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A. 1. a.(1)(a) i) a) I. A. 1. a.(1)(a) i) a)X` hp x (#%'0*,.8135@8:'ЍIn the Porter & Associates Complaint, for instance, Benjamin Porter asserts that the Vista representative claimed to represent US WEST, Porter & Associates' local exchange carrier. Mr. Porter alleges that he repeatedly questioned the telemarketer to confirm that he was an agent of US WEST, and that there would be no change in Porter & Associates' longdistance carrier or rates.  Xy424.` ` The record further establishes that after gaining customers' trust by falsely claiming an affiliation with an existing local or longdistance carrier, Vista representatives offered to provide a complimentary "consolidated billing service." Vista apparently failed to inform these customers, however, that if they agreed to a bill consolidation, their long"4 <+&&33"ԫdistance service would be switched to Vista. Indeed, there was nothing in Vista's telephone solicitations to suggest that customers would be switched to Vista. Instead, the profiled complaints demonstrate that Vista representatives went to great lengths to disguise the true nature of Vista's service offering. For example, in the Porter & Associates complaint, Mr.  X4Porter alleges that Vista telemarketer promised "protection" against slamming.=| yO'ЍPorter & Associates Complaint at 1; Declaration of Benjamin D. Porter at 1. Other complainants allege that Vista offered account credits if the customer agreed to a consolidated  Xv4billing format.l>vX| {O 'ЍSee, e.g., Sterling Travel Complaint.l  XH425.` ` Vista has failed to provide evidence or information to counter the complainants' claims. As noted above, Vista's responses to individual consumers' Notices contain little more than boilerplate language acknowledging "reliability problems" associated with utilizing independent sales agents to solicit orders through telemarketing. Further, Vista has failed to furnish audiotapes that refute the complainants' allegations that Vista's telemarketers engaged in deceptive telemarketing practices during initial sales calls. Although Vista submitted audiotapes of some of the complainants' verification calls, these audiotapes do not demonstrate that the complainants understood that they were agreeing to change their longdistance service providers particularly in view of the overwhelming record evidence  Xy4that Vista mischaracterized its service during the initial sales calls to these complainants.v?y| yO'ЍMoreover, it appears from a review of the proffered verification tapes that Vista's verifiers "came on line" immediately after Vista's telemarketers had finished their initial sales pitch. Consequently, complainants who had been led to believe that they had been speaking with a representative of their current local or longdistance carriers regarding a bill consolidation reasonably did not expect that their longdistance service would be  {O4'switched after they verified their company names and account information. See also footnote 58.v  XK426.` ` In the absence of any evidence to refute the complainants' claims, we conclude that Vista has apparently willfully or repeatedly violated section 258 of the Act and the Commission's rules and orders by effecting unauthorized preferred carrier changes. Given Vista's apparent use of deceptive telemarketing practices as a means of effecting these unauthorized preferred carrier changes, we find Vista's actions to constitute particularly egregious slamming violations. We note that the pattern of intentional misrepresentation demonstrated by the complaints was particularly offensive because many of Vista's telemarketers apparently sought to take advantage of consumers' fear of being slammed.  X|427.` ` The record also reflects that Vista changed the W.F. Magann Company's  Xe4preferred longdistance carrier based upon an apparently falsified verification tape.@e| yO$'ЍVista's response to the Magann Complaint provides no information to counter the company's claim that the verification tape had been falsified. We find"e @+&&33~" Vista's reliance on an apparently falsified verification tape to be a particularly egregious violation of section 258 of the Act and the Commission's slamming rules and orders. We liken Vista's action to a carrier's reliance on letters of agency that contain forgeries of the signatures of unsuspecting customers. The Commission has previously found the use of forged letters of agency to be a particularly egregious form of slamming, demonstrating  X4egregious misconduct and a carrier's intent to slam customers. A| {O'ЍSee, e.g., Brittan Communications International Corp., Notice of Apparent Liability, FCC No. 98291,  {O'rel. Oct. 29, 1998); Excel Telecommunications Incorporated, 11 FCC Rcd 19765 (1997).  We apply the same reasoning in our treatment of Vista's apparent reliance on a falsified verification tape, and consider the Magann Complaint to demonstrate a particularly egregious apparent violation of section 258 of the Act.  X 4ԋ28.` ` With regard to the Magann Complaint and the other particularly egregious  X 4slamming violations described above,qBX $1j yO'ЍThe seven complaints in which we find particularly egregious violations are as follows: Sterling Travel  yO'Complaint; Porter & Associates Complaint; Magann Complaint; Colorado Partnership Complaint; Leasco, Inc. Complaint; CUM Save N'Share Complaint; and John R. Trauth Complaint.q the Commission also finds Vista liable for apparent violations of section 201(b) of the Act, which provides in pertinent part that "[a]ll charges, practices, classifications and regulations for and in connection with . . . communication  X 4service shall be just and reasonable. . . ." QC D1j yO'Ѝ47 U.S.C.  201(b).Q The record reveals that Vista's sales personnel repeatedly deceived consumers by representing that Vista was affiliated with the consumers' existing local exchange or longdistance carriers. Further, Vista representatives deliberately  Xy4mischaracterized Vista's service offering as a bill consolidation service.fDy1j {O'ЍSee, e.g., Sterling Travel Complaint.f Consumers relied, to their detriment, on Vista's misrepresentations of these material facts. We find that, Vista's fraudulent misrepresentation of its identity, as well as its repeated efforts to obscure the true nature of its service offering, constitute unjust and unreasonable business practices within the  X4meaning of section 201(b).iEf 1j {O4'ЍWe note that in the BDP NAL, the Commission found that Business Discount Plan, Inc. (BDP) had apparently willfully or repeatedly violated section 201(b) by employing unjust and unreasonable telemarketing practices, such as misrepresenting the nature of BDP's service offering in an attempt to deceive customers into  {O 'agreeing to change their preferred carriers. See Business Discount Plan, Inc., Notice of Apparent Liability, 14  {OX!'FCC Rcd 340 (1998) (BDP NAL). The Commission found BDP apparently liable for a forfeiture of $40,000 for each instance in which it engaged in an unjust and unreasonable telemarketing practice in violation of section  {O"'201(b) of the Act. BDP NAL, 14 FCC Rcd at 356. See infra paragraph 34.i  X429.` ` Finally, this NAL is based on an additional 11 slamming complaints for which Vista essentially admits in its responses that it violated section 258 of the Act by "purchasing"" E+&&33{" from one of its telemarketing agents, ATS, customer accounts that were not verified in accordance with the Commission's rules and orders. This includes the Import Camera Service Complaint, profiled above, in which the complainant alleges that Vista was aware of these  X4unverified customer accounts.XF1j {O4'ЍSee supra paragraph 14.X Vista has not challenged this allegation, and more importantly, has failed to proffer any evidence to show that any of the preferred carrier changes based on ATS accounts were verified in accordance with the Commission's rules.  X_430.` ` Based on this evidence that ATS failed to obtain these 11 complainants' authorization before changing their preferred carriers, we conclude that Vista's actions constitute apparent violations of section 258 and the Commission's rules and orders governing  X 4slamming.9Gz Z1j yO% 'ЍWe note that aside from the Import Camera Service Complaint, our record contains no other complaints that address Vista's knowledge of the ATS problem. Indeed, none of the other complaints for which Vista admits (in its responses) purchasing unverified customer accounts identifies ATS as Vista's telemarketing agent. We note our disapproval of Vista's failure, in its responses to the Commission's Further Notices of Complaint, to candidly address the ATS problem. As set forth above, Vista vaguely referred to the issue as a "reliability problem," not mentioning the purchase of unverified accounts from ATS until the Commission specifically  {O'requested verification audiotapes for a number of complaints. See supra paragraph 20.9 In reaching our conclusion, we give no weight to Vista's statement that ATS sold the unverified accounts to Vista with the "express or implied representation that they were properly verified by an independent third party verification company in accordance with federal and state law." ATS's actions neither relieve Vista of its independent obligation to ensure compliance with our rules nor otherwise mitigate Vista's role in the apparent violations of section 258. The Communications Act deems the acts or omissions of an agent or other  X4person acting for a common carrier to be the acts or omissions of the carrier itself.XH1j {O'ЍSee 47 C.F.R.  217.X  Xb' B.XForfeiture Amount (#  X4431.` ` Vista's apparently intentional, egregious, and repeated misconduct in effecting changes in the longdistance service of seven consumers described in this NAL, and its admission that its agent failed to obtain authority to effectuate changes in 11 of the complainants' service, persuades us that a significant forfeiture is warranted against Vista for willful or repeated violations of section 258 of the Act and the Commission's rules and orders regarding slamming. Section 503(b) of the Communications Act authorizes the Commission to assess a forfeiture of up to $110,000 for each violation of the Act or of any rule,". H+&&33"  X4regulation, or order issued by the Commission under the Act.I"1j yOy' I. A. 1. a.(1)(a) i) a) I. A. 1. a.(1)(a) i) a)Ѝ47 U.S.C.  503(b)(2)(B); 47 C.F.R.  1.80. The Commission amended its rules by adding a new subsection to its monetary forfeiture provisions that incorporates the inflation adjustment requirements contained in the Debt Collection Improvement Act of 1996 (Pub. L. 104134, Sec. 31001, 110 Stat. 1321), enacted on  {O'April 26, 1996. See Amendment of Section 1.80 of the Commission's Rules, 12 FCC Rcd 1038 (1997). In exercising such authority, we are required to take into account "the nature, circumstances, extent, and gravity of the violation and, with respect to the violator, the degree of culpability, any history of prior  X4offenses, ability to pay, and such other matters as justice may require." J1j {O ' I. A. 1. a.(1)(a) i) a) I. A. 1. a.(1)(a) i) a)ЍSee 47 U.S.C.  503(b)(2)(D).   X432.` ` The Commission's forfeiture guidelines currently establish a standard forfeiture amount of $40,000 for violations of our rules and orders regarding unauthorized changes of  X_4preferred interexchange carriers. K^_D1j {OT' I. A. 1. a.(1)(a) i) a) I. A. 1. a.(1)(a) i) a)ЍSee Commission's Forfeiture Policy Statement and Amendment of Section 1.80 of the Rules to  {O'Incorporate the Forfeiture Guidelines, Report and Order, 12 FCC Rcd 17087 (1997) (petitions for  {O'reconsideration pending) (Forfeiture Policy Statement).  These policies and guidelines include "upward adjustment criteria" that warrant a higher forfeiture amount based on our evaluation of the particular  X14actions and circumstances of the violator.L1j 1j {OL' I. A. 1. a.(1)(a) i) a) I. A. 1. a.(1)(a) i) a)ЍId. These include the egregiousness of the misconduct, ability or inability to pay, whether the violation was an intentional violation, whether substantial harm resulted from the violations, history of compliance with Commission requirements, whether the violator realized substantial economic gain from the misconduct,  X 4and whether the violation is repeated or continuous.M 1j {O' I. A. 1. a.(1)(a) i) a) I. A. 1. a.(1)(a) i) a)ЍId. See also 47 U.S.C.  503(b)(2)(D). The Commission retains the discretion, moreover, to depart from the guidelines and issue forfeitures on a casebycase basis, under its  X 4general forfeiture authority contained in section 503 of the Act.N 1j {O' I. A. 1. a.(1)(a) i) a) I. A. 1. a.(1)(a) i) a)ЍId.  Xy4 33.` ` The Commission has sternly admonished carriers that it would take swift and decisive enforcement action, including the imposition of substantial monetary fines, against  XK4any carrier found to have engaged in slamming.OK 1j {O!'ЍSee, e.g., Nationwide Long Distance, Inc. NAL, 11 FCC Rcd 3087 (1996). Recently, the Commission has issued NALs  X44assessing forfeitures at $80,000 per violation for the use of forged letters of agency.P^41j {O#'ЍAll American Telephone Company, Inc., Notice of Apparent Liability, 13 FCC Rcd 15040 (1998) (All  {Oa$'American NAL); Brittan Communications International Corp., Notice of Apparent Liability, FCC No. 98291,  {O+%'rel. Oct. 29, 1998 (Brittan NAL); AmerINet Services Corp., Notice of Apparent Liability, FCC No. 98285, rel."+%O+&&7%"  {O'Oct. 30, 1998 (AmerINet NAL). In"4ZP+&&33U" those Orders, the Commission found that the higher forfeiture amounts were warranted by the egregiousness of the misconduct, the carrier's intent to slam consumers, and the repeated nature of the slamming violations.  X4!34.` ` In the instant case, seven of the slamming complaints upon which this action is based demonstrate that Vista has willfully or repeatedly engaged in particularly egregious  Xv4conduct as part of a pattern to intentionally slam consumers.QvZ1j {O 'ЍSee supra footnote 66; see also Appendix (containing a list of complaints and proposed forfeiture amounts). In light of this clear pattern of repeated misconduct, we find that the upward adjustment criteria in our forfeiture guidelines that involve egregiousness of misconduct, intent of the carrier, and the repeated nature of the violations, are applicable in this case. Applying these criteria to the facts of this case, we conclude that it is appropriate to impose a forfeiture amount that is double the forty thousand dollar ($40,000) base amount contained in our forfeiture guidelines for violations of section 258 of the Act, or eighty thousand dollars ($80,000) per incident. As in previous NALs, we find each unauthorized conversion of the preferred carrier of a complainant to constitute a  X 4separate violation.R 1j {O#'ЍSee, e.g., All American NAL; Brittan NAL; AmerINet NAL; BDP NAL. Although we also find Vista liable for apparent violations of section 201(b) of the Act, we decline, at this time, to assess a forfeiture in connection with these violations, and instead exercise our discretion to use these acts to support our finding of  Xy4egregious slamming violations.SyF1j {Op'ЍCf. BDP NAL, 14 FCC Rcd at 356. In the BDP NAL, the Commission found BDP apparently liable for a forfeiture of $40,000 for each instance in which it engaged in an unjust and unreasonable practice in violation of section 201(b), but imposed only a $40,000 base slamming forfeiture amount for each violation of section 258. By contrast, the Commission today finds Vista apparently liable for $80,000, higher than the base forfeiture amount for section 258 violations, for each unauthorized conversion that was compounded by evidence that Vista engaged in unjust and unreasonable business practices.  XK4"35.` ` We will apply the $40,000 base slamming forfeiture amount for each of the remaining 11 violations, all of which involve Vista's apparent purchase of unverified customer  X4accounts from ATS.T | {O 'ЍSee Appendix for a list of these complaints and proposed forfeiture amounts. Taken together, the forfeitures we assess for violations of section 258 of the Act result in a total forfeiture amount of one million dollars ($1,000,000). Vista shall have the opportunity to submit evidence and arguments in response to this NAL to show that  X4no forfeiture should be imposed or that some lesser amount should be assessed.(UR | {O$' I. A. 1. a.(1)(a) i) a) I. A. 1. a.(1)(a) i) a)ЍSee 47 U.S.C.  503(b)(4)(C); 47 C.F.R.  1.80(f)(3).( "U+&&33X"Ԍ X4#36.` ` Finally, we note that our review of Vista's inadequate responses indicates a need for the Commission to continue to monitor Vista's preferred carrier change practices. We, therefore, require Vista to file with this Commission a compliance plan that shall include procedures designed to promptly identify and address consumer inquiries and concerns about  X4Vista's preferred carrier change practices.V| {O' I. A. 1. a.(1)(a) i) a) I. A. 1. a.(1)(a) i) a)ЍSee 47 U.S.C.  218. The compliance plan shall also detail actions Vista will take and procedures it will establish to comply with the Act and with the Commission's rules and orders The Commission will closely monitor the level and content of consumer complaints to determine whether the establishment of Vista's proposed management practices leads to a decrease in unauthorized preferred carrier changes.  X 4  VI. CONCLUSIONS AND ORDERING CLAUSES ă  X 4$37.` ` We have determined that Vista apparently violated section 258 of the Communications Act and the Commission's preferred carrier change rules and orders by converting the preferred carriers of the 18 consumers identified above, on the dates and in the manner described herein. In addition, for each of the seven section 258 violations that was heightened by Vista's apparently intentional, egregious and repeated misconduct, we have determined that Vista apparently violated section 201(b) of the Act. With regard to forfeitures, we have concluded that Vista is apparently liable for forfeitures in the amount of eighty thousand dollars ($80,000) for each of the seven section 258 violations that was heightened by Vista's apparently intentional, egregious, and repeated misconduct. Further, we have concluded that Vista is apparently liable for forty thousand dollars ($40,000) for each of the 11 remaining section 258 violations, resulting in a total forfeiture amount of one million dollars ($1,000,000).  X4%38.` ` Accordingly, IT IS ORDERED, pursuant to section 503(b) of Communications Act of 1934, as amended, 47 U.S.C.  503(b), section 1.80 of the Commission's rules, 47 C.F.R.  1.80, that Vista Group International, Inc. IS HEREBY NOTIFIED of an Apparent Liability for Forfeiture in the amount of one million dollars ($1,000,000) for willful or  Xe4repeated violations of section 258 of the ActWeZ| yOp' I. A. 1. a.(1)(a) i) a) I. A. 1. a.(1)(a) i) a)Ѝ47 U.S.C.  258. and the Commission's preferred carrier change  XN4rules and orders as described in the paragraphs above.X\N| {O ' I. A. 1. a.(1)(a) i) a) I. A. 1. a.(1)(a) i) a)ЍSee 47 C.F.R.  64.1150; 1997 FNPRM & Order on Recon., 12 FCC Rcd 10674; LOA Order, 10 FCC  {O!'Rcd 9560; PIC Change Order, 7 FCC Rcd 1038; Allocation Order, 101 FCC 2d 911; Waiver Order, 101 FCC 2d 935. " X+&&33""Ԍ X4&39.` ` IT IS FURTHER ORDERED, pursuant to section 1.80 of the Commission's rules, 47 C.F.R.  1.80, that within thirty (30) days of the release of this Notice, Vista Group  X4International, Inc. SHALL PAY the full amount of the proposed forfeiturewY | yOK' I. A. 1. a.(1)(a) i) a) I. A. 1. a.(1)(a) i) a)ЍThe forfeiture amount should be paid by check or money order drawn to the order of the Federal Communications Commission. Reference should be made on Vista Group International, Inc.'s check or money order to "NAL/Acct. No. 916EF0005." Such remittances must be mailed to Forfeiture Collection section, Finance Branch, Federal Communications Commission, P.O. Box. 73482, Chicago, Illinois 606737482.w OR SHALL FILE a response showing why the proposed forfeiture should not be imposed or should be reduced.  Xv4'40.` ` IT IS FURTHER ORDERED, pursuant to section 4(i) of the Communications Act of 1934, as amended, 47 U.S.C.  154(i), that Vista Group International, Inc. SHALL FILE with the Commission, within thirty (30) days of the date of this NAL, a compliance plan detailing the actions it has taken and the procedures it has established, to ensure compliance with section 258 of the Act and the Commission's rules and orders relating to preferred carrier changes. The compliance plan shall set forth procedures designed to enable Vista Group International, Inc. to promptly identify and address consumer inquiries and concerns about its preferred carrier change practices.  X 4(41.` ` IT IS FURTHER ORDERED that copies of this Notice of Apparent Liability for Forfeiture SHALL BE SENT by certified mail to: Thomas Coughlin, Owner and Chief Executive Officer, Vista Group International, Inc., 821 Westpoint Parkway, Suite 920, Westlake, Ohio, 44145.  X'` `  hhC FEDERAL COMMUNICATIONS COMMISSION ` `  hhCMagalie Roman Salas  X4` `  hhCSecretary#&J\  P6Qu&P#