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y_' X   ( y_' #&I7  PT6Q&P#Federal Communications Commission`(#kDA 99685 ă   yxdddy (Qb Before the Federal Communications Commission  y_'&2Washington, D.C. 20554 ă In the Matter of) ) CONTEL CELLULAR OF NASHVILLE, INC.) )  y_h'Request for Reconsideration of Grant of )ppFile Nos. 9505700, 9505701 Secondary Status and Reinstatement of) Primary Status for WLN586 Spring Hill, ) and WLN587 Bobcat Mountain) ) ) ) )  y_j'M ORDER ON RECONSIDERATION \  y_'X` hp x (#%'0*,.8135@8:"' x ԍApplication of Stephen E. Powell, File No. BPH880714MJ, Memorandum, Report and Order, 11 FCC Rcd  nZ#' x 11925 (1996) (citing Reuters Ltd. v. FCC, 781 F.2d 946 (D.C. Cir. 1986)) (denying petition filed sixteen days late  nZ#' xQ with no showing that delay was beyond petitioner's control); Application of Walter Communications, Order and  nZ$' xQ Reconsideration, 8 FCC Rcd 53 (1992) (distraction by "press of business" no excuse for failure to file petition for  nZ^%' x7 reconsideration within 30 days); Application of Halcomm and KX Acquisition Limited Partnership, Order, 7 FCC  nZ&&'Rcd 5089 (1992) (dismissed petition for reconsideration because it was filed three months late).ā However, the Commission may be required entertain a petition for reconsideration filed beyond  xthe thirtyday filing deadline where there are "extraordinary circumstances," such as a failure on the part",`(`(88~"  y_' x7of the Commission to provide proper notice of its actions.xX nZh' x ԍSee, e.g., Morris H. Gardner v. FCC, 530 F.2d 1086, 1091 (D.C. Cir. 1976); In the Matter of Adelphia  nZ0' x Communications Corp, Order, 12 FCC Rcd 10759, 10760 (1997); Application of Eagle Radio, Memorandum Opinion  nZ'and Order, 12 FCC Rcd 5105, 5108 (1997).x We believe that extraordinary circumstances  y_'exist in the case at hand which warrant our considering this petition on its merits.  y_g' "'9. Under the Commission's Rules, when the Commission grants an application subject to a  xcondition "other than those normally applied to applications of the same type, it will inform the applicant  y_' xof the reasons therefor."{ nZ 'ԍSee 47 C.F.R.  101.47(c), previously codified at 47 C.F.R.  21.32(d).{ This language embodies the requirements set out in the Administrative  y_' x&Procedures Act (APA).x nZ ' x ԍ5 U.S.C.  555(e); Vermont Yankee Nuclear Power Corp. v. NRDC, 435 U.S. 519 (1978) (enabling statutes may add requirements above those of the APA, but may not allow less notice than the APA requires). Under the APA, when a federal agency, such as the Commission, grants an  y_' xtapplication with a condition, other than one which the applicant knew or should have know is typically  xplaced on a license, the agency is required to provide the applicant with notice and a brief explanation of  y_5' x/the reason for the conditional grant.x5 nZ'ԍ5 U.S.C.  555(e) states in full: Prompt notice shall be given of the denial in whole or in part of a written application, petition, or other request of an interested person made in connection with any agency proceeding. Except in affirming a prior denial or when the denial is self explanatory, the notice shall be accompanied by a brief statement of the grounds for denial. The federal courts have explained that there are at least two  y_' xfundamental purposes behind the notice and explanation requirements set out in the APA. nZ'ԍSee, e.g., Matlovich v. Secretary of the Air Force, 591 F.2d 852, 857 (D.C.Cir. 1978). First, the  xpnotice required by the APA must inform the interested person of the grounds for the Commission's  y_ ' xdecision so that they may plan a course of action.1  nZ'ԍId.1 Second, the notice must be sufficiently detailed so  y_i 'as to allow reviewing courts to appraise the Commission's decision.i 0 nZ9' x3 ԍId; see also Sen. Doc. No. 248, 79th Cong., 2d Sess., 206 (1946); City of Gillette, Wyoming v. FERC, 737 F.2d 883, 886 (10th Cir. 1984).  "y 10. We find that the language of the condition on Contel's licenses was insufficient to fulfill the  xpurposes of notice under the APA. In this connection, we conclude that the language contained on the  x}modified authorization for Stations WLN586 and WLN587 did not adequately inform Contel that its  xlicense was secondary so that it could act accordingly. The language of the notice did not clearly state  xZthat Contel's license had been issued with secondary status. Instead, it made an oblique reference to a  xrange of frequencies which are "subject" to all matters contained within ET Docket 929 and referenced  xthe fact that ET Docket 929 "include[s] operation of a facility at 1850 to 2200 MHz on a secondary, noninterference basis." "k,`(`(88 "Ԍ "~ 11. Taken as a whole, we believe that this language may have led to uncertainty. In this  xconnection, we note that the condition does not expressly state that it is referring to the specific  xDfrequencies that are the subject of the authorization. Moreover, the exact meaning of being subject to the  xI"policies imposed by the Commission in ET Docket 929" is a matter that could be open to various  y_4' xinterpretations by an applicant in this situation. In fact, we believe that it does not follow a fortiori that  xlicenses containing this language are secondary. Thus, we find that this condition contained insufficient  x*information to alert Contel that its license was not simply subject to the ongoing docketed proceeding but  y_' xwas in fact issued on a secondary basis.x nZ' x ԍFor example, the relocation policy in place at the time allowed existing 2 GHz fixed facilities licensed before  x January 16, 1992, to "make modification and minor extensions" and retain their primary status. In the Matter of  x* Redevelopment of Spectrum to Encourage Innovation in the Use of New Telecommunications Technologies, ET  nZ[ ' x Docket No. 929, Third Report and Order and Memorandum Opinion and Order, 8 FCC Rcd 658 (August 13, 1993).  x This exception would almost certainly have applied to the modifications requested by Contel. As a result, it would  nZ ' x be reasonable for Contel to assume that being "subject" to 929 in its particular instance meant that it was not  nZ 'secondary because it was within an exception established by ET Docket No. 929. Because Contel could not reasonably be expected to ascertain  y_h' xZthis information from the notice provided, we find that it was not given adequate notice as required by the APA with respect to determining whether to seek reconsideration.  y_' " 12. The notice also fails because it did not provide information sufficient to allow a reviewing  xcourt to appraise the reasons for the Commission's decision. The notice does not state unequivocally what  y_i ' xcdecision has been made, i.e. "this license is granted on a secondary basis." Even if a court were to  xtdetermine that the license had been granted on a secondary basis, there is no explanation as to why the  xgrant was made on a secondary basis. Further, no additional information was sent to Contel which would  xhave alerted it to the fact that its license had been granted with secondary status. We therefore conclude  xMthat the notice provided by the Commission on the face of Contel's licenses was insufficient under the APA.  "4 13. In sum, the only notice provided to the applicant that its license had been issued with a  xcondition is that language contained on the face of the license itself. Because we conclude that adequate  xMnotice of the change in licensing status was not given to Contel, we may entertain Contel's petition for  xreconsideration on the merits even though it was filed after the thirtyday period set forth in Section 405  y_8'of the Communication Act and in Commission Rules, 47 C.F.R.  21.32(d). 8 nZ' x ԍGardner, 530 F.2d at 1091; cf National Black Media Coalition v. FCC, 760 F.2d 1297 (D.C. Cir. 1985)  x7 (Commission retains jurisdiction over matters before it until the time for judicial appeal has expired, during which  x time it "is obligated to reconsider, on its own motion if necessary, decisions which appear questionable in light of subsequent developments").  y_'  y_' " 14. Secondary Grant. We turn now to the merits of Contel's petition. In its applications to  y_' xmodify its licenses, Contel states that it replaced the transmitters of its FMS stations.F  nZ/"'ԍSee Contel Applications.F The Commission's  xrelocation policy in place at that time Contel filed its applications stated that 2 GHz facilities that were  xlicensed prior to January 16, 1992, could make certain modifications and minor extensions and retain  y_' xprimary status.9  nZ&&'ԍ1992 Mimeo.9 Contel's transmitters are considered part of its facilities for purpose of our analysis under",`(`(88"  y_' x^the relocation policy. nZh'ԍCf. 1995 NPRM, 11 FCC Rcd. at 195758; Cost Sharing R&O, 11 FCC Rcd. at 884142. These facilities were licensed prior to January 16, 1992.X nZ' x ԍ1992 Mimeo. According to the Commission's licensing records, Station WLN586 was licensed to Contel on or before August 6, 1987, and Station WLN587 was licensed to Contel on or before July 17, 1987. The replacement of the  xtransmitters is a modification of the facilities, and not a major extension or expansion of those facilities.  xtTherefore, had the Commission's then current relocation rules and policies been properly applied at the  x*time of the grant, Contel's licenses should have been modified and reissued with primary status. Instead,  x&they were issued with secondary status. We therefore find that the rules were not properly applied in Contel's case and grant its request for reconsideration and reinstate primary status to these facilities.  y_'D IV. CONCLUSION \  "15. For the reasons set forth above, we grant Contel's request for reconsideration of the grant of  xits licenses for Stations WLN586 and WLN587 on a secondary, noninterference basis. Although Contel's  xpetition was not filed within 30 days of this grant, we find that there were exceptional circumstances for  xthis delay because there was inadequate notice that the license had in fact been granted with secondary  xstatus we therefore have considered Contel's reconsideration request on the merits. Upon reviewing  x&Contel's applications for modification, we believe that the secondary grant was made contrary to then existing Commission policy and rules.  y_ '- V. ORDERING CLAUSE S Đ\  "q16. ACCORDINGLY, IT IS ORDERED that pursuant to Sections 4(i) and 303(r) of the  xgCommunications Act of 1934, as amended, 47 U.S.C.  154(i) and 303(r), and Section 101.69 of the  xCommission's Rules, 47 C.F.R.  101.69 (1997), the petition for reconsideration of Contel Cellular of Nashville, Inc., IS GRANTED and the licenses will be reissued with primary status.  "+17. This action is taken under delegated authority pursuant to Sections 0.131 and 0.331 of the Commission's Rules, 47 C.F.R.  0.131, 0.331. ` `  hhCqFEDERAL COMMUNICATIONS COMMISSION ` `  hhCqD'wana R. Terry ` `  hhCqChief, Public Safety and Private Wireless Division ` `  hhCqWireless Telecommunications Bureau