**^Before\ the^**

**Federal Communications Commission**

**Washington, D.C. 20554**

+----------------------------+---------+---------------------------+
| ^In\ the\ Matter\ of^      | **^)^** | ^CC\ Docket\ No.\ 99-200^ |
|                            |         |                           |
| ^Numberin                  | **^)^** | ^CC\ Docket\ No.\ 96-98^  |
| g\ Resource\ Optimization^ |         |                           |
|                            | **^)^** | ^NSD-L-01-160^            |
| ^Implement                 |         |                           |
| ation\ of\ the\ Local\ Com | **^)^** |                           |
| petition\ Provisions\ of\  |         |                           |
| the\ Telecommunications\ ^ | **^)^** |                           |
|                            |         |                           |
| ^Act\ of\ 1996^            | **^)^** |                           |
|                            |         |                           |
| ^Florida\ Public\ Se       | **^)^** |                           |
| rvice\ Commission\ Petitio |         |                           |
| n\ for\ Expedited\ Declara | **^)^** |                           |
| tory\ Statement\ and/or\ E |         |                           |
| xpedited\ Petition\ for\ T | **^)^** |                           |
| emporary\ Waiver\ of\ 47\  |         |                           |
| C.F.R.\ Section\ 52.19(c)( | **^)^** |                           |
| 3)(ii)\ in\ the\ 954\ NPA^ |         |                           |
|                            | **^)^** |                           |
|                            |         |                           |
|                            | **^)^** |                           |
|                            |         |                           |
|                            | **^)^** |                           |
+----------------------------+---------+---------------------------+

# ^[OrDEr]{.smallcaps}^

**Adopted: December 21, 2001 Released: December 28, 2001 **

By the Common Carrier Bureau:

I.  **^[introduction\ and\ background]{.smallcaps}^**

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I.  This Order addresses the Florida Public Service Commission's
    (Florida Commission) petition requesting a declaratory ruling that
    its actions, as described below, are consistent with 47 C.F.R. §
    52.19(c)(3)(ii) or, alternatively, requesting a temporary waiver of
    section 52.19(c)(3)(ii), the ten-digit dialing rule.[^1] As
    discussed below, we find that the Florida Commission's actions are
    inconsistent with section 52.19(c)(3)(ii). Nevertheless, we grant a
    temporary waiver of the ten-digit dialing rule for the 954 numbering
    plan area (NPA) until April 1, 2002 and for the 954/754-561 extended
    area services (EAS) routes until September 1, 2002.

II. *^Background.^*^\ On\ August\ 8,\ 1996,\ the\ Federal\ Communications\ Commission\ (Commission)\ released\ the\ ^*^Local\ Competition\ Second\ Report\ and\ Order^*^.^[^2]^\ In\ that\ Order,\ the\ Commission\ determined,\ among\ other\ things,\ that\ state\ commissions\ could\ continue\ to\ implement\ area\ code\ relief,\ in\ accordance\ ^

III. with the Commission's numbering administration guidelines.[^3] In
     addition, the Commission adopted the ten-digit dialing rule for
     area code overlays in section 52.19(c)(3)(ii), which requires state
     commissions to introduce ten-digit dialing in the underlying area
     code as well as the area code overlay upon implementation of the
     overlay.[^4] The Commission reasoned that mandatory ten-digit
     dialing would help to ensure that competitors did not suffer any
     competitive disadvantages as a result of a local dialing
     disparity.[^5] According to the Commission, absent mandatory
     ten-digit dialing, customers may choose the local incumbent carrier
     instead of a competing carrier because the incumbent is more likely
     to provide customers with numbers in the underlying area code,
     allowing customers to dial seven-digits within that area code.[^6]
     Customers of competing carriers, however, are more likely to
     receive numbers from the overlay and, therefore, be required to
     dial ten-digits for most local calls.[^7]

IV. The Common Carrier Bureau (Bureau) has considered several prior
    requests for waiver of the ten-digit dialing requirement.[^8] The
    Bureau granted temporary waivers in all instances, but denied the
    requests of the New York and Pennsylvania Commissions for permanent
    waivers.[^9] In reviewing the waiver requests, the Bureau considered
    three factors: (1) whether service providers had insufficient time
    to adjust telecommunications networks for the change to ten-digit
    dialing; (2) whether there was insufficient time to educate
    consumers about the change in dialing patterns; and (3) whether
    there were conditions relating to geographic uniformity in the areas
    affected that weighed in favor of a temporary delay.[^10]

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I.  **^[discussion]{.smallcaps}^**

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I.  In its petition filed June 29, 2001, the Florida Commission explains
    that, on October 20, 2000, it adopted an Order approving an area
    code overlay to relieve the 954 NPA and the 754 NPA was subsequently
    assigned by the North American Numbering Plan Administrator (NANPA)
    for that purpose. In that Order, the Florida Commission also
    postponed implementation of area code relief pending the outcome of
    various number conservation measures, including a thousands-block
    number pooling trial in the 954 NPA commencing January 22,
    2001.[^11] In addition, the Florida Commission directed carriers to
    file jointly a notice by October 1, 2001 recommending dates for
    permissive and mandatory ten-digit dialing periods.[^12] On March
    22, 2001, however, the NANPA informed the Florida Commission that
    due to code conflicts in certain EAS routes between the 954 NPA and
    the 561 NPA, the 954 NPA only had 14 NXX codes available for
    assignment out of 119 unassigned NXX codes and the 561 NPA only had
    6 NXX codes available out of 143 unassigned NXX codes.[^13]

II. ^Affected\ service\ providers\ filed\ a\ petition\ with\ the\ Florida\ Commission\ on\ April\ 10,\ 2001,\ proposing\ two\ options\ for\ eliminating\ the\ code\ conflicts.\ Under\ Proposal\ One,\ EAS\ dialing\ would\ change\ from\ seven-digit\ to\ one-plus\ ten-digit\ dialing\ and\ then\ change\ back\ to\ seven-digit\ dialing\ after\ the\ 754\ overlay\ was\ implemented.^[^14]^\ Under\ Proposal\ Two,\ the\ 754\ overlay\ would\ be\ implemented\ immediately\ in\ two\ phases:\ in\ the\ first\ phase,\ once\ the\ 754\ overlay\ was\ activated,\ ten-digit\ dialing\ would\ be\ mandatory\ in\ the\ 754\ NPA\ and\ permissive\ in\ Broward\ County\ for\ the\ 954\ NPA.\ In\ the\ second\ phase,\ consumers\ would\ be\ allowed\ to\ dial\ seven\ or\ ten-digits\ for\ the\ 954/754-561\ EAS\ routes\ between\ Broward\ and\ Palm\ Beach\ Counties\ until\ mandatory\ ten-digit\ dialing\ took\ effect.^[^15]^\ The\ Florida\ Commission\ adopted\ Proposal\ Two\ on\ June\ 12,\ 2001.^[^16]^\ Based\ on\ the\ ^*^954\ Planning\ Letter^*^,\ the\ current\ implementation\ date\ for\ mandatory\ ten-digit\ dialing\ for\ the\ 954\ NPA\ and\ for\ the\ 954/754-561\ EAS\ routes\ would\ be\ April\ 1,\ 2002\ and\ September\ 1,\ 2002,\ respectively.^[^17]

III. ^The\ Florida\ Commission\ argues\ that\ its\ actions\ are\ consistent\ with\ section\ 52.19(c)(3)(ii)\ of\ the\ Commission's\ rules\ because\ the\ intent\ of\ Proposal\ Two\ is\ not\ to\ hinder\ competition,\ which\ the\ ten-digit\ dialing\ rule\ is\ designed\ to\ prevent,\ but\ rather,\ to\ provide\ needed\ numbering\ resources.^[^18]^\ Alternatively,\ the\ Florida\ Commission\ requests\ the\ Commission\ to\ grant\ it\ a\ temporary\ waiver\ of\ the\ ten-digit\ dialing\ rule\ until\ the\ dates\ set\ forth\ above,\ arguing\ that\ additional\ time\ is\ needed\ for\ the\ alarm\ industry\ to\ adjust\ their\ networks,\ for\ consumers\ to\ become\ well-informed\ about\ the\ new\ dialing\ pattern,\ and\ for\ carriers\ to\ receive\ needed\ numbering\ resources.^[^19]^\ The\ Florida\ Commission\ concludes\ that\ unforeseeable\ special\ circumstances\ have\ occurred\ in\ the\ 954\ NPA,\ requiring\ immediate\ action.^[^20]^\ ^

**^\ ^^A.^^\ ^^Request\ for\ Declaratory\ Ruling^**

1.  ^Pursuant\ to\ section\ 1.2\ of\ the\ Commission's\ Rules,\ the\ Commission\ may\ make\ a\ declaratory\ ruling\ that\ eliminates\ an\ uncertainty\ or\ resolves\ a\ controversy.^[^21]^\ The\ uncertainty\ here\ involves\ the\ Florida\ Commission's\ actions\ related\ to\ section\ 52.19(c)(3)(ii)\ of\ the\ Commission's\ rules,\ which\ provides\ that\ "\[n\]o\ area\ code\ overlay\ may\ be\ implemented\ unless\ there\ exists,\ at\ the\ time\ of\ implementation,\ mandatory\ ten-digit\ dialing\ for\ every\ telephone\ call\ within\ and\ between\ all\ area\ codes\ in\ the\ geographic\ area\ covered\ by\ the\ overlay\ area\ code."^[^22]^\ We\ find\ that\ the\ language\ of\ section\ 52.19(c)(3)(ii)\ is\ unequivocal\ in\ stating\ that\ mandatory\ ten-digit\ dialing\ must\ take\ place\ in\ all\ area\ codes,\ including\ the\ underlying\ area\ code,\ once\ the\ overlay\ is\ activated.\ We\ also\ find\ that\ the\ Florida\ Commission's\ intent\ not\ to\ harm\ competition\ does\ not\ affect\ this\ determination.\ Further,\ regardless\ of\ intent,\ postponing\ ten-digit\ dialing\ creates\ potential\ harm\ to\ competition.\ Thus,\ we\ conclude\ that\ the\ Florida\ Commission's\ decision\ to\ postpone\ ten-digit\ dialing\ in\ the\ 954\ NPA\ and\ related\ EAS\ routes\ until\ sometime\ after\ the\ activation\ of\ the\ overlay\ is\ not\ consistent\ with\ section\ 52.19(c)(3)(ii).\ Consequently,\ we\ proceed\ with\ our\ analysis\ of\ the\ Florida\ Commission's\ petition\ to\ temporarily\ waive\ the\ ten-digit\ dialing\ requirement.^

^\ ^**^B.^^\ ^^\ ^^Request\ for\ Temporary\ Waiver\ of\ the\ Ten-Digit\ Dialing\ Requirement^**

1.  ^Pursuant\ to\ section\ 1.3\ of\ the\ Commission's\ rules,\ the\ Commission\ may\ grant\ a\ waiver\ of\ its\ rules\ upon\ a\ showing\ of\ "good\ cause."^[^23]^\ As\ determined\ by\ the\ U.S.\ Court\ of\ Appeals\ for\ the\ District\ of\ Columbia,\ section\ 1.3\ allows\ the\ Commission\ to\ grant\ a\ waiver\ if\ special\ circumstances\ warrant\ a\ departure\ from\ the\ general\ rule\ and\ that\ departure\ serves\ the\ public\ interest.^[^24]^\ ^

2.  ^The\ Bureau\ analyzes\ three\ factors\ when\ considering\ waiver\ requests\ of\ ten-digit\ dialing:\ (1)\ whether\ service\ providers\ had\ insufficient\ time\ to\ adjust\ telecommunications\ networks\ for\ the\ change\ to\ ten-digit\ dialing;\ (2)\ whether\ there\ was\ insufficient\ time\ to\ educate\ consumers\ about\ the\ change\ in\ dialing\ patterns;\ and\ (3)\ whether\ there\ were\ conditions\ relating\ to\ geographic\ uniformity\ in\ the\ areas\ affected\ that\ weighed\ in\ favor\ of\ a\ temporary\ delay.^[^25]^\ Regarding\ the\ first\ two\ factors,\ we\ find\ that\ the\ code\ conflicts\ resulting\ from\ the\ EAS\ routes\ significantly\ shortened\ the\ projected\ life\ span\ of\ the\ 954\ NPA.\ In\ fact,\ prior\ to\ learning\ of\ this\ problem,\ the\ Florida\ Commission\ had\ anticipated\ extending\ the\ life\ of\ the\ 954\ NPA\ through\ thousands-block\ number\ pooling,\ which\ commenced\ in\ January\ 2001.\ Thus,\ given\ the\ sudden\ shortened\ life\ span\ of\ the\ 954\ NPA\ and\ the\ limited\ options\ available,\ the\ Florida\ Commission\ had\ little\ time\ to\ educate\ consumers\ about\ ten-digit\ dialing\ and\ allow\ affected\ service\ providers\ time\ to\ adjust\ their\ networks.^[^26]^\ Because\ the\ Florida\ Commission\ presented\ no\ arguments\ relating\ to\ geographic\ uniformity,\ we\ decline\ to\ address\ this\ factor.^

3.  ^We\ find\ that\ the\ Florida\ Commission\ has\ shown\ "good\ cause"\ for\ justifying\ a\ temporary\ waiver\ of\ the\ ten-digit\ dialing\ rule.\ We\ agree\ that\ a\ temporary\ waiver\ of\ the\ ten-digit\ dialing\ requirement\ would\ provide\ more\ time\ for\ service\ providers\ to\ adjust\ their\ networks\ and\ for\ consumers\ to\ be\ educated\ about\ the\ new\ dialing\ pattern.\ Accordingly,\ we\ grant\ the\ Florida\ Commission's\ request\ to\ delay\ the\ implementation\ of\ mandatory\ ten-digit\ dialing\ until\ April\ 1,\ 2002\ in\ the\ 954\ NPA,\ and\ until\ September\ 1,\ 2002\ in\ the\ 954/754-561\ EAS\ routes,\ in\ accordance\ with\ the\ ^*^954\ Planning\ Letter^*^.^

**IV. CONCLUSION AND ORDERING CLAUSE**

1.  ^We\ find\ that\ the\ Florida\ Commission\ has\ shown\ sufficient\ cause\ to\ justify\ a\ grant\ of\ the\ temporary\ waiver\ of\ the\ ten-digit\ dialing\ rule.\ Thus,\ the\ Florida\ Commission\ may\ postpone\ mandatory\ ten-digit\ dialing\ in\ the\ 954\ NPA\ until\ April\ 1,\ 2002,\ and\ until\ September\ 1,\ 2002\ in\ the\ 954/754-561\ EAS\ routes,\ as\ outlined\ in\ the\ ^*^954\ Planning\ Letter^*^.^

2.  ^IT\ IS\ THEREFORE\ ORDERED,\ pursuant\ to\ sections\ 1.2,\ 1.3,\ and\ 52.19\ of\ the\ Commission's\ Rules,\ 47\ C.F.R.\ §§\ 1.2,\ 1.3,\ and\ 52.19\ and\ section\ 251\ of\ the\ Communications\ Act\ of\ 1934,\ as\ amended,\ 47\ U.S.C.\ §\ 251,\ and\ pursuant\ to\ sections\ 0.91,\ 0.291,\ of\ the\ Commission's\ Rules,\ 47\ C.F.R.\ §§\ 0.91,\ 0.291,\ IT\ IS\ ORDERED\ that\ the\ Florida\ Public\ Service\ Commission\ Petition\ for\ Expedited\ Declaratory\ Statement\ and/or\ Expedited\ Petition\ for\ Temporary\ Waiver\ of\ 47\ C.F.R.\ Section\ 52.19(c)(3)(ii)\ in\ the\ 954\ NPA\ is\ DENIED\ in\ part\ and\ GRANTED\ in\ part\ to\ the\ extent\ described\ herein.\ ^

FEDERAL COMMUNICATIONS COMMISSION

^Jeffrey\ J.\ Carlisle^

Senior Deputy Bureau Chief,

Common Carrier Bureau

[^1]: *Florida Public Service Commission Petition for Expedited
    Declaratory Statement and/or Petition for Expedited Temporary Waiver
    of 47 C.F.R. § 52.19(c)(3)(ii) in the 954 NPA, CC Docket No. 96-98*,
    filed June 29, 2001 (Florida Commission Petition).

[^2]: *Implementation of the Local Competition Provision of the
    Telecommunications Act of 1996*, Second Report and Order and
    Memorandum Opinion and Order, 11 FCC Rcd 19392 (1996) (*Local
    Competition Second Report and Order*).

[^3]: *Id.* at 19518, para. 281. The allowable forms of area code relief
    include: (1) geographic split; (2) area code realignment; and (3)
    area code overlay. *See id.* at 19513, para. 273. In the *Third
    Report and Order*, the Commission also reversed the previous ban on
    service-specific and technology-specific overlays, which are now
    available as area code relief options on a case-by-case basis to
    states that petition for, and receive, Commission approval. *See
    Numbering Resource Optimization, *Third Report and Order and Second
    Order on Reconsideration in CC Docket No. 96-98 and CC Docket No.
    99-200, FCC 01-362,** **at paras. 67-94** **(rel. Dec. 28, 2001)
    (*Third Report and Order*).

[^4]: 47 C.F.R. § 52.19(c)(3)(ii) (ten-digit dialing rule); *see also*
    *Local Competition Second Report and Order*, 11 FCC Rcd at 19518,
    paras. 286-87.

[^5]: *Id.*

[^6]: *See id.* at 19518-19, para. 287.

[^7]: *See id.*

[^8]: *See* Letter from Dorothy T. Attwood, FCC to Richard L. Mathias,
    Illinois Commerce Commission, dated April 6, 2001 (granting the
    Illinois Commerce Commission a temporary waiver of the ten-digit
    dialing rule for an additional nine months, until January 7, 2002)
    (*Second Illinois Waiver*); *Illinois Commerce Commission Petition
    for Expedited Temporary Waiver of 47 C.F.R. Section
    52.19(c)(3)(ii)*, Order, 15 FCC Rcd 4632 (rel. Mar. 2, 2000)
    (granting a temporary waiver of mandatory ten-digit dialing until
    the last of four planned overlays was implemented, but no later than
    April 1, 2001) (*Illinois Waiver*); *see also* *Pennsylvania Public
    Utility Commission Petition for Expedited Waiver of 47 C.F.R.
    Section 52.19 for Area Code 412 Relief*, Memorandum Opinion and
    Order, 12 FCC Rcd 3783 (CCB 1997) (granting approximately a
    seven-month delay of mandatory ten-digit dialing after the area code
    overlay had been implemented); *New York Department of Public
    Service Commission Petition for Expedited Waiver of 47 C.F.R.
    52.19(c)(3)(ii)*, Order, 13 FCC Rcd 13491 (CCB 1998) (granting
    approximately an eight-month delay of mandatory ten-digit dialing
    after the area code overlay had been implemented); *Public Utility
    Commission of Texas Petition for Expedited Waiver of 47 C.F.R.
    Section 52.19(c)(3)(ii) for Area Code Relief*, Memorandum Opinion
    and Order, 13 FCC Rcd 21798 (CCB 1998) (In granting a waiver, the
    Bureau reasoned that the Texas Commission did not finalize area code
    relief plans until shortly before exhaust, and consequently, only
    five months remained to prepare customers for the change in dialing
    patterns and to program alarm equipment).

[^9]: *See Local Competition Second Report and Order*, 11 FCC Rcd at
    19518-19, para. 287.

[^10]: *Illinois Waiver*, 15 FCC Rcd at 4634, para. 3.

[^11]: Florida Commission Petition at 2.

[^12]: *Id.* at 2-3.

[^13]: *Id*. at 4.

[^14]: *Id.*

[^15]: *See id.* at 4-5.

[^16]: *Id.* at 5.

[^17]: *See *NPA 754 to Overlay NPA 954 (Southeast Florida), PL-291
    (Aug. 4, 2001) (*954 Planning Letter*). This document is available
    at \<http://www.nanpa.com\>.

[^18]: *Id*.

[^19]: *See id*. at 6-7.

[^20]: *Id.* at 8.

[^21]: 47 C.F.R. § 1.2.

[^22]: 47 C.F.R. § 52.19(c)(3)(ii).

[^23]: 47 C.F.R. § 1.3.

[^24]: *See Northeast Cellular Telephone Co., L.P. v. FCC*, 897 F.2d
    1164, 1166 (D.C. Cir. 1990) (*citing WAIT Radio v. FCC*, 418 F.2d
    1153, 1159 (D.C. Cir. 1969), *cert. denied*, 409 U.S. 1027 (1972));
    *see also Industrial Broadcasting, Co. v. FCC*, 437 F.2d 680, 683
    (D.C. Cir. 1970).

[^25]: *Illinois Waiver*, 15 FCC Rcd at 4634, para. 3.

[^26]: We agree that the Florida Commission's predicament may be
    described as an unforeseeable special circumstance and we find that
    the Florida Commission's actions did not indicate an attempt on
    their part, to unduly delay ten-digit dialing. Based on its Order
    directing carriers to file by October 1, 2001, a joint
    recommendation for permissive and mandatory dialing dates, it seems
    that the Florida Commission had planned to implement ten-digit
    dialing some time in 2002.