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Matched Legal Cases: ['art 54', 'art 9', 'art\n14', 'art 52', 'art 52', 'art 54', 'art 9', 'art 52', 'art 1', 'art 0', 'art 1']

Before the Federal Communications Commission Washington, D.C ) ) ) ) ) ) ) ) ) ) ) ) ) ) ) ) ) REPORT AND ORDER - PDF
Before the Federal Communications Commission Washington, D.C ) ) ) ) ) ) ) ) ) ) ) ) ) ) ) ) ) REPORT AND ORDER
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1 Before the Federal Communications Commission Washington, D.C In the Matter of Numbering Policies for Modern Communications IP-Enabled Services Telephone Number Requirements for IP-Enabled Services Providers Telephone Number Portability Developing a Unified Intercarrier Compensation Regime Connect America Fund Numbering Resource Optimization ) ) ) ) ) ) ) ) ) ) ) ) ) ) ) ) ) WC Docket No WC Docket No WC Docket No CC Docket No CC Docket No WC Docket No CC Docket No REPORT AND ORDER Adopted: June 18, 2015 Released: June 22, 2015 By the Commission: Chairman Wheeler and Commissioners Clyburn, Rosenworcel, Pai, and O Rielly issuing separate statements. TABLE OF CONTENTS Paragraph # I. INTRODUCTION... 1 II. BACKGROUND... 4 A. Direct Access NPRM... 5 B. Direct Access Technical Trial... 9 III. DISCUSSION A. Benefits of Interconnected VoIP Providers Obtaining Numbers Directly B. Implementation of Direct Access to Numbers for Interconnected VoIP Providers Requirements to Obtain Commission Authorization a. Compliance with Number Administration Rules and Guidelines b. 30-day Notice Requirement c. Facilities Readiness Requirement Procedure for Requesting Commission Authorization Additional Requirements to Obtain Numbers Enforcement Other Issues Relating to Direct Access for Interconnected VoIP Providers a. Local Number Portability Obligations b. Interconnection Obligations c. Intercarrier Compensation... 64
2 d. Call Routing and Termination Transitioning to Direct Access C. Scope of Commission s Decision D. Legal Authority to Extend Numbering Requirements to Interconnected VoIP Providers that Choose Direct Access E. Enabling Direct Access to p-ani Codes for VoIP Positioning Center Providers IV. PROCEDURAL MATTERS A. Regulatory Flexibility Analysis B. Paperwork Reduction Act of 1995 Analysis C. Congressional Review Act D. Accessible Formats V. ORDERING CLAUSES APPENDIX A List of Commenters APPENDIX B Final Rules APPENDIX C Final Regulatory Flexibility Analysis I. INTRODUCTION 1. The nation s communications infrastructure is undergoing key technology transitions, including that from networks based on time-division multiplexed (TDM) circuit-switched voice services to all-internet Protocol (IP) multi-media networks. 1 Already, these transitions have brought innovative and improved communications services to the marketplace, and consumers have embraced these new technologies. This is evidenced by the nearly 48 million interconnected VoIP retail local telephone service connections in service as of the end of 2013, comprising over a third of all wireline retail local telephone service connections Our actions today support these transitions. We establish a process to authorize interconnected VoIP providers to obtain North American Numbering Plan (NANP) telephone numbers 3 directly from the Numbering Administrators, rather than through intermediaries. 4 Our actions will 1 Technology Transitions, et al., GN Docket No. 13-5, et al., Order, Report and Order and Further Notice of Proposed Rulemaking, Report and Order, Order and Further Notice of Proposed Rulemaking, Proposal for Ongoing Data Initiative, 29 FCC Rcd 1433, 1435, para. 1 (2014) (Technology Transitions Order); Ensuring Customer Premises Equipment Backup Power for Continuity of Communications; Technology Transitions; Policies and Rules Governing Retirement Of Copper Loops by Incumbent Local Exchange Carriers; Special Access for Price Cap Local Exchange Carriers; AT&T Corporation Petition for Rulemaking to Reform Regulation of Incumbent Local Exchange Carrier Rates for Interstate Special Access Services, PS Docket No , GN Docket No. 13-5, RM , WC Docket No , RM-10593, Notice of Proposed Rulemaking and Declaratory Ruling, 29 FCC Rcd (2014) (Copper Retirement NPRM). 2 See Local Telephone Competition: Status as of December 31, 2013, FCC, Wireline Competition Bureau, Industry Analysis and Technology Division, at 3, Fig. 2 (Oct. 16, 2014), A1.pdf (Local Telephone Competition Report). 3 The NANP is the basic numbering scheme for telecommunications networks located in the United States and its territories, Canada, and parts of the Caribbean. See 47 C.F.R. 52.5(c). NANP telephone numbers are ten-digit numbers consisting of a three-digit area code, followed by a seven-digit local number. In order to provide interconnected VoIP service, a provider must offer customers NANP telephone numbers; otherwise, a customer on the public switched telephone network (PSTN) would not have a way to dial the interconnected VoIP customer using his PSTN service. See SBC IP Communications, Inc. Petition for Limited Waiver of Section 52.15(g)(2)(i) of the Commission s Rules Regarding Access to Numbering Resources, CC Docket No , at 2 3 (filed July 7, 2004) (SBCIS Waiver Petition). Any reference in this Report and Order to direct access to numbers (or similar phrasing) refers to direct access to NANP numbers. 4 In this Order, we refer to the North American Numbering Plan Administrator (NANPA) and the Pooling Administrator as the Numbering Administrators. 2
3 facilitate innovative technologies and services that will benefit both consumers and providers, and further the Commission s recognized pro-consumer, pro-competition, and public safety goals. 5 In addition, permitting interconnected VoIP providers to obtain telephone numbers directly from the Numbering Administrators will improve responsiveness in the number porting process and increase visibility and accuracy of number utilization, enabling the Commission to more effectively protect the Nation s finite numbering resources. Our authorization process also enhances our ability to enforce the rules against interconnected VoIP providers. Finally, we also expect that, to the extent it encourages VoIP interconnection, authorizing interconnected VoIP providers to obtain numbers directly will help stakeholders and the Commission identify the source of routing problems and take corrective actions. 3. First, this Order establishes an authorization process to enable interconnected VoIP providers that choose direct access to request numbers directly from the Numbering Administrators. Next, the Order sets forth several conditions designed to minimize number exhaust and preserve the integrity of the numbering system. Finally, the Order also modifies Commission s rules in order to permit VoIP Positioning Center (VPC) providers to obtain pseudo-automatic Number Identification (p- ANI) codes directly from the Numbering Administrators for purposes of providing E911 services. 6 These relatively modest steps will have lasting, positive impacts for consumers and the communications industry as we continue to undergo technology transitions. II. BACKGROUND 4. Section 52.15(g)(2)(i) of the Commission s rules limits access to telephone numbers to entities that demonstrate they are authorized to provide service in the area for which the numbers are being requested. 7 The Commission has interpreted this rule as requiring evidence of either a state certificate of public convenience and necessity (CPCN) or a Commission license. As a practical matter, generally only telecommunications carriers are able to provide the proof of authorization required under our rules, and thus able to obtain numbers directly from the Numbering Administrators. As explained below, neither authorization is typically available in practice to interconnected VoIP providers. 8 The Commission has waived section 52.15(g)(2)(i) in two instances. The first was in 2005 to allow SBC Information Services (SBCIS), an information service provider that lacked state certification as a carrier, to obtain numbers directly from the Numbering Administrators. 9 In that Order, the Commission stated that, [t]o the extent other entities seek similar relief we would grant such relief to an extent comparable to what we set forth in this Order. 10 Following that Order, a number of entities filed similar petitions See Technology Transitions Order, 29 FCC Rcd at , paras VPC providers are entities that help interconnected VoIP providers deliver 911 calls to the appropriate public safety answering point (PSAP). Among other things, VPCs provide such capabilities as location-based call routing and real-time delivery to the PSAP of the caller s location information. A p-ani is a number, consisting of the same number of digits as an Automatic Number Identification (ANI), that is not a NANP telephone directory number and may be used in place of an ANI to convey special meaning to the selective router, PSAP, and other elements of the 911 system. See IP-Enabled Services; E911 Requirements for IP-Enabled Service Providers, WC Docket Nos , , First Report and Order and Notice of Proposed Rulemaking, 20 FCC Rcd 10245, , para. 17 (2005) (VoIP 911 Order); 47 C.F.R P-ANI codes are a numbering resource administered by the Routing Number Administrator (RNA). See infra Section III.E C.F.R (g)(2)(i). 8 See infra para Administration of the North American Numbering Plan, CC Docket No , Order, 20 FCC Rcd 2957 (2005) (SBCIS Waiver Order). SBCIS is now AT&T Internet Services. 10 Id. at 2959, para Between February 2005 and August 2012, the following entities filed petitions for waiver of section 52.15(g)(2)(i): Bandwidth.com, Inc.; Constant Touch Communications; CoreComm-Voyager, Inc.; Dialpad Communications, Inc.; Frontier Communications of America, Inc.; Net2Phone Inc.; Nuvio Corporation; Qwest (continued ) 3
4 The second waiver was in 2013, in order to conduct a limited trial allowing interconnected VoIP providers direct access to numbers. 12 As described below, this trial demonstrated that there are no technical barriers preventing interconnected VoIP providers from accessing numbering resources directly and using them without intermediate carriers. A. Direct Access NPRM 5. On April 18, 2013, the Commission adopted the Direct Access NPRM which, among other things, proposed to allow interconnected VoIP providers to obtain telephone numbers directly from the Numbering Administrators, subject to certain requirements. 13 The Commission anticipated that allowing interconnected VoIP providers to have direct access to numbers would help speed the delivery of innovative services to consumers and businesses, while preserving the integrity of the network and appropriate oversight of telephone number assignments In the Direct Access NPRM, the Commission sought comment on: (1) what type of documentation interconnected VoIP providers should have to provide to the Numbering Administrators in order to obtain numbers, 15 (2) which existing or new numbering-related Commission requirements should apply to interconnected VoIP providers requesting numbers, 16 and (3) how the Commission can enforce VoIP provider compliance with any numbering requirements it mandates. 17 Specifically, regarding numbering requirements, the Commission proposed and sought comment on imposing the same requirements that it imposed in the SBCIS Waiver Order number utilization and optimization requirements, numbering-related industry guidelines and practices that apply to carriers, and a 30-day notice period to inform the Commission and relevant states of the interconnected VoIP provider s intent to request numbers In the Direct Access NPRM, the Commission sought comment on its proposal that interconnected VoIP providers may obtain numbers from any rate center unless a state commission finds that the request (1) is for numbers in a non-pooling rate center, and (2) will substantially contribute to number exhaust. 19 It also sought comment on the Wisconsin Public Service Commission s proposal to impose the following requirements on interconnected VoIP providers seeking to obtain telephone numbers: (1) provide the relevant state commission with contact information for personnel qualified to address regulatory and numbering concerns upon first requesting numbers in that state; (2) consolidate (Continued from previous page) Communications Corporation; SmartEdgeNet, LLC; UniPoint Enhanced Services d/b/a PointOne; RNK Inc.; VoEX, Inc.; Vonage Holdings Corporation; and WilTel Communications, LLC. 12 See Numbering Policies for Modern Communications et al., WC Docket No et al., Notice of Proposed Rulemaking, Order, and Notice of Inquiry, 28 FCC Rcd 5842, 5880, para. 94 (2013) (Direct Access NPRM). 13 See id. at 5853, para Id. 15 Id. at , para Id. at , paras Id. at , paras See, e.g., id. at , paras , 5858, para. 31; 47 C.F.R. pt. 52. For example, section 52.15(f)(6) requires reporting carriers to file reports on their forecasted and actual number utilization on a semi-annual basis. 47 C.F.R (f)(6). Section 52.15(f)(7) provides state commissions access to data reported to the NANPA provided they have appropriate protections in place to prevent public disclosure of disaggregated, carrier-specific data. 47 C.F.R (f)(7). Section 52.15(i) details the role of the state commissions in the reclamation of numbering resources. 47 C.F.R (i). 19 Direct Access NPRM, 28 FCC Rcd at 5857, para 26. 4
5 and report all numbers under its own unique Operating Company Number (OCN); 20 (3) maintain the original rate center designation of all numbers in its inventory; and (4) to provide customers with the ability to access all N11 numbers in use in a state The Commission also sought comment on a series of commitments offered by Vonage as a condition to obtaining direct access to numbers. Specifically, those commitments would require an interconnected VoIP provider to maintain at least 65 percent number utilization across its telephone number inventory, to offer VoIP interconnection to other carriers and providers, and to provide the Commission with a transition plan for migrating customers to its own numbers at least 90 days before commencing that migration and every 90 days thereafter for 18 months. 22 The Commission also sought comment on whether it should modify its rules to allow VPC providers direct access to p-ani codes for the provision of 911 and E911 services. 23 Finally, the NPRM addressed and sought comment on the Commission s legal authority to adopt the various requirements it proposed for direct access to numbers by interconnected VoIP providers. 24 B. Direct Access Technical Trial 9. In the Direct Access NPRM, the Commission established a six-month technical trial allowing interconnected VoIP providers to obtain direct access to numbers. 25 In the trial, the Commission granted limited, conditional waivers to providers that had pending petitions for waiver of section 52.15(g)(2)(i). These waivers allowed trial participants to obtain telephone numbers directly from the Numbering Administrators for use in providing interconnected VoIP services during the six-month technical trial. 26 The Commission tailored the trial to test whether giving interconnected VoIP providers direct access to numbers would raise issues relating to number exhaust, number porting, VoIP interconnection, or intercarrier compensation, and if so, how those issues could be addressed. 27 The Direct Access NPRM required trial participants to file regular reports throughout and at the end of the sixmonth trial, and allowed state commissions and other interested parties an opportunity to comment on the reports The Commission required trial participants to comply with its number utilization and optimization rules, as well as industry guidelines and practices, including abiding by the numbering authority delegated to state commissions and filing Numbering Resource Utilization and Forecast (NRUF) reports. 29 The Commission also required each trial participant to maintain at least 65 percent number utilization across its entire telephone number inventory. 30 State commissions recommended, and the Commission imposed, additional conditions on trial participants, including: (1) providing the relevant state commission with regulatory and numbering contacts when the interconnected VoIP provider 20 An Operating Company Number is a four-character code used to identify telecommunications service providers. See ATIS , Codes for Identification of Service Providers for Information Exchange. The National Exchange Carrier Association assigns all OCNs. 21 Direct Access NPRM, 28 FCC Rcd at 5859, para. 34 (citing proposal by the Wisconsin PSC). 22 Id. at para Id. at , paras Id. at , paras Id. at 5878, para Id. 27 Id. at 5881, para Id. at 5883, para Id. at para Id. at 5884, para
6 requests numbers in that state, (2) consolidating and reporting all numbers under its own unique OCN, (3) providing customers with the ability to access all abbreviated dialing codes (N11 numbers) in use in a state, and (4) maintaining the original rate center designation of all numbers in its inventory. 11. On June 17, 2013, the Wireline Competition Bureau (Bureau) adopted an Order announcing the participants in the trial. The Bureau concluded that the proposals submitted by Vonage Holdings Corp. (Vonage), SmartEdgeNet, LLC (SmartEdgeNet), WilTel Communications, LLC (WilTel or Level 3), Intelepeer, Inc. (Intelepeer), and Millicorp met the Commission s requirements to participate in a limited direct access to numbers trial, and approved them Upon completion of the trial, the Bureau released the Direct Access Trial Report. 32 The Bureau reported that the limited trial indicated that it is technically feasible for interconnected VoIP providers to obtain telephone numbers directly from the Numbering Administrators and use them to provide services. 33 Issues involving carrier obligations for interconnection 34 and porting did arise during the trial, but did not appear to implicate technical concerns regarding direct access to numbers. 35 The Bureau concluded that additional guidance or clarification from the Commission could reduce such disputes in the future. 36 III. DISCUSSION 13. Our pro-consumer, pro-competitive actions today are consistent with the Commission s goal to facilitate the transition to all-ip networking and promote interconnection of IP-based voice networks, 37 and serve as an integral, incremental step in furthering the Nation s technology transition. 38 Based on the record in this proceeding, including the technical trial, and consistent with our proposal in the Direct Access NPRM, we establish a process to authorize interconnected VoIP providers to voluntarily request and obtain telephone numbers directly from the Numbering Administrators under our rules, subject to their compliance with certain numbering administration requirements. Generally, we require interconnected VoIP providers obtaining numbers to comply with the same requirements applicable to carriers seeking to obtain numbers. These requirements include any state requirements pursuant to numbering authority delegated to the states by the Commission, 39 as well as industry guidelines and 31 See Numbering Policies for Modern Communications et al., WC Docket No et al., Order, 28 FCC Rcd 8889 (Wireline Comp. Bur. 2013). 32 Numbering Policies for Modern Communications et al., WC Docket No et al., Report, 29 FCC Rcd 927 (Wireline Comp. Bur. 2014) (Direct Access Trial Report). 33 Id. at 937, para During the trial, a number of the trial participants reported being unable to reach agreement with CenturyLink for traffic exchange. The record indicates that CenturyLink required trial participants to interconnect via dedicated trunks, and trial participants objected to this requirement as adding unnecessary costs to the exchange of traffic and discouraging interconnection in IP format. Id. at 934, para Id. at 937, para Id. 37 Connect America Fund et al., WC Docket No et al., Report and Order et al., 26 FCC 17663, 17926, para. 783 (2011) (USF/ICC Transformation Order), pets. for review denied sub nom. In re: FCC , 753 F.3d 1015 (10th Cir. 2014). 38 See AT&T Comments at 23 ( [P]roviding direct access to numbering resources will be an important catalyst in furthering the ongoing transition and broadening the commercial IP interconnection that already has occurred ); Windstream Reply at 10-11; AT&T Reply at 2; Vonage Reply at 7 ( Such incremental steps serve the public interest by furthering that transition in a measured way, and by providing the Commission and the industry with real-world experience and information that can inform future regulatory action. ). 39 See infra note 88. 6
7 practices, among others. We also require interconnected VoIP providers to comply with facilities readiness requirements adapted to this context, and with numbering utilization and optimization requirements. 14. As conditions to requesting and obtaining numbers directly from the Numbering Administrators, we also require interconnected VoIP providers to: (1) provide the relevant state commissions with regulatory and numbering contacts when requesting numbers in those states, (2) request numbers from the Numbering Administrators under their own unique OCN, (3) file any requests for numbers with the relevant state commissions at least 30 days prior to requesting numbers from the Numbering Administrators, and (4) provide customers with the opportunity to access all abbreviated dialing codes (N11 numbers) in use in a geographic area. We discuss each of these requirements in detail below. A. Benefits of Interconnected VoIP Providers Obtaining Numbers Directly 15. In reaching our decision, we have considered the potential risks and benefits of authorizing interconnected VoIP providers to directly access telephone numbering resources. Some commenters assert that authorizing interconnected VoIP providers to access numbers directly will potentially have adverse impacts on consumers, 40 competition and enforcement, 41 as well as number exhaust. 42 Other commenters assert that authorizing interconnected VoIP providers to obtain numbers directly from the Numbering Administrators could have negative consequences for routing and intercarrier compensation. 43 Still others assert unknown, unintended consequences of authorizing direct access for interconnected VoIP providers, and urge caution. 44 We find on balance that the expected benefits, discussed below, outweigh any perceived risks of authorizing interconnected VoIP providers to directly access telephone numbering resources. Moreover, we find that we can mitigate any risks through the conditions we establish in this Order. 16. The record supports our findings that allowing interconnected VoIP providers to obtain telephone numbers directly from the Numbering Administrators will achieve a number of benefits. Both Vonage and VON assert that allowing interconnected VoIP providers to access numbers directly from the Numbering Administrators will improve efficiencies, provide greater control over call routing, and enhance the quality of service provided to customers. 45 As SmartEdgeNet explains, [b]ecause interconnected VoIP providers who do their own numbering will be identified in the Local Exchange Routing Guide ( LERG ) and similar industry databases, other providers will be able to determine more easily with whom they are exchanging traffic, which should lead to the development of new and more 40 See, e.g., Bandwidth Comments at 9-10 (asserting that direct access poses a risk to traffic integrity because if noncarriers can use numbers to route traffic in ways outside of the number-assigned carrier s control, it could lead to consumer harms in the form of spoofing, fraud, or call failures). 41 See, e.g., id. at See, e.g., id. at 9-10; Terra Nova Telecom Comments at See, e.g., Bandwidth Comments at 7-8, 10; see also infra Sections III.B.5.c. and III.B.5.d. (discussing intercarrier compensation, and call routing and termination, issues). 44 See, e.g., Bandwidth Comments at 11-12; NTCA Comments at See Vonage Comments at 5-6 (asserting that interconnected VoIP providers will be able to reduce their reliance on third-party providers once they have direct access to numbers); VON Comments at 3-4 (explaining that the Commission s proposed rule will make it easier to determine who is ultimately responsible when problems arise, thereby streamlining the channels through which those problems can be resolved ); see also Letter from Brita D. Strandberg, Counsel to Vonage Holdings Corp., to Marlene H. Dortch, Secretary, FCC, WC Docket No et al., at 2 (filed Apr. 11, 2014) (Vonage Apr. 11, 2014 Ex Parte Letter) ( During the trial, Vonage found that the routing enabled by direct access measurably improved call quality. ). 7
8 efficient traffic exchange and call termination arrangements. 46 We find that allowing interconnected VoIP providers to access numbers directly from the Numbering Administrators will increase the transparency of call routing, and that in turn will enhance carriers ability to ensure that calls are being completed properly. This enhanced ability is of value in addressing concerns about rural call completion. The Commission has recognized problems in completing calls to rural areas, as well as concerns about the quality of service when calls are completed. 47 To help remedy these issues, the Commission now requires certain long-distance service providers, including interconnected VoIP providers in some cases, to record, retain, and report on call attempts to rural areas. 48 The Commission determined that these requirements will help providers and regulators identify the source of problems and take corrective action. 49 We expect that interconnected VoIP provider use of numbers obtained directly from the numbering administrators, rather than through carrier partners, will enable more expedient troubleshooting of problematic calls to rural Local Exchange Carriers (LECs) that may originate from interconnected VoIP providers, as well as enabling greater visibility into number utilization. 17. The record also reflects that permitting interconnected VoIP providers to obtain numbers directly from the Numbering Administrators will improve competition and benefit consumers. For example, Flowroute asserts that direct access will increase efficiency and facilitate increased choices for American consumers. 50 Vonage maintains that allowing interconnected VoIP providers to obtain numbers will improve competition in the voice services market, 51 broadening the options for consumers and reducing costs by eliminating the middleman for telephone numbers. 52 Vonage asserts that, as a result of the competitiveness of the voice market, this savings will be passed directly to consumers in the form of reduced prices, improved service, and additional features. 53 Similarly, VON argues that easier and less costly access to numbers will allow VoIP providers to more vigorously compete in the voice services market, which can be expected to result in lower prices for consumers, and the wider variety of creative services developed and offered as a result of allowing direct access to numbers will lead to public benefits in the form of greater and more meaningful choices. 54 The record demonstrates that to the 46 SmartEdgeNet Comments at Rural Call Completion, WC Docket No , Report and Order and Further Notice of Proposed Rulemaking, 28 FCC Rcd (2013) (Rural Call Completion Order and NPRM). 48 See id. at 16164, para. 19 n.56, , paras See id. at 16155, paras. 1-2, 16164, para Flowroute Comments at 2. Flowroute is a self-described provider of IP-enabled telephone services. 51 See Vonage Comments at 1. Vonage notes that Congress recognized the importance of telephone numbers to competition when it mandated that numbers be made available on an equal basis in the Telecommunications Act of The Commission has a long history of vindicating this statutory goal, and has removed obstacles to competitive entry by mandating nondiscriminatory access for competitive LECs, Commercial Mobile Radio Service (CMRS) providers, and others. Id. 52 See id. at 8; see also Direct Access NPRM, 26 FCC Rcd at 5851, para. 14 n.52 (citing Vonage s assertion that moving to IP interconnection will reduce its costs by allowing Vonage to reduce its reliance on wholesale-third party networks); AT&T Comments at ii (noting that interconnected VoIP providers want to provide telephone numbers to their customers in the most efficient and cost-effective way possible ). 53 Vonage Comments at 8-9; see also SmartEdgeNet Comments at 2-5 (asserting that removal of legacy regulatory barriers, as proposed in the Direct Access NPRM, will enable interconnected VoIP providers to move beyond expensive and inefficient arrangements with telecommunications service providers and lower costs and prices, and increase interconnected VoIP providers operational flexibility ); Vonage Apr. 11, 2014 Ex Parte Letter at 2 (explaining that lower costs also generate indirect consumer benefits by supporting further funding of new product development). 54 VON Comments at 3. Millicorp agrees that authorizing interconnected VoIP providers to obtain numbers directly from the Numbering Administrators will reduce customer costs, explaining that direct access to numbers will prevent it from having to purchase Primary Rate Interface services from competitive LECs simply to obtain (continued ) 8
9 extent that authorizing interconnected VoIP providers to obtain numbers directly from the Numbering Administrators may facilitate direct IP interconnection, it will also facilitate deployment of advanced services such as HD voice Further, we find, based on the record, that to the extent permitting interconnected VoIP providers to obtain numbers directly from the Numbering Administrators may also facilitate direct IP interconnection, [t]his will result in the expansion of the broadband infrastructure necessary to support VoIP, and will further the Commission s goals of accelerating broadband deployment and ensuring that more people have access to higher quality broadband service We also find that authorizing interconnected VoIP providers to request numbers directly from the Numbering Administrators will eliminate unnecessary inefficiencies and associated expenses. 57 We further are persuaded that having a presence in the routing guide (the LERG) may encourage VoIP interconnection 58 and lead to enhanced innovation. 59 We anticipate, based on the record, that authorizing direct access to numbers for interconnected VoIP providers will promote VoIP interconnection. 60 Finally, (Continued from previous page) numbers. According to Millicorp, eliminating this added cost could increase its ability to compete with traditional telephony providers and decrease the cost of providing VoIP services to customers. See Direct Access NPRM, 26 FCC Rcd at 5852, para. 15 n.59 (citing Millicorp Petition at 3). 55 VON Comments at 4 (maintaining that by facilitating VoIP interconnection, direct access will eliminate the need for certain protocol conversions necessary for using PSTN interconnections, which will enhance the quality of voice service ); Vonage Comments at 5-6 (asserting that direct VoIP interconnection would allow interconnected VoIP providers to deliver calls in end-to-end IP, which would enhance call quality by eliminating quality loss through conversion from IP to TDM and back to IP, and that direct interconnection for interconnected VoIP providers could also help minimize unnecessary duplication of switching facilities and the associated costs to the ultimate consumer). 56 VON Comments at 4; id. ( As demand for new VoIP services increases and the associated costs of providing these services decline, providers will have greater incentive to expand their offerings to new areas. ). See also 47 U.S.C. 1302(a); Verizon v. FCC, 740 F.3d 623, 644 (D.C. Cir. 2014) (holding that the Commission [had] more than adequately supported and explained its conclusion that edge provider innovation leads to the expansion and improvement of broadband infrastructure ); Inquiry Concerning the Deployment of Advanced Telecommunications Capability to All Americans in a Reasonable and Timely Fashion, and Possible Steps to Accelerate Such Deployment Pursuant to Section 706 of the Telecommunications Act of 1996, as Amended by the Broadband Data Improvement Act, GN Docket No , 2015 Broadband Progress Report and Notice of Inquiry, 30 FCC Rcd 1375, 1451, para. 131 (2015) (2015 Broadband Progress Report). 57 We expect interconnected VoIP providers will continue to use carrier partners in some instances. For example, in areas where the interconnected VoIP provider does not have many customers and thus does not need a block of numbers, it may obtain numbers through a partner rather than directly from a number administrator. This Order does not prohibit those partner relationships. 58 For example, Vonage states that, during the trial, it concluded an agreement for direct VoIP interconnection with Verizon and had moved negotiations for direct VoIP interconnection agreements forward with other providers. Vonage Jan. 13, 2014 Ex Parte Letter at 1. Letter from Brita D. Strandberg, Counsel to Vonage Holdings Corp., to Marlene H. Dortch, Secretary, FCC, WC Docket No et al., at 1 (filed Jan. 13, 2014) (Vonage Jan. 13, 2014 Ex Parte Letter). 59 See supra note The Commission previously found that IP interconnection between providers... is critical to the widespread adoption of IP networks. USF/ICC Transformation Order, 26 FCC Rcd at 18044, para. 1010; see also Technology Transitions Order, 29 FCC Rcd 1433 (acknowledging the importance of modern communications networks and transitioning to an all-ip network); Comcast Comments at 2; Vonage Comments at 3-5; Vonage Reply at 6-7; Vonage Apr. 11, 2014 Ex Parte Letter at 2. 9
10 we observe that permitting interconnected VoIP providers to access numbers directly is consistent with the recognized movement toward an all-ip network. 61 B. Implementation of Direct Access to Numbers for Interconnected VoIP Providers 20. As discussed above, Commission rules require an entity requesting numbering resources to demonstrate that it is authorized to provide service in the area for which it is requesting telephone numbers. 62 Telecommunications carriers are typically required to provide either (1) a Commission license or (2) a CPCN issued by a state regulatory commission in order to obtain numbering resources from the Numbering Administrators. Neither of these authorizations is typically available to interconnected VoIP providers, because state commissions may lack jurisdiction to certify VoIP providers and they are not eligible for a Commission license. 63 Also, the Commission has preempted state entry regulation of certain interconnected VoIP services to the extent that it interferes with important federal objectives. 64 The Commission thus sought comment in the Direct Access NPRM on what, if any, documentation interconnected VoIP providers should be required to show in order to be eligible to obtain telephone numbers directly from the Numbering Administrators, 65 and on specific processes by which an interconnected VoIP provider could demonstrate that it should be eligible to obtain numbers from the Numbering Administrators Today, we establish a new process by which an interconnected VoIP provider without a state certification can obtain a Commission authorization to demonstrate to the Numbering Administrators that it is authorized to provide service under our rules in order to obtain numbers directly from them. We also set forth the conditions that an interconnected VoIP provider obtaining Commission authorization must comply with in order to be eligible to obtain direct access to numbers. As a general matter, we impose on interconnected VoIP providers the same requirements to which carriers are subject. In some respects, however, we impose unique conditions of access on interconnected VoIP providers obtaining a Commission authorization, reflecting the particular circumstances of interconnected VoIP providers, including that (1) interconnected VoIP providers generally receive neither state certification nor a federal license before initiating service, and (2) nomadic interconnected VoIP service need not be tied to a 61 See generally Technology Transitions Order, 29 FCC Rcd 1433; Copper Retirement NPRM, 29 FCC Rcd The Commission has identified three key technology transitions that significantly affect customers: (1) the transition of switched voiced services from legacy TDM and Signaling System No. 7 (SS7) networks to Session Initiation Protocol (SIP)/IP networks; (2) the transition of TDM-based switched voice services to interconnected VoIP services that rely on SIP/IP networks, and relatedly the advent of Voice over LTE (VoLTE) services that will soon be widely available on LTE wireless networks; and (3) the change in the physical layer of last-mile technology, in particular from twisted pairs of copper wire to fiber optics cable, co-axial cable, and wireless technologies. See Technology Transitions Order, 29 FCC Rcd at 1440, paras ; Copper Retirement NPRM, 29 FCC Rcd at 14973, n C.F.R 52.15(g)(2)(i). 63 See Direct Access NPRM, 28 FCC Rcd at 5854, para. 20; see also, e.g., Letter from Randall B. Lowe, Counsel to SmartEdgeNet, to Marlene H. Dortch, Secretary, FCC, CC Docket No (filed June 26, 2012) (stating that at least 24 jurisdictions have precluded their utility commissions from regulating VoIP service, including issuing CPCNs); Numbering Resource Optimization, CC Docket No , Report and Order and Further Notice of Proposed Rulemaking, 15 FCC Rcd 7574, 7613, n.178 (2000) ( [A]ll wireless carriers seeking to use spectrum to provide service in particular geographic areas must be licensed in those areas, under Title III of the Communications Act, by the Commission. ). 64 See Petition of Vonage Holdings Corporation for Declaratory Ruling Concerning an Order of the Minnesota Public Utilities Commission, WC Docket No , Memorandum Opinion and Order, 19 FCC Rcd (2004), aff d sub nom. Minnesota Pub. Utils. Comm n v. FCC, 483 F.3d 570 (8th Cir. 2007). 65 The Commission noted in the Direct Access NPRM that the Bureau, in establishing a permanent solution for the administration of p-ani codes, encountered a similar issue. Direct Access NPRM, 28 FCC Rcd at 5854, para Id. at 5854, paras
11 particular geographic location. 67 These conditions also reflect our understanding of the demand for numbers today, and the ways in which numbering resources may be strained. We find that the terms and conditions set forth below appropriately reflect the unique circumstances that pertain to interconnected VoIP providers and are designed to expand the type of entities that can obtain numbers without unduly straining that limited resource. 1. Requirements to Obtain Commission Authorization 22. We first address what form of documentation interconnected VoIP providers must submit to the Numbering Administrators in order to demonstrate that they have the authority to provide service within specific areas. Among our policy goals are implementing requirements to counteract number exhaust and ensure continuance of efficient number utilization, and providing adequate safeguards to prevent bad actors from gaining direct access to numbers. The extent to which permitting interconnected VoIP providers direct access to numbers could exacerbate number exhaust has not been determined, largely because direct access would to some extent replace, rather than supplement, indirect access by interconnected VoIP providers. We recognize, however, that there are circumstances in which direct access may increase number exhaust within specific geographic areas, and our goal is to address these circumstances. We conclude that the most appropriate documentation to satisfy the required evidence of authority to provide service for interconnected VoIP providers that have not obtained state certification and to meet our stated policy goals of counteracting number exhaust and preventing bad actors from gaining direct access is an authorization issued by the Commission. 68 We therefore require all interconnected VoIP providers without a state certification to obtain Commission authorization prior to filing their initial request for numbers with a Numbering Administrator. This nationwide authorization will fulfill the requirement under the Commission s rules to provide evidence of authorization to provide service. 69 We direct and delegate authority to the Wireline Competition Bureau to implement and maintain the authorization process. 70 Once an interconnected VoIP provider has Commission authorization to obtain numbers, it may request numbers directly from the Numbering Administrators This process is specifically designed to assess the eligibility of interconnected VoIP providers to obtain numbers from a Numbering Administrator. We find that the process we establish today will provide a uniform, streamlined process while also ensuring that that the integrity of our numbering system is not jeopardized. The process also provides an opportunity for states to offer their unique perspective regarding numbering resources within their states, while acting consistent with national numbering policy. 24. As part of the Commission authorization process, the applicant must: comply with applicable Commission rules related to numbering, including, among others, numbering utilization and optimization requirements (in particular, filing NRUF 67 In this way, nomadic interconnected VoIP service is similar to mobile service, but distinct from fixed telephony service. 68 See, e.g., AT&T Comments at 3 (asserting that the Commission should provide an alternative process whereby IPenabled providers can demonstrate that they need, can deploy, and will properly use numbering resources); COMPTEL Comments at 13 (asserting the Commission needs to maintain the certification requirement of section 52.15(g)(2)(i)); Level 3 Comments at See 47 C.F.R (g)(2)(i). 70 This Report and Order s delegation of authority to the Wireline Competition Bureau is limited to the specific delegations made in herein. Unless otherwise within the scope of the Bureau s delegated authority, matters pertaining to the process for authorizing direct access to numbers for interconnected VoIP providers will be decided by the full Commission. See infra paras. 38, 40, and Once an interconnected VoIP provider obtains Commission authorization, we do not require it to notify the Commission of ongoing requests for numbers. 11
12 Reports); 72 comply with guidelines and procedures adopted pursuant to numbering authority delegated to the states; and comply with industry guidelines and practices applicable to telecommunications carriers with regard to numbering; 73 file requests for numbers with the relevant state commission(s) at least 30 days before requesting numbers from the Numbering Administrators; 74 provide contact information for personnel qualified to address issues relating to regulatory requirements, compliance, 911, and law enforcement; 75 provide proof of compliance with the Commission s facilities readiness requirement in section 52.15(g)(2) of the rules; certify that the applicant complies with its Universal Service Fund (USF) contribution obligations under 47 C.F.R. part 54, subpart H, its Telecommunications Relay Service (TRS) contribution obligations under 47 C.F.R (c)(5)(iii), its NANP and local number portability (LNP) administration contribution obligations under 47 C.F.R and 52.32, its obligations to pay regulatory fees under 47 C.F.R , and its 911 obligations under 47 C.F.R. part 9; and certify that the applicant has the requisite technical, managerial, and financial capacity to provide service. This certification must include the name of the applicant s key management and technical personnel, such as the Chief Operating Officer and the Chief Technology Officer, or equivalent, and state that none of the identified personnel are being or have been investigated by the Commission or any law enforcement or regulatory agency for failure to comply with any law, rule, or order. We explain more fully these requirements below. 25. We find that the measures outlined above will ensure that interconnected VoIP providers are able to obtain numbers with minimal burden or delay, while simultaneously preventing providers from obtaining numbers without first demonstrating that they can deploy and properly utilize those resources. Requiring commitments to comply with the Commission s number utilization and optimization rules and to file 30 day notices of intent to request numbers with the relevant state commission before making the request with the Numbering Administrators will help to meet our goal of efficient number utilization. In addition, requiring proof of compliance with the Commission s facilities readiness requirement will ensure that only interconnected VoIP providers that are prepared to provide service can gain direct access to numbers. We conclude that authorization by a state or the Commission is necessary to protect against number exhaust, as well as to ensure competitive neutrality among traditional telecommunications carriers and interconnected VoIP providers in the competitive market for voice services. 76 As such, we reject assertions by commenters that a documentation requirement is unnecessary, and that interconnected VoIP providers should not be required to prove their eligibility and capability to provide service prior to 72 See 47 C.F.R. Part See, e.g., AT&T Comments at 3-4; COMPTEL Comments at 10; Pennsylvania PUC Comments at Although we establish a process to grant interconnected VoIP providers a blanket authorization to allow them to request numbers anywhere in the country, we strongly encourage applicants to submit a list of the states in which they intend to request numbers as an attachment to their authorization applications. 75 C.f., e.g., Wisconsin PSC Comments at 6 (stating that an interconnected VoIP provider should be required to register its contact information with the relevant state commission prior to requesting numbers for that state). 76 We observe that the authorization process is also designed to ensure that today s decision to allow interconnected VoIP providers to request and obtain numbers directly from the Number Administrators will not increase risks to public safety or increase the vulnerability of Numbering Administrators. 12
13 receiving number authorization. 77 We also find that the process set forth above is better targeted to demonstrating authorization to provide service than reliance on the filing of an FCC Form 499-A or 477 by an interconnected VoIP provider. 78 Those forms do not demonstrate commitments to comply with the Commission s rules and specific numbering requirements or reflect that an applicant has the appropriate technical, managerial, and financial capacity to provide service. 79 Further, as a practical matter, a new interconnected VoIP provider seeking direct access to numbers as part of launching a new service may not have a Form 477 on file at the time that it seeks to obtain numbers The Pennsylvania Public Utility Commission proposed that the Commission create a formal process to allow states to refer concerns about the numbering practices of any provider to the Commission and the NANPA, and that the Commission also require states to develop and implement their own review and challenge processes. 81 We do not adopt any new processes, or require states to develop and implement their own review and challenge processes in instances where the Commission, rather than the state, is responsible for certification. 82 Section 52.15(g)(5) of the Commission s rules currently grants the states access to service providers applications for telephone numbers. 83 Armed with this information, states are able to contact the Numbering Administrators directly about concerns with number requests for their states. And states may, of course contact the Commission or the Bureau to discuss any specific concerns. We find that the processes already in place, combined with the advance notice of number requests we require interconnected VoIP providers to provide to state commissions, 84 ensure the integrity of the number assignment process without needlessly blocking or delaying number assignments to interconnected VoIP providers. a. Compliance with Number Administration Rules and Guidelines 27. Commission rules and industry practice ensure and facilitate effective administration of the NANP and prevent number exhaust. As such, it is important that we make clear that interconnected VoIP providers that obtain a Commission authorization to enable direct access to numbering resources will be subject to the Commission s numbering rules 85 and industry guidelines and practices for numbering applicable to telecommunications carriers. These requirements include, inter alia, filing 77 See SmartEdgeNet Comments at 16 (arguing that self-certification, similar to the blanket authority available for all entities that seek to provide domestic telecommunications services, should be sufficient as a practical matter). 78 See Direct Access NPRM, 28 FCC Rcd at , para. 21; Flowroute Comments at 5-6 (asserting that FCC Form 499-A, FCC Form 477, and authorizations under section 214 of the Act, either standing alone or in some combination, should be sufficient documentary evidence that an interconnected VoIP provider is authorized to provide services); Vonage Comments at 14 (suggesting that in the place of using Form 477, the Commission consider the use of Form 499-A, which requires identifying information about a provider, as well as information about where the provider will or does provide service); SmartEdgeNet Comments at (asserting that proof that an interconnected VoIP provider has obtained an FCC Registration Number should be sufficient documentation). 79 See NTCA Comments at 5; Level 3 Comments at See Vonage Comments at See Pennsylvania PUC Comments at See, e.g., Pennsylvania PUC Comments at 18-19; Michigan PSC Comments at 3-4 (recommending that the Commission delegate authority to the states to license or certify interconnected VoIP providers to prove that the providers have the necessary capabilities to provide service, or alternatively, give states the option to designate a VoIP provider as an eligible number recipient to allow better communication between the states and the Commission). 83 See 47 C.F.R 52.15(g)(5). 84 See supra Section III.B.1.b. 85 See 47 C.F.R. Part
14 NRUF reports, 86 complying with Commission requirements to obtain additional numbers in a rate center, 87 and adhering to the numbering authority delegated to state commissions for access to data and number reclamation. 88 The Commission required participants in the technical trial to comply with specific number utilization and optimization requirements, including abiding by the numbering authority delegated to state commissions and filing NRUF reports, as well as industry guidelines and practices. 89 These requirements contributed to the overall success of the trial by allowing the Commission, states, and Numbering Administrators to monitor the utilization of the number resources involved. Because of this experience, and for the reasons discussed below, we conclude that these requirements are a necessary component of interconnected VoIP providers obtaining access to numbers permanently. Accordingly, we require interconnected VoIP providers that receive Commission authorization to obtain telephone numbers directly to comply with each of the Commission s number administration requirements, 90 including any state requirements pursuant to numbering authority delegated to the states by the Commission. 91 Moreover, interconnected VoIP providers relying on a Commission authorization to obtain numbers directly must also comply with industry guidelines and practices applicable to telecommunications carriers for numbering Interconnected VoIP providers compliance with number administration requirements is key to the Commission s allowing their direct access to numbers, and no commenter argued that these requirements should not apply to them. 93 As we discuss below, failure to comply with these obligations could result in revocation of the Commission s authorization, the inability to obtain additional numbers pending that revocation, reclamation of un-assigned numbers already obtained directly from the Numbering Administrators, or enforcement action. 94 Requiring interconnected VoIP providers that obtain numbers directly from the Numbering Administrators to comply with the same numbering requirements and 86 All carriers that receive telephone numbers from the Numbering Administrators must file NRUF reports semiannually of their current inventory of telephone numbers. See 47 C.F.R (f)(5) (6). NRUF data are used to forecast the exhaust date for each Numbering Plan Area, or area code, as well as the exhaust date for the entire NANP. 87 See 47 C.F.R (g)(3). 88 See 47 C.F.R. Part 52. The Commission has delegated state commissions authority over number reclamation, 47 C.F.R (i), and given them access to the semi-annual NRUF reports, as well as carriers applications for initial and additional number resources. See 47 C.F.R (f)(7), (g)(5). State commissions access to these data permits them to discuss with carriers their need for numbers and to object to number requests. The Commission has also delegated to state commissions the authority to affirm or overturn a Numbering Administrator s decision to withhold numbers from a carrier, and to implement mandatory thousands-block number pooling. See 47 C.F.R (g)(3)(B)(iv), (g)(4). Section addresses the state roles in area code relief. 47 C.F.R See Direct Access NPRM, 28 FCC Rcd at 5883, para The Commission also required participants to comply with a number of conditions recommended by the states. See supra para. 10 and infra Section III.B See 47 C.F.R. Part 52; Direct Access NPRM, 28 FCC Rcd at 5855, para. 22 (proposing to impose these requirements if the Commission grants interconnected VoIP providers direct access to numbers). 91 See supra note Such practices would include, for example, maintaining the original rate center designation of all numbers in their inventory, in the same manner that wireline and wireless carriers do today. See California PUC Comments at 18-19; Pennsylvania PUC Comments at 20; but see AT&T Comments at 15 (noting that it would object to this requirement when TDM is no longer the default communications format). 93 See, e.g., CenturyLink Comments at 6 (stating that being able to directly obtain phone numbers and assign them to customers carries with it rights and responsibilities that should apply equally). 94 See infra Section III.B.4. 14
15 industry guidelines as carriers will help alleviate many concerns about telephone number exhaust, 95 and will help ensure competitive neutrality among providers of voice services. 96 Further, by imposing number utilization and reporting requirements directly on interconnected VoIP providers, we expect to have greater visibility into number utilization. For example, under our current rules, a service provider obtaining numbers directly from the Numbering Administrators must file Months-to-Exhaust Worksheets showing that it has used at least 75 percent of its numbering resources in a rate center before obtaining additional numbers in that rate center. 97 Currently, most interconnected VoIP providers utilization information is imbedded in the NRUF data of the carrier from which it purchases a Primary Interface Line. 98 Under our new requirement, the NANPA will receive NRUF reports directly from the interconnected VoIP provider that is actually serving the end user customer. 99 This increased visibility will allow the Commission to better monitor, and take steps to limit, number exhaust We note also that we are requiring interconnected VoIP providers applying for direct access to numbers to certify that they comply with their existing USF contribution obligations under 47 C.F.R. part 54, subpart H, TRS contribution obligations under 47 C.F.R (c)(5)(iii), NANP and LNP administration contribution obligations under 47 C.F.R and 52.32, obligations to pay regulatory fees under 47 C.F.R , and 911 obligations under 47 C.F.R. part 9. Requiring this certification of compliance with existing rules further ensures that the applicant is a company in good standing. 30. Intermediate Numbers. Among other things, NRUF reporting requires carriers to report how many of their numbers have been designated as assigned or intermediate. This designation affects the utilization percentage the percentage of the total numbering inventory that is assigned to customers for use of the reporting carrier. 101 An intermediate number is one that is made available to a carrier or non-carrier entity from another carrier, but has not necessarily been assigned to an end-user or customer by the receiving carrier or non-carrier entity. 102 An assigned number is one that has been 95 See Direct Access NPRM, 28 FCC Rcd at 5855, para. 22; see also Windstream Reply at 7; SmartEdgeNet Comments at 5, (asserting that authorizing interconnected VoIP providers to obtain telephone numbers directly will not exacerbate number exhaust as telephone number usage by landline providers will decline and interconnected VoIP, a substitute for traditional telephone service, will not create a significant demand for new telephone numbers.). 96 See, e.g., COMPTEL Comments at 15 (asserting that the Commission should examine what modifications are necessary to ensure equitable treatment among all competitive providers); Level 3 Comments at 4 (asserting that proposed requirements should be judged by whether they are competitively neutral). 97 See 47 C.F.R (g)(3), (h). 98 See Direct Access NPRM, 28 FCC Rcd at , para. 105, n See id. at 5856, para. 22; see also Vonage Comments at 8 (explaining that under the existing regime, numbering partners utilization reports reflect only their use of numbers not their interconnected VoIP provider customers use; thus, a carrier s report could include numbers for multiple interconnected VoIP providers that obtain numbers on a wholesale basis from the carrier numbers that may not actually be in use by those interconnected VoIP providers and an interconnected VoIP provider s numbers could be spread among multiple carriers); VON Comments at 3-4; see also Letter from Brita D. Strandberg, Counsel to Vonage Holdings Corp., to Marlene H. Dortch, Secretary, FCC, CC Docket No , at 2 (filed July 31, 2012); Letter from Brita D. Strandberg, Counsel to Vonage Holdings Corp., to Marlene H. Dortch, Secretary, FCC, CC Docket No , at 2 (filed Mar. 21, 2012). 100 See Direct Access NPRM, 28 FCC Rcd at 5856, para. 22; Comcast Comments at 6; Vonage Comments at The numbering utilization level is calculated by dividing all assigned numbers by the total numbering resources in the applicant s inventory and multiplying the result by 100. See 47 C.F.R (g)(3)(ii) C.F.R (f)(v) ( Intermediate numbers are numbers that are made available for use by another telecommunications carrier or non-carrier entity for the purpose of providing telecommunications service to an end user or customer. ). 15
16 assigned to a specific end-user or customer. 103 Only assigned numbers are taken into account in the numerator of the utilization ratio when determining when a carrier or, once these rules take effect, an interconnected VoIP provider can obtain additional numbers; 104 thus, there is an incentive for carriers and interconnected VoIP providers to categorize as assigned as many numbers as possible. 31. As discussed in the Direct Access NPRM, when a number is allocated to a carrier and the carrier assigns that number to a wholesale customer, such as an interconnected VoIP provider, section 52.15(f)(1)(v) of the Commission s rules requires that these numbers be reported as intermediate on the carrier s NRUF report until the numbers have been assigned to a retail end user. In practice, however, these numbers are often identified as assigned, whether or not the interconnected VoIP provider has a retail end-user customer for the number. In the Direct Access NPRM, the Commission sought comment on how to revise the definition of intermediate numbers or assigned numbers to ensure consistency among all reporting providers Based on the record before us and the Commission s understanding that interpretation questions have arisen in certain respects regarding section 52.15(f)(1)(iii) of the rules, 106 we conclude that it is necessary to clarify that numbers provided to carriers, interconnected VoIP providers, or other noncarrier entities by numbering partners should be reported as intermediate, and do not qualify as end users or customers as those terms are used in the definition of assigned numbers in section 52.15(f)(1)(iii) of the Commission s rules. 107 This clarification is necessary in order to provide consistency and accuracy in number reporting and to limit telephone number exhaust. The record indicates that carriers are not reporting the use of numbers under the intermediate category consistently, 108 and that there are widely differing interpretations of the definition of intermediate numbers and the requirement to report numbers in the intermediate category. 109 For example, some carriers, whether they hold intermediate numbers in their inventories or allocate them to another service provider, treat all of their intermediate numbers as assigned for reporting purposes. 110 Uniform definitions for number reporting allow the Commission to monitor individual carriers and their use of numbering resources to ensure efficient use of those resources and that the NANP is not prematurely exhausted. To achieve these goals, the Commission must obtain consistent, accurate, and complete reporting from carriers. Allowing carriers to continue to report numbers transferred to a carrier partner as assigned, instead of intermediate, C.F.R (f)(iii) ( Assigned numbers are numbers working in the Public Switched Telephone Network under an agreement such as a contract or tariff at the request of specific end users or customers for their use, or numbers not yet working but having a customer service order pending ). 104 See supra note Direct Access NPRM, 28 FCC Rcd at 5856, para See, e.g., California PUC Comments at (explaining that it has long expressed its frustration with carrier treatment of intermediate numbers and recommending eliminating the intermediate category, or defining end user for numbering purposes as the retail end user); AT&T Comments at 6 (noting that as early as 2002, the industry had already recognized that carriers seeking to apply the Commission s number reporting directives were not all reporting intermediate numbers and assigned numbers in the same way); Michigan PSC Comments at 6 (recommending that the definitions of intermediate and assigned numbers be amended in a way that allows for proper identification of intermediate numbers); Pennsylvania PUC Comments at 15 (supporting revised rules that eliminate the wholesale partnering practices engaged in intermediate numbering). See also the North American Numbering Council (NANC) report and recommendation informing the Commission that industry members find the references to intermediate numbers and inventory in the Commission orders and rules to be confusing and conflicting. Letter from Robert Atkinson, Chair, NANC, to William Maher, Chief, WCB (dated Jan. 29, 2003) C.F.R (f)(1)(iii). 108 AT&T Reply at California PUC Comments at Id. at
17 would ultimately defeat our goals by gathering inaccurate information as to how many numbers are actually assigned to end-user customers. 111 Thus, for purposes of Part 52 of our rules, we make clear that the terms end users and customers do not include telecommunications carriers and non-carrier voice or telecommunication service providers. While this clarification of our rules may be less critical after our action taken today, as noted elsewhere in this Order there will be instances in which interconnected VoIP providers continue to use carrier partners. 112 Therefore, it is still important to clarify the definition of assigned number in our rules. b. 30-day Notice Requirement 33. In the SBCIS Waiver Order, the Commission required SBCIS, now AT&T Internet Services, to file any requests for numbers with the Commission and the relevant state commissions at least 30 days prior to requesting numbers from the Numbering Administrators. 113 The 30-day notice period has allowed the Commission and states to monitor SBCIS s number utilization and to take measures to conserve resources, if necessary, such as determining which rate centers are available for number assignments. 114 In the Direct Access NPRM, the Commission sought comment on imposing this requirement on all interconnected VoIP providers that obtain numbers, asking whether this requirement actually furthers the Commission s goal of ensuring number optimization. 115 The Commission also sought comment on whether it should adopt a rule providing an opportunity for states whose commissions lack authority to provide certification for interconnected VoIP service to be given a formal opportunity to object to the assignment of numbers to these providers Based on our experience with SBCIS/AT&T Internet Services filings and the record in this proceeding, we require interconnected VoIP providers to file notices of intent to request numbers with relevant state commissions, on an on-going basis, at least 30 days prior to requesting numbers from the Numbering Administrators. We agree with commenters that providing 30-days notice to state commissions contributes to the efficient utilization of our numbering resources. 117 These filings will allow the states to monitor number usage and raise any concerns about the request with the service provider, the Commission, and the Numbering Administrators. Having 30-days notice of a number request allows state commissions to advise interconnected VoIP providers as to which rate centers have excess blocks of numbers available. This notice period also gives state commissions the opportunity to determine, as they currently do with carriers, whether the request is problematic for any reason, such as the provider s failure to submit timely NRUF reports or meet the utilization threshold necessary to obtain additional numbers We do not, however, require 30-days notice to be provided to the Commission, as required in the SBCIS Waiver Order. While this information is used by the states to, among other things, determine if the numbering request would be problematic in that state, the Commission will have access to this information once it is made available to the Numbering Administrators. Therefore, we conclude that it is unnecessary to require interconnected VoIP providers to give the Commission a separate 30- days notice of their intent to request numbers from the Numbering Administrators. 111 Michigan PSC Comments at 6; Pennsylvania PUC Comments at Cf. supra note 57 and infra para Direct Access NPRM, 28 FCC Rcd at 5858, para Id. 115 Id. 116 Id. at 5855, para California PUC Comments at See, e.g., Joint State Comments at
18 c. Facilities Readiness Requirement 36. The Commission s rules require that before obtaining numbers, a provider must demonstrate that it is or will be capable of providing service within sixty (60) days of the numbering resources activation date what we call facilities readiness. 119 In the SBCIS Waiver Order, the Commission found that in general, SBCIS should be able to satisfy the requirement using the same type of information submitted by carriers, such as an interconnection agreement approved by a state commission. The Commission noted, however, that if SBCIS was unable to provide a copy of such agreement, it could submit evidence that it had ordered interconnection service pursuant to a tariff that is generally available to other providers of IP-enabled services. 120 In the Direct Access Trial Report, interconnected VoIP providers were permitted to demonstrate facilities readiness by showing the combination of an agreement between the interconnected VoIP provider and its underlying carrier and an interconnection agreement between that underlying carrier and the relevant incumbent carrier Based on our experience with SBCIS/AT&T Internet Services and the record in this proceeding, we require interconnected VoIP providers that request telephone numbers from the Numbering Administrators to comply with the facilities readiness requirement in section 52.15(g)(2) of our rules, consistent with the requirements imposed on other providers of competitive voice services. We agree with commenters that an important aspect of direct access is that calls are interconnected with the Public Switched Telephone Network (PSTN) and terminated properly. 122 A key difference between facilities readiness compliance with section 52.15(g)(2)(ii) in the context of interconnected VoIP providers seeking to obtaining numbers and in other contexts where the rule applies is that an interconnected VoIP provider seeking to access numbers directly need not have a carrier partner in order to provide service. As such, because the Commission has not classified interconnected VoIP services as telecommunications services or information services, nor has it otherwise addressed the interconnection obligations associated with interconnected VoIP service as a general matter, 123 interconnected VoIP providers do not have any clearly established requirement, outside of the facilities readiness compliance context, to interconnect with a carrier that files tariffs. 124 Therefore, we permit an interconnected VoIP provider that has obtained Commission authorization to request numbers directly to demonstrate proof of facilities readiness by (1) providing a combination of an agreement between the interconnected VoIP provider and its carrier partner and an interconnection agreement between that carrier and the relevant C.F.R (g)(2). 120 See SBCIS Waiver Order, 20 FCC Rcd at 2962, para. 10; Direct Access NPRM, 28 FCC Rcd at 5858, para Direct Access Trial Report, 29 FCC Rcd at 937, para See, e.g., COMPTEL Comments at 14; Windstream Reply at 8; AT&T Comments at 10 (advocating that the Commission should permit an applicant to certify that it will use its numbers in universal connectivity, whereby all persons with telephone numbers can reach the applicant s customers, and conversely, all the applicant s customers can reach all other persons with telephone numbers); CenturyLink Comments at 10 (suggesting that proof of facilities readiness could take the form of certifications of having purchased products pursuant to carrier tariffs or having entered into commercial agreements with carriers for the exchange of traffic or other mechanisms); Level 3 Comments at 6 (agreeing with AT&T s proposal that what is relevant is whether the provider has access to the PSTN, not whether the provider has obtained services from one carrier serving the area as opposed to another); see also Vonage Comments at (supporting a flexible definition of facilities readiness that would allow interconnected VoIP providers to demonstrate that they have commercial agreements in place to enable connectivity to the PSTN through alternative marketplace solutions, such as traffic-exchange agreements or an alternative tandem provider, and further stating that the interconnected VoIP provider must also confirm that the partner carrier has the capability to properly route or complete calls). 123 See, e.g., USF/ICC Transformation Order, 26 FCC Rcd at , paras ; tw telecom inc. Petition for Declaratory Ruling Regarding Direct IP-to-IP Interconnection, WC Docket No (filed Jun. 30, 2011). 124 The Commission has addressed the application of certain prohibitions on blocking traffic in the context of VoIP services, however. See USF/ICC Transformation Order, 26 FCC Rcd at 17903, para. 734, , paras
19 local exchange carrier (LEC), or (2) proof that the interconnected VoIP provider obtains interconnection with the PSTN pursuant to a tariffed offering 125 or a commercial arrangement (such as a TDM-to-IP or a VoIP interconnection agreement) that provides access to the PSTN. 126 The interconnected VoIP provider need not demonstrate that the point where it delivers traffic to or accepts traffic from the PSTN is in any particular geographic location so long as it demonstrates that it is ready to provide interconnected VoIP service, which is by definition service that [p]ermits users generally to receive calls that originate on the public switched telephone network and to terminate calls to the public switched telephone network Procedure for Requesting Commission Authorization 38. In order to streamline the processing of an interconnected VoIP provider s application for authorization to obtain numbers called the Numbering Authorization Application we have established a mechanism for these applications within the Commission s Electronic Comment Filing System (ECFS). We delegate authority to the Bureau to oversee this mechanism and the processing of these applications. The mechanism we have established includes a Submit a Non-Docketed Filing module that facilitates filing of these applications into a single docket where all such applications must be filed. 128 When making its submission, the applicant must select VoIP Numbering Authorization Application from the Submit a Non-Docketed Filing module within ECFS, or successor online-filing mechanism. 129 The filing must include the application, as well as any attachments See Bandwidth Comments at 18 (recommending that the Commission retain the requirement that non-carriers meet the facilities readiness requirement through publicly filed agreements or tariffed arrangements to prevent ILECs from engaging in discriminatory tactics). 126 See Inteliquent, Terminating Services, (last visited Apr. 10, 2015); see also Neutral Tandem Dec. 27, 2011 Public Notice Comments, CC Docket No , at 1 (filed Jan. 25, 2012); Neutral Tandem, Inc., d/b/a Inteliquent USF/ICC Transformation FNPRM Reply, WC Docket No et al., at n U.S.C. 153(25); 47 C.F.R The Commission may make available other online-filing capabilities to streamline this process. See 47 C.F.R. 1.49(f)(3). 129 All electronic filings must be in an open format, which means machine-readable and made available to the public without restrictions that would impede re-use of the information. See Open Government Directive (Dec. 8, 2009), Files containing text must be formatted to allow electronic searching and/or copying. Non-text filings (e.g., spreadsheets) must be submitted in the format in which they were created. Filers should be certain that documents are not locked or password-protected. If those restrictions are present (e.g., a document is locked), the system may reject the filing, and a party will need to resubmit its document within the filing deadline. The Commission will consider granting waivers to this electronic filing requirement only in exceptional circumstances. See Amendment of Certain of the Commission s Part 1 Rules of Practice and Procedure and Part 0 Rules of Commission Organization, GC Docket No , Report and Order, 26 FCC Rcd 1594, 1602, para. 20 & n.61 (2011) (Part 1 Order). 130 There is an exception to this electronic filing requirement for confidential filings. Consistent with existing Commission electronic filing guidelines, any party asserting that materials filed with an application are proprietary must file with the Commission, using ECFS, a public version of the materials with any proprietary information redacted. See 47 C.F.R (a)(2). The party also must file with the Secretary s Office an unredacted hard copy version that contains the proprietary information and clearly marks each page, or portion thereof, using bolded brackets, highlighting, or other distinct markings that identify the sections of the filing for which a proprietary designation is claimed. Each page of the redacted and unredacted versions must be clearly identified as the Public Version or the Confidential Version, respectively. Both versions must be filed on the same day. Parties may serve a copy of the unredacted version on the Wireline Competition Bureau, Competition Policy Division. 19
20 39. Bureau staff will first review VoIP Numbering Authorization Applications for conformance with procedural rules. 131 Assuming that the applicant satisfies this initial procedural review, Bureau staff will assign the application its own case-specific docket number and release an Accepted- For-Filing Public Notice, seeking comment on the application. The Public Notice will be associated with the docket established for the application. All subsequent filings by the applicant and interested parties related to this application must be submitted via ECFS in this docket. Parties wishing to submit comments addressing the request for authorization should do so as soon as possible, but no later than 15 days after the Commission releases an Accepted-For-Filing Public Notice, unless the public notice sets a different deadline. 40. As part of the CPCN certification process, states generally evaluate the fitness of the entity before granting a CPCN authorizing the entity to provide service in that state. In the case of interconnected VoIP providers that request numbers directly pursuant to a Commission authorization, it falls to the Commission to ensure the fitness of the entity and its principals to administer numbers, ensure that telephone numbers are not stranded, and maintain efficient utilization of numbering resources. On the 31 st day after the Accepted-For-Filing Public Notice is released, the application will be deemed granted unless the Bureau notifies the applicant that the grant will not be automatically effective. The Bureau may halt this auto-grant process if (1) an applicant fails to respond promptly to Commission inquiries, (2) an application is associated with a non-routine request for waiver of the Commission s rules, (3) timely-filed comments on the application raise public interest concerns that require further Commission review, or (4) the Bureau determines that the request requires further analysis to determine whether a request for authorization for direct access to numbers would serve the public interest. To enable this process, we also delegate authority to the Bureau to make inquiries and compel responses 132 from an applicant regarding the applicant and its principals past compliance with applicable Commission rules Once an interconnected VoIP provider s Numbering Authorization Application is granted or deemed granted, the applicant can immediately proceed to provide states from which it intends to request numbers the required 30-days notice. If the Bureau issues a public notice announcing that the application for authorization will not be automatically granted, the interconnected VoIP provider may not provide 30-days notice and obtain numbers until the Bureau announces in a subsequent order or public notice that the application has been granted. 134 This process strikes a proper balance between expeditiously authorizing interconnected VoIP provider requests for direct access to numbers, while providing an opportunity to consider more fully those requests that raise concerns. 3. Additional Requirements to Obtain Numbers 42. In the Direct Access NPRM, the Commission sought comment on the Wisconsin Public Service Commission s proposal to adopt certain measures that would give state commissions oversight of interconnected VoIP providers that obtain telephone numbers. 135 Specifically, the Wisconsin PSC recommended the following conditions for direct access: (1) providing the relevant state commission 131 Bureau staff will check the applicant s status under the Commission s red light rule, which restricts processing of applications filed by parties with outstanding debts owed to the Commission. See 47 C.F.R Bureau staff will also verify that the applicant filed its Form 477 and Form 499 forms, if applicable. 132 Any subpoenas issued by the Bureau under this delegation of authority must be issued consistent with the requirements in section 0.291(f) of the rules. See 47 C.F.R (f). 133 We note that, at the Bureau s discretion, certain past violations may serve as a basis for denial of an application, such as, for example, repeated or egregious violations or instances of fraud or misrepresentation to the Commission. 134 See, e.g., 47 C.F.R (c) (establishing a similar process to grant section 214 discontinuance applications allowing for an automatic grant after a specified number of days following the release of a notice to the public). 135 Direct Access NPRM, 28 FCC Rcd at 5859, para