[Federal Register Volume 60, Number 126 (Friday, June 30, 1995)]
[Proposed Rules]
[Pages 34200-34212]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-16130]



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FEDERAL COMMUNICATIONS COMMISSION
47 CFR Parts 20 and 24

[PP Docket No. 93-253, GN Docket No. 90-314, GN Docket No. 93-252, FCC 
95-263]


Race- and Gender-Based Provisions for the Auctioning of C Block 
Broadband Personal Communications Services Licenses, Elimination

AGENCY: Federal Communications Commission.

ACTION: Further notice of proposed rule making.

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SUMMARY: The Commission adopts a Further Notice of Proposed Rule Making 
proposing to amend its rules to eliminate race- and gender-based 
provisions for the auctioning of C block broadband Personal 
Communications Services licenses. The Commission proposes the rule 
changes to prevent potential legal delays in conducting the C block 
auction, while minimizing disruptions to existing business 
relationships that were formed under the current rules.

DATES: Comments are to be filed on or before July 7, 1995. Reply 
comments are not requested.

ADDRESSES: Comments should be sent to the Office of the Secretary, 
Federal Communications Commission, Washington, DC 20554.

FOR FURTHER INFORMATION CONTACT:
Ramona Melson or D'wana Speight, (202) 418-0620 (Wireless 
Telecommunications Bureau), Kathleen O'Brien Ham, (202) 418-0660 
(Wireless Telecommunications Bureau), or Peter Tenhula, (202) 418-1720 
(Office of General Counsel).

SUPPLEMENTARY INFORMATION: This is the Commission's Further Notice of 
Proposed Rule Making in PP Docket No. 93-253, GN Docket No. 90-314, GN 
Docket No. 93-252, adopted June 23, 1995 and released June 23, 1995. 
The full text of Commission decisions are available for inspection and 
copying during normal business hours in the FCC Docket Branch (Room 
230), 1919 M Street NW., Washington, D.C. The complete text of this 
decision may also be purchased from the Commission's copy contractor, 
International Transcription Service, Inc., (202) 857-3800, 2100 M 
Street NW., Washington, D.C. 20037.

Summary of Further Notice of Proposed Rule Making

Introduction

    1. In this Further Notice of Proposed Rule Making, we propose 
measures to address legal uncertainties raised by the Supreme Court's 
recent decision in Adarand Constructors, Inc. v. Pena.\1\ In proposing 
these measures, we are mindful of the Commission's obligation and 
commitment to ensure that the designated entities \2\ are afforded 
opportunities to participate in the provision of spectrum-based 
services. We are committed to this goal. Based on the unique 
circumstances of the auction for licenses in the ``C block'' \3\ of 
Personal Communications Services in the 2 GHz band (``broadband PCS''), 
particularly the timing of the Supreme Court's decision in Adarand,\4\ 
we believe that our proposal to avoid further delay and legal 
uncertainty concerning the C block auction is the best means of 
providing opportunities for businesses owned by minorities \5\ and 
women, many of whom have made preparations to bid in the C block 
auction. We emphasize, however, that our proposal is limited to the 
rules governing eligibility to participate in the C block auction.\6\ 
We also emphasize that our tentative conclusion to eliminate race- and 
gender-based measures does not indicate that we have concluded that 
race- or gender-based measures are inappropriate for future spectrum 
auctions.

    \1\ 63 U.S.L.W. 4523 (U.S. June 12, 1995).
    \2\ The term ``designated entities,'' as used herein refers to 
small business, rural telephone companies, and businesses owned by 
minorities or women. Omnibus Budget Reconciliation Act of 1993, Pub. 
L. No. 103-66, Title VI, Sec. 6002(a), 107 Stat. 312, 388 (1993) 
(Budget Act).
    \3\ The Commission allocated six broadband PCS frequency blocks 
for auctioning. Specifically, these are designated as the A and B 
blocks (consisting of 102 30 MHz Major Trading Area (MTA) licenses); 
the C and F blocks (consisting of 493 30 MHz Basic Trading Area 
(BTA) licenses and 493 10 MHz BTA licenses); and the D and E blocks 
(consisting of 986 10 MHz BTA licenses). The Commission recently 
completed its auction of the 99 A and B block licenses. See Public 
Notice, ``Announcing the Winning Bidders in the FCC's Auction of 99 
Licenses to Provide Broadband PCS in Major Trading Areas; Down 
Payments Due March 20, 1995,'' March 13, 1995. The auctioning of the 
493 C block licenses as announced in a public notice released in 
tandem with this Further Notice of Proposed Rule Making is scheduled 
to begin August 29, 1995. See Public Notice, ``FCC Sets August 29th 
Auction Date for 493 BTA Licenses Located in the C Block for 
Personal Communications Services in the 2 GHz Band, June 23, 1995.
    \4\ Notably, the Adarand decision was announced on June 12, 
1995, three days before the filing deadline for short-form 
applications (Form 175) for the C block auctions.
    \5\ Under our C block competitive bidding rules, the term 
``minorities'' includes Blacks, Hispanics, American Indians, Alaskan 
Natives, Asians, and Pacific Islanders. See 47 CFR 24.720(i).
    \6\ Aside from the C block auction, we anticipate that parties 
interested in other spectrum auctions will have additional 
opportunities to comment at a future date.
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    2. For purposes of the C block auction only, we propose to 
eliminate all race- and gender-based provisions contained in our 
competitive bidding rules applicable to such licenses in order to avoid 
delay caused by the legal challenges to our existing rules that would 
likely result from the Supreme Court's ruling in Adarand. It is our 
belief that such delay will significantly impede the C block auction 
and the expeditious dissemination of broadband PCS licenses to 
entrepreneurs,\7\ including businesses owned by minorities and women. 
In addition, we propose to treat women and minorities similarly in 
light of the stay granted 

[[Page 34201]]
Telephone Electronics Corp. (TEC), which implicated both gender and 
minority provisions in our rules.

    \7\ The term ``entrepreneurs,'' as used herein, refers to 
applicants in the C block that have gross revenues of less than $125 
million in each of the last two years and total assets of less than 
$500 million at the time the FCC Form 175 is filed. See 47 CFR 
24.709(a).
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    We are concerned that gender-based provisions could similarly 
result in legal challenges and delays to the C block auction. As 
described below, we intend to make rule changes that are the least 
disruptive to bidders who were in an advanced stage of planning to 
participate in the C block auction at the time the Adarand decision was 
handed down. We intend to make such changes swiftly, in order to 
minimize the effect of the modified rules on existing business 
relationships formed in anticipation of the C block auction.\8\ 
Moreover, in order to facilitate swift action on our rule changes, 
comments are due July 7, 1995, and we are not requesting reply 
comments.

    \8\ The Commission has received numerous letters urging it to go 
forward with the C block auction as expeditiously as possible. See, 
e.g., Letter from Sandra Goeken Martis, Wireless Works, Inc., to 
Cathy Sandoval, Office of Communications Business Opportunities, 
Federal Communications Commission (FCC) (June 16, 1995); Letter from 
Michael Walker, Executive Director, National Paging and Personal 
Communications Association, to Reed Hundt, Chairman, FCC (June 16, 
1995); Letter from Jonathan Chambers, Director, Public Policy, 
Sprint Telecommunications Venture, to Reed E. Hundt, Chairman, FCC 
(June 19, 1995); Letter from Roy M. Huhndorf, President, Cook Inlet 
Region, Inc. to Reed E. Hundt, Chairman, FCC (June 14, 1995); Letter 
from Eliot J. Greenwald and Howard C. Griboff, attorneys with 
Fisher, Wayland, Cooper, Leader & Zaragoza L.L.P, representing 
Central Alabama Partnership L.P. 132 and Mobile Tri-States L.P. 130, 
to William F. Caton, Acting Secretary, FCC (June 16, 1995).
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    3. Accordingly, we tentatively conclude that our broadband PCS 
rules for the C block auction should be modified as follows:
     Amend Sec. 24.709 of the Commission's Rules to make the 
50.1/49.9 percent ``control group'' equity structure available to all 
entrepreneurs' block applicants, and not solely businesses owned by 
women or minorities.
     Amend Sec. 24.720 of the Commission's Rules to eliminate 
the exception to the affiliation rules that excludes the gross revenues 
and total assets of affiliates controlled by minority investors who are 
members of an applicant's control group.
     Amend Sec. 24.711 of the Commission's Rules to provide for 
three installment payment plans for entrepreneurs' block applicants 
that are based solely on financial size. In particular, the small 
business installment payment plan would reflect the terms previously 
available to minority- or women-owned small businesses.
     Amend Sec. 24.712 of the Commission's Rules to provide for 
a 25 percent bidding credit for small businesses only.
     Amend Sec. 24.204 of the Commission's Rules to make the 40 
percent cellular attribution threshold applicable only to ownership 
interests held by small businesses and rural telephone companies, or to 
ownership interests held by investors in broadband PCS applicants/
licensees that are small businesses.
     Amend 20.6 of the Commission's Rules to make the 40 
percent attribution threshold applicable only to ownership interests 
held by small businesses and rural telephone companies.\9\

    \9\ The proposed rule changes are attached as Appendix A.
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Background

    4. In the Omnibus Budget Reconciliation Act of 1993,\10\ Congress 
authorized the FCC to award licenses by competitive bidding for certain 
spectrum-based services.\11\ In authorizing the use of auctions, 
Congress directed the Commission to ``ensure that small businesses, 
rural telephone companies, and businesses owned by members of minority 
groups and women [collectively known as ``designated entities''] are 
given the opportunity to participate in the provision of spectrum-based 
services.'' \12\ In response to many comments recommending how we 
should implement Congress's mandate and providing data explaining 
special problems faced by the designated entities, we adopted several 
rules designed to encourage the participation of designation entities, 
including women and minorities, in broadband PCS by addressing the 
difficulties these groups experience in accessing capital.\13\ We 
determined that these special provisions for minorities and women are 
constitutional under the ``intermediate scrutiny'' standard of review 
articulated in Metro Broadcasting, Inc. v. FCC, 497 U.S. 547, 564-565 
(1990).\14\ In conjunction with these special provisions, we also 
established ``entrepreneurs' blocks'' (the C and F frequency Blocks 
allocated for broadband PCS) which require bidders to satisfy a 
financial cap to be eligible to bid on licenses in these blocks.\15\

    \10\ Budget Act, Pub. L. No. 103-66, Title VI, Sec. 6002(b), 107 
Stat. 312 (1993).
    \11\ Budget Act, Pub. L. 103-66, Title VI, Sec. 6002(a), 107 
Stat. at 388.
    \12\ 47 U.S.C. Sec. 309(j)(4)(D).
    \13\ See Fifth Report and Order, PP Docket 93-253, 59 Fed. Reg. 
37566 (July 22, 1994), 9 FCC Rcd 5532 (1994) (Fifth R&O), recon. 
Fifth Memorandum Opinion and Order, 59 Fed. Reg. 63210 (Dec. 7, 
1994), 10 FCC Rcd 403 (1994) (Fifth MO&O).
    \14\ See Fifth R&O, 59 Fed. Reg. 37566 (July 22, 1994), 9 FCC 
Rcd 5532, 5537 at para.9. In Metro Broadcasting, the Supreme Court 
ruled that the Commission's minority preference program for mutually 
exclusive applications for licenses for new radio or television 
broadcast stations and its distress sale program did not violate the 
equal protection component of the Fifth Amendment. The Court held 
that Congressionally mandated minority programs (even if not 
remedial in the sense of being designed to compensate victims of 
past governmental or societal discrimination) ``are constitutionally 
permissible to the extent that they serve important governmental 
objectives within the power of Congress and are substantially 
related to achievement of those objectives.'' Metro Broadcasting v. 
FCC. 497 U.S. at 565.
    \15\ 47 CFR Sec. 24.709(a).
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    5. On March 15, 1995, in response to a request filed by TEC 
alleging that our rules violated equal protection principles under the 
Constitution, the U.S. Court of Appeals for the District of Columbia 
Circuit issued an Order stating that ``those portions'' of the 
Commission's Order ``establishing minority and gender preferences, the 
C block auction employing those preferences, and the application 
process for that auction shall be stayed pending completion of judicial 
review.'' \16\ The court explained that TEC had ``demonstrated the 
requisite likelihood of success on the merits.'' \17\ The stay, 
however, was subsequently lifted on May 1, 1995, on TEC's motion, after 
TEC decided to withdraw its lawsuit.\18\ On June 12, 1995, the Supreme 
Court decided in Adarand to overrule Metro Broadcasting ``to the extent 
that Metro Broadcasting is inconsistent with'' Adarand's holding that 
``all racial classifications * * * must be analyzed by a reviewing 
court under strict scrutiny.'' \19\ The Court ruled that any federal 
program that makes distinctions on the basis of race must serve a 
compelling governmental interest and must be narrowly tailored to serve 
that interest.\20\

    \16\ Telephone Electronics Corp. v. FCC, No. 95-1015 (D.C. Cir. 
Mar. 15, 1995) (order granting stay).
    \17\ Id at 2.
    \18\ Telephone Electronics Corp. v. FCC, No. 95-1015 (D.C. Cir. 
May 1, 1995) (order granting dismissal of petition for review).
    \19\ Adarand, 63 U.S.L.W. at 4530.
    \20\ Id at 4533.
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    6. The holding in Adarand potentially affects four race- or gender-
based measures in our C block auction rules.\21\ The purpose of these 
provisions was to address the lack of access to capital problem that 
our record showed women 

[[Page 34202]]
and minorities face.\22\ The first such provision enables businesses 
owned by women or minorities to hold 50.1 percent of an applicant's 
equity while another investor holds 49.9 percent of the equity.\23\ 
Second, under an exception to our affiliation rules, the gross revenues 
and total assets of firms controlled by minority investors in the 
applicant are not included for purposes of determining eligibility for 
the C block.\24\ Third, small businesses and companies owned by 
minorities or women receive the most favorable installment payment 
options available to entrepreneurs' block applicants.\25\ Finally, 
businesses owned by minorities or women and small businesses owned by 
minorities or women receive larger bidding credits under our rules.\26\ 
The Adarand holding also potentially affects our commercial mobile 
radio service (CMRS) spectrum aggregation limit and cellular PCS cross-
ownership rules under which ownership interests held by businesses 
owned by minorities and women, as well as small businesses and rural 
telephone companies, are subject to a higher attribution threshold.\27\ 
In addition, under our cellular PCS Cross-ownership rule, entities that 
invest in broadband PCS licensees that are minority- or women-owned can 
benefit from a higher attribution threshold.

    \21\ In the Fifth R&O, we also adopted a tax certificate program 
for minority and women-owned businesses under 26 U.S.C. Sec. 1071. 
59 Fed Reg. 37566 (July 22, 1994), 9 FCC Rcd at 5580, para.113. 
Congress subsequently repealed Section 1071. H.R. 831, 1045h Cong. 
1st Sess. Sec. 2. As a result of this action by Congress, we are 
compelled to eliminate the specific tax certificate provision in our 
broadband PCS rules, 47 CFR Sec. 24.713, as indicated in Appendix A.
    \22\ See Fifth R&O, 59 Fed. Reg. 37566 (July 22, 1994), 9 FCC 
Rcd at 5537-5538, 5580, Paras. 10-13, 113.
    \23\ 47 CFR Sec. 24.709(b)(6).
    \24\ 47 CFR Sec. 24.720(1)(11)(ii).
    \25\ 47 CFR Sec. 24.711.
    \26\ 47 CFR Sec. 24.712.
    \27\ 47 CFR Secs. 20.6 and 24.204.
Overview

    7. While we stress our continued commitment to the goal of ensuring 
broad participation in PCS by minority- and women-owned business, 
Adarand requires that we reevaluate our method for accomplishing this 
compelling objective. Adarand, which was issued just three days before 
applications were due for participation in the C block, imposes a 
strict scrutiny standard, the highest, most searching level of judicial 
review, for evaluating the provisions to encourage minority 
participation in PCS. That standard requires us to show a ``compelling 
governmental interest'' for taking race into account.\28\ Under Adarand 
the agency must show that it considered ``race-neutral alternatives'' 
and that the program is ``narrowly tailored'' to meet the compelling 
governmental interest established by the record and findings.\29\

    \28\ Adarand, 63 U.S.L.W. at 4530.
    \29\ Id
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    8. While we believe that our current record for the C block auction 
is strong, we tentatively conclude that additional evidence would be 
required to meet the strict scrutiny standard. The time required for 
further fact-finding would necessitate a delay in holding the C block 
auction. We tentatively conclude that such a delay would put the C 
block winners at a greater competitive disadvantage vis-a-vis existing 
wireless carriers such as cellular and enhanced SMR carriers, who have 
a substantial head start in the market.\30\ Additionally, we believe 
there is a high likelihood that before the auction, legal challenges 
would be filed to question whether we have met the strict scrutiny 
standard. Given the D.C. Circuit's willingness to stay the auctions 
under an ``intermediate scrutiny standard,'' \31\ there is a high 
likelihood that the court might impose another stay under the strict 
scrutiny standard of review. A stay would prevent the auction from 
going forward during litigation and cause lengthy delays in licensing 
and time to market for the eventual winners. Even if the auction were 
not stayed beforehand, there is a high likelihood that minority 
applicants and possibly female applicants who elected the bidding 
credits and other provisions available to members of those groups, 
would be subject to petitions to deny their licenses, legal challenges 
and possible injunctions on the issuance of their licenses. This would 
again greatly delay their entry into the market, and diminish their 
ability to compete.

    \30\ Cellular operators, for example, have been in the wireless 
market for over a decade, and after a very slow rise through the 
1980's and into the 1990's sales have risen very quickly and 
cellular operators are currently enrolling about 28,000 new 
customers per day. See United States Department of Commerce, 
National Telecommunications and Information Administration, May 30, 
1995 at 2.
    \31\ Telephone Electronics Corp v. FCC 95-1015 (order granting 
stay).
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    9. Based on the letters we have received from potential bidders, 
many of whom have made extensive preparations to bid in the C block 
auction, we conclude that at this time, minority and women bidders, as 
well as other bidders, will have a better chance of becoming successful 
PCS providers if we eliminate the race- and gender-based provisions 
from the C block and adopt provisions based on economic size only. The 
likely delays in market entry from doing otherwise would thwart 
Congress's directive to disseminate PCS license quickly so competitive 
service to the public can begin forthwith. Because of the urgent 
situation posed by the need to auction these licenses in a speedy 
fashion so the businesses can get to market, we reluctantly conclude 
that we must drop the race- and gender-based provisions and adopt-
standards based solely on economic size.
    10. We propose to eliminate the race- and gender-based provisions 
in our rules in a manner that is the least disruptive to bidders 
preparing to bid in the C block auction. We recognize that many of the 
C block applicants, including minority- and women-owned businesses, as 
well as small businesses, have already attracted capital and formed 
business relationships in anticipation of the C block auction. We 
further understand that these relationships are more likely to survive 
if the auction is not significantly delayed, and our rule changes are 
minimally disruptive to existing business plans. We have received 
numerous informal comments expressing this point of view.\32\ We 
believe, therefore, it is the best interests of furthering competition 
and ownership diversity in the marketplace, that we eliminate as much 
legal uncertainty as possible and proceed rapidly to auction the C 
block licenses.

    \32\ See. eg., Letter from Eliot J. Greenwald and Howard C. 
Griboff, attorneys with Fisher, Wayland, Cooper, Leader & Zaragoza 
L.L.P, representing Central Alabama Partnership L.P. 132 and Mobile 
Tri-States L.P. 130, to William F. Caton, Acting Secretary, FCC 
(June 16, 1995); Letter from Michael Walker, Executive Director, 
National Paging and Personal Communications Association, to Reed 
Hundt, Chairman, FCC (June 16, 1995); Letter from Sandra Goeken 
Martis, Wireless Works, Inc., to Cathy Sandoval, Office of 
Communications Business Opportunities, FCC (June 16, 1995); Letter 
from Jonathan Chambers, Director, Public Policy, Sprint 
Telecommunciations Venture, to Reed E. Hundt, Chairman, FCC (June 
19, 1995); Letter from Roy M. Huhndorf, President, Cook Inlet 
Region, Inc. to Reed E. Hundt, Chairman, FCC (June 14, 1995).
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    11. We want to emphasize that our tentative conclusion to eliminate 
race- and gender-based measures from the C block auction rules does not 
indicate that we have concluded that race- or gender-based measures are 
inappropriate for any of the other spectrum auctions we will hold in 
the future. Moreover, we do not concede that our C block auction rules 
themselves are unconstitutional in the wake of Adarand. We simply 
believe that our program must now be evaluated under a stricter 
constitutional standard than it was before. With regard to the C block 
auction, we tentatively conclude that the advantages of moving forward 
quickly outweigh the benefits that would be derived by developing an 
extensive supplemental record for these rules that will pass a strict 
scrutiny standard of review.\33\ We seek comment 

[[Page 34203]]
on this tentative conclusion, and in particular, request information on 
the time needed to develop a study to support race-based measures and 
the scope of such a supplemental record. We conclude that our proposal 
to eliminate the race- and gender-based measures from the C block 
auction rules is consistent with our duty to implement the Budget 
Act.\34\ We also seek comment on whether there are other ways to modify 
the rules to comply with the strict scrutiny standard without 
significantly delaying the C block auction.\35\

    \33\ With respect to other auctions, however, we may develop a 
supplemental record as part of our evaluation to meet the strict 
scrutiny standard of Adarand.
    \34\ See, e.g, Second Report and Order and Second Further Notice 
of Proposed Rule Making, PR Docket No. 89-553, 60 Fed. Reg. 21987 
(1995) (900 MHz SMR Second R&O/Second FNPRM).
    \35\ See eg., Letter from Thomas A. Hart, Jr. National Paging 
and Personal Communications Assoc., et. al. to William E. Kennard, 
General Counsel, FCC (June 22, 1995); Letter from David Honig, 
Executive Director, Minority Media and Telecommunications Council to 
William E. Kennard, General Counsel, FCC (June 21, 1995); Letter 
from James L. Winston, Executive Director and General Counsel, 
National Association of Black Owned Broadcasters, and Lois E. 
Wright, Vice President and Corporate Counsel Inner City Broadcasting 
Corp., to Reed E. Hundt, Chairman, FCC (June 15, 1995).
    12. Finally, we note that nothing in the TEC stay order or the 
Adarand decision calls into question the concept of an entrepreneurs' 
block. The D.C. Circuit singled out ``those portions'' of the 
Commission's Orders ``establishing minority and gender preferences,'' 
not our rules designed to promote participation by small 
businesses.\36\ Similarly, in Adarand the Court held that a strict 
scrutiny standard of review applies to preferences based on race, not 
size.\37\ Thus, attempts to ensure that small businesses have the 
opportunity to compete with larger businesses are still judged under 
the deferential rational basis standard. Indeed, the entrepreneurs' 
block concept is bolstered by Adarand insofar as that decision requires 
the consideration of race-neutral measures to promote equal 
opportunity.\38\ Our record in the competitive bidding proceeding 
suggests that many minority and women bidders will qualify as small 
businesses under our rules,\39\ and, hence, be entitled to a small 
business bidding credit and favorable installment payment terms.\40\ In 
any event, very few businesses owned by minorities and women are 
excluded from the entrepreneurs' block under our $125 million gross 
revenue and $500 million total asset caps.

    \36\ Telephone Electronics Corp. v. FCC, No. 95-1015 (order 
granting stay).
    \37\ Adarand, 63 U.S.L.W. at 4526.
    \38\See Adarand, Id. at 4533, quoting Croson, 488 U.S. at 507 
(under strict scrutiny, courts ask ``whether there was any 
consideration of the use of race-neutral means to increase minority 
business participation.'')
    \39\ See, e.g., 900 MHz SMR Second R&O/Second FNPRM, 60 Fed. 
Reg. 21987 (indicating that ``U.S. Census Data shows that 
approximately 99% of all women-owned businesses and 99% of all 
minority-owned businesses generated net receipts of $1 million or 
less'', citing Women-Owned Business, WB 87-1, 1987 Economic Census, 
p. 144, Table 8; Survey of Minority-Owned Business Enterprises, MB 
87-4, 1987 Economic Census, pp. 81-82, Table 8).
    \40\ 47 CFR Secs. 24.712 and 24.711.
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Proposed Rule Changes

A. Control Group Equity Structures
    13. Background. Our current rules permit broadband PCS applicants 
for licenses in the C block to utilize one of two equity structures so 
that the gross revenues and total assets of persons or entities holding 
non-attributable interests in such applicants will not be 
considered.\41\ Use of either of these equity structures, however, 
requires applicants to form a ``control group.''\42\ Under the first 
equity structure option, the Control Group Minimum 25 Percent Equity 
Option (which is available to all applicants), the control group must 
hold at least 25 percent of the applicant's total equity and members of 
the control group must have de facto control of the control group and 
of the applicant, and hold at least 50.1 percent of the voting stock 
and all general partnership interests within the control group.\43\ Of 
that 25 percent equity, at least 15 percent must be held by 
``qualifying investors.'' \44\ The remaining ten percent may be held by 
qualifying investors, certain institutional investors, non-controlling 
existing investors in any preexisting entity that is a member of the 
control group, or individuals that are members of the applicant's 
management team.\45\ Outside of the control group, the remaining 75 
percent of the applicant's equity may be held by other non-controlling 
investors; but, no investor in the applicant can hold more than 25 
percent of the equity and remain non-attributable.\46\

    \41\ See 47 CFR Sec. 24.709(b)(5) and (b)(6).
    \42\ Under the control group mechanism, the gross revenues and 
total assets of certain investors are not attributed provided the 
applicant has a control group consisting of one or more individuals 
or entities that are in de jure and de facto control of the 
applicant. The gross revenues and total assets of each member of the 
control group are counted toward the financial caps applicable to 
the entrepreneurs' block licenses. See 47 CFR Sec. 24.720(k).
    \43\ 47 CFR Sec. 24.709(b)(5)(i).
    \44\Id. Under our rules, ``qualifying investors'' are defined as 
members of or holders of an interest in members of the applicant's 
or licensee's control group who gross revenues and total assets, 
when aggregated with those of all other attributable investors and 
affiliates, do not exceed the gross revenues and total assets 
restrictions specified in our rules with regard to eligibility for 
entrepreneurs' block licenses. 47 CFR Sec. 24.720(n)(1).
    \45\ 47 CFR Sec. 24.709(b)(5)(i)(C).
    \46\ 47 CFR Sec. 24.709(b)(3).
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    14. Under the second equity structure option, the Control Group 
Minimum 50.1 Percent Equity Option (which is currently available only 
to minority or women applicants), the control group must own at least 
50.1 percent of the applicant's total equity, with members of the 
control group holding 50.1 percent of the voting stock and all general 
partnership interests within the control group, and having de facto 
control of both the control group and the applicant.\47\ Of that 50.1 
percent equity, at least 30 percent must be held by qualifying 
investors who are minority or women.\48\ The remaining 20.1 percent may 
be held by qualifying investors, certain institutional investors, non-
controlling existing investors in any preexisting entity that is a 
member of the control group, or individuals that are members of the 
applicant's management team.\49\ Outside of the control group, the 
remaining 49.9 percent of the applicant's equity may be held by a 
single non-controlling investor who is considered non-attributable.\50\

    \47\ 47 CFR Sec. 24.709(b)(6)(i).
    \48\ 47 CFR Sec. 24.709(b)(6)(i)(A).
    \49\ 47 CFR Sec. 24.709(b)(6)(i)(C).
    \50\ 47 CFR Sec. 24.709(b)(4).
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    15. Discussion. We propose to modify our rules to permit all C 
block applicants to avail themselves of the 50.1/49.9 percent equity 
structure. When we adopted the Control Group Minimum 50.1 Percent 
Equity Option in the Fifth R&O, we determined that making such a 
mechanism available to minority- or women-owned businesses would better 
enable them to attract adequate financing. We have previously noted 
that the primary impediment to participation by businesses owned by 
women and minorities in broadband PCS is a lack of access to 
capital.\51\ In light of the Supreme Court's holding in Adarand, 
however, we proposed to make the Control Group Minimum 50.1 Percent 
Equity Option available to small businesses \52\ and entrepreneurs 
rather than limiting it to minority- of women-owned businesses. We 
tentatively conclude that this proposed rule change would cause the 
least disruption to existing business relationships formed in 
anticipation of the C block auction that were premised on the use of 
this particular equity structure. Our 

[[Page 34204]]
proposed rule change enables minority- or women-owned businesses to 
retain their 50.1/49.9 percent equity structures while extending this 
control group option to other applicants in the entrepreneurs' block as 
well. We also expect that this proposed rule change would mitigate the 
likely legal challenges that could result if we moved forward with this 
rule in its current form. Consequently, the proposed rule change would 
facilitate the expeditious dissemination of the licenses. We seek 
comment on this proposed rule change and on our tentative conclusions.

    \51\ Fifth R&O, 59 Fed. Reg. 37566 (July 22, 1994), 9 FCC Rcd at 
5537, para. 10.
    \52\ Under our rules, a ``small business'' is defined as an 
entity that, together with its affiliates and persons or entities 
that hold interest in such entity and their affiliates, has average 
gross revenues that are not more than $40 million for the preceding 
three years. 47 CFR Sec. 24.720(b)(1).
    16. We also recognize that, as a result of the proposed rule 
change, all C block applicants would be able to take advantage of the 
50.1/49.9 percent equity structure, including small businesses and 
entrepreneurs. Nevertheless, we view this as the best approach to 
preserve many of the existing business relationships that have been 
formed, including those of women and minorities. We think this approach 
would be the least disruptive and would allow many minority or women 
applicants--both entrepreneurs and small businesses--to proceed. We 
seek comment on this analysis.
    17. Although we propose to eliminate the race- and gender-based 
measures currently provided in our rules for the C block licenses, we, 
nonetheless, intend to continue to request bidder information on the 
short-form filings as to minority- or women-owned status. We 
tentatively conclude that such information will assist us in analyzing 
the applicant pool and the auction results to determine whether we have 
accomplished substantial participation by minorities and women through 
the broad provisions available to small businesses as directed by 
Congress. This information will assist us in preparing our report to 
Congress on the participation of designated entities in the auctions 
and in the provision of spectrum-based services.\53\ In addition, such 
information will be relevant in developing a supplemental record should 
we find that special provisions solely for small businesses prove 
unsuccessful in encouraging dissemination of licenses to a wide variety 
of applicants, including businesses owned by members of minority groups 
and women. In this regard, we retain discretion to tailor our approach 
for future auctions. We seek comment on this monitoring proposal.

    \53\ See 47 U.S.C. Sec. 309(j)(12)(D).
---------------------------------------------------------------------------

B. Affiliation Rules
    18. Background. In the Fifth R&O, we adopted specific affiliation 
rules for identifying all individuals and entities whose gross revenues 
and assets must be aggregated with those of the applicant in 
determining whether the applicant exceeds the financial caps for the 
entrepreneurs' blocks or for small business size status.\54\ Our 
affiliation rules identify which individuals or entities will be found 
to control or be controlled by the applicant or an attributable 
investor in the applicant by specifying which ownership interests or 
other criteria will give rise to a finding of control and consequent 
affiliation. We have adopted two narrowly tailored exceptions to our 
affiliation rules in the broadband PCS context. Under one exception, 
applicants affiliated with Indian tribes and Alaska Regional or Village 
Corporations organized pursuant to the Alaska Native Claims Settlement 
Act, 43 U.S.C. 1601 et seq., are generally exempted from the 
affiliation rules for purposes of determining eligibility to 
participate in bidding on C block licenses and to qualify as a small 
business with a rebuttable presumption that revenues derived from 
gaming, pursuant to the Indian Gaming Regulatory Act, 25 U.S.C. 2701 et 
seq. will be included in the applicants eligibility determination.\55\ 
Under the second exception, the gross revenues and assets of affiliates 
controlled by minority investors who are members of the applicant's 
control group are not attributed to the applicant for purposes of 
determining compliance with the eligibility standards for entry into 
the entrepreneurs' block.\56\

    \54\ Fifth R&O, Fed. Reg. 37566 (July 22, 1994), 9 FCC Rcd at 
5620, 5625.
    \55\ 47 CFR Sec. 24.720(l)(11)(i).
    \56\ 47 CFR Sec. 24.720(l)(11)(ii).
---------------------------------------------------------------------------

    19. Discussion. We propose to eliminate the exception to our 
affiliation rules pertaining to minority investors. In crafting this 
exception, we anticipated that it would permit minority investors who 
control other concerns to be members of an applicant's control group 
and to bring their management skills and financial resources to bear in 
its operation without the assets and revenues of those other concerns 
being counted as part of the applicant's total assets and revenues.\57\ 
We further anticipated that such an exception would permit minority 
applicants to pool their resources with other minority-owned businesses 
and draw on the expertise of those who have faced similar barriers to 
raising capital in the past.\58\ Consequently, we tentatively conclude 
that it would be imprudent to extend such exception to all 
entrepreneurs because to do so would frustrate the Commission's goals 
in establishing the entrepreneurs' block--namely, to ensure that 
broadband PCS will be disseminated among a wide variety of applicants 
and to exclude many large telecommunications companies from bidding on 
such blocks.\59\

    \57\ Fifth MO&O, 59 Fed. Reg. 63210(Dec. 7, 1994), 10 FCC Rcd at 
425-426, para. 41.
    \58\ Id.
    \59\ See Fifth R&O, 59 Fed. Reg. 37566 (July 22, 1994), 9 FCC 
Rcd at 5538, para. 12.
---------------------------------------------------------------------------

    20. Although this proposed rule change may significantly affect 
certain existing business relationships formed in anticipation of the C 
block auction, we must balance our concern about minimizing the adverse 
impact on a limited number of existing business relationships with our 
desire to mitigate the legal challenges that are likely to result from 
the Court's Adarand decision in the absence of such rule change. In 
this context, we tentatively conclude that such rule change will affect 
a limited number of existing business relationships. By contrast, 
without such rule change, award of all entrepreneurs' block licenses 
could potentially be subject to substantial delay as a result of legal 
challenges to this race-based exception to the affiliation rules 
(regardless of the fact that such exception is limited in scope). We 
tentatively conclude that such outcome would be inconsistent with both 
the spirit and mandate of the Budget Act.\60\ We also tentatively 
conclude that the proposed rule change not only complies with the 
Budget Act but also benefits the general public, since it would 
facilitate rapid deployment of broadband PCS in a manner most likely to 
avoid judicial delay. We seek comment on this proposed rule change and 
these tentative conclusions. We also do not propose to eliminate the 
affiliation exception for Indian tribes and Alaska Regional or Village 
Corporations. We tentatively conclude that the ``Indian Commerce 
Clause'' of the United States Constitution provides an independent 
basis for this exception that is not questioned by the Adarand 
decision.\61\

    \60\ The Budget Act instructs the Commission to provide for the 
``rapid deployment of new technologies * * * without administrative 
or judicial delays.'' 47 U.S.C. 309(j)(3)(A).
    \61\ Order on Reconsideration, 59 Fed. Reg. 43062 (Aug. 22, 
1994), FCC 94-217, (released Aug. 15, 1994); Fifth MO&O, 59 Fed. 
Reg. 63210 (Dec. 7, 1994), 9 FCC Rcd at 5548-4449, Paras. 42-43. See 
also Oklahoma Tax Commission v. Chickasaw Nation, 63 U.S.L.W. 4594, 
4596 (Supreme Court upheld applicability of a categorical immunity 
from certain State taxation to Indian tribes and their members and 
not to ``non-Indians.'')

[[Page 34205]]

C. Installment Payments
    21. Background. Entrepreneurs' block licensees are eligible for 
installment payment plans that afford them the opportunity to pay for 
their licenses over a period of time, and under certain financial 
terms. Five different installment payment plans are currently available 
to C block applicants under Sec. 24.711 of the Commission's Rules.\62\ 
The first installment payment plan is available to applicants with 
gross revenues in excess of $75 million. This plan provides for the 
payment of interest based on the 10-year U.S. Treasury rate, plus 3.5 
percent with payment of principal and interest amortized over the term 
of license.\63\

    \62\ 47 CFR Sec. 24.711.
    \63\ 47 CFR Sec. 24.711(b)(1).
---------------------------------------------------------------------------

    22. The second installment payment plan is available to those 
applicants with gross revenues between $40 and $75 million.\64\ This 
plan provides for the payment of interest equal to the 10-year U.S. 
Treasury rate plus 2.5 percent. The applicants eligible for this plan 
may pay interest only for one year with the principal and interest 
amortized over the remaining nine years of the license term. The third 
installment payment plan is available only to applicants that qualify 
as a small business or consortium of small businesses.\65\ This plan 
provides for the payment of interest at the rate of the 10-year U.S. 
Treasury rate plus 2.5 percent; however, the applicants eligible for 
this plan may pay interest only for two years with principal and 
interest amortized over the remaining eight years of the license term.

    \64\ 47 CFR Sec. 711(b)(2).
    \65\ 47 CFR Sec. 24.711(b)(3).
---------------------------------------------------------------------------

    23. The remaining installment payment plans for available only to 
minorities or women. Specifically, the fourth plan provides interest-
only payments for three years and payments of principal and interest 
over the remaining seven years of the license term and is only 
available to businesses owned by members of minority groups or women. 
The final and most favorable installment payment plan provides 
interest-only payments for six years and payments of principal and 
interest amortized over the remaining four years of the license term. 
This plan is only available to small businesses owned by members of 
minority groups or women. Previously, the Commission has determined 
that there is a basis for differentiating installment plans by 
size.\66\

    \66\ See Fifth R&O, 59 Fed. Reg. 37566 (July 22, 1994), 9 FCC 
Rcd at 5593, Paras. 139-140; Fifth MO&O, 59 Fed. Reg. 63210 (Dec. 7, 
1994), 10FCC Rcd at 458, para.101.
---------------------------------------------------------------------------

    24. Discussion. We propose to modify this rule to eliminate the 
special provisions that are tied to an applicant's status as a 
minority- or women-owned business, and to provide for three installment 
payment plans that are based solely on financial size. In this regard, 
we propose to modify only installment payment plans available to small 
businesses with gross revenues under $40 million.\67\ We propose to 
extend the most favorable installment payment plan previously available 
only to small minority- or women-owned firms to all small businesses. 
Thus, we propose that all small businesses be permitted to pay for 
their licenses in installments at the rate for ten-year U.S. Treasury 
obligations applicable on the date the license is granted and that 
payments include interest only for the first six years with payments of 
principal and interest amortized over the remaining four years of the 
license term. In effect, we are proposing the deletion of our current 
Sec. 24.711(b)(3) and (4) and the renumbering of Sec. 24.711(b)(5) as 
Sec. 24.711(b)(3) after the modification.

    \67\ The first and second payment plans for eligible bidders 
with gross revenues exceeding $75 million and with gross revenues 
between $40 and $75 million will remain the same. 47 CFR 
Sec. 24.711(b)(1) and (2).
---------------------------------------------------------------------------

    25. This rule change will grant small businesses the same 
installment plan available now to minority- or women-owned small 
business. We believe this approach will prove to be the least 
disruptive to the existing agreements between prospective bidders and 
the financial community and will provide the most favorable plan to the 
smallest companies. We seek comment on this proposal which will enable 
all small business applicants to benefit from the most favorable 
installment payment plan that was previously only available to 
minority-or women-owned small businesses.
D. Bidding Credits
    26. Background. Our current rules provide for three tiers of 
bidding credits ranging between 10 percent and 25 percent. The bidding 
credit acts as a discount on the winning bid amount that a license 
actually has to pay for the license. A small business is granted a 10 
percent bidding credit. A business that is owned by members of minority 
groups or women is granted a 15 percent bidding credit. A small 
business owned by members of minority groups or women is allowed to 
aggregate the bidding credits for a 25 percent bidding credit.
    27. Discussion. We propose to increase the bidding credit for small 
business from 10 percent to 25 percent. We further propose to eliminate 
the remaining bidding credits. This rule change eliminates the race- 
and gender-based bidding credits and extends the 25 percent bidding 
credit to all small businesses. We seek comment on this proposal. At 
the same time, this proposal will enhance the competitiveness of all 
small businesses which will receive an increase of 15 percent in their 
bidding credits. The positions of minority- or women-owned small 
businesses will remain the same because they will be eligible for a 25 
percent bidding credit. Consequently, this proposal should be the least 
disruptive to the current business arrangements and financial 
agreements.
    28. This proposal will allow the Commission and prospective bidders 
to avoid litigation, allow the auction to proceed as close to its 
original schedule as possible and permit prospective bidders to 
maintain previously negotiated business arrangements and financial 
agreements. Thus, we recommend amending Sec. 24.712(a) to raise the 
bidding credit from 10 percent to 25 percent. We further recommend 
deleting Sec. 24.712 (b) and (c) and re-numbering Sec. 24.712(d) as 
Sec. 24.712(b). We seek comment on this outcome.
E. Cellular PCS Cross-Ownership and CMRS Spectrum Aggregation Limit
    29. Background. Our cellular PCS cross-ownership rule currently 
provides for a higher cellular ownership attribution threshold for 
small businesses, rural telephone companies and businesses owned by 
minorities or women than for other entities.\68\ Generally, our rules 
provide that partnership and other ownership interests, and any stock 
interest amounting to 20 percent or more of the equity, or outstanding 
stock, or outstanding voting stock of a cellular licensee shall be 
attributable for purposes of the cellular PCS cross-ownership 
restrictions.\69\ If cellular ownership interests are held by small 
businesses, rural telephone companies or businesses owned by minorities 
or women, however, such interests are only attributable at the 40 
percent or more level. In addition, cellular ownership interests held 
by entities with non-controlling interests in a broadband PCS applicant 
licensee are subject to a 40 percent attribution threshold for purposes 
of Sec. 24.204. Similarly, our CMRS spectrum 

[[Page 34206]]
aggregation limit provides that partnership and other ownership 
interests, and any stock interest amounting to 20 percent or more of 
the equity, or outstanding stock, or outstanding voting stock of a 
cellular licensee shall be attributable for purposes of the cellular 
PCS cross-ownership restrictions, except that those interests held by 
small businesses, rural telephone companies or businesses owned by 
minorities or women, are only attributable at the 40 percent or more 
level.\70\

    \68\ 47 CFR 24.204(d)(2)(ii).
    \69\ Id.
    \70\ 47 CFR Sec. 20.6(d)(2).
---------------------------------------------------------------------------

    30. Discussion. We propose to modify the cellular PCS cross-
ownership and CMRS spectrum aggregation limit rules to remove the 
provisions which increase the cellular attribution threshold to 40 
percent on the basis of the race or gender of the holder of the 
ownership interest or of the broadband PCS applicant in which such 
holder is an investor. Accordingly, we propose to modify 
Sec. 24.204(d)(2)(ii) of our rules to provide that the 40 percent 
cellular attribution threshold will continue to apply if the ownership 
interest is held by a small business or a rural telephone company or if 
the ownership interest is held by an entity with a non-controlling 
equity interest in a broadband PCS licensee or applicant that is a 
small business. Similarly, we propose to modify Sec. 20.6(d)(2) of our 
rules to provide that the 40 percent cellular attribution threshold 
will continue to apply if the ownership interest is held by a small 
business or a rural telephone company (including those owned by 
minorities or women). Although this change could result in a lower 
cellular attribution threshold for businesses owned by minorities and 
women as well as for non-controlling investors in broadband PCS 
applicants or licensees that are owned by minorities or women (with 
respect to our cellular PCS cross-ownership rule), we believe that this 
modification is necessary to ensure that our rules are insulated from 
legal challenge. Moreover, the proposed rule change to our cellular PCS 
cross-ownership rule may result in additional investment in broadband 
PCS applicants that are small businesses, because this rule change 
would extend the 40 percent cellular attribution threshold to such 
investors in broadband PCS applicants that are small businesses. We 
seek comment on this proposal. In addition, we recognize that both the 
cellular PCS cross-ownership rule and the CMRS spectrum aggregation 
limit apply to more than just the C block. We propose to limit our 
specific rule changes to affect only the C block.

Procedural Matters

A. Regulatory Flexibility Act
    As required by Section 603 of the Regulatory Flexibility Act, the 
Commission has prepared an Initial Regulatory Flexibility Analysis 
(IRFA) of the expected impact on small entities of the policies and 
rules proposed in this Further Notice of Proposed Rule Making. Written 
public comments are requested on the IRFA. Comments must have a 
separate and distinct heading designating them as responses to the IRFA 
and must be filed by the comment deadlines provided above.
    1. Reason for Action: This rule making proceeding was initiated to 
secure comment on proposals to eliminate all race- and gender-based 
provisions in our competitive bidding rules for our C block auction 
only. The proposals advanced in the Further Notice of Proposed Rule 
Making are also designed to implement Congress's goal of giving small 
businesses, rural telephone companies, and businesses owned by members 
of minority groups and women the opportunity to participate in the 
provision of spectrum-based services in accordance with 47 U.S.C. 
309(j)(4)(D).
    2. Objectives: The Commission proposes changes to its rules for the 
C block that are intended to be the least disruptive to bidders who 
were in an advanced stage of planning to participate in the C block 
auction. Specifically, the Commission seeks to ensure competition and 
ownership diversity by avoiding a lengthy delay in the conduct of the 
auction caused by probable legal challenges to our rules. The 
Commission proposes to amend its rules to offer favorable bidding 
credits and installment payment terms to small businesses. The 
Commission also proposes to permit all C block applicants to avail 
themselves of the 50.1/49.9 percent equity structure. The Commission 
also proposes to eliminate the minority investor exception to the 
affiliation rules. Finally, the Commission proposes to make revisions 
to the PCS-cellular crossownership rule and the Commercial Mobile Radio 
Services (CMRS) spectrum cap for purposes of the C block auction only.
    3. Legal Basis: The proposed action is authorized under Sections 
4(i), 303(r) and 309(j) of the Communications Act of 1934, 47 U.S.C. 
154(i), 303(r) and 309(j), as amended.
    4. Reporting, Recordkeeping, and Other Compliance Requirements: The 
proposals under consideration in this Further Notice of Proposed Rule 
Making do not include the possibility of new reporting and 
recordkeeping requirements for small business entities.
    5. Federal Rules Which Overlap, Duplicate or Conflict With These 
Rules: None.
    6. Description, Potential Impact, and Number of Small Entities 
Involved: The rule changes proposed in this proceeding will affect all 
small businesses regardless of whether each small business avails 
itself of the favorable rule changes.
    7. Any Significant Alternative Minimizing the Impact on Small 
Entities Consistent with the Stated Objectives: This Further Notice of 
Proposed Rule Making proposes certain mechanisms of preferential 
treatment for small businesses, among other entities, to ensure 
economic opportunity, such as favorable financing and bidding credits.
B. Paperwork Reduction Act
    The proposals contained herein have been analyzed with respect to 
the Paperwork Reduction Act of 1980, as amended, and found to impose no 
new or modified information collection requirement on the public. 
Implementation of any new or modified requirement will be subject to 
approval by the Office of Management and Budget as prescribed by the 
Paperwork Reduction Act of 1980, as amended.
C. Ex Parte Rules--Non-Restricted Proceeding
    This is a non-restricted notice and comment rule making proceeding. 
Ex parte presentations are permitted except during the Sunshine Agenda 
period, provided they are disclosed as provided in Commission rules. 
See generally 47 CFR 1.1202, 1.1203, and 1.1206(a).
D. Ordering Clause
    Authority for issuance of this Further Notice of Proposed Rule 
Making is contained in sections 4(i), 303(r), and 309(j) of the 
Communications Act of 1934, as amended, 47 U.S.C. 154(i), 303(r) and 
309(j).

Federal Communications Commission.
William F. Caton,
Acting Secretary.

List of Subjects
47 CFR Part 20

    Commercial mobile radio services

47 CFR Part 24

    Personal communications services 

[[Page 34207]]


Proposed Rules

    Parts 20 and 24 of Chapter I of Title 47 of the Code of Federal 
Regulations is proposed to be amended as follows:

PART 20--COMMERCIAL MOBILE RADIO SERVICES

    1. The authority citation for Part 20 continues to read as follows:

    Authority: Secs. 4, 303, and 332, 48 Stat. 1066, 1082, as 
amended; 47 U.S.C. 154, 3053 and 332, unless otherwise noted.

    2. Section 20.6 is amended by revising paragraph (d)(2) to read as 
follows:


Sec. 20.6  CMRS spectrum aggregation limit.

* * * * *
    (d) * * *
    (2) Partnership and other ownership interests and any stock 
interest amounting to 20 percent or more of the equity, or outstanding 
stock, or outstanding voting stock of a cellular licensee will be 
attributable, except that ownership will not be attributed unless the 
partnership and other ownership interests and any stock interest amount 
to 40 percent or more of the equity, or outstanding stock, or 
outstanding voting stock of a cellular licensee if the ownership 
interest is held by a small business or a rural telephone company, as 
these terms are defined in Sec. 1.2110 of this chapter or other 
provisions of the Commission's rules.
* * * * *

PART 24--PERSONAL COMMUNICATIONS SERVICES

    1. The authority citation for Part 24 continues to read as follows:

    Authority: Secs. 4, 301, 302, 303, 309 and 332, 48 Stat. 1066, 
1082, as amended; 47 U.S.C. Secs. 154, 301, 302, 303, 309 and 332, 
unless otherwise noted.

    2. Section 24.204 is amended by revising paragraph (d)(2)(ii) to 
read as follows:


Sec. 24.204  Cellular eligibility.

* * * * *
    (d) * * *
    (2) * * *
    (ii) Partnership and other ownership interests and any stock 
interest amounting to 20 percent or more of the equity, or outstanding 
stock, or outstanding voting stock of a cellular licensee will be 
attributable, except that ownership will not be attributed unless the 
partnership and other ownership interests and any stock interest amount 
to 40 percent or more of the equity, or outstanding stock, or 
outstanding voting stock of a cellular licensee if the ownership 
interest is held by a small business or a rural telephone company, as 
these terms are defined in Sec. 1.2110 of this chapter, or if the 
ownership interest is held by an entity with a non-controlling equity 
interest in a broadband PCS licensee or applicant that is a small 
business as defined in Sec. 24.720.
* * * * *
    3. Section 24.709 is amended by revising the heading and paragraphs 
(a), (b)(6), (c)(1) introductory text, (c)(1)(ii)(B), (c)(2) 
introductory text, (c)(2)(ii) and (e) to read as follows:


Sec. 24.709  Eligibility for licenses for frequency Block C.

    (a) General Rule. (1) No application is acceptable for filing and 
no license shall be granted for frequency block C, unless the 
applicant, together with its affiliates and persons or entities that 
hold interests in the applicant and their affiliates, have gross 
revenues of less than $125 million in each of the last two years and 
total assets of less than $500 million at the time the applicant's 
short-form application (Form 175) is filed.
    (2) The gross revenues and total assets of the applicant (or 
licensee), and its affiliates, and (except as provided in paragraph (b) 
of this section) of persons or entities that hold interests in the 
applicant (or licensee), and their affiliates, shall be attributed to 
the applicant and considered on a cumulative basis and aggregated for 
purposes of determining whether the applicant (or licensee) is eligible 
for a licensee for frequency block C under this section.
    (3) Any licensee awarded a license pursuant to this section (or 
pursuant to Sec. 24.839(d)(2)) shall maintain its eligibility until at 
least five years from the date of initial license grant, except that a 
licensee's (or other attributable entity's) increased gross revenues or 
increased total assets due to nonattributable equity investments (i.e., 
from sources whose gross revenues and total assets are not considered 
under paragraph (b) of this section), debt financing, revenue from 
operations or other investments, business development or expanded 
service shall not be considered.
    (b) * * *
    (6) Control Group Minimum 50.1 Percent Equity Requirement. In order 
to be eligible to exclude gross revenues and total assets of persons or 
entities identified in paragraph (b)(4) of this section, an applicant 
(or licensee) must comply with the following requirements:
    (i) Except for an applicant (or licensee) whose sole control group 
member is a preexisting entity, as provided in paragraph (b)(6)(ii) of 
this section, at the time the applicant's short-form application (Form 
175) is filed and until at least three years following the date of 
initial license grant, the applicant's (or licensee's) control group 
must own at least 50.1 percent of the applicant's (or licensee's) total 
equity as follows:
    (A) At least 30 percent of the applicant's (or licensee's) total 
equity must be held by qualifying investors, either unconditionally or 
in the form of options, exercisable at the option of the holder, at any 
time and at any exercise price equal to or less than the market value 
at the time the applicant files its short-form application (Form 175);
    (B) Such qualifying investors must hold 50.1 percent of the voting 
stock and all general partnership interests within the control group 
and must have de facto control of the control group and of the 
applicant;
    (C) The remaining 20.1 percent of the applicant's (or licensee's) 
total equity may be owned by qualifying investors, either 
unconditionally or in the form of stock options not subject to the 
restrictions of paragraph (b)(6)(i)(A) of this section, or by any of 
the following entities which may not comply with Sec. 24.720(n)(1):
    (1) Institutional investors, either unconditionally or in the form 
of stock options;
    (2) Noncontrolling existing investors in any preexisting entity 
that is a member of the control group, either unconditionally or in the 
form of stock options; or
    (3) Individuals that are members of the applicant's (or licensee's) 
management, either unconditionally or in the form of stock options.
    (D) Following termination of the three-year period specified in 
paragraph (b)(6)(i) of this section, qualifying investors must continue 
to own at least 20 percent of the applicant's (or licensee's) total 
equity, either unconditionally or in the form of stock options subject 
to the restrictions in paragraph (b)(6)(i)(A) of this section. The 
restrictions specified in paragraph (b)(6)(i)(C)(1) through (3) of this 
section no longer apply to the remaining equity after termination of 
such three-year period.
    (ii) At the election of an applicant (or licensee) whose control 
group's sole member is a preexisting entity, the 50.1 percent minimum 
equity requirements set forth in paragraph (b)(6)(i) of this section 
shall apply, except that only 20 percent of the applicant's (or 
licensee's) total equity must be held by qualifying investors, and that 
the remaining 30.1 percent of the applicant's (or licensee's) total 
equity may be held by qualifying 

[[Page 34208]]
investors, or noncontrolling existing investors in such control group 
member or individuals that are members of the applicant's (or 
licensee's) management. These restrictions on the identity of the 
holder(s) of the remaining 30.1 percent of the licensee's total equity 
no longer apply after termination of the three-year period specified in 
paragraph (b)(96)(i) of this section.
* * * * *
    (c) * * *
    (1) Short-form Application. In addition to certifications and 
disclosures required by Part 1, subpart Q of this Chapter and 
Sec. 24.813, each applicant for a license for frequency Block C shall 
certify on its short-form application (Form 175) that it is eligible to 
bid on and obtain such license(s), and (if applicable) that it is 
eligible for designated entity status pursuant to this section and 
Sec. 24.720, and shall append the following information as an exhibit 
to its Form 175:
* * * * *
    (ii) * * *
    (B) The citizenship and the gender or minority group classification 
for each member of the applicant's control group if the applicant is a 
business owned by members of minority groups and/or women;
* * * * *
    (2) Long-form Application. In addition to the requirements in 
subpart I of this part and other applicable rules (e.g., 
Secs. 24.204(f), 20.6(e), and 20.9(b)), each applicant submitting a 
long-form application for a license(s) for frequency block C shall, in 
an exhibit to its long-form application:
* * * * *
    (ii) List and summarize all agreements or other instruments (with 
appropriate reference to specific provisions in the text of such 
agreements and instruments) that support the applicants's eligibility 
for a license(s) for frequency Block C and its eligibility under 
Secs. 24.711, 24.712 and 24.720, including the establishment of de 
facto and de jure control; such agreements and instruments include 
articles of incorporation and bylaws, shareholder agreements, voting or 
other trust agreements, partnership agreements, management agreements, 
joint marketing agreements, franchise agreements, and any other 
relevant agreements (including letters of intent), oral or written; and
* * * * *
    (e) Definitions. The terms affiliate, business owned by members of 
minority groups and women, consortium of small businesses, control 
group, existing investor, gross revenues, institutional investor, 
members of minority groups, nonattributable equity, preexisting equity, 
publicly traded corporation with widely dispersed voting power, 
qualifying investor, small business and total assets used in this 
section are defined in Sec. 24.720.
    4. Section 24.711 is amended by revising the section heading and 
the heading of paragraph (a), and paragraphs (a)(1), (b) introductory 
text and (b)(3) to read as follows:


Sec. 24.711  Upfront payments, down payments and installment payments 
for licenses for frequency Block C.

    (a) Upfront Payments and Down Payments. (1) Each eligible bidder 
for licenses on frequency Block C subject to auction shall pay an 
upfront payment of $0.015 per MHz per pop for the maximum number of 
licenses (in terms of MHz-pops) on which it intends to bid pursuant to 
Sec. 1.2106 of this chapter and procedures specified by Public Notice.
* * * * *
    (b) Installment Payments. Each eligible licensee of frequency Block 
C may pay the remaining 90 percent of the net auction price for the 
license in installment payments pursuant to Sec. 1.2110(e) of this 
Chapter and under the following terms:
* * * * *
    (3) For an eligible licensee that qualifies as a small business or 
as a consortium of small businesses, interest shall be imposed based on 
the rate for ten-year U.S. Treasury obligations applicable on the date 
the license is granted; payments shall include interest only for the 
first six years and payments of interest and principal amortized over 
the remaining four years of the license term.
    (c) Unjust Enrichment.
* * * * *
    5. Section 24.712 is amended by revising the section heading and 
paragraph (a), removing paragraphs (b) and (c), and redesignating 
paragraph (d) as paragraph (b) to read as follows:


Sec. 24.712  Bidding credits for licenses for frequency Block C.

    (a) A wining bidder that qualifies as a small business or a 
consortium of small businesses may use a bidding credit of twenty-five 
percent to lower the cost of its winning bid.
* * * * *
Sec. 24.713  [Removed and reserved]

    6. Section 24.713 is removed and reserved.
    7. A new Sec. 24.715 is added to Subpart H to read as follows:


Sec. 24.715  Eligibility for licenses for frequency Block F.

    (a) General Rule.
    (1) No application is acceptable for filing and no license shall be 
granted for frequency block F, unless the applicant, together with its 
affiliates and persons or entities that hold interests in the applicant 
and their affiliates, have gross revenues of less than $125 million in 
each of the last two years and total assets of less than $500 million 
at the time the applicant's short-form application (Form 175) is filed.
    (2) The gross revenues and total assets of the applicant (or 
licensee), and its affiliates, and (except as provided in paragraph (b) 
of this section) of persons or entities that hold interests in the 
applicant (or licensee), and their affiliates, shall be attributed to 
the applicant and considered on a cumulative basis and aggregated for 
purposes of determining whether the applicant (or licensee) is eligible 
for a license for frequency block F under this section.
    (3) Any licensee awarded a license pursuant to this section (or 
pursuant to Sec. 24.839(d)(2)) shall maintain its eligibility until at 
least five years from the date of initial license grant, except that a 
licensee's (or other attributable entity's) increased gross revenues or 
increased total assets due to nonattributable equity investments (i.e., 
from sources whose gross revenues, and total assets are not considered 
under paragraph (b) of this section), debt financing, revenue from 
operations or other investments, business development or expanded 
service shall not be considered.
    (b) Exceptions to General Rule--(1) Small Business Consortia. Where 
an applicant (or licensee) is a consortium of small businesses, the 
gross revenues and total assets of each small business shall not be 
aggregated.
    (2) Publicly-Traded Corporations. Where an applicant (or licensee) 
is a publicly traded corporation with widely dispersed voting power, 
the gross revenues and total assets of a person or entity that holds an 
interests in the applicant (or licensee), and its affiliates, shall not 
be considered.
    (3) 25 Percent Equity Exception. The gross revenues and total 
assets of a person or entity that holds an interest in the applicant 
(or licensee), and its affiliates, shall not be considered so long as:
    (i) Such person or entity, together with its affiliates, holds only 
nonattributable equity equaling no more than 25 percent of the 
applicant's (or licensee's) total equity;

[[Page 34209]]

    (ii) Except as provided in paragraph (b)(5) of this section, such 
person or entity is not a member of the applicant's (or licensee's) 
control group; and
    (iii) The applicant (or licensee) has a control group that complies 
with the minimum equity requirements of paragraph (b)(5) of this 
section, and, if the applicant (or licensee) is a corporation, owns at 
least 50.1 percent of the applicant's (or licensee's) voting interests, 
and, if the applicant (or licensee) is a partnership, holds all of its 
general partnership interests.
    (4) 49.9 Percent Equity Exception. The gross revenues and total 
assets of a person or entity that holds an interest in the applicant 
(or licensee), and its affiliates, shall not be considered so long as:
    (i) Such person or entity, together with its affiliates, holds only 
nonattributable equity equalling no more than 49.9 percent of the 
applicant's (or licensee's) total equity;
    (ii) Except as provided in paragraph (b)(6) of this section, such 
person or entity is not a member of the applicant's (or licensee's) 
control group; and
    (iii) The applicant (or licensee) has a control group that complies 
with the minimum equity requirements of paragraph (b)(6) of this 
section and, if the applicant (or licensee) is a corporation, owns at 
least 50.1 percent of the applicant's (or licensee's) voting interests, 
and, if the applicant (or licensee) is a partnership, holds all of its 
general partnership interests.
    (5) Control Group Minimum 25 Percent Equity Requirement. In order 
to be eligible to exclude gross revenues and total assets of persons or 
entities identified in paragraph (b)(3) of this section, an applicant 
(or licensee) must comply with the following requirements:
    (i) Except for an applicant (or licensee) whose sole control group 
member is a preexisting entity, as provided in paragraph (b)(5)(ii) of 
this section, at the time the applicant's short-form application (Form 
175) is filed and until at least three years following the date of 
initial license grant, the applicant's (or licensee's) control group 
must own at least 25 percent of the applicant's (or licensee's) total 
equity as follows:
    (A) At least 15 percent of the applicant's (or licensee's) total 
equity must be held by qualifying investors, either unconditionally or 
in the form of options exercisable, at the option of the holder, at any 
time and at any exercise price equal to or less than the market value 
at the time the applicant files its short-form application (Form 175);
    (B) Such qualifying investors must hold 50.1 percent of the voting 
stock and all general partnership interests within the control group, 
and must have de facto control group and of the applicant;
    (C) The remaining 10 percent of the applicant's (or licensee's) 
total equity may be owned by qualifying investors, either 
unconditionally or in the form of stock options not subject to the 
restrictions of paragraph (b)(5)(i)(A) of this section, or by any of 
the following entities, which may not comply with section 24.720(n)(1):
    (1) Institutional investors, either unconditionally or in the form 
of stock options;
    (2) Noncontrolling existing investors in any preeexisting entity 
that is a member of the control group, either unconditionally or in the 
form of stock options; or
    (3) Individuals that are members of the applicant's (or licensee's) 
management, either unconditionally or in the form of stock options.
    (D) Following termination of the three-year period specified in 
paragraph (b)(5)(i) of this section, qualifying investors must continue 
to own at least 10 percent of the applicant's (or licensee's) total 
equity, either unconditionally or in the form of stock options subject 
to the restrictions in paragraph (b)(5)(i)(A) of this section. The 
restrictions specified in paragraph (b)(5)(i)(C)(1) through (3) of this 
section no longer apply to the remaining equity after termination of 
such three-year period.
    (ii) At the election of an applicant (or licensee) whose control 
group's sole member is a preexisting entity, the 25 percent minimum 
equity requirements set forth in paragraph (b)(5)(i) of this section 
shall apply, except that only 10 percent of the applicant's (or 
licensee's) total equity must be held by qualifying investors and that 
the remaining 15 percent of the applicant's (or licensee's) total 
equity may be held by qualifying investors or noncontrolling existing 
investors in such control group member or individuals that are members 
of the applicant's (or licensee's) management. These restrictions on 
the identity of the holder(s) of the remaining 15 percent of the 
licensee's total equity no longer apply after termination of the three-
year period specified in paragraph (b)(5)(i) of this section.
    (6) Control Group Minimum 50.1 Percent Equity Requirement. In order 
to be eligible to exclude gross revenues and total assets of persons or 
entities identified in paragraph (b)(4) of this section, an applicant 
(or licensee) must comply with the following requirements:
    (i) Except for an applicant (or licensee) whose sole control group 
member is a preexisting entity, as provided in paragraph (b)(6)(ii) of 
this section, at the time the applicant's short-form application (Form 
175) is filed and until at least three years following the date of 
initial license grant, the applicant's (or licensee's) control group 
must own at least 50.1 percent of the applicant's (or licensee's) total 
equity as follows:
    (A) at least 30 percent of the applicant's (or licensee's) total 
equity must be held by qualifying minority and/or women investors, 
either unconditionally or in the form of options exercisable, at the 
option of the holder, at any time and at any exercise price equal to or 
less than the market value at the time the applicant files its short-
form application (Form 175);
    (B) Such qualifying minority and/or women investors must hold 50.1 
percent of the voting stock and all general partnership interests 
within the control group and must have de facto control of the control 
group and of the applicant;
    (C) The remaining 20.1 percent of the applicant's (or licensee's) 
total equity may be owned by qualifying investors, either 
unconditionally or in the form of stock options not subject to the 
restrictions of paragraph (b)(5)(i)(A) of this section, or by any of 
the following entities, which may not comply with Sec. 24.720(n)(1):
    (1) Institutional investors, either unconditionally or in the form 
of stock options;
    (2) Noncontrolling existing investors in any preexisting entity 
that is a member of the control group, either unconditionally or in the 
form of stock options; or
    (3) Individuals that are members of the applicant's (or licensee's) 
management, either unconditionally or in the form of stock options.
    (D) Following termination of the three-year period specified in 
paragraph (b)(6)(i) of this section, qualifying minority and/or women 
investors must continue to own at least 20 percent of the applicant's 
(or licensee's) total equity, either unconditionally or in the form of 
stock options subject to the restrictions in paragraph (b)(6)(i)(A) of 
this section. The restrictions specified in paragraph (b)(6)(i)(C)(1) 
through (3) of this section no longer apply to the remaining equity 
after termination of such three-year period.
    (ii) At the election of an applicant (or licensee) whose control 
group's sole member is a preexisting entity, the 50.1 percent minimum 
equity requirements 

[[Page 34210]]
set forth in paragraph (b)(6)(i) of this section shall apply, except 
that only 20 percent of the applicant's (or licensee's) total equity 
must be held by qualifying minority and/or women investors, and that 
the remaining 30.1 percent of the applicant's (or licensee's) total 
equity may be held by qualifying minority and/or women investors, or 
noncontrolling existing investors in such control group member or 
individuals that are members of the applicant's (or licensee's) 
management. These restrictions on the identity of the holder(s) of the 
remaining 30.1 percent of the licensee's total equity no longer apply 
after termination of the three-year period specified in paragraph 
(b)(6)(i) of this section.
    (7)  Calculation of Certain Interests. Except as provided in 
paragraphs (b)(5) and (b)(6) of this section, ownership interests shall 
be calculated on a fully diluted basis; all agreements such as 
warrants, stock options and convertible debentures will generally be 
treated as if the rights thereunder already have been fully exercised, 
except that such agreements may not be used to appear to terminate or 
divest ownership interests before they actually do so, in order to 
comply with the nonattributable equity requirements in paragraphs 
(b)(3)(i) and (b)(4)(i) of this section.
    (8) Aggregation of Affiliate Interests. Persons or entities that 
hold interest in an applicant (or licensee) that are affiliates of each 
other or have an identify of interests identified in Sec. 24.720(l)(3) 
will be treated as though they were one person or entity and their 
ownership interests aggregated for purposes of determining an 
applicant's (or licensee's) compliance with the nonattributable equity 
requirements in paragraphs (b)(3)(i) and (b)(4)(i) of this section.

    Example 1 of paragraph (b)(8). ABC Corp. is owned by 
individuals, A, B, and C, each having an equal one-third voting 
interest in ABC Corp. A and B together, with two-thirds of the stock 
have the power to control ABC Corp. and have an identity of 
interest. If A & B invest in DE Corp., a broadband PCS applicant for 
block C, A and B's separate interests in DE Corp. must be aggregated 
because A and B are to be treated as one person.
    Example 2 for paragraph (b)(8). ABC Corp. has subsidiary BC 
Corp., of which it holds a controlling 51 percent of the stock. If 
ABC Corp. and BC Corp., both invest in DE Corp., their separate 
interests in DE Corp. must be aggregated because ABC Corp. and BC 
Corp. are affiliates of each other.
    (c) Short-Form and Long-Form Applications: Certifications and 
Disclosure--(1) Short-form Application. In addition to certifications 
and disclosures required by Part 1. subpart Q of this Chapter and 
Sec. 24.813, each applicant for a license for frequency Block F shall 
certify on its short-form application (Form 175) that it is eligible to 
bid on and obtain such license(s), and (if applicable) that it is 
eligible for designated entity status pursuant to this section and 
Sec. 24.720, and shall append the following information as an exhibit 
to its Form 175:
    (i) For an applicant that is a publicly traded corporation with 
widely disbursed voting power:
    (A) A certified statement that such applicant complies with the 
requirements of the definition of publicly traded corporation with 
widely disbursed voting power set forth in Sec. 24.72(m);
    (B) The identify of each affiliate of the applicant if not 
disclosed pursuant to Sec. 24.813; and
    (C) The applicant's gross revenues and total assets, computed in 
accordance with paragraphs (a) and (b) of this section.
    (ii) For all other applicants:
    (A) The identity of each member of the applicant's control group, 
regardless of the size of each member's total interest in the 
applicant, and the percentage and type of interest held;
    (B) The citizenship and the gender or minority group classification 
for each member of the applicant's control group if the applicant is 
claiming status as a business owned by members of minority groups and/
or women;
    (C) The status of each conrtrol group member that is an 
institutional investor, an existing investor, and/or a member of the 
applicant's management;
    (D) The identify of each affiliate of the applicant and each 
affiliate of individuals or entities identified pursuant to paragraphs 
(c)(1)(ii)(A) and (c)(1)(ii)(C) of this section if not disclosed 
pursuant to Sec. 24.813.
    (E) A certification that the applicant's sole control group is a 
preexisting entity, if the applicant makes the election in either 
paragraph (b)(5)(ii) or (b)(6)(ii) of this section; and
    (F) The applicant's gross revenues and total assets, computed in 
accordance with paragraphs (a) and (b) of this section.
    (iii) for each applicant claiming status as a small business 
consortium, the information specified in paragraph (c)(1)(ii) of this 
section, for each member of such consortium.
    (2) Long-form Application. In addition to the requirements in 
subpart I of this part and other applicable rules (e.g. Sec. 24.204(f), 
20.6(e), 20.9(b)), each applicant submitting a long-form application 
for license(s) for frequency Block F shall, in an exhibit to its long-
form application.
    (i) Disclose separately and in the aggregate the gross revenues and 
total assets, computed in accordance with paragraphs (a) and (b) of 
this section, for each of the following: the applicant; the applicant's 
affiliates, the applicant's control group members; the applicant's 
attributable investors; and affiliates of its attributable investors;
    (ii) List and summarize all agreements or other instruments (with 
appropriate references to specific provisions in the text of such 
agreements and instruments) that support the applicant's eligibility 
for a license(s) for frequency Block F and its eligibility under 
Secs. 24.711 through 24.270, including the establishment of de facto 
and de jure control; such agreements and instruments include articles 
of incorporation and bylaws, shareholder agreements, voting or other 
trust agreements, partnership agreements, management agreements, joint 
marketing agreements, franchise agreements, and any other relevant 
agreements (including letters of intent), oral or written; and
    (iii) List and summarize any investor protection agreements and 
identify specifically any such provisions in those agreements 
identified pursuant to paragraph (c)(2)(ii) of this section, including 
rights of first refusal, supermajority clauses, options, veto rights, 
and rights to hire and fire employees and to appoint members to boards 
of directors or management committees.
    (3) Records Maintenance. All applicants, including those that are 
winning bidders, shall maintain at their principal place of business an 
updated file of ownership, revenue and asset information, including 
those documents referenced in paragraphs (c)(2)(ii) and (c)(2)(iii) of 
this section and any other documents necessary to establish eligibility 
under this section or under the definitions of small business and/or 
business owned by members of minority groups and/or women. Licensees 
(and their successors in interest) shall maintain such files for the 
term of the license. Applicants that do not obtain the license(s) for 
which they applied shall maintain such files until the grant of such 
license(s) is final, or one year from the date of the filing of their 
short-form application (Form 175), whichever is earlier.
    (d) Audits. (1) Applicants and licensees claiming eligibility under 
this section or Secs. 24.711 through 24.720 shall be subject to audits 
by the Commission, using in-house and contract resources. Selection for 
audit 

[[Page 34211]]
may be random, on information, or on the basis of other factors.
    (2) Consent to such audits is part of the certification included in 
the short-form application (Form 175). Such consent shall include 
consent to the audit of the applicant's or licensee's books, documents 
and other material (including accounting procedures and practices) 
regardless of form or type, sufficient to confirm that such applicant's 
or licensee's representations are, and remain, accurate. Such consent 
shall include inspection at all reasonable times of the facilities, or 
parts thereof, engaged in providing and transacting business, or 
keeping records regarding licensed broadband PCS service and shall also 
include consent to the interview of principals, employees, customers 
and suppliers of the applicant or licensee.
    (e) Definitions. The terms affiliate, business owned by members of 
minority groups and women, consortium of small businesses, control 
group, existing investor, gross revenues, institutional investor, 
members of minority groups, nonattributable equity, preexisting entity, 
publicly traded corporation with widely dispersed voting power, 
qualifying investor, qualifying minority and/or woman investor, small 
business and total assets used in this section are defined in 
Sec. 24.720.
    8. A new Sec. 24,716 is added to Subpart H to read as follows:


Sec. 24.716  Upfront payments, down payments, and installment payments 
for licenses for frequency Block F.

    (a) Upfront Payments and Down Payments. (1) Each eligible bidder 
for licenses on frequency Block F subject to auction shall pay an 
upfront payment of $0.015 per MHz per pop for the maximum number of 
licenses (in terms of MHz-pops) on which it intends to bid pursuant to 
Sec. 1.2106 of this chapter and procedures specified by public Notice.
    (2) Each winning bidder shall make a down payment equal to ten 
percent of its winning bid (less applicable bidding credits); a winning 
bidder shall bring its total amount on deposit with the Commission 
(including upfront payment) to five percent of its net winning bid 
within five business days after the auction closes, and the remainder 
of the down payment (five percent) shall be paid within five business 
days after the application required by Sec. 24.809(b) is granted.
    (b) Installment Payments. Each eligible licensee of frequency Block 
F may pay the remaining 90 percent of the net auction price for the 
license in installment payments pursuant to Sec. 1.2110(e) of this 
chapter and under the following terms:
    (1) For an eligible licensee with gross revenues exceeding $75 
million (calculated in accordance with Sec. 24.709(a)92) and (b)) in 
each of the two preceding years (calculated in accordance with 
34.720(f)), interest shall be imposed based on the rate for ten-year 
U.S. Treasury obligations applicable on the date the license is 
granted, plus 3.5 percent; payments shall include both principal and 
interest amortized over the term of the license.
    ``(2) For an eligible licensee with gross revenues not exceeding 
$75 million (calculated in accordance with Sec. 24.709(a)(2) and (b)) 
in each of the two preceding years, interest shall be imposed based on 
the rate for ten-year U.S. Treasury obligations applicable on the date 
the license is granted, plus 2.5 percent; payments shall include 
interest only for the first year and payments of interest and principal 
amortized over the remaining nine years of the license term.
    ``(3) For an eligible licensee that qualifies as a Small business 
or as a consortium of small businesses, interest shall be imposed based 
on the rate for ten-year U.S. Treasury obligations applicable on the 
date the license is granted, plus 2.5 percent; payments shall include 
interest only for the first two years and payments of interest and 
principal amortized over the remaining eight years of the license term.
    ``(4) For an eligible licensee that qualifies as a business owned 
by members of minority groups and/or women, interest shall be imposed 
based on the rate for ten-year U.S. Treasury obligations applicable on 
the date the license is granted; payments shall include interest only 
for the first three years and payments of interest and principal 
amortized over the remaining seven years of the license term.
    ``(5) For an eligible licensee that qualifies as a small business 
owned by members of minority groups and/or women or as a consortium of 
small business owned by members of minority groups and/or women, 
interest shall be imposed based on the rate for ten-year U.S. Treasury 
obligations applicable on the date the license is granted; payments 
shall include interest only for the first six years and payments of 
interest and principal amortized over the remaining four years of the 
license term.
    (c) Unjust Enrichment. (1) If a licensee that utilizes installment 
financing under this section seeks to assign or transfer control of its 
license to an entity not meeting the eligibility standards for 
installment payments, the licensee must make full payment of the 
remaining unpaid principal and any unpaid interest accrued through the 
date of assignment or transfer as a condition of approval.
    ``(2) If a licensee that utilizes installment financing under this 
section seeks to make any change in ownership structure that would 
result in the licensee losing eligibility for installment payments, the 
licensee shall first seek Commission approval and must make full 
payment of the remaining unpaid principal and any unpaid interest 
accrued through the date of such change as a condition of approval. A 
licensee's (or other attributable entity's) increased gross revenues or 
increased total assets due to nonattributable equity investments (i.e., 
from sources whose gross revenues and total assets are not considered 
under Sec. 24.709(b)), debt financing, revenue from operations or other 
investments, business development or expanded service shall not be 
considered to result in the licensee losing eligibility for installment 
payments.
    ``(3) If a licensee seeks to make any change in ownership that 
would result in the licensee qualifying for a less favorable 
installment plan under this section, the licensee shall seek Commission 
approval and must adjust its payment plan to reflect its new 
eligibility status. A licensee may not switch its payment plan to a 
more favorable plan.
    9. A new Sec. 24.717 is added to Subpart H to read as follows:


Sec. 24.717  Bidding credits for licenses for frequency Block F.

    (a) A winning bidder that qualifies as a small business or a 
consortium of small businesses may use a bidding credit of ten percent 
to lower the cost of its winning bid.
    (b) A winning bidder that qualifies as a business owned by members 
of minority groups and/or women may use a bidding credit of fifteen 
percent to lower the cost of its winning bid.
    (c) A winning bidder that qualifies as a small business owned by 
members of minority groups and/or women or a consortium of small 
business owned by members of minority groups and/or women may use a 
bidding credit of twenty-five percent to lower the cost of its winning 
bid.
    (d) Unjust Enrichment. (1) If during the term of the initial 
license grant (see Sec. 24.15), a licensee that utilizes a bidding 
credit under this section seeks to assign or transfer control of its 
license to an entity not meeting the eligibility standards for bidding 
credits or seeks to make any other change in ownership that would 
result in the licensee no 

[[Page 34212]]
longer qualifying for bidding credits under this section, the licensee 
must seek Commission approval and reimburse the government for the 
amount of the bidding credit as a condition of the approval of such 
assignment, transfer or other ownership change.
    (2) If during the term of the initial license grant (see 
Sec. 24.15), a licensee that utilizes a bidding credit under this 
section seeks to assign or transfer control of its license to an entity 
meeting the eligibility standards for lower bidding credits or seeks to 
make any other change in ownership that would result in the licensee 
qualifying for a lower bidding credit under this section, the licensee 
must seek Commission approval and reimburse the government for the 
difference between the amount of the bidding credit obtained by the 
licensee and the bidding credit for which the assignee, transferee or 
licensee is eligible under this section as a condition of the approval 
of such assignment, transfer or other ownership change.
    10. Section 24.720 is amended by revising paragraphs (l)(11)(ii) 
and (n)(3) and adding paragraph (n)(4) to read as follows:


Sec. 24.720  Definitions.

* * * * *
    (l) * * *
    (11) * * *
    (ii) For purposes of Sec. 24.713(a)(2) and paragraph (b)(2) of this 
section, an entity controlled by members of minority groups is not 
considered an affiliate of an applicant (or licensee) that qualify as a 
business owned by members of minority groups and/or women if 
affiliation would arise solely from control of such entity by members 
of the applicant's (or licensee's) control group who are members of 
minority groups. For purposes of this paragraph (l)(11)(ii), the term 
minority-controlled entity shall mean, in the case of a corporation, an 
entity in which 50.1 percent of the voting interests is owned by 
members of minority groups or, in the case of a partnership, all of the 
general partners are members of minority groups or entities controlled 
by members of minority groups; and, in all cases, one in which members 
of minority groups have both de jure and de facto control of the 
entity.
* * * * *
    (n) * * *
* * * * *
    (3) For purposes of assessing compliance with the minimum equity 
requirements of Sec. 24.709(b) (5) and (6), where such equity interests 
are not held directly in the applicant, interests held by qualifying 
investors shall be determined by successive multiplication of the 
ownership percentages for each link in the vertical ownership chain.
    (4) For purposes of assessing compliance with the minimum equity 
requirements of Sec. 24.713(b) (5) and (6), where such equity interests 
are not held directly in the applicant, interests held by qualifying 
investors and qualifying minority and/or women investors shall be 
determined by successive multiplication of the ownership percentages 
for each link in the vertical ownership chain.

[FR Doc. 95-16130 Filed 6-29-95; 8:45 am]
BILLING CODE 6712-01-M