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Derived From: Angie A. Welborn, Charles B Goldfarb, Defining Cable Broadband Internet Access Service: Background and Analysis of the Supreme Court's Brandx Decision, CRS Report for Congress RL32985 (July 7, 2005)
FCC’s Regulatory Authority under the Communications Act
Title I of the Communications Act states that the act "applies to all interstate and foreign communications by wire or radio," [47 U.S.C. 152(a)] and the legislative history of the act indicates that the FCC has "regulatory power over all forms of electrical communication," even those not explicitly mentioned in the act. [S. Rep. No. 73-781, at 1 (1934). See also United States v. Southwestern Cable Co., 392 U.S. 157 (1968).] Title I confers upon the Commission the authority to promulgate regulations "reasonably ancillary to the effective performance of the Commission's various responsibilities" outlined elsewhere in the act.
In contrast to Title I, Title II of the Communications Act, imposes certain specific requirements on common carriers in their provision of telecommunications services. Generally, Title II requires common carriers to provide service "upon reasonable request therefor," and at a "just and reasonable" rate. [47 U.S.C. 201] Under Title II, common carriers are also required to provide services without "unjust or unreasonable discrimination in charges, practices, classifications, regulations, facilities, or services." [47 U.S.C. 202] In addition, the act requires certain carriers to provide potential competitors with access to their network. [47 U.S.C. 251(a) (establishing general duties of common carriers) and 251(c)(2) and (3) (relating to duties of incumbent local exchange carriers). See also 47 U.S.C. 201(a) (requiring nondiscriminatory access).] Entities regulated under Title II may also be subject to additional requirements governing universal service support, the provision of disability access, public safety, consumer protection, and law enforcement access.
FCC's Declaratory Ruling and Rulemaking
In 2002, the Federal Communications Commission issued a Declaratory Ruling and Notice of Proposed Rulemaking regarding the provision of Internet services over cable connections to address the legal status of such services under the Communications Act of 1934, as amended. In the Declaratory Ruling, the Commission determined that "cable modem service, as it is currently offered, is properly classified as an interstate information service, not as a cable service, and that there is no separate offering of telecommunications service." [17 FCC Rcd. 4798, 4799] By classifying cable modem service as an information service and not a telecommunications service or a composite service that combines an information service and a telecommunications service, the Commission precluded the mandatory application of the requirements imposed on common carriers under Title II of the Communications Act, thus allowing the provision of such services to develop with relatively few regulatory requirements.
In making the determination that cable modem services are information services and not telecommunications services, the Commission first looked to the relevant statutory definitions of each as established by the Telecommunications Act of 1996. [17 FCC Rcd. at 4820] In enacting the Telecommunications Act of 1996, Congress codified a definitional distinction between "telecommunications" (and "telecommunications service") and "information service." "Telecommunications" is defined under the act as the "transmission, between or among points, specified by the user, of information of the user's choosing, without change in the form or content of the information as sent or received." [47 U.S.C. 153(43). “Telecommunications service” is the “offering of telecommunications for a fee directly to the public, or to such classes of users as to be effectively available directly to the public, regardless of the facilities used.” 47 U.S.C. § 153(46).] "information service", on the other hand, is defined as the "offering of a capability for generating, acquiring, storing, transforming, processing, retrieving, utilizing or making available information via telecommunications." [47 U.S.C. 153(20)] Noting that the statutory definitions are based on the functions that are made available with the service rather than the facilities used to provide the service, the Commission then examined the functions that cable modem service makes available to its end users. [17 FCC Rcd. at 4821]
Citing its determination in an earlier proceeding that Internet access service in general should be classified as an information service, the Commission found that since cable modem service is "an offering of Internet access service," it must also be an information service. [Id at 4822. See also In the Matter of Federal-State Joint Board on Universal Service, 13 FCC Rcd. 11501 (April 10, 1998).] The Commission stated that "cable modem service is a single, integrated service that enables the subscriber to utilize Internet access service through a cable provider's facilities and to realize the benefits of a comprehensive service offering." [Id.] The Commission rejected the notion that cable modem service included an "offering of telecommunications service to a subscriber," conceding that while the service was provided "via telecommunications," the telecommunications component was not "separable from the data-processing capabilities of the service." [Id. at 4823]
Ninth Circuit's Decision
The Ninth Circuit determined that the question before it was whether its prior interpretation of the Telecommunications Act controlled review of the Commission's decision regarding the classification of cable modem service. Three years prior, in AT&T v. City of Portland, a three judge panel of the Ninth Circuit determined that cable modem service was not a cable service, but was both an information and a telecommunications service. In the Brand X case, the court held that it was bound to follow its own precedent regarding the classification of cable modem service rather than apply the two-part test set forth by the Supreme Court in Chevron U.S.A., Inc. v. Natural Resources Defense Council, Inc. for reviewing an agency's interpretation of a statute it is charged with administering. [345 F.3d 1120, 1132] Thus, the court in the Brand X case vacated the part of the Commission's Declaratory Ruling regarding the classification of cable modem service as an information service. [Id.]
Supreme Court's Decision
The Court began its decision with the conclusion that Chevron's framework should be used to evaluate the Commission's interpretation of the statute and that the Ninth Circuit should have also applied Chevron, rather than following its own construction of the statute in the Portland case. In Chevron, the Court held that "ambiguities in statutes within an agency's jurisdiction to administer are delegations of authority to the agency to fill the statutory gap in a reasonable fashion." If the Court determines that the statute is ambiguous and the agency's interpretation of the statute is reasonable, "Chevron requires a federal court to accept the agency's construction of the statute, even if the agency's reading differs from what the court believes is the best statutory interpretation."
The Ninth Circuit's decision not to apply Chevron in favor of the "conflicting construction of the [Communications] Act it had adopted in Portland" was based on an "incorrect" assumption. According to the Supreme Court, the Ninth Circuit incorrectly assumed that its construction "overrode the Commission's regardless of whether Portland had held the statute to be unambiguous." However, the Supreme Court noted that "[a] court's prior judicial construction of a statute trumps an agency construction otherwise entitled to Chevron deference only if the prior court decision holds that its construction follows from the unambiguous terms of the statute and thus leaves no room for agency discretion."
After determining that the Ninth Circuit erred in applying its own construction of the act, the Court moved to its Chevron analysis. As to the statute's ambiguity, the Court first looked to the definitions of "telecommunications service" and "telecommunications" in the Telecommunications Act of 1996. The Courtdetermined that while "cable companies in the broadband Internet service business 'offe[r]' consumers an information service in the form of Internet access and they do so 'via telecommunications,'" it does not "inexorably follow as a matter of ordinary language that they also 'offe[r]' consumers the high-speed data transmission (telecommunications) that is an input used to provide this service." Restating the principle established in Chevron, the Court stated that "where a statute's plain terms admit of two or more reasonable ordinary usages, the Commission's choice of one of them is entitled to deference," and concluded that the use of the term "offer" in the definition of "telecommunications service" was ambiguous in such a way as to admit two or more reasonable ordinary usages.
After determining that the statute was ambiguous as to the classification of cable modem service, the Court then applied the second step of the Chevron analysis to determine whether the Commission's interpretation was "a reasonable policy choice for the Commission to make." The respondents in the case argued that the Commission's construction was unreasonable because "it allows any communications provider to 'evade' common-carrier regulation [under Title II] by the expedient of bundling information service with telecommunications." The Court rejected this argument, stating that it did not "believe that these results follow from the construction the Commission adopted." The Court went on to articulate its interpretation of the Commission's construction:As we understand the Declaratory Ruling, the Commission did not say that any telecommunications service that is priced or bundled with an information service is automatically unregulated under Title II. The Commission said that a telecommunications input used to provide an information service that is not "separable from the data-processing capabilities of the service" and is instead "part and parcel of [the information service] and is integral to [the information service's] other capabilities" is not a telecommunications offering.
The Court also rejected the respondent's argument that cable modem service provided simply the ability to transmit information. In so doing, the Court noted that the Internet access provided by the cable modem service allowed consumers to have access to DNS service (allowing them to reach third-party websites), the World Wide Web, electronic mail, remote terminal access, and file transfer capabilities, which effectively provides the "capability for . . . acquiring, storing . . . retrieving and utilizing . . . information" inherent in the definition of an information service. The Court therefore concluded that the Commission's construction was reasonable.
The Court also rejected respondent MCI, Inc.'s argument that the Commission's treatment of cable modem service is inconsistent with its treatment of DSL service, and is therefore "an arbitrary and capricious deviation from agency policy in violation of the Administrative Procedures Act. The Court concluded that the Commission provided a "reasoned explanation for treating cable modem service differently from DSL service," and that "the Commission is free within the limits of reasoned interpretation to change course if it adequately justifies the change."
The Court's reversal of the Ninth Circuit's decision effectively revives the Commission's Declaratory Ruling classifying cable modem service as an information service. As such, cable operators providing broadband internet access are currently not subject to the myriad of regulatory requirements mandated under Title II of the act. Most notably, providers of cable modem services are not obligated to provide unaffiliated internet service providers access to their broadband platforms. In addition, providers of cable modem services remain free, at this point, from provisions governing discrimination in the provision of services; universal service support; assistance to law enforcement in the interception of communications made over the network; network accessibility to individuals with disabilities; and the protection of subscriber information.
Moreover, the Commission's classification of cable modem service as an information service appears to limit the scope of state and local regulatory authority over such services. Regulatory requirements and fees imposed on cable operators by localities pursuant to the franchising authority conferred under title VI of the act are apparently applicable only to the provision of "cable services." Classification of cable modem service as an "information service" appears to preclude the imposition of such requirements on cable operators' broadband internet offerings.
The question remains however, whether the FCC can and will impose certain regulatory requirements on the provision of cable modem service pursuant to its authority under title I of the act. In Brand X, the Court expressly acknowledged the existence of such authority and the possibility that the Commission might "impose special regulatory duties on facilities-based ISP's under its Title I ancillary jurisdiction." The FCC is currently examining whether and which of such duties should be imposed as part of two proceedings pending before it.
|CS Docket No. 02-52||Comments due June 17, 2002
Reply comments due
|Ex Parte Period|
|Cable Modem Service NPRM||Express Your Views! Comments can be filed with the FCC's Electronic Comment Filing System. FAQ: How to participate in FCC Proceedings.|
|The FCC also adopted a Notice of Proposed Rulemaking to examine:
||FCC High Speed Internet NOI Website
Released: 04/19/2002. PLEADING CYCLE ESTABLISHED FOR NPRM REGARDING THE APPROPRIATE REGULATORY TREATMENT FOR BROADBAND ACCESS TO THE INTERNET OVER CABLE FACILITIES. (DA No. 02-909). (Dkt No 02-52). Comments Due: 06/17/2002. Reply Comments Due: 07/16/2002. MB. Contact: Steve Garner at 1063, email: sgarner DA-02-909A1.doc DA-02-909A1.pdf DA-02-909A1.txt, fcc 4/22/02
Fed Register Notice
APPROPRIATE REGULATORY TREATMENT FOR BROADBAND ACCESS TO THE INTERNET OVER CABLE FACILITIES. Granted motion for extension of time of the National Cable and Telecommunications Association for a three-week extension of the date for filing reply comments, to August 6, 2002. Action by: Chief, Media Bureau. Reply Comments Due: 08/06/2002. Adopted: 07/05/2002 by ORDER. (DA No. 02-1595). MB,
|Released Sept 28, 2000
|Comments due Dec 1, 2000.
Replies due Jan 10, 2001 FCC PN
|Affirmed by the Supreme Court. NCTA v BrandX.|
Cable Open Access Proceeding
|Comment period has closed but comments can efstill be filed as ex parte comments. Comments can be filed online at the FCC's Electronic Comment Filing System (note docket number) FAQ: How to participate.|
|FCC Classifies Cable Modem Service as "Information Service": Initiates Proceeding to Promote Broadband Deployment and Examine Regulatory Implications of Classification.
Statements: Powell | Abernathy | Copps
FCC 02-77 Order: Text | Word | Acrobat
FCC Press Release Sept 28, 2000
Petitions incorporated in this proceeding:
USTA Petition requesting declaratory ruling that cable operators must contribute to universal service. (filed Sept 26, 2000).
The US Internet Industry Association (USIIA) on July 7, 2000 filed a petition with the FCC asking that cable Internet services be required to fulfill their obligations to open their networks to competition. Read the USIIA News Release, or review the FCC Filing.
Washington, D.C. - Today, the Federal Communications Commission (FCC) adopted another major rulemaking, part of a series of actions, designed to promote widespread deployment of broadband services. The FCC settled a debate over the regulatory classification of cable modem service and launched a proceeding to examine the proper regulatory treatment of this service.
In a Declaratory Ruling adopted today, the FCC concluded that cable modem service is properly classified as an interstate information service and is therefore subject to FCC jurisdiction. The FCC determined that cable modem service is not a "cable service" as defined by the Communications Act. The FCC also said that cable modem service does not contain a separate "telecommunications service" offering and therefore is not subject to common carrier regulation.
. . . . .
Today's decision follows five other related proceedings - the Cable Modem NOI, the National Performance Measures NPRM, the Incumbent LEC Broadband Notice, the Triennial UNE Review Notice and, most recently, the Wireline Broadband NPRM. These proceedings, together with today's actions, are intended to build the foundation for a comprehensive and consistent national broadband policy.
Prior to the federal activity was activity on the state level, with most notably the AT&T v Portland decision: See California :: Colorado :: Florida :: Maryland :: Massachusetts :: Oregon (with the early AT&T v Portland which held that cable modem service is a telecom service):: Pennsylvania :: Texas :: Virginia :: Washington :: Canada