[Federal Register Volume 73, Number 215 (Wednesday, November 5, 2008)]
[Rules and Regulations]
[Pages 65724-65726]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: E8-26318]


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DEPARTMENT OF AGRICULTURE

Rural Utilities Service

7 CFR Part 1735

RIN 0572-AC13


General Policies, Types of Loans, Loan Requirements--
Telecommunications

AGENCY: Rural Utilities Service, USDA.

ACTION: Direct final rule.

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SUMMARY: The Rural Utilities Service, an agency delivering the United 
States Department of Agriculture (USDA) Rural Development Utilities 
Program, hereinafter referred to as Rural Development and/or the 
Agency, amends its regulations for the Telecommunications Loan Program 
(Loan Program). The Agency has reviewed its criteria for approving 
loans and has determined that modifications to the Loan Program 
regulations are required in order to ensure that some financially sound 
applicants are not excluded from the Loan Program.
    The Agency is proposing to amend its regulations to modify the 
Times Interest Earned Ratio (TIER) requirements that

[[Page 65725]]

an applicant must comply with when receiving a loan. This direct final 
rule is part of an ongoing Agency project to update Agency policies to 
enable borrowers to provide reliable, modern telecommunications service 
at reasonable costs in rural areas, while maintaining the security and 
feasibility of the Government's loans.

DATES: This rule is effective December 22, 2008, without further 
action, unless the Agency receives adverse comments or, submits in 
writing intent to submit an adverse comment, by December 5, 2008. 
Written adverse comments or, intent to submit an adverse comment, must 
be received by Rural Development or carry a postmark or equivalent no 
later that December 5, 2008. If adverse comments are received, the 
Agency will publish a timely Federal Register document withdrawing this 
rule.

ADDRESSES: Submit adverse comments by either of the following methods:
     Federal eRulemaking Portal: Go to http://www.regulations.gov and in the ``Search Documents'' box, enter RUS-08-
Telecom-0002, and select GO>>. To submit a comment, choose ``Send a 
comment or submission,'' under the Docket Title. In order to submit 
your comment, the information requested on the ``Public Comment and 
Submission Form,'' must be completed. Information on using 
Regulations.gov, including instructions for accessing documents, 
submitting comments, and viewing the docket after the close of the 
comment period, is available through the site's ``How to Use this 
Site'' link.
     Postal Mail/Commercial Delivery: Please send your comment 
addressed to Michele Brooks, Director, Program Development and 
Regulatory Analysis, USDA Rural Development, STOP 1522, Room 5159, 1400 
Independence Avenue, Washington, DC 20250-1522. Please state that your 
adverse comment refers to Docket No. RUS-08-Telecom-0002.
     Other Information: Additional information about Rural 
Development and its programs is available at http://www.rurdev.usda.gov/index.html.

FOR FURTHER INFORMATION CONTACT: Jerry H. Brent, Director, Northern 
Division, Telecommunications Program, USDA Rural Development, STOP 
1595, 1400 Independence Avenue, SW., Washington, DC 20250-1595, 
Telephone (202)720-1025, Facsimile (202) 690-4654. E-mail address: 
[email protected].

SUPPLEMENTARY INFORMATION: 

Executive Order 12866

    This direct final rule has been determined to be not significant 
for purposes of Executive Order 12866, and therefore has not been 
reviewed by the Office of Management and Budget (OMB).

Catalog of Federal Domestic Assistance

    The Catalog of Federal Domestic Assistance (CFDA) Program number 
assigned to the Rural Development Utilities Telecommunications Loans 
and Loan Guarantees Program is 10.851. The CFDA is available on a 
subscription basis from the Superintendent of Documents, the United 
States Government Printing Office, Washington, DC 20402-9325; telephone 
(202) 512-1800.

Executive Order 12372

    This program is not subject to the requirements of Executive Order 
12372, ``Intergovernmental Review of Federal Programs,'' as implemented 
under USDA's regulations at 7 CFR part 3015.

Executive Order 12988

    This direct final rule has been reviewed under Executive Order 
12988, Civil Justice Reform. The Agency has determined that this rule 
meets the applicable standards provided in section 3 of the Executive 
Order. In addition, all state and local laws and regulations that are 
in conflict with this rule will be preempted, no retroactive effect 
will be given to this rule, and, in accordance with Sec 212(e) of the 
Department of Agriculture Reorganization Act of 1994 (7 U.S.C. 
6912(e)), administrative appeal procedures, if any, must be exhausted 
before an action against the Department or its agencies may be 
initiated.

Executive Order 13132, Federalism

    The policies contained in this direct final rule do not have any 
substantial direct effect on states, on the relationship between the 
national government and the states, or on the distribution of power and 
responsibilities among the various levels of government. Nor does this 
direct final rule impose substantial direct compliance costs on state 
and local governments. Therefore, consultation with states is not 
required.

Regulatory Flexibility Act Certification

    Pursuant to 5 U.S.C. 553(a)(2), this final rule is exempt from the 
rulemaking requirements of the Administrative Procedure Act (5 U.S.C. 
551 et seq.), including the requirement to provide prior notice and an 
opportunity for public comment. Because this final rule is not subject 
to a requirement to provide prior notice and an opportunity for public 
comment pursuant to 5 U.S.C. 553, or any other law, the analytical 
requirements of the Regulatory Flexibility Act (5 U.S.C. 601 et seq.) 
are inapplicable.

Unfunded Mandates

    This direct final rule contains no Federal mandates (under the 
regulatory provision of Title II of the Unfunded Mandates Reform Act of 
1995) for State, local, and tribal governments or the private sector. 
Therefore, this direct final rule is not subject to the requirements of 
sections 202 and 205 of the Unfunded Mandates Reform Act of 1995.

Environmental Impact Statement

    This direct final rule has been examined under Agency environmental 
regulations at 7 CFR part 1794. The Administrator has determined that 
this action is not a major Federal action significantly affecting the 
environment. Therefore, in accordance with the National Environmental 
Policy Act of 1969 (42 U.S.C. 4321 et seq.), an Environmental Impact 
Statement or Assessment is not required.

Information Collection and Recordkeeping Requirements

    This direct rule contains no new reporting or recordkeeping burdens 
under OMB control number 0572-0079 that would require approval under 
the Paperwork Reduction Act of 1995 (44 U.S.C. Chapter 35).

Background

Overview

    Rural Development improves the quality of life in rural America by 
providing investment capital, in the form of loans and grants, for the 
deployment of rural telecommunications infrastructure. Financial 
assistance is provided to rural utilities; municipalities; commercial 
corporations; limited liability companies; public utility districts; 
Indian tribes; and cooperative, nonprofit, limited-dividend, or mutual 
associations. In order to achieve the goal of increasing economic 
opportunity in rural America, the Agency finances infrastructure that 
enables access to a seamless, nationwide telecommunications network. 
With access to the same advanced telecommunications networks of its 
urban counterparts, especially broadband networks designed to 
accommodate distance learning, telework and telemedicine, rural America 
will see improving educational opportunities, health care, economies, 
safety and security, and ultimately higher employment. The Agency is

[[Page 65726]]

committed to ensuring that rural areas will have access to affordable, 
reliable, advanced telecommunications services, comparable to those 
available throughout the rest of the United States, to provide a 
healthy, safe and prosperous place to live and work.
    While the Agency is proud of the results it has achieved in Rural 
America with the Telecommunications Loan Program, it believes that the 
overall effectiveness of the program can be improved by modifying the 
existing rules. The change to the current regulation will permit 
additional financially sound borrowers, who clearly meet the intent of 
the Telecommunications Loan Program, to be eligible to participate in 
the program.

Discussion of Changes

    Facilities financed by the Loan Program are typically constructed 
over a five year period (Forecast Period). The feasibility studies used 
to demonstrate that an applicant is eligible for a loan and can repay 
it assumes this Forecast Period. The feasibility study is also used to 
forecast the applicant's Times Interest Earned Ratio or TIER. The TIER 
is one measure of an applicant's ability to repay the loan. Currently, 
the regulation states that applicants must maintain a TIER of at least 
1.0 during the Forecast Period. At the end of the Forecast Period, the 
applicant shall be required to maintain, at a minimum, a TIER at least 
equal to the projected TIER determined by the feasibility study 
prepared in connection with the loan, but at least 1.0 and not greater 
than 1.5.
    The requirement that an applicant maintain a TIER of at least 1.0 
during the Forecast Period, arbitrarily and unfairly disqualifies some 
applicants from the Loan Program. During the Forecast Period as an 
applicant constructs facilities, there is always a delay from the time 
that the construction is initiated to the time that construction is 
completed and revenues increase based upon the new subscribers 
connected and new services offered. During this period, it would not be 
unusual for the applicant's TIER to be less than 1.0. This occurrence 
is not generally an indicator that the applicant is in financial 
difficulty, but a direct result of the time lag associated with 
construction of facilities. In addition, the current provision 
effectively disqualifies any start up or new entity from qualifying for 
the Loan Program. In many cases these newer entities, and the rural 
residents they serve, are the ones that stand to benefit the greatest 
from the program.
    This change would not constitute a loan security risk as an 
applicant's financial performance is continuously monitored and the 
advance of loan funds can be suspended should the situation warrant 
such action. In addition, the applicant would still be required to 
maintain the projected TIER at the end of the Forecast Period.

List of Subjects in 7 CFR 1735

    Loan programs--communications, Rural Areas, Telecommunications and 
Telephone.

0
For reasons set forth in the preamble, the Agency amends Chapter XVII 
of title 7 of the Code of Federal Regulations by revising part 1735 as 
follows:

PART 1735--GENERAL POLICIES, TYPES OF LOANS, LOAN REQUIREMENTS--
TELECOMMUNICATIONS PROGRAM

0
1. The authority citation for part 1735 continues to read as follows:

     Authority: 7 U.S.C. 901 et seq., 1921 et seq., and 6941 et seq.

0
2. In Sec.  1735.22, paragraph (g) is revised to read as follows:


Sec.  1735.22  Loan Security.

Subpart B--Loan Purposes

* * * * *
    (g) For Loans approved after December 22, 2008, the borrower shall 
be required to maintain a TIER, at the end of the Forecast Period, at 
least equal to the projected TIER determined by the feasibility study 
prepared in connection with the loan, which shall be at least 1.0 and 
not greater than 1.5.
* * * * *

    Dated: September 8, 2008.
James M. Andrew,
Administrator, Rural Utilities Service.
[FR Doc. E8-26318 Filed 11-4-08; 8:45 am]
BILLING CODE 3410-15-P