1999). The or fewer employees, and 91 have more entities specifically applicable to
Small Business Act contains a definition than 1,500 employees. Consequently, operator service providers. The closest
of ‘‘small business concern,’’ which the the Commission estimates that the applicable size standard under the SBA
RFA incorporates into its own definition majority of providers of competitive rules is for Wired Telecommunications
of ‘‘small business.’’ See 5 U.S.C. 632(a) local exchange service and CAPs are Carriers. Under that standard, such a
(Small Business Act); 5 U.S.C. 601(3) small entities that may be affected by business is small if it has 1,500 or fewer
(RFA). SBA regulations interpret ‘‘small the rules. employees. (See 13 CFR 121.201, NAICS

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Federal Register / Vol. 70, No. 104 / Wednesday, June 1, 2005 / Proposed Rules 31409

code 517110). According to the FCC’s of consumer complaints concerning information may result in additional
Telephone Trends Report data, 21 billing errors. In addition, we ask burdens on small entities. The
companies reported that they were whether the Commission should Commission therefore seeks comment
engaged in the provision of operator mandate the use of CARE transaction on the potential impact of these
services. (See Telephone Trends Report, codes to facilitate the exchange of proposals on small entities, and whether
Table 5.3). Of these 21 companies, an customer account information. In the there are any less burdensome
estimated 20 have 1,500 or fewer event any new standards for LEC-to-LEC alternatives that we should consider.
employees, and one has more than 1,500 exchanges are adopted, we expect that
employees. Consequently, the such standards will be minimal and will Federal Rules That May Duplicate,
Commission estimates that a majority of provide sufficient flexibility in their Overlap, or Conflict With the Proposed
operator service providers may be application that they will not create any Rules
affected by the rules. significant burden on small entities. In addressing the exchange of
Prepaid Calling Card Providers. The customer account information between
SBA has developed a size standard for Steps Taken To Minimize Significant LECs and IXCs, the Commission noted
small businesses within the category of Economic Impact on Small Entities, and
that § 222 of the Communications Act
Telecommunications Resellers. Under Significant Alternatives Considered
governs carriers’ use of customer
that size standard, such a business is The RFA requires an agency to proprietary network information and
small if it has 1,500 or fewer employees. describe any significant alternatives that generally prohibits a carrier from
(See 13 CFR 121.201, NAICS code it has considered in reaching its disclosing such information. Although
517310). According to the FCC’s proposed approach, which may include the Commission does not believe § 222
Telephone Trends Report data, 40 the following four alternatives (among duplicates, overlaps, or conflicts with
companies reported that they were others): (1) The establishment of the proposed rules on LEC-to-LEC
engaged in the provision of prepaid differing compliance or reporting exchanges, it seeks comment on the
calling cards. (See Telephone Trends requirements or timetables that take into interplay between § 222 and the
Report, Table 5.3). Of these 40 account the resources available to small proposed rules.
companies, all 40 are estimated to have entities; (2) the clarification,
1,500 or fewer employees. consolidation, or simplification of Ordering Clauses
Consequently, the Commission compliance or reporting requirements Pursuant to the authority contained in
estimates that all or most prepaid under the rule for such small entities; §§ 1–4, 201, 202, 222, 258, and 303(r) of
calling card providers may be affected (3) the use of performance, rather than the Communications Act of 1934, as
by the rules. design standards; and (4) an exemption amended; 47 U.S.C. 151–154, 201, 202,
Other Toll Carriers. Neither the from coverage of the rule, or any part 222, 258, and 303(r), the further notice
Commission nor the SBA has developed thereof, for small entities. (See 5 U.S.C. of proposed rulemaking is adopted.
a size standard for small entities 603(c)(1)–(c)(4)). The Commission’s Consumer &
specifically applicable to ‘‘Other Toll The FNPRM seeks comment on Governmental Affairs Bureau, Reference
Carriers.’’ This category includes toll whether the Commission should impose Information Center, shall send a copy of
carriers that do not fall within the mandatory minimum standards on all the Further Notice of Proposed
categories of interexchange carriers, LECs for the exchange of customer Rulemaking, including the Initial
operator service providers, prepaid account information between local Regulatory Flexibility Analysis, to the
calling card providers, satellite service service providers. (See Further Notice at Chief Counsel for Advocacy of the Small
carriers, or toll resellers. The closest paragraphs 75–81). The Commission Business Administration.
applicable size standard under the SBA seeks specific information addressing
rules is for Wired Telecommunications the possible impact of such mandatory List of Subjects in 47 CFR Part 64
Carriers. Under that standard, such a requirements on smaller carriers, and it Communications common carriers,
business is small if it has 1,500 or fewer asks whether implementing CARE codes Reporting and recordkeeping
employees. (See 13 CFR 121.201, NAICS would be problematic for any LECs, or requirements.
code 517110). According to the FCC’s for small or rural LECs in particular. Federal Communications Commission.
Telephone Trends Report data, 65 The Commission also asks commenters
Marlene H. Dortch,
carriers reported that they were engaged to discuss how, if the Commission were
to adopt minimum standards for the Secretary.
in the provision of ‘‘Other Toll
Services.’’ (See Telephone Trends exchange of information among LECs, it [FR Doc. 05–10973 Filed 5–31–05; 8:45 am]
Report, Table 5.3). Of these 65 carriers, could provide sufficient flexibility to BILLING CODE 6712–01–P

an estimated 62 have 1,500 or fewer protect carriers, particularly small/rural


employees, and three have more than LECs, from unduly burdensome
requirements. The Commission does not FEDERAL COMMUNICATIONS
1,500 employees. Consequently, the
have any evidence before it at this time COMMISSION
Commission estimates that a majority of
‘‘Other Toll Carriers’’ may be affected by regarding whether proposals outlined in
47 CFR Part 73
the rules. this FNPRM would, if adopted, have a
significant economic impact on a [DA 05–1341; MB Docket No. 05–188; RM–
Description of Projected Reporting, substantial number of small entities. 11240]
Recordkeeping, and Other Compliance However, the record in the proceeding
Requirements for Small Entities involving LEC-to-IXC transfers revealed Radio Broadcasting Services; Bass
As noted, the Commission seeks that there would likely be some River Township and Ocean City, NJ
comment on whether mandatory additional burdens on small LECs AGENCY: Federal Communications
minimum standards for the exchange of required to transfer customer account Commission.
customer account information between information to IXCs. Therefore, the ACTION: Proposed rule.
local service providers could provide Commission recognizes, in the context
consistency within the industry and of LEC-to-LEC exchanges, mandating the SUMMARY: This document requests
could eliminate a significant percentage exchange of customer account comments on a petition for rule making

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