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Rules Affecting Designated Entitiespp  *xxX 7  X74A. Meeting the Adarand Standardpp  *xxX 7  X!'` ` 1. Control Group Equity Structurespp  *xxX 19  X ' ` ` 2. Affiliation RuleshhCqpp  *xxX 28(#(#  X' ` ` 3. Installment Payments qpp  *xxX 37  X' ` ` 4. Bidding Credits hhCqpp  *xxX 49  X ' ` ` 5. Information Collectionqpp  *xxX 56  X!'B. DefinitionshhCqpp  *xxX 57  X"'` ` 1. Small BusinesshhCqpp  *xxX 57  X#' ` ` 2. Rural Telephone Companypp  *xxX 62  Xi$'XC. Extending Small Business Provisions to the D and E BlocksxxX 68(#(# XR%'D. Adjusting Payment Provisions for 10 MHz Licenses   *xxX 73(#(# X;&'E. Rules Regarding the Holding of Licensespp  *xxX 80(#  X$'4III.The Cincinnati Bell Remandqpp  *xxX 86"$'0*((S%"Ԍ X-A. The Cellular/PCS Crossownership Rulepp  )xxX 86  X-B. The 20 Percent Attribution Standardpp  )xxX 108  X-IV.Ownership Disclosure Provisionsqpp  )xxX 133  X-V.Auction SchedulehhCqpp  )xxX 142  X-VI.Other Issues hhCqpp  )xxX 149  X-A. Limit on Licenses Acquired at Auction pp  )xxX  149  Xv- B. Partitioning and Disaggregation pp  )xxX  151  X_- C. Bid Withdrawal hhCqpp  )xxX  152  XH- VII.Conclusion hhCqpp  )xxX  155  X1- VIII.Procedural Matters and Ordering Clauses pp  )xxX  156  X - APPENDIX A: Hypothetical HerfindahlHirschman Indices  X - APPENDIX B: Final Rules APPENDIX C: Final Regulatory Flexibility Analysis  X -APPENDIX D: List of Parties Filing Comments and Reply Comments  Xy-   I. Introduction and Executive Summary  Xb-  XK- I. A. 1. a.(1)(a) i) a) 1. 1. a.(1)(a) i) a) 1. 1. a.(1)(a) i) a) 1. 1. a.(1)(a) i) a)1. In this Report and Order, we modify our competitive bidding and ownership rules for the Personal Communications Services in the 2 GHz band ("broadband PCS"). Many of  X-our rule modifications concern the treatment of designated entities, i.e., small businesses, rural telephone companies, and businesses owned by members of minority groups and women,  X-under our rules for the F block.|Z yOj-ԍ The D, E, and F blocks, each consisting of 493 10 MHz BTA licenses, are among the six frequency blocks designated by the Commission for broadband licensed PCS. Amendment of the Commission's Rules to Establish  {O-New Personal Communications Services, Memorandum Opinion and Order, 9 FCC Rcd 4957, 49785082 (1994). | We also amend other broadband PCS rules in order to encourage sincere bidding, streamline the auction process, and lessen administrative burdens. In addition, in response to the remand from the U.S. Court of Appeals for the Sixth Circuit in  X-Cincinnati Bell Telephone Co. v. FCC,F yOG-ԍ 69 F.3d 752 (6th Cir. 1995).F we modify our rules governing cellular licensees' ownership of broadband PCS licenses in all frequency blocks.  Xi-2. As we explained in the Notice of Proposed Rule Making,p\iz {O!-ԍ Amendment of Parts 20 and 24 of the Commission's Rules, Notice of Proposed Rule Making, WT Docket  {O^"-9659, FCC 96119, 61 Fed. Reg. 13133 (March 26, 1996) ("Notice"). In response to this Notice, 63 comments and 22 reply comments were filed. A list of commenters is attached as Appendix D.p we were prompted by  XT-the Supreme Court's decision in Adarand Constructors, Inc. v. Pe9aAT yO%-ԍ 115 S. Ct. 2097 (1995).A to reexamine our race  X?-and genderbased F block rules. We adopted these rules in the Competitive Bidding Fifth  X*-Report and Order in order to fulfill our mandate under Section 309(j) of the Communications"*. 0*((" Act of 1934, as amended ("Communications Act"), to provide opportunities for businesses owned by members of minority groups and women to participate in the provision of  X-spectrumbased services.x {OK-ԍ Implementation of Section 309(j) of the Communications Act Competitive Bidding, Fifth Report and  {O-Order, PP Docket 93253, 9 FCC Rcd 5532 (1994) ("Competitive Bidding Fifth Report and Order"), recon.  {O-Implementation of Section 309(j) of the Communications Act Competitive Bidding, Fifth Memorandum  {O-Opinion and Order, PP Docket 93253, 10 FCC Rcd 403 (1994) ("Competitive Bidding Fifth Memorandum  {Os-Opinion and Order"), erratum, 60 Fed. Reg. 5333 (Jan. 27, 1995).x After we adopted these rules, however, the Supreme Court held in  X-Adarand that any federal program that makes distinctions on the basis of race must satisfy the  X-strict scrutiny standard of judicial review.L {O -ԍ Adarand, 115 S. Ct. at 2113.L  Xx-3. Having examined the comments submitted in response to the Notice, we conclude that the present record is insufficient to support our racebased F block rules under the strict scrutiny standard, or to support our genderbased rules under the intermediate scrutiny standard that currently applies to those rules. We have considered the need to award the remaining broadband PCS licenses expeditiously and to promote the rapid deployment of new services to the public without judicial delays, as well as the statutory objective of  X -disseminating licenses among a wide variety of applicants, including designated entities.R  yO-ԍ 47 U.S.C.  309(j)(3)(A) and (B).R Bearing these factors in mind, we conclude that, to avoid uncertainty and the delay that would likely result from legal challenges to the special provisions for minority and womenowned businesses in our broadband PCS rules, it is appropriate to make our F block rules race and  X-genderneutral.j {O-ԍ See Implementation of Section 309(j) of the Communications Act Competitive Bidding, Sixth Report and  {O-Order, PP Docket 93253, 11 FCC Rcd 136 (1995) ("Competitive Bidding Sixth Report and Order"), which modified the designated entity provisions of the C block rules to make them race and genderneutral. The  {OE-Competitive Bidding Sixth Report and Order was affirmed recently by the U.S. Court of Appeals for the D.C.  {O-Circuit. Omnipoint Corp. v. FCC, 78 F.3d 620 (D.C. Cir. 1996).j We believe that our action here is consistent with our obligations under  X}-Section 309(j). &}\  yO-ԍ We also have initiated a comprehensive rule making proceeding to explore market barriers to women and  {OR-minorityowned businesses as well as small businesses pursuant to Section 257 of the Communications Act. See  {O -Section 257 Proceeding to Identify and Eliminate Market Entry Barriers for Small Businesses, Notice of Inquiry,  {O -GN Docket No. 96113, FCC 96216 (rel. May 21, 1996) ("Market Entry Notice of Inquiry").  XO-4. As we explained in the Notice, our experience conducting the A, B, and C block broadband PCS auctions also led us to examine other aspects of our rules, and we have determined that we should take certain steps to streamline our procedures and minimize the possibility of insincere bidding and bidder default. To achieve these goals, to make our F "J 0*(("  X-block rules race and genderneutral, and in response to the Cincinnati Bell decision, we make the following changes:  X-XWe amend Section 24.709 and eliminate Section 24.715 of the Commission's Rules to make the 50.1 percent "control group" equity structure, which previously was available only to women and minorityowned businesses for purposes of F block eligibility,  Xx-available to all small businesses and entrepreneurs.M x yO-ԍ 47 C.F.R.  24.709 & 24.715.M (#  XJ-XWe amend Section 24.720 of the Commission's Rules to eliminate the exception to our F block affiliation rules that excludes the gross revenues and assets of certain affiliates  X -controlled by investors who are members of the applicants control group.@  X yO% -ԍ 47 C.F.R.  24.720.@(#  X -XWe amend Section 24.716 of the Commission's Rules to eliminate two of the installment payment plans available to F block applicants and extend the most  X -favorable plan to all small businesses.@  yOY-ԍ 47 C.F.R.  24.716.@ We also shorten the interestonly payment period of this plan from six to two years. (#  X{-XWe amend Section 24.717 of the Commission's Rules to eliminate bidding credits based on minority and womenowned status. Instead, we provide for a twotiered  XM-small business bidding credit.@ Mx yOv-ԍ 47 C.F.R.  24.717.@ (#  X-XWe amend our definition of "rural telephone company" in Section 24.720 of the Commission's Rules to make it conform to the definition in the Telecommunications  X-Act of 1996 ("1996 Act").@ yO-ԍ 47 C.F.R.  24.720.@(#  X-XWe amend Sections 24.706 and 24.716 of the Commission's Rules to raise upfront payments for the D, E, and F blocks to $0.06 per MHzpop and the down payment for  X-the F block to 20 percent.M yO"-ԍ 47 C.F.R.  24.706 & 24.716.M (#  Xg-XWe amend Section 24.839(d) of the Commission's Rules to relax the restriction on  XP-designated entities' ability to transfer broadband PCS licenses.CP(  yO)'-ԍ 47 C.F.R.  24.839(d).C (#"P 0*(("Ԍ X-ԙXWe eliminate Section 24.204 and amend Section 24.229 of the Commission's Rules to abolish our cellular/PCS crossownership rule and our PCS spectrum cap and rely on the 45 MHz cap on Commercial Mobile Radio Services ("CMRS") spectrum in Section  X-20.6.T yO4-ԍ 47 C.F.R.  20.6, 24.204, & 24.229.T (#  X-XWe amend Section 20.6 of the Commission's Rules to eliminate the 40 percent attribution threshold's application to ownership interests held by minority and womenowned companies for purposes of the CMRS spectrum cap; expand the postauction divestiture provisions to come into conformity with those previously applied in our cellular/PCS crossownership rule; and allow an affirmative showing that an otherwise  X -attributable ownership interest should not be attributed to its holder.> X yO# -ԍ 47 C.F.R.  20.6.>(#  X -XWe amend Section 24.813 of the Commission's Rules to reduce ownership information  X -disclosure requirements.@  yOn-ԍ 47 C.F.R.  24.813.@(#  X -5. To expedite the delivery of broadband PCS services to the public, we plan to offer the D, E, and F block licenses together in one simultaneous multiple round auction. Recognizing that there are operational concerns with auctioning all 1,479 licenses in the same auction, however, we also delegate authority to the Wireless Telecommunications Bureau to conduct two concurrent auctions if circumstances warrant. In general, we favor a single auction because of the efficiency it will provide to bidders and the Commission and the speed with which it will deliver the 10 MHz broadband PCS licenses into the hands of parties that can begin providing service to the public.  X-6. Finally, we address a number of other issues that were raised by commenters. We decline to modify our limitation on the total number of licenses that may be won by bidders in the C and F block auctions. In response to concerns about the impact of our rules regarding bids that are made erroneously, we amend Section 24.704 of our rules to modify our bid withdrawal payment requirements.  XN- Đ X7- f  II. Rules Affecting Designated Entities Đ X -\  X < A. Meeting the Adarand Standard  X-7. Background. In the Notice, we explained the history of our race and genderbased F block rules, the statutory objectives they were designed to promote, and the impact of the  X!-Supreme Court's decision in Adarand v. Pe9a. As we discussed, an intermediate scrutiny"!x0*(( " standard of review was applied to federal race and genderbased programs at the time our F  X-block rules were adopted. In Adarand, however, the Supreme Court held that all racial classifications, whether imposed at the federal, state or local government level, must be analyzed by a reviewing court under strict scrutiny, which requires such classifications to be  X-narrowly tailored to further a compelling governmental interest.L {O-ԍ Adarand, 115 S. Ct. at 2113.L An intermediate scrutiny standard of review (under which a provision is constitutional if it serves an important governmental objective and is substantially related to achievement of that objective) continues  Xa-to apply to genderbased measures.&aZ {Ol -ԍ See, e.g., Ensley Branch, NAACP v. Seibels, 31 F.3d 1548, 157980 (11th Cir. 1994); Contractors  {O6 -Association v. City of Philadelphia, 6 F.3d 990, 100910 (3d Cir. 1993); Lamprecht v. FCC, 958 F.2d 382, 391  {O -(D.C. Cir. 1992); Coral Construction Co. v. King County, 941 F.2d 910, 93031 (9th Cir. 1991) cert. denied, 502 U.S. 1033 (1992). We note, however, that the Supreme Court has not  XJ-addressed constitutional challenges to federal genderbased programs since Adarand.JH {OC-ԍ But see United States v. Commonwealth of Virginia, 44 F.3d 1229 (4th Cir. 1995), cert. granted, 116 S. Ct. 281 (1995) (constitutional challenge to state genderbased program currently pending before the Court).   X -8. In the Notice, we observed that judicial precedent indicates that only a record of discrimination against a particular racial group would support remedial measures designed to benefit that group and that generalized assertions of discrimination are inadequate. We explained that, although we have some general evidence of discrimination against certain racial groups, none of the evidence we have appears adequate to satisfy strict scrutiny. We requested comment on a number of questions related to this analysis, including whether compensating for discrimination in lending practices and in practices in the communications industry constitutes a compelling governmental interest. We also asked interested parties to comment on non-remedial objectives that might be considered compelling governmental interests, such as increased diversity in ownership and employment in the communications industry or increased industry competition. We asked parties to submit statistical data, personal accounts, studies, or any other data relevant to the entry of specific racial groups into the field of telecommunications, and we asked whether our racebased provisions are narrowly tailored to serve the interests that commenters assert to be compelling governmental  X-interests.I {O1 -ԍ Notice at  2022.I We also tentatively concluded that the present record in support of our genderbased F block rules may be insufficient to satisfy intermediate scrutiny, and we asked commenters to submit evidence relevant to the entry of women into the field of  X-telecommunications.?4  {O~$-ԍ Id. at  23.?  Xk-9. In the Notice, we also tentatively concluded that we should not delay the F block auction for the amount of time it would take to adduce sufficient evidence to support our"V 0*((" race and genderbased F block provisions, and that proceeding with the F block auction with these rules intact would not serve the public interest because it might result in litigation that ultimately would delay the auction of additional broadband PCS licenses and, thus, postpone the introduction of new competition to the marketplace. We tentatively concluded that, if we were unable to gather sufficient evidence to support our race and genderbased provisions in this proceeding, we should eliminate these provisions from our rules and proceed as  Xv-expeditiously as possible to auction the remaining broadband PCS licenses.?v {O-ԍ Id. at  26.?  XH- 10. Comments. The majority of commenters addressing our present record in support of racebased F block provisions believe that this record is insufficient to withstand strict  X -scrutiny." Z {O% -ԍ See Sprint Corp. Comments at 2 ("Sprint"); Virginia PCS Alliance, L.C. Comments at 2 ("The Alliance"); US West, Inc. Comments at 1, n.1 ("US West"); Auction Strategy Comments at 1; Vanguard Cellular Systems, Inc. Comments at 2 ("Vanguard"); Advanced Telecommunications Technology, Inc. Comments at 2 ("Advanced"); Columbia Cellular, Inc. Comments at 1 ("Columbia"). Moreover, no parties offered specific anecdotal or statistical evidence to support our racebased F block rules. CIRI, however, states that Congress and the Commission have been presented with substantial evidence of the need to promote economic opportunity for  X -minorities, particularly in the communications industry.] D yO-ԍ Cook Inlet Region, Inc. Comments at 2122 ("CIRI").] Encouraging the Commission to review this evidence, CIRI contends that the Commission should retain its minority preference provisions and can justify these provisions under the strict scrutiny standard mandated by  X-Adarand.= {O-ԍ Id. at 1719.= According to Ondas, the lack of Latinoowned C block license winners serves as  X{-statistical and anecdotal evidence to support the F block racedbased rules.f{f  yO-ԍ Ondas Communications Services, Inc. Comments at 1 ("Ondas").f  XM- 11. With respect to our genderbased F block provisions, the majority of commenters addressing our present record agree with our tentative conclusion that this record may be  X-insufficient to satisfy the requirements of intermediate scrutiny.  {O-ԍ See Sprint Comments at 2; The Alliance Comments at 2; US West Comments at 1, n.1; Auction Strategy Comments at 1; Columbia Comments at 1. No commenters offered data to supplement our record supporting genderbased provisions. AWRT and Antigone, however, contend that the record in support of our genderbased provisions will withstand intermediate scrutiny, and they ask the Commission to retain genderbased preferences for the  X-F block auction.P  yO%-ԍ American Women in Radio and Television Comments at 58 ("AWRT"); Antigone Communications L.P. Comments at 26 ("Antigone"). These commenters argue that the genderbased provisions are substantially related to the achievement of a goal mandated by Congress and that there are no more"0*((" narrowly tailored alternatives available, nor any that put less of a burden upon men and male X-owned entities.U  yOb-ԍ AWRT Comments at 9; Antigone Comments at 4.U   X- 12. Most commenters support making the F block auction rules race and gender X-neutral.b!X {O-ԍ See Sprint Comments at 2; Auction Strategy Comments at 1; The Alliance Comments at 3; Phoenix L.L.C. Comments at 23 ("Phoenix"); Conestoga Wireless Company Comments at 3 ("Conestoga"); Iowa L.P. 136 Comments at 45 ("Iowa"); National Telecom PCS, Inc. Comments at 23 ("NatTel"); North Coast Mobile Communications, Inc. Comments at 35 ("NCMC"); PCS Development Corporation Comments at 24 ("PCSD");  {O -Harvey Leong Comments at 2 ("Leong"). See also Coalition of New York Rural Telephone Companies Comments at 23 ("NY Coalition"); U.S. Intelco Wireless Communications, Inc. Comments at 45 ("USIW"); National Telephone Cooperative Association Comments at 2 ("NTCA"); Telephone Electronics Corp. Comments at 12 ("TEC"); Personal Communications Industry Association Comments at 67 and Reply Comments at 23 ("PCIA"); Columbia Comments at 1 (offering alternatives to our proposal to proceed with the F block in generally the same way we proceeded with the C block but nonetheless supporting our conclusion to make our rules race and genderneutral).b AirLink and Auction Strategy, for example, recommend that, as in the C block auction, the Commission extend to all small businesses the same special provisions originally  Xv-provided to small minority and womenowned companies.t"v  yO-ԍ AirLink L.L.C. Comments at 13 ("AirLink"); Auction Strategy Comments at 1.t DCR, a minority and womenowned business, believes that the Commission should forego the use of race and genderbased special provisions in the F block to ensure that small businesses have a prompt and  X1-meaningful opportunity to compete for 10 MHz licenses.[#1L  yO.-ԍ DCR Communications, Inc. Comments at 24 ("DCR").[ In this connection, DCR notes that providing incentives to all small businesses will encourage the participation of minority and  X -womenowned businesses.9$  {O-ԍ Id. at 4.9 Similarly, PCIA and Gulfstream believe that the Commission can best serve its statutory duties to assist minority and womenowned businesses by adopting  X -generous rules for small businesses.}% n yO-ԍ PCIA Comments at 7; Gulfstream Communications, Inc. Comments at 56 ("Gulfstream").} Devon, a womencontrolled company, also agrees with the proposal to eliminate race and genderbased provisions, stating that it is critical to avoid  X -delays in licensing.f&  yOV!-ԍ Devon Mobile Communications, L.P. Comments at 23 ("Devon").f AT&T argues that we should not repeat the use of special provisions for  X-small businesses in the F block in light of the "undesirable results" of the C block auction.-'Z {O#-ԍ AT&T Wireless Services, Inc. Comments at 46 ("AT&T"); see also TEC Comments at 2 (noting that TEC would not object to race and genderbased preferences if such preferences were justified by a record sufficient to satisfy constitutional requirements). - Allied opposes proceeding to auction with race and genderneutral rules without first"y'0*(("  X-conducting a "Croson study."( {Oy-ԍ Allied Communications Group, Inc. Comments at 4 ("Allied").  The Supreme Court said in Richmond v.  {OC-J.A. Croson Co. that significant statistical disparities between the level of minority participation in a particular field and the percentage of qualified minorities in the applicable pool could permit an inference of discrimination  {O-that would support the use of racial classifications intended to correct those disparities. Croson, 488 U.S. 469,  {O-507 (1989). Croson studies have been undertaken in the past to determine whether such disparities exist at the state or local level.  X- 13. Decision. Having evaluated the record before us, we revise our F block rules to make them race and genderneutral. Overall, the commenters agree that this approach will best serve our goal of rapidly conducting the F block auction with the least risk of judicial  X-delay. Moreover, the arguments presented against it were, for the most part, already  Xx-considered in the Competitive Bidding Sixth Report and Order, in which we concluded that  Xc-the C block auction rules should be race and genderneutral. Significantly, this conclusion  XL-was upheld by the D.C. Circuit Court of Appeals, which held in Omnipoint v. FCC that we acted reasonably in concluding that, in light of the additional time it would take to develop a record to support the race and genderbased provisions for the C block, we should revise  X -these rules by providing the most favorable terms to all small businesses, i.e., "leveling  X -benefits upward."S) H {O-ԍ Omnipoint v. FCC, 78 F.3d 620, 633.S In light of the comments and the Omnipoint decision, and because we do not have sufficient evidence to support our F block race and genderbased provisions in this proceeding, we conclude that making our F block rules race and genderneutral will serve the public interest by enabling us to auction the remaining broadband PCS licenses as expeditiously as possible.  Xl- 14. We recognize, as CIRI points out, that we have been presented with important evidence of the need to promote economic opportunity for minorities. Thus, in the  X>-Competitive Bidding Fifth Report and Order, when we adopted the racebased provisions for the entrepreneurs' blocks assuming an intermediate level of scrutiny, we cited studies and other evidence to support the existence of widespread discrimination against minorities in  X-lending practices.q* {O-ԍ Competitive Bidding Fifth Report and Order, 9 FCC Rcd at 557374.q The evidence that we cited showed the difficulty African and Hispanic X-Americans have in obtaining mortgage loans;=+l  {O!-ԍ Id. at 5573. = the difficulty AfricanAmerican business  X-borrowers face in raising capital;?,  {O|#-ԍ Id. at 557374.? and the shortage of capital as the principal problem faced  X-by minorities seeking ownership opportunities in the broadcast industry.?-  {O%-ԍ Id. at 557678.? We believe such data are important. However, CIRI has not demonstrated that this information will be sufficient to provide a basis for measures benefitting specific racial groups seeking to" "-0*((P" participate in broadband PCS.  X-15. We also believe that at this time we cannot agree with AWRT and Antigone's proposal that we retain the genderbased F block provisions. As noted above, the Supreme Court has not addressed the level of scrutiny courts must apply to genderbased programs  X-since Adarand. This issue is the subject of a case currently pending before the Court.H. {O-ԍ See supra note 22.H Additionally we observe that the D.C. Circuit Court of Appeals stayed the C block auction under an intermediate scrutiny standard on the basis of race and genderbased provisions  XJ-identical to those adopted for the F block.X/\JZ {OU -ԍ Telephone Electronics Corp. v. FCC, No. 951015 (D.C. Cir. Mar. 15, 1995) (order granting stay). Under  {O -Metro Broadcasting, Inc. v. FCC, 497 U.S. 547 (1990), the governing case law at the time, intermediate scrutiny was applied to both race and genderbased provisions.X Thus, we believe that retaining the genderbased provisions would create a substantial risk of delaying the F block auction due to litigation and  X -could result in future legal challenges in the course of licensing F block winners.w0Z ~ yOK-ԍ For similar reasons, we will not adopt Antigone's proposal that we exempt womenowned applicants from the 25 percent foreign ownership threshold adopted in Market Entry and Regulation of ForeignAffiliated  {O-Entities, Report and Order, IB Docket No. 9522, FCC 95475 (Nov. 30, 1995). Antigone Comments at 6.w  X -16. In deciding to make our F block rules race and genderneutral, we are balancing competing objectives under Section 309(j), including mandates to provide opportunities for women and minorities while at the same time to promote competition and the rapid delivery  X -of services to the public.C1