[Federal Register Volume 66, Number 142 (Tuesday, July 24, 2001)]
[Rules and Regulations]
[Pages 38375-38379]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 01-18385]


=======================================================================
-----------------------------------------------------------------------

FEDERAL COMMUNICATIONS COMMISSION

47 CFR Part 54

[CC Docket No. 96-45; FCC 01-195]


Federal-State Joint Board on Universal Service

AGENCY: Federal Communications Commission.

ACTION: Final rule.

-----------------------------------------------------------------------

SUMMARY: In this document, the Commission adopts rules that will extend 
the deadline for receipt of non-recurring services. The Commission also 
adopts a rule that will establish a deadline for the implementation of 
non-recurring services for certain qualified applicants who are unable 
to complete implementation by the September 30 deadline.

DATES: This document contains information collection requirements that 
have not been approved by the Office of Management and Budget (OMB). 
The Commission will publish a document in the Federal Register 
announcing the effective date of this document.

FOR FURTHER INFORMATION CONTACT: Katherine Tofigh, Attorney, Common 
Carrier Bureau, Accounting Policy Division, (202) 418-7400, TTY: (202) 
418-0484.

SUPPLEMENTARY INFORMATION: This is a summary of the Commission's Report 
and Order in CC Docket No. 96-45 released on June 29, 2001. The full 
text of this document is available for public inspection during regular 
business hours in the FCC Reference Center, Room CY-A257, 445 Twelfth 
Street, SW., Washington, DC 20554.

I. Introduction

    1. In this Report and Order, we adopt a rule proposed in the 
Further Notice of Proposed Rulemaking (NPRM), 66 FR 23204, May 8, 2001, 
to provide additional time for recipients under the schools and 
libraries universal service support mechanism to implement contracts or 
agreements with service providers for non-recurring services. We adopt 
a rule that will extend the deadline for receipt of non-recurring 
services from June 30, to September 30 following the close of the 
funding year. Further, we adopt a rule that will establish a deadline 
for the implementation of non-recurring services for certain qualified 
applicants who are unable to complete implementation by the September 
30 deadline. We find that the amended rules will provide schools and 
libraries with more time to install non-recurring services, and thereby 
make greater use of their universal service discounts.
    2. In the NPRM, the Commission also sought comment on its rule 
addressing the allocation of discounts for schools and libraries under 
the federal universal service mechanism when there is insufficient 
funding to support all requests for internal connections. Specifically, 
the Commission sought comment on whether to modify the rule to give 
funding priority to requests for internal connections made by 
individual schools and libraries that did not receive funding 
commitments for internal connections during the previous funding year. 
After consideration of the proposals, we conclude that we will not 
revise the Commission's rules of priority for Funding Year 4 of the 
schools and libraries universal service mechanism.

II. Discussion

A. Modification of Implementation Schedule for Non-Recurring Services

1. Extension of Installation Deadline for Non-Recurring Services
    The Commission sought comment in the NPRM regarding a modification 
to our rules relating to the deadline for implementation of non-
recurring services. Non-recurring services are funding requests with a 
one-time cost listed on Block 5 of an applicant's FCC Form 471. We 
conclude that it is reasonable for schools and libraries to have 
additional time to implement non-recurring services, given the fact 
that many of these services must be installed during the summer months 
when classes are not in session. Therefore, we adopt a rule change that 
would allow schools and libraries to implement non-recurring services 
by September 30, following the close of the funding year.
    As noted in each year of the schools and libraries program, the 
Commission has extended the deadline for receipt of non-recurring 
services. Non-recurring services often involve the installation of 
equipment or wiring, for which schools and libraries incur a one-time 
cost. As a result, many non-recurring services need to be performed 
while students are not in school or during a time period that will 
modify our rule to permanently minimize disruptions for classrooms and 
students. We now find that it is appropriate to extend the deadline 
from June 30 to September 30. The extended

[[Page 38376]]

deadline is more realistic, and appropriately takes into consideration 
the needs of program participants.
    We note that this rule change does not affect the twelve-month 
funding year for non-recurring and recurring services. Rather, this 
rule change only affects the deadline for receiving non-recurring 
services. In addition, we do not increase the amount that schools and 
libraries may receive for non-recurring services for each program year. 
Instead, we are merely providing schools and libraries with additional 
time in which to complete their receipt of these discounted non-
recurring services.
2. Limited Extension for Qualified Applicants
    In the NPRM, the Commission also sought comment regarding a rule 
that would further extend the deadline for implementation of non-
recurring services for schools and libraries that are unable to meet 
the original deadline due to circumstances beyond their control. We 
adopt the proposed rule, thereby extending the deadline for 
implementation of non-recurring services for certain qualified 
applicants who are unable to meet the September 30 deadline. Applicants 
may qualify for the extension, based on satisfaction of one of four 
criteria. Subsequently, the Administrator will calculate a revised 
implementation deadline, based on the date that the applicant satisfies 
one of the criteria.
    We believe the revised rule will ensure that schools and libraries 
have a reasonable and predictable deadline for implementation of non-
recurring services. External circumstances, like delayed funding 
decisions or manufacturing problems, can create situations where 
deadlines are both impractical and unreasonable. Adoption of the 
proposed rule will set in place a predictable mechanism to recalculate 
the implementation deadline in certain limited circumstances. 
Furthermore, consistent with the Commission's commitment to providing 
support for schools and libraries, we believe that this action will 
increase the likelihood that schools and libraries may successfully 
utilize discounts available from the schools and libraries universal 
service mechanism.
    Specifically, under the revised rule, applicants will qualify for 
an extension of the implementation deadline for non-recurring services 
if they satisfy one of the following criteria: (1) Applicants whose 
funding commitment decision letters are issued by the Administrator on 
or after March 1 of the funding year for which discounts are 
authorized; (2) applicants who receive service provider change 
authorizations or service substitution authorizations from the 
Administrator on or after March 1 of the funding year for which 
discounts are authorized; (3) applicants whose service providers are 
unable to complete implementation for reasons beyond the service 
provider's control; or (4) applicants whose service providers are 
unwilling to complete installation because funding disbursements are 
delayed while the Administrator investigates their application for 
program compliance.
    Should an applicant satisfy one of the four criteria, March 1 is 
the key date for calculating the extended deadline. If one of the 
conditions is satisfied before March 1 (of any year), the applicant 
will have until the subsequent September 30 to complete implementation. 
If one of the conditions is satisfied after March 1, the applicant will 
have until September 30 of the following year to complete 
implementation. Therefore, if an applicant receives authorization for a 
service provider change on February 27, 2002 (before March 1), the 
deadline for receipt of non-recurring services will be September 30, 
2002. By contrast, for funding commitments made in April 2002 for 
Funding Year 4 applications (after March 1), the deadline for receipt 
of non-recurring service will be September 30, 2003.
    The Administrator will consider whether criteria (1) and (2) have 
been satisfied, respectively, based on the date that the funding 
commitment decisions are issued, or service provider changes or service 
substitutions are authorized. The revised deadline for implementation 
of non-recurring services will then be determined, based on the date 
that one of these events occurs.
    Similar to the requirements outlined in the November 2000 Extension 
Order, applicants who wish to satisfy criteria (3) should submit 
documentation to the Administrator requesting relief on these grounds 
on or before the original non-recurring services deadline. The revised 
deadline will be calculated based on the date of the Administrator's 
decision relating to the explanation. For example, if an entity is 
awarded discounts for internal connections in Funding Year 4, and 
installation is delayed due to circumstances beyond its control, it 
will need to file with the Administrator an explanation and evidence of 
the delay on or before September 30, 2002. If the Administrator grants 
an extension before March 1, 2003, they will have until September 30, 
2003 to complete installation.
    Furthermore, we recognize that there may be a wide range of 
situations under criteria (3) in which an applicant through no fault of 
its own is unable to complete installation by the applicant's original 
September 30 implementation deadline. Circumstances beyond the service 
provider's control may include manufacturing delays and natural 
disasters. Commenters suggested that the Commission further clarify the 
type of events that may satisfy criteria (3). Because we are unable to 
anticipate every type of circumstance that may arise under criteria 
(3), we instead direct the Administrator to address such situations on 
a case by case basis, consistent with the reasoning set forth in this 
Report and Order.
    With regard to criteria (4), applicants must certify to the 
Administrator that its service provider was unwilling to deliver or 
install non-recurring services before the expiration of the original 
non-recurring services installation deadline, because the Administrator 
had withheld payment for those services on a properly-submitted invoice 
for more than 60 days after the submission of the invoice. Applicants 
must make this certification on or before the original non-recurring 
services installation deadline. The revised implementation date will be 
calculated based on the date that the funds are released by the 
Administrator.
    We conclude that a rule change will ensure schools and libraries 
are not penalized when they are not responsible for missing the 
installation deadline. Additionally, implementation of this policy will 
provide clarity to the Administrator and applicants by establishing a 
certain deadline for installation. Ultimately, this rule gives all 
schools and libraries the opportunity to schedule implementation of 
non-recurring services over the summer months.
3. Extension of Competitive Bidding Rules
    In addition, we adopt a rule granting a limited extension of the 
Commission's competitive bidding rules for contracts for non-recurring 
services. Under this rule, contracts for non-recurring services may be 
voluntarily extended to coincide with the appropriate deadline for 
implementation. Parties may not, however, extend other contractual 
provisions beyond the dates established by the Commission's rules 
without complying with the competitive bidding process. This action 
will ensure equitable treatment for recipients of discounts for non-
recurring services.

[[Page 38377]]

B. Funding Priority for Internal Connections

    In the NPRM, the Commission also sought comment on two options 
relating to the Commission's rules of priority and the distribution of 
support for internal connections. The Commission determined it was 
appropriate to consider revising the rules of priority because of heavy 
demand in Funding Year 4 of the schools and libraries universal service 
mechanism. In April, the Administrator estimated that after funding 
priority one services (telecommunications services and Internet access) 
in Funding Year 4, there would not be enough funds available to fund 
priority two requests (internal connections) from the poorest schools 
and libraries, who qualify for a 90% discount under the schools and 
libraries discount matrix.
    The first proposal in the NPRM was to maintain the Commission's 
rules as currently written, which direct that the remaining funds be 
prorated by discount band. The second proposal was to give funding 
priority to requests for internal connections made by individual 
schools and libraries that did not receive funding commitments for 
internal connections during the previous funding year. After 
consideration of two proposals regarding the distribution of support 
for internal connections, we now conclude that we will not revise the 
rules of priority relating to the funding of internal connections for 
Funding Year 4 of the schools and libraries program. Therefore, under 
the current rules, the Administrator will allocate the available funds 
among applicants in the 90 percent discount level on a pro rata basis, 
so that each such applicant in Funding Year 4 receives a portion of the 
amount requested.
    The overwhelming majority of commenters expressed concern about 
revising the rules of priority during Funding Year 4, after the 
application process had closed. In fact, commenters suggested that they 
would have structured their technology plans differently had they been 
aware of the proposed rules of priority. Furthermore, commenters 
emphasized the need for predictability and raised operational questions 
regarding implementation of the rule in the current funding year. Given 
the strong concerns voiced by the schools and libraries community, we 
agree that the Commission should not revise its rules of priority for 
Funding Year 4 of the schools and libraries universal service 
mechanism.
    Several commenters supported giving funding priority to requests 
for internal connections made by individual schools and libraries that 
did not receive funding commitments for internal connections during the 
previous funding year. Those commenters believed that the proposed 
rules would enable many needy schools and libraries, who have not 
previously been awarded discounts, the opportunity to receive funding 
for internal connections. The Commission is strongly committed to 
ensuring that discounts continue to go to schools and libraries that 
are economically disadvantaged. Based on the current record, we 
conclude it is not reasonable to revise the rule for Funding Year 4 
applications. We will continue to consider the operational and other 
implementation issues raised by commenters for future funding years.

II. Procedural Matters

A. Paperwork Reduction Act

    4. The action contained herein has been analyzed with respect to 
the Paperwork Reduction Act of 1995 (PRA) and found to impose new or 
modified reporting and/or recordkeeping requirements or burdens on the 
public. Implementation of these new or modified reporting and/or 
recordkeeping requirements will be subject to approval by the Office of 
Management and Budget (OMB). The Commission will publish a document in 
the Federal Register announcing the effective date.

B. Final Regulatory Flexibility Analysis

    5. As required by the Regulatory Flexibility Act (RFA), an Initial 
Regulatory Flexibility Analysis (IRFA) was incorporated in the NPRM. 
The Commission sought written public comments on the proposals in the 
NPRM, including comment on the IRFA. This present Final Regulatory 
Flexibility Analysis (FRFA) conforms to the RFA, as amended.
1. Need for, and Objectives of, the Rules
    6. We modify our rules to provide additional time for recipients 
under the schools and libraries universal service support mechanism to 
implement contracts or agreements with service providers for non-
recurring services. First, we extend the deadline for receipt of non-
recurring services from June 30, to September 30 following the close of 
the funding year. Second, we establish a deadline for the 
implementation of non-recurring services for certain qualified 
applicants who are unable to complete implementation by the September 
30 deadline.
    7. The Commission also sought comment on its rule addressing the 
allocation of discounts for schools and libraries under the federal 
universal service mechanism when there is insufficient funding to 
support all requests for internal connections. After consideration, the 
Commission will not revise the Commission's rules of priority for 
Funding Year 4 of the schools and libraries universal service 
mechanism.
2. Summary of Significant Issues Raised by the Public Comments in 
Response to the IRFA
    8. The Commission received no comments directly addressing the 
IRFA.
3. Description and Estimate of the Number of Small Entities to Which 
Rules Will Apply
    9. The RFA directs agencies to provide a description of and, where 
feasible, an estimate of the number of small entities that may be 
affected by the proposed rules, if adopted. The RFA generally defines 
the term ``small entity'' as having the same meaning as the terms 
``small business,'' ``small organization,'' and ``small governmental 
jurisdiction.'' In addition, the term ``small business'' has the same 
meaning as the term ``small business concern'' under the Small Business 
Act. A small business concern is one that: (1) Is independently owned 
and operated; (2) is not dominant in its field of operation; and (3) 
satisfies any additional criteria established by the Small Business 
Administration (SBA). A small organization is generally ``any not-for-
profit enterprise which is independently owned and operated and is not 
dominant in its field.'' Nationwide, as of 1992, there were 
approximately 275,801 small organizations. ``Small governmental 
jurisdiction'' generally means ``governments of cities, counties, 
towns, townships, villages, school districts, or special districts, 
with a population of less than 50,000.'' As of 1992, there were 
approximately 85,006 governmental entities in the United States. This 
number includes 38,978 counties, cities, and towns; of these, 37,566, 
or 96 percent, have populations of fewer than 50,000. The Census Bureau 
estimates that this ratio is approximately accurate for all 
governmental entities. Thus, of the 85,006 governmental entities, we 
estimate that 81,600 (96 percent) are small entities.
    10. Under the schools and libraries universal service support 
mechanism, which provides support for elementary and secondary schools 
and libraries, an elementary school is generally ``a non-profit 
institutional day or residential

[[Page 38378]]

school that provides elementary education, as determined under state 
law.'' A secondary school is generally as ``a non-profit institutional 
day or residential school that provides secondary education, as 
determined under state law,'' and not offering education beyond grade 
12. For-profit schools and libraries, and schools and libraries with 
endowments in excess of $50,000,000, are not eligible to receive 
discounts under the program, nor are libraries whose budgets are not 
completely separate from any schools. Certain other statutory 
definitions apply as well. The SBA has defined as small entities 
elementary and secondary schools and libraries having $5 million or 
less in annual receipts. In funding year 2 (July 1, 1999 to June 20, 
2000) approximately 83,700 schools and 9,000 libraries received 
discounts under the schools and libraries universal service mechanism. 
Although we are unable to estimate with precision the number of these 
entities that would qualify as small entities under SBA's definition, 
we estimate that fewer than 83,700 schools and 9,000 libraries would be 
affected annually by the rules promulgated in this Order, under current 
operation of the program.
4. Description of Projected Reporting, Recordkeeping, and Other 
Compliance Requirements
    11. We adopt a rule that will require certain applicants, outlined 
in criteria (3) and (4) to submit information to the Administrator in 
order to qualify for an extension of the deadline for installation of 
non-recurring services. Under criteria (3), applicants whose service 
providers are unable to complete implementation for reasons beyond the 
service provider's control must submit documentation to the 
Administrator requesting relief on these grounds. In order to comply 
with the requirements for criteria (4), applicants must certify to the 
Administrator that its service provider was unwilling to deliver or 
install non-recurring services before the expiration of the original 
non-recurring services installation deadline, because the Administrator 
had withheld payment for those services on a properly-submitted invoice 
for more than 60 days after the submission of the invoice.
5. Steps Taken To Minimize Significant Economic Impact on Small 
Entities, and Significant Alternatives Considered
    12. The RFA requires an agency to describe any significant 
alternatives that it has considered in reaching its proposed approach, 
which may include the following four alternatives (among others): (1) 
The establishment of differing compliance and reporting requirements or 
timetables that take into account the resources available to small 
entities; (2) the clarification, consolidation, or simplification of 
compliance or reporting requirements under the rule for small entities; 
(3) the use of performance, rather than design, standards; and (4) an 
exemption from coverage of the rule, or part thereof, for small 
entities.
    13. The Commission adopts two administrative modifications relating 
to the deadline for implementation of non-recurring services. First, 
the Commission extends the deadline for implementation of non-recurring 
services from June 30 of each funding year to September 30. Second, the 
Commission establishes an extended deadline for certain qualified 
applicants who are unable to meet the September 30 deadline. We believe 
that the extension of the deadline for the installation of non-
recurring services has the same impact on small and large entities. 
Further, we believe that the extension of the deadline has no adverse 
or disparate effect on small or large entities. We previously 
determined that this was a situation that we needed to evaluate 
alternatives, had there been any concern expressed about the impact on 
small entities. After consideration, we conclude that all impact is 
beneficial and all impact is the same for small and large entities.
    14. In the NPRM, the Commission also sought comment relating to the 
allocation of discounts for schools and libraries when there is 
insufficient funding to support all requests for internal connections. 
We conclude in this Report and Order that we will not revise the 
Commission's rules of priority for Funding Year 4 of the schools and 
libraries universal service mechanism. Because the Commission 
promulgates no additional final rules with respect to the rules of 
priority, there is no impact on small businesses to consider.
    15. Report to Congress: The Commission will send a copy of this 
Report and Order, including this FRFA, in a report to be sent to 
Congress pursuant to the Small Business Regulatory Enforcement Fairness 
Act of 1996. In addition, the Commission will send a copy of the Report 
and Order, including this FRFA, to the Chief Counsel for Advocacy of 
the Small Business Administration. A copy of the Report and Order and 
FRFA (or summaries thereof) will also be published in the Federal 
Register.

D. Ordering Clauses

    16. Pursuant to sections 1-4, 201-205, 218-220, 254, 303(r), and 
403 of the Communications Act of 1934, as amended, that the amendments 
to part 54 of the Commission's rules, as described in this Report and 
Order are adopted, and section 553 of the Administrative Procedure Act, 
5 U.S.C. 553.
    17. This document which contains information collection 
requirements that have not been approved by the Office of the 
Management Budget (OMB). The Commission will publish a document in the 
Federal Register announcing the effective date of this section.
    18. It is further ordered that the Commission's Consumer 
Information Bureau, Reference Information Center, SHALL SEND a copy of 
this Report and Order, including the Final Regulatory Flexibility 
Analysis, to the Chief Counsel for Advocacy of the Small Business 
Administration.

List of Subjects in 47 CFR Part 54

    Communications common carriers, Libraries, Reporting and 
recordkeeping requirements, Schools, Telecommunications, Telephone.

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

Final Rules

    For the reason discussed in the preamble, the Federal 
Communications Commission amends 47 CFR part 54 as follows:

PART 54--UNIVERSAL SERVICE

    1. The authority citation for part 54 continues to read as follows:

    Authority: 47 U.S.C. 1, 4(I), 201, 205, 214, and 254 unless 
otherwise noted.

Subpart F--Universal Service Support for Schools and Libraries

    2. Amend Sec. 54.507 by revising paragraph (d) to read as follows:


Sec. 54.507  Cap.

* * * * *
    (d) Annual filing requirement. Schools and libraries, and consortia 
of such eligible entities shall file new funding requests for each 
funding year no sooner than the July 1 prior to the start of that 
funding year. Schools, libraries, and eligible consortia must use 
recurring services for which discounts have been committed by the 
Administrator within the funding year for which the discounts were 
sought. The deadline for implementation of non-recurring services will 
be

[[Page 38379]]

September 30 following the close of the funding year. An applicant may 
request and receive from the Administrator an extension of the 
implementation deadline for non-recurring services if it satisfies one 
of the following criteria:
    (1) The applicant's funding commitment decision letter is issued by 
the Administrator on or after March 1 of the funding year for which 
discounts are authorized;
    (2) The applicant receives a service provider change authorization 
or service substitution authorization from the Administrator on or 
after March 1 of the funding year for which discounts are authorized;
    (3) The applicant's service provider is unable to complete 
implementation for reasons beyond the service provider's control; or
    (4) The applicant's service provider is unwilling to complete 
installation because funding disbursements are delayed while the 
Administrator investigates their application for program compliance.
* * * * *
[FR Doc. 01-18385 Filed 7-23-01; 8:45 am]
BILLING CODE 6712-01-P