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INTRODUCTION Đ\  X4 e B1. ` ` On November 12, 1996, TriCounty Telephone Association ("TriCounty") and  xTCT West, Inc. ("TCT West") through their economic cost consultant, ITCs Inc., filed a petition  x("Petition") requesting a waiver of Sections 36.611 and 36.612 of the Commission's rules to  XG4 xenable TriCounty to receive immediate high cost loop support.GK yO' "I ԍITCs, Inc. on Behalf of TriCounty Telephone Association and TCT West, Inc. Petition for Waiver, AAD  yO'96130 (Nov. 12, 1996). On January 13, 1997, the  xCommon Carrier Bureau ("Bureau") released a public notice soliciting comment on the petition  X4for waiver.3 K yO' "8 ԍITCs, Inc. on Behalf of TriCounty Telephone Association and TCT West, Inc. Petition for Waiver of  {O'Sections 36.611 and 36.612 of the Commission's Rules, Public Notice, DA 9766 (Com. Car. Bur. Jan. 13, 1997).3 Two parties filed comments.zK yOD ' " ԍComments were filed by the National Telephone Cooperative Association ("NTCA"), and the Wyoming Public Service Commission ("Wyoming PUC"). In this Order, we deny TriCounty's Petition.  X'  X':FII. BACKGROUND Đ\  X4 e `2. ` ` In 1984, the Commission established high cost support mechanisms to promote the  X4 x8nationwide availability of telephone service at reasonable rates.K {O)'' " ԍSee generally, Amendment of Part 67 of the Commission's Rules and Establishment of a Joint Board, CC Docket No. 80286, 96 FCC 2d 781 (1984). Specifically, high cost loop  xhsupport allows incumbent local exchange carriers with high local loop costs to allocate an  xyadditional portion of those costs to the interstate jurisdiction, enabling the state jurisdictions to"x, ,**qq7"  X4 x establish lower local exchange rates in study areas receiving such assistance.B(d {Oy'ԍId. B Under these rules,  xa company's high cost loop support is based on the relationship of its historical loop cost to the  X4national average historical loop cost.QZ(d {O'ԍSee 47 C.F.R.  36.611.Q  X4 e 3. ` ` In the Universal Service Order released on May 8, 1997, the Commission  xMestablished new federal universal service support mechanisms consistent with the Communications  Xv4 xAct of 1934, as amended (the "Act"). v(d {O ' "p ԍSee generally FederalState Joint Board on Universal Service, Report and Order, CC Docket No. 9645, 12  {O ' x FCC Rcd 8776 (rel. May 8, 1997) (Universal Service Order), as corrected by FederalState Joint Board on Universal  {O ' x Service, Errata, CC Docket No. 9645, FCC 97157 (rel. June 4, 1997), appeal pending in Texas Office of Public  {Oq ' x Utility Counsel v. FCC and USA, No. 9760421 (5th Cir. 1997); FederalState Joint Board on Universal Service,  {O;' xg Order on Reconsideration, CC Docket No. 9645, 12 FCC Rcd 10095 (rel. July 10, 1997); Changes to the Board  x of Directors of the National Exchange Carrier Association Inc., FederalState Joint Board on Universal Service,  {O' xD Report and Order and Second Order on Reconsideration, CC Docket Nos. 9721, 9645, FCC 97253 (rel. July 18,  {O' x 1997), as corrected by FederalState Joint Board on Universal Service, Errata, CC Docket No. 9645, DA 972477  x (rel. Dec. 3, 1997); Changes to the Board of Directors of the National Exchange Carrier Association Inc., Federal {O)' xb State Joint Board on Universal Service, Order on Reconsideration, Second Report and Order and Further Notice of  {O' xD Proposed Rulemaking, CC Docket Nos. 9721, 9645, FCC 97292, 12 FCC Rcd 12437 (rel. Aug. 15, 1997); Federal {O' x State Joint Board on Universal Service, Third Report and Order, CC Docket No. 9645, (rel. Oct. 14, 1997), as  {O' x^ corrected by FederalState Joint Board on Universal Service, Erratum, CC Docket Nos. 9645 and 97160 (rel. Oct.  x 15, 1997); Changes to the Board of Directors of the National Exchange Carrier Association, Inc., FederalState Joint  {O' x Board on Universal Service, Second Order on Reconsideration in CC Docket 9721, CC Docket Nos. 9721, 9645,  {O' xk FCC 97400 (rel. Nov. 26, 1997); FederalState Joint Board on Universal Service, Third Order on Reconsideration,  x3 CC Docket No. 9645, FCC 97411 (rel. Dec. 16, 1997); FederalState Joint Board on Universal Service, Access  x^ Charge Reform, Price Cap Performance Review for Local Exchange Carriers, Transport Rate Structure and Pricing,  {O=' x End User Common Line Charge, Fourth Order on Reconsideration, CC Docket Nos. 9645, 96262, 941, 91213,  {O' x7 9572, FCC 97420 (rel. Dec. 30, 1997), as corrected by FederalState Joint Board on Universal Service, Errata, CC Docket Nos. 9645, 96262, 941, 91213, 9572, DA 98158 (rel. Jan 29, 1998). Under the new federal universal support mechanisms,  xsupport for high cost areas will be based upon forwardlooking economic cost mechanisms.  xThus, a carrier's support will be based on the forwardlooking economic cost of providing the  xVsupported services to a service area. Nonrural incumbent local exchange carriers ("incumbent  xLECs") will receive support based on forwardlooking economic costs beginning January 1, 1999;  xrural incumbent LECs will begin to receive support based on forwardlooking economic costs no  X 4 xearlier than January 1, 2001.w :(d {O!'ԍUniversal Service Order, 12 FCC Rcd at 894243, para. 308.w Until an incumbent LEC's high cost loop support is based on forwardlooking economic cost, its support will continue to be based on historical cost data.   X 4 e 4. ` ` In accordance with Sections 36.611 and 36.612 of the Commission's rules, on July  x&31 of each year, incumbent LECs submit to the National Exchange Carrier Association ("NECA")  Xy4 xlloop cost data for the prior year.` y(d {O''ԍSee 47 C.F.R.  36.611 and 36.612.` NECA compiles and analyzes these data to determine the"y^ ,7)7)qq"  xpaverage cost per loop for each incumbent LEC as well as the nationwide average cost per loop.  xEach incumbent LEC's high cost loop support amount for the following year is based upon the  xrelationship between the incumbent LEC's average cost per loop and the nationwide average cost  xVper loop. Because the cost data is not submitted by carriers until seven months after the end of  xa calendar year and because NECA requires time to compile and analyze data, support is not  X4 xprovided generally to carriers until up to two years after costs are incurred.G X(d yO' "} ԍFor example, on June 30, 1996, incumbent LECs submitted 1995 cost data that were used to determine their  x^ 1997 high cost loop support. Thus, there is a twoyear lag between when costs are incurred (1995) and receipt of high cost support (1997). G This period can be  Xv4less than two years if quarterly updates are filed.R v(d {O 'ԍSee 47 C.F.R.  36.612. R  XH'  III. PETITION AND COMMENTS Đ X14\  X 4 e 5.  ` `  On August 31, 1994, the Bureau granted TCT West, a newly established wholly xowned subsidiary of TriCounty, a study area waiver associated with TriCounty's purchase of  X 4 x<five rural Wyoming exchanges from US West Communications, Inc. ("US West").( $ z(d {O' " ԍSee US West Communications, Inc., Range Telephone Cooperative, Inc., RT Communications, Inc., Tri x County Telephone Association, TCT West, Inc., Union Telephone Company, Expedited Joint Petition for Waivers  xt of Sections 61.41(c)(2) and 69.3(e)(11) and the Definition of "Study Area" Contained in the Part 36 Appendix {Oq'Glossary of the Commission's Rules, Memorandum Opinion and Order, 9 FCC Rcd 4811 (1994) (Order).( The study  x&area waiver was granted based on TriCounty's assertion that its planned upgrades would improve  xcustomer service and that its estimated increase in high cost loop support would not have a  X 4 xsubstantial adverse impact on the high cost loop support mechanism.C f (d {O'ԍId. at 4812.C TriCounty stated that  xwithout immediate high cost loop support, a local rate increase would have been imposed to avoid  Xy4 xsignificant operating losses.?y (d yO"'ԍPetition at 5.? In addition, TriCounty asserted that it has undertaken upgrades  Xb4 xand investments to improve and expand telephone service.@b (d {O'ԍId. at 4.@ In the absence of the requested  xrelief, TriCounty averred that it would not have received any high cost loop support revenues  xfor up to two years as a result of the application of the high cost loop support distribution rules.  xcAs actual costs become known, TriCounty proposed to either provide documentation to NECA  xand to true up the payments it receives on a quarterly basis or to use actual data from a period  X4immediately preceding the payment period, thereby eliminating the twoyear lag period.@(d {O$'ԍId. at 5.@  X4 e 6 . ` `    NTCA and the Wyoming PUC supported TriCounty's Petition. NTCA stated that  xbecause TriCounty had undertaken massive upgrades and expanded service to previously  xEunserved households, its request for relief was consistent with public policy and in the public",7)7)qq"  X4 x}interest.L(d yOy'ԍNTCA comments at 23.L The Wyoming PUC stated that dramatic improvements had occurred in the quality of  xservice in the subject exchanges and denial of relief would have delayed or discouraged future  X4investments.KX(d yO'ԍWyoming PUC comments at 4.K  X4   X4D IV. DISCUSSION Ã  Xx4 e , 7. ` ` Under Section 1.3 of the Commission's rules, we are required to grant waivers "if  Xa4 xgood cause therefor is shown."Da(d yO 'ԍ47 C.F.R.  1.3.D As interpreted by the courts, this requires that a petitioner  xdemonstrate that "special circumstances warrant a deviation from the general rule and such a  X34deviation will serve the public interest."3x(d {O\' "y ԍNortheast Cellular Tel. Co. v. FCC, 897 F.2d 1164, 1166 (D.C. Cir. 1990); WAIT Radio v. FCC, 418 F.2d  yO&'1153, 1159 (D.C. Cir. 1969); 47 C.F.R.  1.3.q   X 4 e 8.` ` It has been longstanding policy not to waive Sections 36.611 and 36.612 of the  X 4 xCommission's rules.[ (d {Oq' " ԍSee GVNW Inc./Management for Declaratory Ruling, or Alternatively, a Waiver of Section 36.612(a) of  {O;' xD the Commission's Rules USF Data Collection, Order, 11 FCC Rcd 13915 (1996) and TelAlaska Inc., and TelHawaii  xD Inc., Petition for Waiver of Sections 36.611, 36.612, and 61.41(c)(2) and the Definition of "Study Area" Contained  {O' x in the Part 36 AppendixGlossary of the Commission's Rules, Memorandum Opinion and Order, 12 FCC Rcd 10309 (1997).[ In fact, we have granted waivers of these sections only when a requesting  X 4 x carrier proposes to serve or is serving previously unserved areas.& (d {O' " ԍSee Border to Border Communications, Inc., Petition for Waiver of Sections 36.611 and 36.612 of the  {O' x  Commission's Rules, Memorandum Opinion and Order, 10 FCC Rcd 5055 (1995)) and South Park Telephone  {O' x Company, Petition for Waiver of Sections 36.611 and 36.612 of the Commission's Rules, Order, AAD 9741, DA 972730 (rel. December 31, 1997). In the case at hand, US West  xhad previously served in TriCounty's service area. In addition, allowing TriCounty to receive  ximmediate high cost loop support would have resulted in support for US West and for TriCounty  X4 xpfor the same loops.v(d yO ' " ԍDuring the twoyear lag period, acquired exchanges continue to be associated with the selling LEC's study area and the high cost loop support payments continue to go to the selling LEC. TriCounty did not assert any special circumstances affecting it that were  x3not faced by any of the numerous rural telephone companies that have received study area waiver  xrequests to obtain exchanges. As a result, TriCounty failed to demonstrate the special  XM4circumstances that would support the grant of a waiver of Sections 36.611 and 36.612.M(d yO%' "< ԍWe note, however, that TriCounty received $614,029 in high cost loop support payments for 1997 and is currently receiving, in monthly installments, $2,073,752 for 1998. "6&,7)7)qq!"Ԍ X4 e (9.` ` We note that the Commission's high cost loop support distribution rules related  xto the sale and acquisition of exchanges have been in place for many years. In negotiating the  x&purchase price of an exchange, therefore, it is incumbent upon the purchaser and the seller to take  xinto consideration the necessary investments and future cash flows related to the sale. In fact,  xin its initial study area waiver petition, TriCounty asserted that it planned to upgrade switching  xand transmission facilities, but made no claim that its planned upgrades would be burdened by  Xv4 xthe application of Sections 36.611 and 36.612.Pv(d {O'ԍOrder, 9 FCC Rcd at 4812.P Thus, TriCounty could have, but failed, to  x/request a waiver for immediate high cost loop support at its first opportunity to do so. Because  xhigh cost loop support receipts represent an important source of funds for the operation of an  xexchange with high loop costs, the acquiring company would undoubtedly negotiate a lower price  xfor the exchange if the high cost loop support payments were delayed than it would be willing  xto pay if there were no delay. Because the selling company and the acquiring company negotiate  xthe transfer of an exchange with full knowledge of the Commission's rules that apply to the  x/transaction, we see no reason to waive the rules to compensate the acquiring company further.  xVConsequently, we conclude that TriCounty's request for immediate high cost loop support must be denied.  X'  Xy''LV. ORDERING CLAUSE Đ\  XK410.` ` Accordingly, IT IS ORDERED, pursuant to Sections 1, 4(i), 5(c), 201, 202, 205, 218220, and 254 of the Communications Act of 1934, as amended, 47 U.S.C.  151, 154(i), 155(c), 201, 202, 205, 218220, and 254, and Sections 1.3, 0.91, and 0.291 of the Commission's rules, 47 C.F.R.  1.3, 0.91, and 0.291 that the Petition of ITCs, Inc. on Behalf of TriCounty Telephone Association and TCT West, Inc. for Waiver of Sections 36.611 and 36.612 of the Commission's rules, 47 C.F.R.  36.611 and 36.612, IS DENIED.  ` `  hhCqFEDERAL COMMUNICATIONS COMMISSION ` `  hhCqKenneth P. Moran ` `  hhCqChief, Accounting and Audits Division